Hundreds of injuries to rail workers may not have been reported over the past few years because of pressure and, in some cases, "fear" felt by staff if they give details of incidents, according to an official report published today.
The Rail Safety and Standards Board (RSSB) said there had been a "significant" level of under-reporting of injuries by Network Rail staff and those employed by contractors.
Its report said between 500 and 600 injuries might not have been reported between 2005/06 and 2009/10, mainly on infrastructure projects.
The report said: "The under-reporting of Riddor [reporting of injuries, diseases and dangerous occurrences regulations] lost-time injuries has occurred because of the change in both the culture of Network Rail and its relationship with its contractors since 2005.
"These changes are a result of the real and perceived pressure and, in some cases, fear felt by Network Rail staff and contractors if they report accidents or incidents.
Network Rail directors, senior and local managers and frontline staff showed a real desire to improve safety, but there was some evidence that local managers were under such pressure to "get the job done" that it might, in some cases, lead to safety and safety reporting being compromised, said the report.
"From the evidence gathered in the review, we consider this real and perceived pressure and fear have arisen as unintended consequences of the Network Rail implementation of the overall strategy for safety (which was consciously designed to improve safety), based on the use of quantitative safety targets, safety performance measures, league tables and contractual requirements linked to the number of reported Riddor lost-time injuries; other management actions, such as the frequent company reorganisations, and the application of a managing for attendance policy."
Other issues identified included the procurement strategy used to drive down costs and improve efficiency, leading to the primary contractor companies making much greater use of temporary contract staff.
The report said Network Rail should consider further steps to improve the working relationship between directors and senior managers, and all levels of their staff, and between the company and its contractors.
"We have also identified a number of more detailed recommendations that could help to remove the disincentives to reporting that have been identified and to promote a more open safety and reporting culture by Network Rail staff and its contractors."
Bob Rixham, national officer of the union Unite, said: "The review exposes a culture where rail staff and contractors were under pressure not to report accidents.
"Network Rail and the industry must now admit to themselves how bad the situation had become, and only then can the industry move forward and encourage and nurture a just safety culture."
Peter Henderson, Network Rail's acting chief executive, said: "Enhancing the safety of the railway and establishing a more open culture is a complex issue. To achieve our safety ambitions, we will work together with our contractors, unions and other stakeholders and use these findings to help develop a wide-ranging safety plan."
Gerry Doherty, leader of the Transport Salaried Staffs' Association, accused the RSSB of "pulling its punches" in its report, adding: "We are disappointed with this report but not in any way surprised, given the fact that the RSSB is funded by NR and the private train operating companies.
"It clearly identifies a culture of fear and bullying whereby staff are under intense pressure to meet safety targets and league tables which affect everyone's bonus payments. It then reaches the perverse verdict there is only 'indirect linkage' to a massive under-reporting of 40% of accidents and that very culture."
Ian Prosser, the Office of Rail Regulator's director of railway safety said: "The report's findings … reinforce the need for improving the underlying health and safety culture within Network Rail and its contractors so that they learn from all incidents. This has already been recognised by the company, which has made significant efforts since last summer to address the issues.
"The company still has some way to go, but building on their recent improvements I am now confident that the new leadership understands the problems and is clearly focused on improving its health and safety culture."