Introduction
Recent terrorist events in the United States underscore the
importance of workplace evacuation planning. Consequently, OSHA
developed this Evacuation Planning Matrix to provide employers
with planning considerations and on-line resources that may help employers reduce their vulnerability to a terrorist act
or the impact of a terrorist release. Terrorist incidents are not
emergencies that OSHA expects an employer to reasonably
anticipate. However, if a terrorist release does occur in or near
your workplace, an effective evacuation plan increases the
likelihood that your employees will reach shelter safely.
Since terrorism can impact employers and workers, OSHA is committed to strengthening workplace planning and
preparedness so that employers and workers may better protect
themselves and reduce the likelihood that they may be harmed in the event of a terrorist
incident. OSHA continues to work with other
Federal response agencies including the Federal Emergency
Management Agency (FEMA), the Environmental Protection Agency
(EPA), the U.S. Soldier Biological and Chemical Command (SBCCOM),
the Centers for Disease Control and Prevention (CDC) and, within
CDC, the National Institute for Occupational Safety and Health
(NIOSH), to provide accurate, current information in this rapidly
developing area of occupational safety and health.
Assessing the Risk of a Terrorist Release
Within this document, OSHA draws on the FBI definition of
terrorism and defines terrorist release as the release
of a chemical, biological, radiological or nuclear material
(commonly identified as a Weapon of Mass Destruction (WMD)) or of
another hazardous substance, performed as a violent act dangerous
to human life and intended to further political or social
objectives.
In order to use this evacuation guidance effectively, an employer
must first assess the risk of a terrorist release in the
workplace. The level of risk is a combination of workplace
vulnerabilities, recognized threat, and anticipated consequences of
the event. This kind of assessment is not a typical safety and
health evaluation. However, guidance on conducting such an
assessment is becoming more widely available. For many employers,
Best Practices in Workplace Security, a homeland
security guide developed by the State of South Carolina and
available online at
http://www.llr.state.sc.us/workplace/fullreport.pdf [PDF],
can offer valuable assistance. Its Worksite Risk Assessment
List helps employers assess risk based on the following terrorism risk factors:
- uses, handles, stores or transports hazardous materials;
- provides essential services, e.g., sewer treatment,
electricity, fuels, telephone, etc.;
- has a high volume of pedestrian traffic;
- has limited means of egress, such as a high rise complex or
underground operations;
- is considered a high profile site, such as a water dam,
military installation, or classified site; or
- is part of the transportation system, such as shipyard, bus
line, trucking, airline.
If these risk factors apply to your work site and cannot be
eliminated, you may face greater vulnerability to a terrorist release than other workplaces. To assess the potential threat and consequences of a
terrorist release at or near your workplace, consult local law
enforcement, the local FBI, and/or the local emergency planning
committee (see EPA's LEPC database online at http://www.epa.gov/ceppo/lepclist.htm). You will need information provided by these agencies to
complete your overall risk assessment and to determine which of the three risk zones noted below best characterizes your workplace.
Chemical facilities can use the US Department of Justice's Chemical
Facility Vulnerability Assessment Methodology, online at
http://www.ojp.usdoj.gov/nij/pubs-sum/195171.htm, to assess
workplace vulnerabilities. Although this document also discusses
threat and consequence assessment, you still will need input from
local law enforcement, local FBI, and/or your local LEPCs to complete your evaluation.
Using OSHA's Evacuation Planning Matrix
The Matrix is not a compliance tool for conducting a
comprehensive compliance evaluation of an emergency plan
developed to comply with the Emergency Action Plan Standard (29 CFR 1910.38) or the Hazardous Waste Operations and Emergency Response Standard (29 CFR 1910.120(q)).
Rather, this document covers the general aspects of emergency
planning and includes broad questions to help employers review their existing plan in light of an indoor or outdoor
terrorist release. The document also offers basic planning and
preparedness measures for workplaces in each of three risk zones
and on-line resources for assistance. After
you complete the terrorism risk assessment,
review the description of each risk zone to see where your
workplace fits best, then examine the planning
considerations for that zone.
NOTICE |
OSHA offers this guidance to assist employers and workers who are interested in implementing plans and procedures that may reduce the likelihood of a terrorist incident and reduce the effect of a terrorist release, should a terrorist incident occur at a workplace. However, the guidance does not create legal obligations for employers or create rights for third parties. Legal obligations under the OSH Act are created by statute, regulations, and standards. |
Note: If you do not have an emergency plan and want to determine whether OSHA requires you to
have one, please see Does Your Facility Need an Emergency Action Plan?
OSHA Terrorist Release Risk Categories
OSHA shows the zones in the shape of a pyramid to represent how
the nation's workplaces appear to be distributed within the zones. Based on
information currently available, the vast majority of American
workplaces are at low risk for a terrorist release, i.e. are in
the Green Zone. The questions, recommendations, and on-line resources in each risk zone build on the
those in the zone below it. For example, the Yellow Zone includes both the information
in the Green Zone and additional information for Yellow Zone workplaces.
Green Zone:
Workplaces that are not likely to be a target for a terrorist
release because they are characterized by limited vulnerability,
limited threat, and limited potential for significant impact (consequence).
Note: If the workplaces near you seem to be in a higher
zone, you may wish to review and implement the
planning/preparedness considerations in the Yellow Zone.
Yellow Zone:
Workplaces that may be targets because they are characterized by
high vulnerability or high threat or a potentially
significant impact (consequence), but not more than one of these.
Note: If the workplaces near you seem to be in a higher
zone, you may wish to review and implement the
planning/preparedness considerations in the Red Zone.
Red Zone:
Workplaces that are most likely to be targets because they are
characterized by two or more of the following: high vulnerability,
high threat, and potentially catastrophic impact (consequence). Such workplaces
need to consider sheltering employees in place as well as
evacuation, and may consider assigning some terrorist incident
response roles to their own employees. Note: The
color-coded risk levels in this Matrix do not equate to the
Threat Levels in the Homeland Security Advisory System developed
by the Department of Homeland Security. However,
employers that place themselves in the Yellow or Red risk levels
may consider implementing sequential preparedness measures
consistent with those listed in the
Homeland Security Presidential Directive - 3 (describes
Threat Levels) for federal agencies.
Limitations of Guidance
Because of the vast number and types of workplaces in the U.S.,
this Matrix provides broad information applicable to most
workplaces. If you want to modify your plan to address specific
considerations, you can get additional information from on-line
resources identified. For additional information about workplace
emergency planning, see
OSHA's Emergency Response Technical Links webpage.
As a nation, our understanding of the risk of terrorist releases
and the agents involved continues to evolve. It is likely that
OSHA's recommendations for preparedness, training, and
equipment also will evolve. OSHA remains committed to helping
employers and workers protect themselves from the risk of terrorism in the workplace and is working closely with other Federal agencies to provide employers with current information and guidance.
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