Personal protective equipment at highway incidents: Developing a standard operating guideline for the West Peculiar Fire Protection District.

Transcription

1 Personal protective equipment at highway incidents: Developing a standard operating guideline for the West Peculiar Fire Protection District. By: James B. Toone Fire Chief West Peculiar Fire Protection District Peculiar, Missouri Executive Development An applied research project submitted to the National Fire Academy as part of the Executive Fire Officer Program September

2 CERTIFICATION STATEMENT I hereby certify that this paper constitutes my own product, that where the language of others is set forth, quotation marks so indicate, and that appropriate credit is given where I have used the language, ideas, expressions, or writings of another. Signed: -2-

3 ABSTRACT The West Peculiar Fire Protection District does not have a standard operating guideline that specifically addresses the use of PPE on highway / roadway incidents. The purpose of this action research was to develop a standard operating guideline, which would be the end product of this project for use within the West Peculiar Fire Protection District. Recommendations were to develop and utilize the new guideline in day to day operations as well as design, within the document controls for accountability. In addition, it was recommended that West Peculiar make a special effort to train it s personnel and enforce all of it s standard operating guidelines and purchase and utilize high visibility reflective vests for highway and roadway incidents. -3-

4 TABLE OF CONTENTS PAGE Certification Statement..2 Abstract...3 Table of Contents Introduction.6-7 Background and Significance 8-12 Literature Review Procedures Results Discussion Recommendations References Appendix A WPFPD Standard Operating Guideline: Motor Vehicle Accidents (existing).58 Appendix B WPFPD Standard Operating Guideline: Use of Personal Prot0ective Equipment (existing) Appendix C WPFPD Employee Questionnaire Personal Protective Equipment on Highway Incidents Appendix D Interview---Nora Dodge, Acting City Manager The City of Peculiar---Roadway and Highway Conditions

5 Appendix E Fire Department Questionnaire---Personal Protective Equipment at Highway Incidents Appendix F Questionnaire Recipients---Missouri Appendix G Questionnaire Recipients---National Appendix H Newly Developed SOG Product of Action Research. -5-

6 INTRODUCTION The United States fire service experiences an average of 109 on-duty deaths per year over the last 10 years. (Fahy & Leblanc, 2006) Additionally America s fire service has seen a number of preventable deaths and injuries in recent years resulting from fire department personnel being struck and injured or killed while operating on highway incidents. Emergency service organizations utilize a wide variety of personal protective equipment (PPE) on different types of incidents. The prescribed level of protection is usually delineated in standard operating guidelines, standard operating procedures, or policies. The West Peculiar Fire Protection District utilizes a set of Standard Operating Guidelines which are reviewed and updated every months. The problem is that the West Peculiar Fire Protection District has no standard operating guideline that specifically addresses the use of personal protective equipment at highway incidents, and this fact in combination with the number of serious injuries of firefighters at such incidents will likely result in a preventable tragedy. The purpose of this applied research project is use action research to identify and produce a standard operating guideline for the use of personal protective equipment specifically at all highway incidents for the West Peculiar Fire Protection District. -6-

7 Action research will be used to produce a new SOG, which specifically addresses the utilization of PPE at highway incidents. The following research questions will be utilized for this project: 1. What is the scope, severity, and nature of the problem of fire fighters becoming injured or killed at highway incidents in the United States? 2. What are the laws and standards that regulate the use of PPE worn by fire fighters in Missouri at highway incidents? 3. What does the West Peculiar Fire Protection District do to regulate the use of PPE worn by fire fighters at highway incidents? 4. What do fire departments in Missouri, similar in size and makeup to the West Peculiar Fire Protection District do to regulate the use of PPE worn by firefighters at highway incidents? 5. What should a standard operating guideline regulating the use of PPE worn by West Peculiar fire fighters at highway incidents include? This applied research project is designed to assist the West Peculiar Fire Protection District and the United States fire service as a whole by working to reduce the loss of life for firefighters and by appropriately responding to emerging issues (USFA, 2006). Both of these are United States Fire Administration operational objectives. -7-

8 BACKGROUND AND SIGNIFICANCE The West Peculiar Fire Protection District The West Peculiar Fire Protection District is responsible for fire suppression, advanced level EMS transport services, extrication, limited specialized rescue, limited hazardous materials response, and serves as a base for the Cass County Decontamination Team. The West Peculiar Fire Protection District covers the City of Peculiar and surrounding areas of Cass County, Missouri totaling about 47 square miles of response area. West Peculiar was started by the Peculiar Lion s Club in 1961 and then became a fire district as allowed by Missouri Revised Statues in The district has grown from primarily an all volunteer organization to a mostly paid organization over the last 33 years and now is covered with a company of four personnel on-duty at all times, two of which are firefighter / paramedics. Each crew is led by a Company Officer who is also a paramedic. The administrative side of the organization is headed by a Fire Chief and a Deputy Fire Chief. West Peculiar ran 738 alarms in 2005 (WPFPD, 2005). Of those alarms, were 90 (12.2%), which involved crews working on roadways with posted speed limits greater than 35 miles per hour (WPFPD, 2005). Highway incidents represent a significant portion of West Peculiar s alarm volume. The area that -8-

9 comprises the fire district has over 82 lane miles of highway that has a posted speed limit of greater than 55 miles per hour. Of those lane miles, approximately 50 miles (62.5%) have been constructed with very little or no shoulder. The significance of West Peculiar Fire Protection District s alarm volume involving highway incidents coupled with the number of lane miles not protected by safety shoulders make it important for West Peculiar to address the issue of not having a standard operating guideline that specifically addresses the use of personal protective equipment at highway incidents. Highway incidents and near-misses at West Peculiar. The author was aware from personal experience and from what appeared to be credible sources from within the organization, of several near-miss incidents involving West Peculiar personnel working at highway incidents. The author has personally witnessed three incidents. Each of the three incidents witnessed by the author involved motor vehicle crashes where a non-involved vehicle drove through the scene either on the center median strip of a four lane highway or down the side of the road as a last minute effort to not strike equipment or personnel on the scene. This first-hand experience also points to the significance and importance of developing a new standard operating guideline for the use of personal protective equipment at highway incidents. -9-

10 What the future holds for West Peculiar. The West Peculiar Fire Protection District is located in the fastest growing county in the Kansas City Metropolitan Area (seven counties), and the seventh fastest growing county in the State of Missouri with a growth rate from 2000 to 2003 of 8.2% (Epodunk n.d.) This fact, coupled with the fact that roads within the West Peculiar Fire Protection District are not improving at a rate which can keep pace with the population growth (Dodge, 2006 personal interview, Appendix D) creates a potential for problems related to roadway safety for both drivers and emergency responders in the future. On a national scale, The Road Information Project, TRIP, who conducts research on America s roadways found the following in their report entitled Growing Traffic In Rural America: Safety, Mobility, and Economic Challenges In America s Heartland, that: Travel on rural roads increased 27% percent between 1990 and 2002 by all vehicles and by 32% by large commercial trucks (TRIP, 2005) and; Traffic fatalities are occurring on the nation s rural roads at a rate approximately two and one-half times faster than on all other roads (TRIP, 2005). -10-

11 It would appear that Missouri s roadways and highways are similar to roadways in other rural areas of the United States, where there is increased population growth with road conditions that are not keeping up with the demands of such growth. According to Missouri Department of Transportation (MoDot) traffic volume maps, which show data from the year 2000 until 2004, there had been a 10.9% increase in traffic volume on major highways (U.S. Highway 71 and State Routes J, YY, and C) that lie within the West Peculiar Fire Protection District.(Missouri Department of Transportation, n.d.). It would seem rational to expect that traffic accident rates would increase directly from an increase in the number of vehicles using roadways. This would increase the frequency that firefighters are on highway incidents. It appeared that there was specific and sufficient enough evidence to justify that this research be conducted for the West Peculiar Fire Protection District based on reported near misses on an organizational scale, increased use of suburban and rural roadways resulting from urban sprawl, increased speed on those roadways, and increased number of roadway and highway incidents that exist today as opposed to prior years. This applied research project should serve to apply a link between the problem and the Executive Development course, specifically in Unit 7, Organizational Culture and Change by recognizing that the Executive Fire -11-

12 Officer (EFO) should be an agent of cultural organizational change. (USFA, 2006) Additionally, this applied research project shall serve to work towards fulfilling United States Fire Administration operational objectives. Specifically, it shall be utilized to reduce the loss of life for firefighters, and should be a way to appropriately respond to emerging issues (USFA, 2006). LITERATURE REVIEW The use of Personal Protective Equipment (PPE) continues to be an emerging issue within the fire service. Our industry, like others, has evolved from utilizing little or no safety equipment to today s advanced PPE, which we use on every fire and every medical emergency. However, it seems that we have fallen short as an industry in developing data, model policies, procedures, and guidelines which pertain directly to the use of PPE on highway or roadway incidents. Of course, there are several mechanisms for firefighters to become injured or killed on a highway / roadway incident. These include, but are not limited to being burned, struck by an object, smoke inhalation, contact with a hazardous material, crushed, caught, heart-attack, stroke, exhaustion, assaulted, or being struck by a moving vehicle. -12-

13 The National Fire Protection Association (NFPA), prepares an annual report entitled, Firefighter Fatalities. The report usually only mentions in narrative form the number of firefighters that were killed each year by being struck by a vehicle. Those killed by being struck by a vehicle are lumped in with all who were killed by being struck by an object. In 2005, Fahy & Leblanc, who authored the report for NFPA stated that 22 firefighters were killed by being struck by an object, eighteen in motor vehicle crashes, three struck by motor vehicles, and one struck by a falling tree limb. (Fahy &Leblanc, 2006). Being struck by an object accounted for 25% of all firefighter fatalities, which is definitely significant, but that classification doesn t delineate between being struck by an object on a fire scene or by a vehicle on a roadway. (Fahy & Leblanc, 2006) Fahy & Leblanc also noted in Table 1 of their report that there were only two causes of injuries in which volunteer firefighters had a higher percentage of fatalities than their career counterparts. Those were Stress / Overexertion and being Struck / Contact with Object (which includes moving vehicles). This information was interesting as to whether or not volunteer firefighters are more likely than career firefighters, per capita, to be injured or killed on roadway incidents, especially by being struck by a motor vehicle. (Fahy & Leblanc, 2006). -13-

14 In their report, Firefighter Fatalities-A Retrospective Study, (TriData 2002), showed that in a ten year time span, volunteer firefighters accounted for 56.7% of fire service fatalities, while career firefighters accounted for 33.4% of fire service fatalities. This data, along with the fact that volunteers comprise 74% of the fire service in the United States determines that career firefighters are killed at a much higher rate than volunteers, (TriData 2002). The National Institute of Occupational Safety and Health conducts investigations on firefighter line of duty fatalities. Ten NIOSH reports were examined as part of the research for this project. These ten reports were retrieved from the NIOSH website and all were related to firefighters being killed after being struck by vehicles. The following data was extrapolated from the reports. Of the ten reports, which accounted for ten total victims, career firefighters accounted for 30% of those who were fatally injured. Volunteers comprised the other 70%. Five (50%) of the ten victims were wearing no PPE at the time of the incident. One (10%) was wearing partial PPE with some retroreflective qualities, one (10%) was wearing full PPE which included turnout gear, helmet, and retro-reflective vest. The remaining three (30%) had no mention of their attire in the investigation report. (NIOSH, ). -14-

15 As the NIOSH reports were studied further, it was found that out of the ten victims, six (60%) arrived at the incident in some kind of official fire apparatus, and the other four (40%) arrived in personally operated vehicles (POV). (NIOSH ) Personnel, especially volunteers, responding to incidents in POVs is a common practice in the fire service. Steve Kidd, a company officer for the Orange County Fire / Rescue Department authored an article for Fire Rescue Magazine in which he stated, Don t forget the safety equipment that will make you visible, especially at night. Retro reflective gear, including a highly visible traffic vest is a must, even during daylight operations. (Kidd, n.d. p.2). STANDARD OPERATING GUIDELINE DEVELOPMENT There has been work done to determine what belongs in a guideline, procedure, or policy for the use of PPE on highway incidents in the fire service. The Cumberland Valley Firemen s Association developed a white paper entitled Protecting Emergency Responders On The Highways A White Paper. This report specifically addresses some components that should be contained within -15-

16 standards, guidelines, procedures and policies. This white paper addresses five areas, which include training, operations, legislation, human resources, and public education as being necessary to reduce the number of responders being injured or killed on highways in the United States (Cumberland Valley, 1999). Under the Operations section of the paper, Cumberland Valley addresses vehicle positioning, adjunct warning lights and audible devices on private vehicles, the de-committing of personnel and equipment to expeditiously reopen roadways, the use of the ICS (Incident Command System) system, personnel looking out for their co-workers on scenes of highway incidents, and the use of high-visibility reflective apparel. (Cumberland Valley, 1999) Specifically, the Cumberland Valley report states the following. High visibility reflective apparel should be the standard safety equipment for all responders operating in or near moving traffic. The U.S. can look to the experience of a number of European countries where more visible fabrics have been employed for some time. (Cumberland Valley, 1999 p.7). While there is a wide variety of content and requirements that are contained in procedures, standards, guidelines, and policies for fire departments related to PPE on highway incidents, there is some literature on best practices for use in these documents. It was also noted, that many of these documents were multi- -16-

17 purpose in that they addressed more than one aspect of safety on highway or roadway incidents. They often included parking and positioning, apparatus markings, roadway closure, incident command system usage, behavior issues related to responders and drivers, and finally PPE was addressed. For the purpose of this research, the author focused on the subject of PPE on highway / roadway incidents and utilize those findings as part of a Standard Operating Guideline that addresses safety on highway incidents as a whole. In the document Safe Positioning While Operating In Or Near Moving Traffic (Emergency Responder Safety Institute, 2003), which serves as a model document for fire departments on highway incidents that Protective clothing, Class III safety vest, and helmet must be donned (put on) prior to exiting the emergency vehicle. (Emergency Responder Safety Institute, 2003, p.4) The document also goes on to qualify that statement by requiring the vest and helmet when: During normal daylight lighting conditions, don helmet and Class III safety vest when operating in or near moving traffic. (Emergency Responder Safety Institute, 2003 p.4) Further ERSI states During dusk to dawn operations or when ambient lighting is reduced due to inclement weather conditions, don helmet, full protective clothing, and Class III vest. (Emergency Responder Safety Institute, 2003 p.4). -17-

18 For the purpose of gathering related literature, the author examined several other fire department s policies, standards, procedures, and guidelines either in a manner related to those documents addressing specific PPE requirements for highway / roadway incidents, or those which addressed PPE within a more broad policy for protective equipment or highway safety. Finding these documents specific for departments in Missouri was difficult and will later be listed as a limitation to this research, documents were found for organizations outside of Missouri. The City of Charlottesville, Virginia requires that fluorescent safety vests be worn during day and night outdoor emergency events that do not require firefighter bunker coats (Charlottesville, 2002). The Charlottesville document goes on to include those emergencies that are in areas where traffic could be a hazard, but doesn t specifically mention motor vehicle accidents. (Charlottesville, 2002). Charlottesville has another SOP titled Highway Incident Safety, which includes requirements for traffic safety vests to be worn on all highway / roadway incidents regardless of turnout gear use. (Charlottesville, 2002). This document goes on to address response, which includes PPE use, but then adds requirements for arrival, parking, on-scene actions, nighttime visibility, and the clearing of traffic lanes. -18-

19 The New Kingstown Fire Company has standard operating guidelines that require the following under the heading Reflective Safety Vests. Vests will be worn at all incidents in which the fire company will be functioning in, along, near, or adjacent to any interstate highway, street, or road where your personal safety could be jeopardized (New Kingston, n.d. p.33) The Phoenix, Arizona Fire department also has a requirement for high visibility reflective vests contained in their standard operating procedure for Safe Parking While Operating In or Near Moving Traffic. The reflective vest is the only PPE mentioned in this specific SOP. (Phoenix, 2003 p. MP205.07A). This research made it clear to the author that requiring responders to wear not only traditionally required PPE (turnout gear, gloves, boots, helmet, eye protection), but wearing highly visible, retro-reflective safety vests has now become the standard of care for fire departments and should be included in any new standard operating guideline, standard operating procedure, or policy. The author found no published SOP,SOG, or policy in his online search that didn t include requirements for reflective vests or reflective apparel. -19-

20 FEDERAL AND STATE STANDARDS AND REQUIREMENTS FOR PPE ON HIGHWAY / ROADWAY INCIDENTS. There are no laws that specifically address the use of PPE on highway / roadway incidents for firefighters in Missouri or on a national basis. There are, however many other requirements for workers who are operating in areas where temporary traffic control zones are being utilized. (USDOT, 2003). A relationship can be made between a highway incident and a temporary traffic control zone. The Manual on Uniform Traffic Control Devices or MUTCD (USDOT, 2003) includes the following language as it relates to temporary traffic control zones. A TTC zone is an area of a highway where road user conditions are changed because of a work zone or an incident through the use of TTC devices, uniformed law enforcement officers, or other authorized personnel. (USDOT, 2003 p6c-2).the MUTCD goes on to say: An incident area is an area of a highway where temporary traffic controls are imposed by authorized officials in a response to a traffic incident, natural disaster, or special event. It extends from the first warning device (such as a sign, light, or cone) to the last TTC device or to a point where road users return to the original lane alignment and are clear of the incident. (USDOT, 2003 p.6c-2). -20-

21 This makes it clear that traffic incidents are, according to the U.S. Department of Transportation temporary traffic control zones and regulations contained in the MUTCD apply to highway / roadway incidents. The MUTCD maintains a focus on high visibility apparel when it references worker safety. It does not reference flame resistance or thermal protection. In section 6D.03, sub-section B of the MUTCD, it clearly states Worker Safety Apparel all workers exposed to the risks of moving roadway traffic or construction equipment should wear high-visibility safety apparel. (USDOT, 2003 p.6d-3). The National Institute on Occupational Health and Safety (NIOSH) has developed a document entitled Building Safer Highway Work Zones, which discusses what can be done to develop a safer work zone. It recommends requiring all workers on foot to wear high-visibility safety apparel. (Pratt, 2001 p.12). Color was found to be a topic of contention found during the research for this ARP, but the literature was consistent that responders / workers should wear colors that do not blend into the background (Pratt, 2001 p.12) on this type of incident. -21-

22 The Texas Transportation Institute found, through a study that they conducted entitled Use of Innovative Traffic Control Devices to Improve Safety at Short- Term Rural Work Zones. Within that document, the author(s) stated that there were three most effective traffic control devices. They included speed display trailer, variable message signs, and fluorescent yellow-green worker garments. (Fontaine, n.d. p3.). On the subject of their recommendation for yellow-green garments, the author(s) found that yellow-green were more visible than orange garments against common work zone backgrounds, and had a greater luminance (brightness) than orange garments. (Fontaine, n.d, p.2.). It was interesting to conclude that the author could not find any specific reference to the use of PPE on highway / roadway incidents in the National Fire Protection Association, or NFPA National Fire Codes. (NFPA, 2006) Personal protective equipment was addressed in a multitude of different ways such as for emergency medical operations, hazardous materials operations, and for structural firefighting, but not generically for highway / roadway incidents. (NFPA, 2006) -22-

23 LITERATURE REVIEW SUMMARY The literature review was written to support the results, discussion, and recommendation sections of this applied research project. The literature review exhibits the data necessary to perform this type of action research and should be sufficiently comprehensive in content. There was a variety of sources utilized to gather data on multiple fronts. PROCEDURES This applied research project (ARP) was designed to be action research that produced an end product in the form of a standard operating guideline for the West Peculiar Fire Protection District which would serve to specifically address the use of personal protective equipment on highway and roadway incidents. The author utilized 28 different sources of information to answer the research questions and develop a product of this action research. The sources came from both print sources and online sources. Additionally, the author utilized three alternative tools for gathering data. Two non-scientific data feedback questionnaires and one personal interview were utilized as part of this project. -23-

24 Data obtained from the Firehouse software record system for West Peculiar Fire Protection District was evaluated to determine what the percentage of alarms involved working on or around a highway or roadway. (WPFPD, 2005) Secondly, West Peculiar fire district maps were utilized to determine the number of miles of roadway that were involved in the response to those incidents and whether or not they had certain safety features such as safety shoulders to provide some protection to firefighter working this environment. State of Missouri Department of Transportation traffic volume maps were utilized to determine the change in traffic flow within the district and to illustrate the increasing flow of vehicles. (MODOT, 2006). Information was then gathered to illustrate that the fire district was growing at a rapid rate based on data gathered by Epodunk, which was obtained as an online source and illustrated the percentage population growth that Cass County, Missouri had experienced as of late. (Epodunk, n.d.). The Road Information Project (TRIP) was found to have valuable information as well as it relates to the trends involving rural roads, accident rates, and road conditions, which illustrated that in the rural areas of America, the situation is getting worse and not better (TRIP, 2005). The Road Information Project was used to specifically illustrate that accidents occur at a much higher rate on rural -24-

25 roads than they do on urban roads. West Peculiar is made up mostly of rural roadways. Several documents, both online and in print were utilized to attempt to describe the number of injuries and fatalities of firefighters caused by being struck by a moving vehicle an a highway / roadway incident scene. Data was utilized from ten National Institute for Occupational Safety and Health NIOSH reports where responding personnel had been injured or killed by moving vehicles on highway incidents. Certain data was extrapolated from these reports such as PPE used on the scene, mode of transportation to the scene, and whether they were career or volunteer fire personnel. This data was used as justification for a certain level of required PPE and also as a recommendation for future research into other ways to protect firefighters other than by utilization of PPE. There was a major limitation in this research in that the author had almost no success in finding useful injury data. There was adequate data on how many firefighters had been killed on highway incidents, but almost none on how many have been injured. Next, several documents were examined to gather data and develop recommendations on what should be included in an SOG on personal protective equipment on highway incidents. First, documents that dealt with the subject in general were examined to determine what industries outside of the fire service did when it came to PPE while working on highways. Secondly, data was gathered from documents and sources that was related to the fire service in -25-

26 general and what the fire service as a whole should require it s personnel to wear on highway incidents. Finally, three different fire departments actual guidelines, policies, and procedures were examined with the purpose of using that data to determine, with the other sources, what should be included in the guideline. Regulatory documents and consensus standards were examined to determine whether or not there were laws, regulations, or standards that existed that required the use of certain PPE on highway incidents. The author found no, hard and fast laws or regulations, but found several sources, such as the MUTCD, and Other sources that suggested that certain PPE be required. The MUTCD actually went far enough to make a connection between a highway incident and a temporary traffic control zone, which would require certain high visibility attire. (USDOT, 2003). Two non-scientific feedback questionnaires were utilized to further gather data for the project. First, the author sent out a questionnaire which is contained in Appendix E, which was designed to evaluate three different aspects of the research. First, to evaluate how many fire departments had policies specifically addressing PPE on highway incidents and what specifically was required. Second, the author wanted to know how many near-misses, fatalities, and injures to firefighters each respondent had experienced, and finally what was the makeup of their organization and response area. -26-

27 This first questionnaire also led to a major limitation to the research. Research question #4 asked What do fire departments in Missouri, similar in size and makeup to the West Peculiar Fire Protection District do to regulate the use of PPE worn by firefighters on highway incidents?. The questionnaire was sent out to departments in Missouri with similar size and makeup with little if any feedback. The search for data was then expanded to departments outside of Missouri with no regard to size or makeup. The author recognizes that the use of PPE and other safety standards and practices were generally universal within the United States fire service. The second questionnaire was sent to employees at West Peculiar and was used to evaluate whether West Peculiar personnel had a working knowledge of what our standard operating guidelines were as they relate to PPE use on the highway, their level of knowledge related to the specifics of our guidelines, and whether or not WPFPD was doing an adequate job of enforcing those guidelines. This questionnaire is located in Appendix C of this document. This questionnaire was stressed to the respondent to be anonymous and the importance of honesty was stressed as well. The results of each of the two feedback questionnaires assisted in the recommendations made within this project. -27-

28 LIMITATIONS OF RESEARCH As with any applied research project there are limitations associated with the collection of data. These limitations are as follows: Lack of response was noted from fire departments in Missouri of similar size and makeup as West Peculiar. The author had to look outside of Missouri and solicit departments of any given size and makeup. The author had very little success on securing data on the number of injuries sustained by being struck by motor vehicles. Not only is this a limitation to the research, but will be re-stated as a recommendation of the project. The author does have some personal bias toward the utilization of reflective vests on highway / roadway incidents due to personal experience. -28-

29 RESULTS Research Question #1 What is the scope, severity, and nature of the problem of firefighters becoming injured or killed at highway incidents in the United States? The United States averages 109 on-duty firefighter deaths per year over the last ten years, excluding the tragedies of September 11, (Fahy & Leblanc, 2006). In 2005, 22 firefighters were killed in motor vehicle crashes and three were struck by motor vehicles. Being struck by an object accounted for 25% of all firefighter fatalities in 2005 (Fahy & Leblanc). Almost 3% of firefighter on-duty fatalities are the result of being struck by a moving vehicle. It was also noted that there were two categories where volunteer firefighters were killed at a higher rate than their career counterparts. They were stress / overexertion and contact with an object, which includes being struck by a motor vehicle (Fahy & Leblanc, 2006). The NIOSH reports which were examined also seemed to point toward a trend for those who were struck by a motor vehicle on a highway /roadway to be properly protected as 50% were not wearing any PPE to speak of and only one out of ten or 10% were wearing full PPE which included retro-reflective vest. Additionally, within the NIOSH reports, it was found that 40% arrived on the -29-

30 scene in some form of privately operated vehicle and not in fire apparatus. The author assumes that there was little if any protection afforded to the responders from moving traffic. The author found that two difficulties or limitations within the research were that it was very difficult to find accurate data on how many firefighters were injured by being struck by a vehicle on a highway / roadway incident, and that the data for being struck by a moving motor vehicle was lumped in with all firefighter fatalities that resulted from being struck by an object. It was important to investigate both what other fire departments required as it related to personal protective equipment on highway / roadway incidents, and what their experience had been with near-missies, responder injuries, and responder deaths resulting from working on highway incidents. A questionnaire was developed to investigate on a non-scientific basis as to what others were doing in this area. There was an attempt made to send out surveys to departments in Missouri that were known to the author to be of similar size and makeup as the West Peculiar Fire Protection District based on population size, size of department, and number of incidents per year. This resulted in a limitation to the research in that the author received so little feedback that the survey size was increased and very limited concern was given to finding similar -30-

31 departments or their location. This was based on the author s observation that generally speaking, PPE and safety requirements are the same for the fire service regardless of department location, size, and makeup. Research Question #2 What are the laws and standards that regulate the use of PPE worn by firefighters in Missouri at highway incidents? There are no laws in Missouri or on a national basis that specifically address the use of PPE on highway or roadway incidents. There are, however many examples of best practices and consensus standards for these incidents. Further, there are regulations that indirectly require the use of certain high visibility, retro-reflective apparel on these incidents. The Manual on Uniform Traffic Control Devices or MUTCD (USDOT, 2003) includes the following language as it relates to temporary traffic control zones. A TTC zone is an area of a highway where road user conditions are changed because of a work zone or an incident through the use of TTC devices, uniformed law enforcement officers, or other authorized personnel. (USDOT, 2003 p6c-2). -31-

32 The MUTCD also states that: An incident area is an area of a highway where temporary traffic controls are imposed by authorized officials in a response to a traffic incident, natural disaster, or special event. It extends from the first warning device (such as a sign, light, or cone) to the last TTC device or to a point where road users return to the original lane alignment and are clear of the incident. (USDOT, 2003 p.6c-2). This broad language in the MUTCD includes a motor vehicle crash, vehicle fire, or other traffic incident in it s requirement and, therefore requires certain apparel be worn in a temporary traffic control zone. In section 6D.03, subsection B of the MUTCD, it is required that all workers exposed to the risks of moving roadway traffic or construction equipment should wear high-visibility safety apparel. (USDOT, 2003 p. 6d-3.). This evidence makes it clear that highway incidents do qualify as temporary traffic control zones and hence, personnel are required by the MUTCD to utilize high visibility apparel while operating in this environment. In addition, NIOSH, in their document entitled Building Safer Highway Work Zones recommends requiring all personnel on foot to wear high-visibility safety apparel. (Pratt, 2001 p.12). -32-

33 Research Question #3 What does the West Peculiar Fire Protection District do to regulate the use of PPE worn by firefighters at highway incidents? The West Peculiar Fire Protection District has addressed the issue of personal protective equipment (PPE) at highway and roadway incidents in two ways. First, by adopting Standard Operating Guidelines, which address the issue of required use of PPE on highway / roadway incidents indirectly. Standard Operating Guideline # Motor Vehicle Collisions and # Personal Protective Equipment. (WPFPD, 2003) Secondly, the West Peculiar Fire Protection District addresses the issue through organizational discipline. Company Offices or Incident Commanders are required to supervise, discipline, and are responsible for the safety of all responders and are the responsible party for adherence to standard operating guidelines. (WPFPD, 2003). As the two standard operating guidelines were evaluated, SOG Motor Vehicle Accidents did at least mention the use of PPE on motor vehicle accidents as it requires the use of full bunker gear with eye protection while the other SOG Personal Protective Equipment never mentioned PPE on highway roadway incidents at all. (WPFPD, 2003) -33-

34 An employee questionnaire was sent out randomly to employees of the fire district with responsibilities which include response to highway / roadway incidents. The questionnaire, which is contained in Appendix I of this applied research paper addressed our knowledge of, adherence to, and enforcement of standard operating guidelines related to PPE on highway / roadway incidents. This questionnaire was voluntary, confidential, and the author stressed honesty in the participant s response. There were a total of 12 respondents. The results are as follows: 1) Does WFPFD have a Standard Operating Guideline for the response to motor vehicle accidents? Yes---8 (66.6%) No---4 (33.3%) 2) What PPE is required at WPFPD for a motor vehicle accident on a highway? Bunker Gear (91.6%) Gloves (91.6%) Helmet (91.6%) Retro-reflective vest (25%) Eye Protection (91.6%) Hearing protection (16.6%) Other (16.6%) -34-

35 3) In your opinion, how well are SOGs related to safety enforced at WPFPD? Always Enforced (8.3%) Enforced unless extenuating circumstances exist (16.6%) Sometimes Enforced (41.6%) Rarely Enforced (33.3%) Never Enforced (0.0%) 4) Is adequate PPE provided to you to comply with safety standards? Yes (83.3%) No (16.6% 5) Do you feel that you are well versed in WPFPD safety standards? Yes (75%) No (25%) In review and analysis of the above data, question one dealt with the employee s knowledge of whether or not West Peculiar even had a Standard Operating Guideline pertaining to the use of PPE on highway incidents. It is somewhat concerning that one-third of the respondents didn t even know that WPFPD had a Standard Operating Guideline for PPE on highway incidents. -35-

36 Question number two had better results in that 96.1 percent, or all but one of the respondents knew at least the minimum safety equipment required on a motor vehicle accident on a highway or roadway. Additionally, several employees marked selections that are currently not in the Standard Operating Guideline. Question number three was related to the organization s enforcement of adopted safety standards. Again it was concerning that nine of the respondents, or 75 percent stated that the organization either sometimes enforced or rarely enforced safety standards. Question number four asked if the employee was provided adequate PPE to meet safety standards. Ten respondents or 83.3 percent marked that they are provided adequate personal protective equipment. Question number five asked if the employee felt if they were well versed in the organization s safety standards. Fortunately, nine or 75% of the respondents reported that they are, in fact well-versed. This, non-scientific data helps support an argument that currently, the West Peculiar Fire Protection District does an adequate job at providing personal protective equipment and standard operating guidelines pertaining to PPE, but falls short in the education, training, and enforcement of those standards. -36-

37 Those conclusions could be drawn from the fact that over 75 percent of the respondents felt that they were well versed in our safety standards, knew the minimum PPE required on the scene of a highway incident, and were provided the equipment necessary to comply with regulations. It was also evident that one-third of our organization didn t even know if WPFPD had a standard operating guideline for responding to motor vehicle accidents, and 75 per cent thought that the organization did a sub-standard job at actually enforcing those guidelines as they reported either that WPFPD sometimes enforced safety standards, or rarely enforced safety standards. Research Question #4 What do fire departments in Missouri, similar in size and makeup to the West Peculiar Fire Protection District do to regulate the use of PPE worn by firefighters at highway incidents? One major limitation to this research was finding data on departments which were located in Missouri, but also of similar size and makeup to West Peculiar. The author attempted to send out a non-scientific feedback questionnaire to Missouri departments which were of similar size and makeup. Those organizations are listed in Appendix F of this document. It was found that the author received very little feedback and certainly not enough to draw upon any conclusion based on this feedback. -37-

38 The search for feedback was widened and the author chose to move forward without regard to location, size, or makeup based on common knowledge that requirements for safety equipment, and personal protective equipment are generally the same throughout the fire service. The final recipients of the questionnaire are listed in Appendix G of this document. The questionnaire was looking for two major data points. First, what were departments requiring of their personnel as it relates to PPE on highway incidents. Secondly, what was their experience with near-misses, injuries and deaths to responders on highway incidents. The results of the questionnaire are as follows: Question number one: Does your organization have written guidelines, standards, or policies that address the use of PPE at all incidents to include body substance isolation, bunker gear, head protection, and equipment for visibility. Response Number Percentage Yes % No % Generic for moving traffic % -38-

39 Question number two: Does your organization have a written guideline, standard, or policy that specifically addresses the use of PPE at highway incidents? Response Number Percentage Yes % No 0 0% Question number three. What does your guideline, procedure, or policy related to working at highway incidents include? Response Number Percentage Use of Specific PPE % Traffic Control Requirements % Different for Day and Night % Authority to Deviate Due to % Conditions Qualifications or responders % D.O.T. Requirements 0 0% Other % Question number four. What personal protective equipment is specifically required by your organization while working highway incidents? -39-

40 Response Number Percentage Helmet % Bunker Gear % Eye Protection % Hearing Protection 0 0 High Visibility Vest % Other % Question number five.. Approximately how many miles of two, four, six, or more lane highways do you have in your response areas? Response Number Percentage % % % % 80 or more % Question number six.. What is the population of your service area? Response Number Percentage 5,000-9, % 10,000-19, % 20,000-39, % 40,000-79, % 80,000 or more % -40-

41 Question number seven.. Which of the following describes your organization? Response Number Percentage Career % Volunteer 0 0% Combination % Question number eight.. How many near-misses has your organization had within the last year with responders working on highway incidents? Response Number Percentage None % % % % % 5 or more 1 5.6% Question number nine. How many responders has your organization had injured while working on a highway incident within the last five years? Response Number Percentage None % 1 0 0% 2 0 0% 3 0 0% 4 0 0% 5 or more 0 0% -41-

42 Question number ten. How many responders has your organization had that were killed in the last 10 years while working a highway incident? Response Number Percentage None % 1 0 0% 2 0 0% 3 0 0% 4 0 0% 5 or more 0 0% It can be concluded from the questionnaire, even with it s limitations that the vast majority, 100% of the departments who answered the questionnaire had a policy, standard, or guideline that required the use of PPE on highway / roadway incidents. Additionally over 88% of the respondents stated that they addressed specific PPE at highway or roadway incidents. It did appear to be a mixed-bag of results regarding what, specifically the respondents required personnel to wear on these incidents, although 64% require the use of a high-visibility reflective vest, helmets are required in 58% of the cases and 47% of the respondents require turnout gear on highway / roadway incidents. -42-

43 While all departments who responded have a guideline, procedure, standard, or policy which specifically addresses PPE on highway incidents, the questionnaire was limited in it s applicability as to requirements that appeared to be across the board. Three other departments were specifically addressed in the literature review as they had published their policies, guidelines, procedures, and standards online and were examined as part of this research. The departments were the City of Phoenix, Arizona, City of Charlottesville, WV, and the New Kingstown Fire Company in New Kingstown, Pennsylvania. It was found that all three organizations from three different geographic regions and of different size had requirements for PPE on highway incidents. It was also found that all three had an emphasis on wearing reflective safety vests. (New Kingston, n.d. p.33) (Phoenix, 2003 p. MP205.07A) (Charlottesville, 2002). It appears evident that other fire departments require the use of specific PPE with a heavy emphasis on reflective vests, helmets, and turnout gear and regulate the same through standards, guidelines, policies, and procedures within their own organizations. -43-

44 Research Question #5 What should a standard operating guideline regulating the use of PPE worn by West Peculiar firefighters at highway incidents include? Much work has been done on what should be included in policies, standards, procedures and guidelines for the use of PPE on highway and roadway incidents. In the document Safe Positioning While Operating In Or Near Moving Traffic (Emergency Responder Safety Institute, 2003), which serves as a model document for fire departments on highway incidents that Protective clothing, Class III safety vest, and helmet must be donned (put on) prior to exiting the emergency vehicle. (Emergency Responder Safety Institute, 2003, p.4) The document also goes on to qualify that statement by requiring the vest and helmet when: During normal daylight lighting conditions, don helmet and Class III safety vest when operating in or near moving traffic. (Emergency Responder Safety Institute, 2003 p.4) Further ERSI states During dusk to dawn operations or when ambient lighting is reduced due to inclement weather conditions, don helmet, full protective clothing, and Class III vest. (Emergency Responder Safety Institute, 2003 p.4). The Cumberland Valley Firemen s Association developed a white paper entitled Protecting Emergency Responders On The Highways A White Paper. -44-

45 The white paper addresses five areas which include training, operations, legislation, human resources, and public education as being necessary to reduce the number of responders being injured or killed on highways in the United States. (Cumberland Valley, 1999.) In the operations section of the paper, Cumberland Valley states that. High visibility reflective apparel should be the standard safety equipment for all responders operating in or near moving traffic. The U.S. can look to the experience of a number of European countries where more visible fabrics have been employed for some time. (Cumberland Valley, 1999 p.7). It became clear to the author that the Standard Operating Guideline addressing the use of PPE on highway / roadway incidents for West Peculiar should include the following: Definitions to include the definition of a highway / roadway incident and the specific types of required personal protective equipment; Detailed and specific classification of highway / roadway incidents should be included to leave no room for misinterpreting the guideline. -45-