Cave Creek disaster
Encyclopedia
The Cave Creek disaster was an event in which 14 people died when a scenic viewing platform collapsed. It occurred in Paparoa National Park
on New Zealand's West Coast
, on 28 April 1995. The tragedy resulted in wide criticism of the government and its policies towards funding and management of the conservation estate. Denis Marshall
, New Zealand's Minister of Conservation, eventually resigned. It also resulted in major changes to procedures used by the New Zealand Department of Conservation
after it was revealed that serious systemic failures had led to the building of the unstable platform. Eventual changes in New Zealand Law, following a change of government, allowed for government departments to be held criminally liable for inadequate building practices, in the same way as non-government organisations.
The designers and builders of the platform did not have appropriate qualifications for the job, and at least ten major problems or oversights occurred during the platform's construction. The platform was highly unsafe, especially with large numbers of people on it.
in Greymouth
visited the park. En route through the bush, a small group consisting of the polytechnic tutor, a DOC officer and three students split off while the larger group of 17 students and another DOC officer continued towards the platform.
The larger group reached the platform first, and walked to the edge together at about 11:25 a.m. The platform toppled forward into the chasm. (In 2005, survivor Stacy Mitchell admitted that he and some other students were shaking the platform hard when it collapsed. ) The DOC officer and 13 of the students were killed. Four students survived the collapse with serious injuries.
The second group reached the location shortly after the collapse. Having realised what happened, the remaining DOC officer and one of the students ran back to the start of the track for help, but on arriving they found that the keys were not in the group's vehicles. At this point, the DOC officer returned to the scene of the accident while the student ran along the road with a note containing information about the location of the accident. By 12:15 p.m., he had managed to phone the police at Greymouth.
The remoteness of the site made it difficult for medical services to assist the survivors. The first person to reach the scene was a Greymouth police constable, who arrived on foot two hours after the accident—ambulances from Greymouth and Westport
and helicopters from Christchurch
arrived only later.
Besides the specific flaws in the actual platform and methods of its construction, the Commission said the "root causes" of the collapse were systemic problems in the Department as a whole, noting that the Department was seriously under-funded and under-resourced. The Commission found that the Department had not been given sufficient resources to meet its requirements without "cutting corners", and was frequently forced to accept poor quality standards due to its lack of funding. http://www.doc.govt.nz/publications/about-doc/news/issues/commission-of-inquiry-cave-creek-report/ The report of the Commission concluded that given the department's state, "a tragedy such as Cave Creek was almost bound to happen".
The review led to the removal of a large number of structures on public land, and many safety notices appeared on the remainder around New Zealand. Indeed, some felt the response was excessive; for instance, bridges and platforms were labelled with signs such as "1 person maximum", acting as an eerie reminder of the disaster which prompted the safety review.
Although DOC took responsibility for the accident, there were no prosecutions due to a loophole in New Zealand law that prevented government departments from being held liable in such a situation. $2.6 million was still paid to the victims' families, however. Since the accident, New Zealand law has been adjusted to ensure that the Building Act covers government departments, and to allow government departments to be held liable for such negligence in future.
Prime Minister Jim Bolger
initially attacked the report produced by the Commission of Inquiry, arguing that the platform failed "essentially because it lacked about $20 worth of bolts to hold it together". The Minister of Conservation, Denis Marshall
, was criticised in the media for his management of the Department. Many people blamed Marshall, although there was also wide criticism of the whole government's policies on management of the conservation estate. Marshall eventually resigned in May 1996, just over a year after the accident occurred. A new Minister, Nick Smith
, was appointed, and a full review of the Department was conducted by the State Services Commission.
A memorial plaque was unveiled in April 1996. The path was re-opened in 1998, but the viewing platform was not rebuilt. In place of the platform are a fence and warning sign.
Paparoa National Park
Paparoa National Park is on the west coast of the South Island of New Zealand.It was established in 1987 and encompasses 306 km². The park ranges from on or near the coastline to the peak of the Paparoa Ranges. A separate section of the park is to the north and is centered at Ananui Creek.The...
on New Zealand's West Coast
West Coast, New Zealand
The West Coast is one of the administrative regions of New Zealand, located on the west coast of the South Island, and is one of the more remote and most sparsely populated areas of the country. It is made up of three districts: Buller, Grey and Westland...
, on 28 April 1995. The tragedy resulted in wide criticism of the government and its policies towards funding and management of the conservation estate. Denis Marshall
Denis Marshall
Denis William Anson Marshall, QSO is a former New Zealand politician. He was an MP from 1984 to 1999, representing the National Party, and a Government Minister until 1996...
, New Zealand's Minister of Conservation, eventually resigned. It also resulted in major changes to procedures used by the New Zealand Department of Conservation
New Zealand Department of Conservation
The Department of Conservation , commonly known by its acronym, "DOC", is the state sector organisation which deals with the conservation of New Zealand’s natural and historic heritage...
after it was revealed that serious systemic failures had led to the building of the unstable platform. Eventual changes in New Zealand Law, following a change of government, allowed for government departments to be held criminally liable for inadequate building practices, in the same way as non-government organisations.
Background
Cave Creek is a small stream in Paparoa National Park. The viewing platform was erected by the Department of Conservation (DOC) in April 1994, and looked out over a 30-metre chasm. The platform was constructed to allow visitors a view of Cave Creek emerging from a cave system below.The designers and builders of the platform did not have appropriate qualifications for the job, and at least ten major problems or oversights occurred during the platform's construction. The platform was highly unsafe, especially with large numbers of people on it.
The platform collapse
On the day of the incident, a group of students from Tai Poutini PolytechnicTai Poutini Polytechnic
Tai Poutini Polytechnic is a selection of campuses spread across New Zealand offering many different courses in tertiary education. The main campus is based in Greymouth on the West Coast region of New Zealand, but also incorporates the Music and Audio Institute of New Zealand|Music and Audio...
in Greymouth
Greymouth
Greymouth is the largest town in the West Coast region in the South Island of New Zealand, and the seat of the Grey District Council. The population of the whole Grey District is , which accounts for % of the West Coast's inhabitants...
visited the park. En route through the bush, a small group consisting of the polytechnic tutor, a DOC officer and three students split off while the larger group of 17 students and another DOC officer continued towards the platform.
The larger group reached the platform first, and walked to the edge together at about 11:25 a.m. The platform toppled forward into the chasm. (In 2005, survivor Stacy Mitchell admitted that he and some other students were shaking the platform hard when it collapsed. ) The DOC officer and 13 of the students were killed. Four students survived the collapse with serious injuries.
The second group reached the location shortly after the collapse. Having realised what happened, the remaining DOC officer and one of the students ran back to the start of the track for help, but on arriving they found that the keys were not in the group's vehicles. At this point, the DOC officer returned to the scene of the accident while the student ran along the road with a note containing information about the location of the accident. By 12:15 p.m., he had managed to phone the police at Greymouth.
The remoteness of the site made it difficult for medical services to assist the survivors. The first person to reach the scene was a Greymouth police constable, who arrived on foot two hours after the accident—ambulances from Greymouth and Westport
Westport, New Zealand
-Economy:Economic activity is based around fishing, coal mining and dairy farming. Historically, gold mining was a major industry, and coal mining was much more extensive than today . However, the region still is home to New Zealand's largest opencast mining operation in Stockton...
and helicopters from Christchurch
Christchurch
Christchurch is the largest city in the South Island of New Zealand, and the country's second-largest urban area after Auckland. It lies one third of the way down the South Island's east coast, just north of Banks Peninsula which itself, since 2006, lies within the formal limits of...
arrived only later.
The Commission of Inquiry
A Commission of Inquiry into the accident, headed by District Judge Graeme Noble, highlighted a number of serious concerns with the Department of Conservation's construction of the platform. Specific concerns that were raised included:- the platform had not been designed or approved by a qualified engineer.
- none of the people involved in building the platform were qualified engineers.
- nails were used to secure the platform instead of bolts (as intended by the design), because an appropriate drill had not been taken to the building site.
- the steps to the platform, which were supposed to be attached as a counterweight, had not been properly attached.
- a Building Consent had never been obtained for the platform. When this was realised, the plans had been lost and replacement (and incorrect) schematics were hastily drawn by an unqualified volunteer exchange student so as to lodge a retrospective application. Further confusion about the Building Act then resulted in the consent never being lodged.
- the platform was not listed in any register that would have resulted in regular inspections.
- a warning sign for the platform, indicating the maximum limit of people, had been ordered but was never installed at the site.
Besides the specific flaws in the actual platform and methods of its construction, the Commission said the "root causes" of the collapse were systemic problems in the Department as a whole, noting that the Department was seriously under-funded and under-resourced. The Commission found that the Department had not been given sufficient resources to meet its requirements without "cutting corners", and was frequently forced to accept poor quality standards due to its lack of funding. http://www.doc.govt.nz/publications/about-doc/news/issues/commission-of-inquiry-cave-creek-report/ The report of the Commission concluded that given the department's state, "a tragedy such as Cave Creek was almost bound to happen".
Repercussions
Soon after the accident, the Department of Conservation inspected more than 520 structures, and 65 were closed for repairs.The review led to the removal of a large number of structures on public land, and many safety notices appeared on the remainder around New Zealand. Indeed, some felt the response was excessive; for instance, bridges and platforms were labelled with signs such as "1 person maximum", acting as an eerie reminder of the disaster which prompted the safety review.
Although DOC took responsibility for the accident, there were no prosecutions due to a loophole in New Zealand law that prevented government departments from being held liable in such a situation. $2.6 million was still paid to the victims' families, however. Since the accident, New Zealand law has been adjusted to ensure that the Building Act covers government departments, and to allow government departments to be held liable for such negligence in future.
Prime Minister Jim Bolger
Jim Bolger
James Brendan "Jim" Bolger, ONZ was the 35th Prime Minister of New Zealand from 1990 to 1997. Bolger was elected on the promise of delivering a "Decent Society" following the previous Labour government's economic reforms, known as Rogernomics...
initially attacked the report produced by the Commission of Inquiry, arguing that the platform failed "essentially because it lacked about $20 worth of bolts to hold it together". The Minister of Conservation, Denis Marshall
Denis Marshall
Denis William Anson Marshall, QSO is a former New Zealand politician. He was an MP from 1984 to 1999, representing the National Party, and a Government Minister until 1996...
, was criticised in the media for his management of the Department. Many people blamed Marshall, although there was also wide criticism of the whole government's policies on management of the conservation estate. Marshall eventually resigned in May 1996, just over a year after the accident occurred. A new Minister, Nick Smith
Nick Smith (New Zealand)
Nicolas Rex "Nick" Smith is a New Zealand politician and a member of the New Zealand Parliament as a National Party MP...
, was appointed, and a full review of the Department was conducted by the State Services Commission.
A memorial plaque was unveiled in April 1996. The path was re-opened in 1998, but the viewing platform was not rebuilt. In place of the platform are a fence and warning sign.