1. Chapter 1 The Hazardous Materials Management System
Textbook Page 1

2. Objectives Describe The Scope And Target Audience Of This Manual.
List The Key Legislative, Regulatory, And Voluntary Consensus Standards That Impact Hazmat Emergency Planning, And Response Operations.
Describe The Concept Of “Standard Of Care” As Applied To Hazardous Materials Training, Planning And Response.

3. Objectives
Define And Explain The Source Of, And Circumstances For Using, The Following Terms:
Hazardous Materials (Hazmats)
Hazardous Substances
Extremely Hazardous Substances (EHS)
Hazardous Chemicals
Hazardous Wastes
Dangerous Goods
List And Describe The Components Of The Hazardous Materials Management System For Managing The Hazardous Materials Problem Within The Facility Or Community.

4. Introduction This is a Text about Hazardous Materials Response
It Is Designed To Provide Both Public And Private Sector Emergency Response Personnel (ERP) With A Logical, Building Block System For Managing Hazardous Materials Emergencies.
It Is Designed To Begin At The Point Where ERP Recognize That They Are, In Fact, Dealing With A Hazardous Materials Emergency.

5. Introduction Our Primary Target Audience Include:
Hazardous Materials Technicians
Hazmat Group Supervisor Or Branch Director
On-scene Incident Commander
Members Of Organized Hazardous Materials Response Teams (HMRTs)
Other Special Operations Teams
Bomb Squads
Confined Space Rescue Teams

6. Introduction
This Third Edition Has Been Expanded To Include Additional Information To Assist The Reader In Meeting The Cognitive Skill Requirements Of:
Occupational Safety And Health Administration (OSHA) (q).
National Fire Protection Association (NFPA) 472 Competencies For The Hazardous Materials Technician And The On-scene Incident Commander.

7. What is A Hazardous Material?
There Are Many Various Definitions Of What A Hazardous Materials Is.
Hazardous Materials —Any Substance Or Material In Any Form Or Quantity That Poses An Unreasonable Risk To Safety And Health And Property When Transported In Commerce (Source: U.S. Department Of Transportation [DOT], 49 Code Of Federal Regulations (CFR) 171).

8. Hazardous Materials Definitions
Hazardous Substances — Any Substance Designated Under The Clean Water Act And The Comprehensive Environmental Response, Compensation And Liability Act (CERCLA) As Posing A Threat To Waterways And The Environment When Released (Source: U.S. Environmental Protection Agency [EPA], 40 CFR 302). Note: Hazardous Substances As Used Within OSHA Refers To Every Chemical Regulated By EPA As A Hazardous Substance And By DOT As A Hazardous Material.

9. Hazardous Materials Definitions
Extremely Hazardous Substances (EHS) — chemicals Determined By The EPA To Be Extremely Hazardous To A Community During An Emergency Spill Or Release As A Result Of Their Toxicities And Physical/Chemical Properties (Source: EPA 40 CFR 355).
Hazardous Chemicals — Any Chemical That Would Be A Risk To Employees If Exposed In The Workplace (Source: OSHA, 29 Cfr 1910).

10. Hazardous Materials Definitions
Hazardous Wastes — Discarded Materials Regulated By The EPA Because Of Public Health And Safety Concerns. Regulatory Authority Is Granted Under The Resource Conservation And Recovery Act (RCRA). (Source: EPA, 40 CFR 260– 281).
Dangerous Goods — In International Transportation, Hazardous Materials Are Commonly Referred To As “Dangerous Goods.”

11. Ludwig Benner’s Definition
Hazmat Emergency Response Primarily Focuses On The Interaction Of The Hazmat And Its Container.
For The Purposes Of This Text, We Will Use The Definition Of A Hazardous Material Developed By Ludwig Benner, Jr.
Hazardous Materials—any Substance That Jumps Out Of Its Container When Something Goes Wrong And Hurts Or Harms The Things It Touches.

12. Ludwig Benner’s Definition
The Definition Recognizes That Emergency Response Is As Much A Container Behavior Problem As It Is A Chemical Problem.
A Hazardous Materials Incident Can Then Be Defined As The Release, Or Potential Release, Of A Hazardous Material From Its Container Into The Environment.

13. Hazmat Laws, Regulations, And Standards
Operations Involving The Manufacture, Transport, And Use Of Hazardous Materials, And Response, Are Impacted By A Large Body Of Laws, Regulations, And Voluntary Consensus Standards.
Laws Are Primarily Created Through An Act Of Congress, By Individual State Legislatures, Or By Local Government Bodies. 5

14. Hazmat Laws, Regulations, And Standards
Regulations, Sometimes Called Rules, Are Created By Federal Or State Agencies As A Method Of Providing Guidelines For Complying With A Law That Was Enacted Through Legislative Action.
Voluntary Consensus Standards Are Normally Developed Through Professional Organizations Or Trade Associations As A Method Of Improving The Individual Quality Of A Product Or System.

15. Federal Hazmat Laws
RCRA —The Resource Conservation And Recovery Act (1976)
CERCLA —The Comprehensive Environmental Response Compensation And Liability Act (1980) “Superfund”
SARA — Superfund Amendments And Reauthorization Act Of 1986.
CAA —The Clean Air Act
OPA — Oil Pollution Act Of 1990

16. Hazmat Regulations Regulations
Define The Broad Performance Required To Meet The Letter Of The Law (I.E., Performance-oriented Standards)
Provide Very Specific And Detailed Guidance On Satisfying The Regulation (I.E., Specification Standards).

17. Federal Regulations
Hazardous Waste Operations And Emergency Response (29 CFR )
Community Emergency Planning Regulations (40 CFR )
Risk Management Programs For Chemical Accidental Release Prevention (40 CFR Part 68)
Hazard Communication (Hazcom) Regulation (29 CFR )
Hazardous Materials Transportation Regulations (49 CFR 100–199)
National Contingency Plan Or NCP (40 CFR 300, Subchapters A Through J)

18. HAZWOPER - (29 CFR )
This Regulation Establishes Important Requirements For Both Industry And Public Safety Organizations That Respond To Hazmat Or Hazardous Waste Emergencies.
This Includes Firefighters, Law Enforcement And EMS Personnel, Hazmat Responders, And Industrial Emergency Response Team (ERT) Members.
Requirements Cover The Following Areas:
Hazmat Emergency Response Plan
Emergency Response Procedures
Specific Training Requirements Covering Instructors And Both Initial And Refresher Training
Medical Surveillance Programs
Post Emergency Termination Procedures

19. HAZWOPER - Levels of Response
First Responder - Awareness Level
These Are Individuals Who Are Likely To Witness Or Discover A Hazardous Substance Release And Who Have Been Trained To Initiate An Emergency Response Notification Process.
First Responder – Operation Level
These Are Individuals Who Respond To Releases Or Potential Releases Of Hazardous Substances As Part Of The Initial Response For The Purpose Of Protecting Nearby Persons, Property, Or The Environment From The Effects Of The Release.

20. HAZWOPER - Levels of Response
Hazardous Materials Technician
These Are Individuals Who Respond To Releases Or Potential Releases For The Purposes Of Stopping The Release.
Hazardous Materials Specialists
Hazardous Materials Specialists Shall Have Received At Least 24 Hours Of Training Equal To The Technician Level

21. HAZWOPER - Levels of Response
On-scene Incident Commander
Incident Commanders, Who Will Assume Control Of The Incident Scene Beyond The First Responder–awareness Level, Shall Receive At Least 24 Hours Of Training Equal To The First Responder–operations Level.

22. HAZWOPER - Levels of Response
Skilled Support Personnel
These Are Personnel Who Are Skilled In The Operation Of Certain Equipment, Such As Cranes And Hoisting Equipment, And Who Are Needed Temporarily To Perform Immediate Emergency Support Work That Cannot Reasonably Be Performed In A Timely Fashion By Emergency Response Personnel.

23. HAZWOPER - Levels of Response
Specialist Employees
These Are Employees Who, In The Course Of Their Regular Job Duties, Work With And Are Trained In The Hazards Of Specific Hazardous Substances, And Who Will Be Called Upon To Provide Technical Advice Or Assistance To The Incident Commander At A Hazmat Incident.

24. Community Emergency Planning Regulations
40 CFR
Regulation Is The Result Of SARA, Title III And Mandates The Establishment Of Both State And Local Planning Groups To Review Or Develop Hazardous Materials Response Plans.
The State Planning Groups Are Referred To As The State Emergency Response Commission (SERC)
The Coordinating Point For Both Planning And Training Activities At The Local Level Is The Local Emergency Planning Committee (LEPC)

25. Community Emergency Planning Regulations
The LEPC Is Specifically Responsible For Developing And/Or Coordinating The Local Emergency Response System And Capabilities.
Develop, Regularly Test, And Exercise The Hazmat Emergency Operations Plan.
Conduct A Hazards Analysis Of Hazmat Facilities And Transportation Corridors Within The Community.
Receive And Manage Hazmat Facility Reporting Information.
Coordinate The Community Right-to-know Aspects Of Sara, Title Iii.

26. Risk Management Programs For Chemical Accidental Release Prevention
40 CFR Part 68
Promulgated Under Amendments To The Clean Air Act, This Regulation Requires That Facilities That Manufacture, Process, Use, Store, Or Otherwise Handle Certain Regulated Substances Above Established Threshold Values Develop And Implement Risk Management Programs (RMP).

27. Risk Management Programs For Chemical Accidental Release Prevention
Risk Management Programs Consist Of Three Elements:
Hazard Assessment Of The Facility, Including The Worst-case Accidental Release And An Analysis Of Potential Off-site Consequences.
Prevention Program, Which Addresses Safety Precautions, Maintenance, Monitoring, And Employee Training. EPA Believes That The Prevention Program Should Adopt And Build Upon The OSHA Process Safety Management Standard.
Emergency Response Considerations, Including Facility Emergency Response Plans, Informing Public And Local Agencies, Emergency Medical Care, And Employee Training.

28. Hazard Communication (Hazcom) Regulation
MSDS
29 CFR
HAZCOM Is A Federal Regulation That Requires Hazardous Materials Manufacturers And Handlers To Develop Written Material Safety Data Sheets (MSDS) On Specific Types Of Hazardous Chemicals.
Under The Hazcom Requirements, Hazmat Health Exposure Information Should Be Provided To Emergency Responders During The Termination Phase, And All Exposures Should Be Documented.

29. Hazardous Materials Transportation Regulations
49 CFR 100–199
This Series Of Regulations Is Issued And Enforced By The U.S. Dot. The Regulations Govern Container Design, Chemical Compatibility, Packaging And Labeling Requirements, Shipping Papers, Transportation Routes And Restrictions, And So Forth.

30. National Contingency Plan Or NCP
40 CFR 300, Subchapters A Through J
This Plan Outlines The Policies And Procedures Of The Federal Agency Members Of The National Oil And Hazardous Materials Response Team (Also Known As The National Response Team, Or The NRT).
The Regulation Provides Guidance For Emergency Responses, Remedial Actions, Enforcement, And Funding Mechanisms For Federal Government Response To Hazmat Incidents.

31. State Regulations
Each Of The 50 States And The U.S. Territories Maintains An Enforcement Agency That Has Responsibility For Hazardous Materials.
The Three Key Players In Each State
The State Fire Marshal
The State Occupational Safety And Health Administration
The State Department Of The Environment (Sometimes Known As Natural Resources Or Environmental Quality).
State Governments May Also Maintain An Environmental Enforcement Agency And Environmental Crimes Unit

32. Voluntary Consensus Standards
Standards Developed Through The Voluntary Consensus Process Play An Important Role In Increasing Both Workplace And Public Safety.
Consensus Standards Are Also Updated More Regularly Than Governmental Regulations And Can Usually Be Developed More Quickly To Meet Issues Of The Day.
In Many Respects, A Voluntary Consensus Standard Provides A Way For Individual Organizations And Corporations To Self-regulate Their Business Or Profession.

33. Voluntary Consensus Standards
Among The Most Important Consensus Standards Used Within The Hazmat Response Are The Following:
NFPA 471— Recommended Practice For Responding To Hazardous Material Incidents.
NFPA 472 — Standard For Professional Competence Of Responders To Hazardous Material Incidents.
NFPA Standard For Professional Competence Of EMS Personnel Responding To Hazardous Material Incidents

34. Voluntary Consensus Standards
NFPA 472 Provides Competencies For The Following Levels Of Hazmat Responders:
First Responder At The Awareness Level
First Responder At The Operational Level
Hazardous Materials Technician
Incident Commander
Private Sector Specialist Employee
Level C
Level B
Level A
Hazardous Materials Branch Officer.
Hazardous Materials Technician With A Specialty

35. NFPA Standard For Professional Competence Of EMS Personnel Responding To Hazardous Material Incidents
The Purpose Of NFPA 473 Is To Specify Minimum Requirements Of Competence And To Enhance The Safety And Protection Of Response Personnel And All Components Of The Emergency Medical Services System.
EMS/HM Level I. Persons Who, In The Course Of Their Normal Duties, May Be Called On To Perform Patient Care Activities In The Cold Zone At A Hazmat Incident.
EMS/HM Level II. Persons Who, In The Course Of Their Normal Duties, May Be Called On To Perform Patient Care Activities In The Warm Zone At A Hazmat Incident.

36. NFPA Technical Committee On Hazardous Materials Protective Clothing And Equipment (NFPA 1991, 1992, 1994)
This Technical Committee Is Responsible For The Development Of Standards And Documents Pertaining To The Use Of Personal Protective Clothing And Equipment By Emergency Responders At Hazardous Materials Incidents.
Three Hazmat Protective Clothing Standards Have Been Developed:
NFPA 1991— Standard On Vapor-protective Ensembles For Hazardous Materials Emergencies
NFPA 1992 — Standard On Liquid Splash-protective Ensembles For Hazardous Materials Emergencies
NFPA 1994 — Standard On Protective Ensembles For Chemical / Biological Terrorism Incidents

37. Other Standards Organizations
American National Standards Institute (ANSI)
American Petroleum Institute (API)
American Society For Testing And Materials (ASTM)
The Chlorine Institute
Compressed Gas Association (CGA)
National Fire Protection Association (NFPA)
Safety Equipment Institute (SEI)

38. Standard Of Care
"Standard Of Care" Is A Widely Accepted Practice Or Standard That Is Followed By The Majority Of U.S. Emergency Response Organizations.
It Represents The Minimum Accepted Level Of Hazardous Materials Emergency Service That Should Be Provided Regardless Of Location Or Situation.
Standard Of Care Is Established By Existing Laws And Regulations, As Well As Voluntary Consensus Standards And Recommended Practices.
Standard Of Care Is Also Determined By Local Protocols And Practices or What Has Been Accepted In The Past (I.E., Precedent).

39. Standard Of Care
Standard Of Care Is Also Influenced By Legal Findings And Case Law Precedents Established Through The Judicial System.
Standard Of Care Is A Dynamic Element And Historically Has Improved Over Time.
Emergency Responders Must Recognize:
A Standard Of Care Exists; And
The "High Bar" Is Constantly Moving Upward.
Training And Continuing Education Are Among The Best Ways To Ensure That You Will Be Able To Provide The Mandated Standard Of Care.

40. How Do I Know If I’m Meeting The Standard Of Care?
Here’s A Simple Score Card:
Our Operations Must Be Legal And Within The Requirements Of The Law
Our Actions And Decisions Must Be Consistent With Voluntary Consensus Standards And Recommended Practices
Our Actions And Decisions To Control A Problem Should Have A Technical Foundation
Our Actions And Decisions Must Be Ethical ?

41. The Hazardous Materials Management System
In 1973, Congress Issued America Burning, A Historical Report On The Nation’s Fire Problem.
The Report Significantly Influenced The Way We Manage The Fire Problem Today.
There Are Four Key Elements In A Hazardous Materials Management Systems Approach:
Planning And Preparedness
Prevention
Response
Clean-up And Recovery 20

42. Planning And Preparedness
Planning Is The First And Most Critical Element Of The System.
Hazards Analysis — Analysis Of The Hazardous Materials Present In The Community, Including Their Location, Quantity, Specific Physical And Chemical Properties, Previous Incident History, Surrounding Exposures And Risk Of Release.
Contingency (Emergency) Planning — A Comprehensive And Coordinated Response To The Hazmat Problem. This Response Builds Upon The Hazards Analysis And Recognizes That No Single Public Or Private Sector Agency Is Capable Of Managing The Hazmat Problem By Itself.

43. Planning And Preparedness
Hazards Analysis
A Hazard Analysis Provides The Following Benefits:
It Lets Emergency Response Personnel (ERP) Know What To Expect.
It Provides Planning For Less Frequent Incidents.
It Creates An Awareness Of New Hazards.
It May Indicate A Need For Preventive Actions, Such As Monitoring Systems, Remote Isolation And Process Modifications.
It Offers An Opportunity To Evaluate Using Reduced Chemical Inventories Or Alternative Chemicals To Lower The Consequences Of An Event.
It Increases The Chance Of Successful Emergency Operations.

44. Planning And Preparedness
There Are Four Components Of A Hazard Analysis Program:
Hazards Identification
Vulnerability Analysis
Risk Analysis
Emergency Response Resources Evaluation

45. Process Safety Management
Hazards Analysis Techniques
Methods Commonly Used By Safety Professionals Within Industry Include The Following:
What If Analysis.
HAZOP Study.
Failure Modes, Effects, And Criticality Analysis (FMECA).
Fault Tree Analysis
Event Tree Analysis

46. Contingency And Emergency Planning
There Are Many Federal, State, And Local Requirements That Apply To Emergency Planning. The One That Most Directly Affects ERP Is Title III Of The Superfund Amendments And Reauthorization Act Of 1986.
SARA Title III Requires The Establishment Of State Emergency Response Commissions (SERC) And Local Emergency Planning Committees (LEPC).

47. Contingency And Emergency Planning
An Overview Of The SARA Title III Emergency Planning Process, Including The Following:
Organizing The Planning Team
Defining And Implementing The Major Tasks Of The Planning Team
Writing The Plan
Revising, Testing, And Maintaining The Plan

48. The Haz Mat Planning Process25

49. Prevention
The Responsibility For The Prevention Of Hazmat Releases Is Shared Between The Public And Private Sectors.
Prevention Activities Often Include The Following:
Hazmat Process, Container Design, And Construction Standards
Almost All Hazardous Materials Facilities, Containers, And Processes Are Designed And Constructed To Some Standard.
All Containers Used For The Transportation Of Hazardous Materials Are Designed And Constructed To Both Specification And Performance Regulations Established By U.S. DOT

50. Prevention Inspection And Enforcement
U.S. DOT Agencies With Hazardous Materials Regulatory Responsibilities:
Office Of Hazardous Materials Safety (HMS) Of The Research And Special Programs Administration (RSPA).
Office Of Hazardous Materials Enforcement (OHME) Of The office Of Hazardous Materials Safety (HMS).
Office Of Pipeline Safety (OPS) Of The Research And Special Programs Administration (RSPA).
Federal Railroad Administration (FRA).
Federal Aviation Administration (FAA).
U.S. Coast Guard (USCG).

51. Prevention Public Education
Hazmat Is A Concern Not Only For Industry But Also For The Community. The Average Homeowner Contributes To This Problem By Improperly Disposing Of Substances.
Many Communities Have Initiated Full-time Household Chemical Waste Awareness, Education, And Disposal Programs.

52. Prevention Handling, Notification, And Reporting Requirements
There Are Many Federal, State, And Local Regulations That Require Those Who Manufacture, Store, Or Transport Hazardous Materials And Hazardous Wastes To Comply With Certain Handling, Notification, And Reporting Rules.
Key Federal Regulations Include
CERCLA (Superfund)
RCRA
SARA, Title III.

53. Response
Response Activities Should Be Based Upon The Information And Probabilities Identified During The Planning Process.
While Every Community Should Have Access To A Hazmat Response Capability, That Capability Does Not Always Have To Be Provided By Either Local Government Or The Fire Service.
Numerous States And Regions Have Established Both Statewide And Regional Hazmat Response Team Systems

54. Response Response Groups
The Emergency Response Community Consists Of Various Agencies And Individuals Who Respond To Hazmat Incidents.
They Can Be Categorized Based Upon Their Knowledge, Expertise, And Resources. These Responders Can Be Compared To The Levels Of Capability Found Within A Typical EMS System.

55. Haz Mat Vs EMS 28

56. Level of Incident - Community
Level I
Potential Emergency Conditions
Level II
Limited Emergency Conditions
Level III
Full Emergency Conditions 29

57. Level of Incident – Petrochemical Industry
Level 1 Incident
Level 2 Serious Incident
Level 3 Crisis Situation 30
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58. Hazmat Response Team (HMRT)
NFPA 472 Defines An HMRT As An Organized Group Of Trained Response Personnel Operating Under An Emergency Operations Plan And Appropriate Standard Operating Procedures, Who Are Expected To Perform Work To Handle And Control Actual Or Potential Leaks Or Spills Of Hazardous Materials Requiring Close Approach To The Material.

59. Hazmat Response Team (HMRT)
In Evaluating The Need For An HMRT, Consider The Following Points:
There Is No Single Department Or Agency That Can Effectively Manage The Hazmat Issue By Itself.
Every Community Does Not Require A HMRT.
An HMRT Will Not Necessarily Solve The Hazmat Problem.
There Are Numerous Constraints And Requirements Associated With Developing An Effective HMRT Capability.

60. Hazmat Response Team (HMRT)
Successful HMRT Response Programs Are Those Who Truly Understand What Services An HMRT Can Provide At All Emergencies, Not Just Those Involving Hazardous Materials.
The HMRT Is Not A Chemical Resource; It Is A Health And Safety Resource With Capabilities That Can Be Used In A Variety Of Response Scenarios, Including Hazardous Materials, Confined Space, Structural Collapse, Aircraft Accidents, And Other Significant Fires And Emergencies.

61. Hazmat Response Team (HMRT)
HMRTs Typically Function As A Group Or Sector Within The Incident Command System (ICS) Under The Direct Control Of A Hazardous Materials Group Supervisor.
HMRT Members Must Be Properly Trained And Must Participate In A Medical Surveillance Program Based Upon The Requirements Of 29 CFR
Both OSHA And NFPA 472 Recommend That HMRT Personnel Be Trained To The Hazardous Materials Technician Level.

62. Clean-up And Recovery Clean-up And Recovery Operations Are Designed To
Clean Up Or Remove The Hazmat Spill Or Release
Restore The Facility And/Or Community Back To Normal As Soon As Possible.
Clean-up Operations Fall Under The Guidelines Of Hazwoper, CERCLA (Superfund), And RCRA

63. Clean-up And Recovery
Clean-up Activities Can Be Classified As Follows:
Short-term —Those Actions Immediately Following A Hazmat Release That Are Primarily Directed Toward The Removal Of Any Immediate Hazards And Restoring Vital Support Services
Long-term —Those Remedial Actions That Return Vital Support Systems Back To Normal Or Improved Operating Levels. Examples Would Include Groundwater Treatment Operations, The Mitigation Of Both Aboveground And Underground Spills, And The Monitoring Of Flammable And Toxic Contaminants.

64. Clean-up And Recovery
Role Of Emergency Responders During Clean-up Operations
Many Plant-level Industrial Responders Are Also Responsible For The Clean-up Of Minor Spills And Releases So That Facility Operations May Continue.
At Short-Term Operations Immediately Following An Incident, The Incident Commander Should Ensure That The Work Area Is Closely Controlled, That The General Public Is Denied Entry, And That The Safety Of Emergency Responders And The Public Is Maintained During Clean-up And Recovery Operations.

65. Clean-up And Recovery
Role Of Emergency Responders During Clean-up Operations
Long-term Clean-up And Recovery Operations Do Not Normally Require The Continuous Presence Of The Fire Service.
Clean-up Operations Should Conform To The General Health And Safety Requirements Of Both State And Federal EPA And OSHA Standards.

66. Summary
Hazardous Materials Are A Multi-disciplined Problem Requiring An Organized Facility-level And Community-level Approach.
Although This Textbook Is Primarily Oriented Towards Managing And Implementing Emergency Response Operations, One Should Recognize That Response Accounts For Only A Small Portion Of An Effective, Comprehensive Hazmat Management Program.

67. O.T. and The Kid