A good point, but I don't know the answer, I'm just glad I am out of industry now, and no longer subject to the H&S nazis - I can assess my own risks, minimise them my own way, and get on with it, like I always did. In my final years at work, visiting numerous sites per day, the company insisted on a risk assessment for every site I visited, alongside the site reports. Do it often enough, and the RA filling, turns into an automatic thing, not worth the paper it is written on.
What I notice is, that as they make things inherently safer, the numpties just find a riskier way to live. As cars became safer, then drivers became less patient, more willing to take risks on the road.