DEPARTMENT OF HEALTH AND HUMAN SERVICES

Centers for Disease Control and Prevention

National Institute for Occupational Safety and Health

ATTENTION EMERGENCY RESPONDERS

Guidance on Emergency Responder

Personal Protective Equipment (PPE) for

Response to CBRN Terrorism Incidents
ATTENTION EMERGENCY RESPONDERS

DEPARTMENT OF HEALTH AND HUMAN SERVICES

Centers for Disease Control and Prevention

National Institute for Occupational Safety and Health

Guidance on Emergency Responder

Personal Protective Equipment (PPE) for

Response to CBRN Terrorism Incidents
ii

This document is in the public domain and may be freely copied or reprinted.

Disclaimer

Mention of any company or product does not constitute endorsement by the National 

Institute for Occupational Safety and Health (NIOSH). In addition, citations to Web 

sites external to NIOSH do not constitute NIOSH endorsement of the sponsoring organizations or their programs or products. Furthermore, NIOSH is not responsible for 

the content of these Web sites.

This guidance document is NIOSH’s interpretation of OSHA standards; not an 

official OSHA interpretation.

Ordering Information

To receive documents or other information about occupational safety and health topics, contact NIOSH at

Telephone: 1–800–CDC–INFO (1–800–232–4636)

TTY: 1–888–232–6348

E-mail: cdcinfo@cdc.gov

or visit the NIOSH Web site at www.cdc.gov/niosh.

For a monthly update on news at NIOSH, subscribe to NIOSH eNews by visiting 

www.cdc.gov/niosh/eNews.

DHHS (NIOSH) Publication No. 2008–132

June 2008

Safer • Healthier • PeopleTM
iii

Acknowledgments

This document was prepared by the staff of the National Institute for Occupational 

Safety and Health (NIOSH) with input from the Occupational Safety and Health Administration (OSHA), Environmental Protection Agency (EPA), and the National Fire 

Protection Association (NFPA). Les Boord, Director, NIOSH National Personal Protective Technology Laboratory (NPPTL) had overall responsibility for the document. 

William Haskell (NIOSH) was the project director. 

The following contributors are acknowledged: John Decker (NIOSH), Nadia ElAyouby (NIOSH), Debra Flagg (EPA), Robert Koedam (NIOSH), Andrew Levinson 

(OSHA), Angie Shepherd (NIOSH), Judi Coyne (NIOSH) and Bruce Teele (NFPA).

The members of the InterAgency Board (IAB)—Personal Protective & Operational 

Equipment (PP&OE) Subgroup are acknowledged for their expertise and guidance in 

the development of this document.

The Department of Homeland Security (DHS) and the National Institute of Standards 

and Technology (NIST) are acknowledged for endorsing the need for this document 

to aid emergency responders. 

Vanessa Becks provided editorial support and contributed to the design, graphics, and 

layout of this document.
1

Purpose

This guidance document provides local, State and Federal emergency response entities 

with comparison information on the Occupational Safety and Health Administration/ 

Environmental Protection Agency (OSHA/EPA) Protection Levels A, B, and C to Department of Homeland Security (DHS) adopted Personal Protective Equipment (PPE) 

performance based standards for response to terrorism incidents involving Chemical, 

Biological, Radiological, and Nuclear (CBRN) hazards

Definitions

CBRN: An abbreviation for chemicals, biological agents, and radiological particulate 

hazards. 

CBRN terrorism agents: Chemicals, biological agents, and radiological particulates 

that could be potentially released as an act of terrorism. (See Chemical Terrorism 

Agents, Biological Terrorism Agents, Radiological Particulate Terrorism Agents).

Chemical terrorism agents: Liquid, solid, gaseous, and vapor chemical warfare agents 

and industrial chemicals used to inflict lethal or incapacitating casualties as a result of 

a terrorist attack.

Biological terrorism agents: Liquid or particulate agents that can consist of a biologically-derived toxin or pathogen used to inflict lethal or incapacitating causalities as a 

result of a terrorist attack.

Radiological particulate terrorism agents: Particles that emit ionizing radiation in 

excess of normal background levels, used to inflict lethal or incapacitating casualties as 

a result of terrorist attack.

Background

Proper selection of PPE for individual responders must be based upon a careful assessment of two factors: (1) the hazards anticipated to be present, or are present at the 

scene and (2) the probable impact of those hazards, based upon the mission role of the 

individual. The emergency responder must be provided with appropriate respiratory 

and dermal protection from suspect or known CBRN hazards. The amount of protection required is material and hazard specific. Physical and durability properties for 

PPE must meet or exceed minimum requirements for operations at a CBRN terrorism 

incident scene. The selection of appropriate PPE is the responsibility of the Incident 
2

Commander and/or the on-scene Safety Officer. A written personal protective equipment program must be established in accordance with the Hazardous Waste Operations and Emergency Response Standard (HAZWOPER), Title 29, Code of Federal 

Regulations (CFR), Part 1910.120.

Appendix B of the HAZWOPER standard defines the OSHA/EPA Protection Levels A, 

B, and C as follows:

■ Level A—To be selected where the hazards are unknown or unquantifiable or 

when the greatest level of skin, respiratory and eye protection is required

■ Level B—The highest level of respiratory protection is necessary but a lesser level 

of skin protection is needed

■ Level C—The concentration(s) and type(s) of airborne substances is known and 

the criteria for using air-purifying respirators are met

However, the description of these levels do not specify minimum performance criteria 

of protective clothing and respirators required for specific threats, such as chemical 

permeation resistance and the contaminants’ physical properties and characteristics. 

The use of these general “levels” of protection does not assure that the wearer is adequately protected from CBRN specific hazards. The HAZWOPER standard itself states 

that the generic descriptions of the equipment do not fully address the performance of 

PPE in relationship to specific needs. 

Relying solely on PPE being marketed on the basis of OSHA/EPA PPE levels could 

result in exposure levels above acceptable limits, or an unnecessary reduction in operational effectiveness through lack of mobility, decreased dexterity, or reduced operational mission duration.

Currently, no single personal protective ensemble can protect the wearer from exposure to all hazards. It is important that the appropriate combination of respirator, 

protective ensemble and other equipment be selected based on a conclusive hazard 

assessment at the scene. This guidance document provides information on NIOSH 

CBRN respirator standards and NFPA protective ensembles standards that establish 

minimum performance requirements for PPE for use in CBRN terrorism incident response. 

Personal Protective Equipment Performance 

Standards

NIOSH CBRN Respirator Performance Standards 

The National Institute for Occupational Safety and Health (NIOSH) has developed 

performance appropriate standards and test procedures for all classes of respirators 
3

that will provide respiratory protection from chemical, biological, radiological and 

nuclear (CBRN) agent inhalation hazards. These NIOSH CBRN respirator standards 

can be accessed at www.cdc.gov/niosh/npptl/standardsdev/cbrn/.

NIOSH Statement of Standard for CBRN Open-Circuit Self-Contained Breathing 

Apparatus (SCBA) 

The purpose of this standard is to specify minimum requirements to determine the 

effectiveness of open-circuit, positive-pressure self-contained breathing apparatus 

(SCBA) used during entry into a CBRN atmospheres at or above Immediately Dangerous to Life or Health (IDLH), or entry into unknown atmospheres. 

■ Approval under NIOSH 42 CFR Part 84, Subpart H

■ Compliance with NFPA 1981 Standard on Open-Circuit Self-Contained Breathing Apparatus for Emergency Services

■ Special Tests under NIOSH 42 CFR 84.63(c)

1. Chemical Agent Permeation and Penetration Resistance Against Distilled 

Sulfur Mustard (HD) and Sarin (GB)

2. Laboratory Respirator Protection Level (LRPL)

NIOSH Statement of Standard for CBRN Full Facepiece

Air-Purifying Respirator (APR)

The purpose of this standard is to specify minimum requirements to determine the 

effectiveness of full facepiece air-purifying respirators (APR) used during entry into 

CBRN atmospheres not Immediately Dangerous to Life or Health (IDLH).

NIOSH Statement of Standard for CBRN Power

Air-Purifying Respirators (PAPR)

The purpose of this standard is to specify minimum requirements to determine the 

effectiveness of tight-fitting and loose-fitting power air-purifying respirators (PAPR) 

used during entry into a CBRN atmosphere not Immediately Dangerous to Life or 

Health (IDLH). 

The National Institute for Occupational Safety and Health (NIOSH), under the authorization of the Occupational Safety and Health Act of 1970, provides a testing approval 

and certification program assuring commercial availability of safe respiratory protective devices. The NIOSH Certified Equipment List (CEL) is available in an internet 

searchable format at www.cdc.gov/niosh/npptl/topics/respirators/CEL/default.html.
4

National Fire Protection Association (NFPA) Protective Clothing 

and Equipment Performance Standards 

NFPA 1991 Standard on Vapor-Protective Ensembles for Hazardous Materials 

Emergencies, 2005 Edition

The purpose of this standard is to establish a minimum level of protection for emergency response personnel against adverse vapor, liquid-splash, and particulate environments during hazardous materials incidents and from specific chemical and 

biological terrorism agents in vapor, liquid-splash, and particulate environments during CBRN terrorism incidents. The ensemble totally encapsulates the wearer and selfcontained breathing apparatus (SCBA). 

NFPA 1994 Standard on Protective Ensembles for First Responders to CBRN 

Terrorism Incidents, 2007 Edition

NFPA 1994 sets performance requirements for protective ensembles used in response 

to CBRN terrorism incidents. The standard defines three (3) classes of ensembles 

(Class 2, 3, and 4) based on the protection required for different hazard types (vapors, 

liquids, and particulates) and airborne contaminant levels. Selection of the appropriate ensemble class must be based on a thorough risk assessment in accordance with 

OSHA Regulation 29 CFR 1910.120 (HAZWOPER) and 29 CFR 1910.132 – Personal 

Protective Equipment Standard. All NFPA 1994 ensembles are intended to be disposable after a single exposure use. Ensembles consist of garments, gloves, and footwear 

tested and certified as a protective system with a manufacturer specified (make and 

model) CBRN respiratory protective device

Class 2 ensembles are intended for use at terrorism incidents involving vapor 

or liquid chemical or particulate hazards where the concentrations are at or 

above IDLH level requiring the use of CBRN compliant self-contained breathing 

apparatus (SCBA). 

Class 3 ensembles are intended for use at terrorism incidents involving low levels 

of vapor or liquid chemical or particulate hazards where the concentrations are 

below IDLH, permitting the use of a CBRN compliant air-purifying respirators 

(APR) or power air-purifying respirator (PAPR). 

Class 4 ensembles are intended for use at terrorism incidents involving biological 

or radiological particulate hazards where the concentrations are below IDLH 

levels permitting the use of CBRN compliant APR or PAPR. The ensembles are not 

tested for protection against chemical vapor or liquid permeability, gas-tightness, 

or liquid integrity.
5

NFPA 1951 Standard on Protective Ensembles for Technical Rescue Operations, 

2007 Edition

The NFPA 1951, 2007 Edition contains performance requirements for a CBRN Technical Rescue Protective Ensemble for use during entry into CBRN atmospheres not 

Immediately Dangerous to Life of Health (IDLH). This CBRN protective ensemble 

category defines limited protection requirements for operational settings where exposure to physical, thermal, liquid, and body fluid-borne pathogen hazards and CBRN 

agents in vapor, liquid-splash, and particulate forms could be encountered. 

NFPA 1971 Standard on Protective Ensembles for Structural Fire Fighting and 

Proximity Fire Fighting, 2007 Edition

The NFPA 1971, 2007 Edition includes optional protection from CBRN hazards. Only 

complete ensembles certified as compliant with these additional optional requirements 

provide this specified level of CBRN protection. The protection levels set in the NFPA 

1971 CBRN option are based on the Class 2 requirements contained in NFPA 1994.

Comparison of Respirator and Ensemble 

Combinations to OSHA/EPA Levels

The following table provides comparison information to assist emergency responders, 

health and safety professionals, and others in transitioning from Levels A, B, and C to 

standards-based terminology. Because the OSHA/EPA levels are expressed in general 

terms, it is not possible to “map” the levels to specific standards. However, it is possible to look at specific standards-based ensembles and establish their level based on 

the standards defined above. Combinations of NIOSH-approved CBRN respirators and 

ensembles that are certified as compliant with NFPA CBRN protective requirment are 

compared to corresponding OSHA/EPA levels in the Table 1. 

Table 1. Ensemble description using performance-based standards 

Ensemble description using performance-based standard(s) OSHA/EPA level

NFPA 1991 (2005 Edition) worn with NIOSH CBRN SCBA A

NFPA 1994 (2007 Edition) Class 2 worn with NIOSH CBRN SCBA B

NFPA 1971 (2007 Edition) with CBRN option worn with NIOSH

 CBRN SCBA

B

NFPA 1994 (2007 Edition) Class 3 worn with NIOSH CBRN

 APR/PAPR

C

NFPA 1994 (2007 Edition) Class 4 worn with NIOSH CBRN

 APR/PAPR

C

NFPA 1951 (2007 Edition) CBRN technical rescue ensemble worn

 with NIOSH CBRN APR/PAPR

C
6

Department of Homeland Security (DHS) Grant 

Guidance and InterAgency Board (IAB) Information

The DHS sponsored Responder Knowledge Base (www.rkb.us) contains the following 

information:

■ Homeland Security Grant Program—Program Guidance and Application Kit 

document. A direct link to the DHS Homeland Security Grant Program is 

www.ojp.usdoj.gov/odp/grants_hsgp.htm

■ Information on related standards, certifications, and products

Following the IAB recommendations, and in accordance with Homeland Security 

Presidential Directive (HSPD) 8, the Fiscal Year 2007 Grant Guidance from the DHS 

—Office of Grants and Training defines eligible personal protective equipment (PPE) 

in terms of compliance with Federal and nationally recognized standards. These standards require Federal or third-party certification and products can not claim compliance with them unless fully certified in accordance with the applicable standard. The 

product must be labeled to show compliance with the appropriate standard. 

The mission of the IAB includes endorsement for the development of hazard-based 

protective clothing and equipment performance standards. This includes performance 

standards for respiratory protective equipment, protective ensembles, garments, boots, 

and gloves for protection against CBRN threats. Section 1 of the IAB’s Standard Equipment List (SEL) defines the hazardous environments for chemical, biological, radiological, thermal, explosive, and ballistic threats. The IAB has also defined emergency 

responder mission roles in categories of law enforcement, fire department, emergency 

medical services, follow-on responders, and special operations. The SEL provides a table that indicates the Federal, or consensus-based performance standards with which 

PPE should be compliant to assure appropriate protection against chemical, biological, 

radiological, nuclear, and explosive hazards (www.iab.gov/).

Information on Code of Federal Regulations (CFR), 

Interim Guidance Documents and Related 

Consensus Standards

OSHA Regulation 29 CFR 1910.120—Hazardous Waste Operations 

and Emergency Response (HAZWOPER) Standard

This Federal regulation applies to five distinct groups of employers and their employees. This includes any employees who are exposed, or potentially exposed to hazardous waste including emergency response operations for releases of, or substantial 

threat of the release of, hazardous substances regardless of the location.
7

OSHA Regulation 29 CFR 1910.132—Personal Protective 

Equipment

This standard applies to personal protective equipment for eyes, face, head, and extremities and protective clothing, respiratory devices, and protective shields and barriers. The major requirements include: permissible practices; definitions; hazard assessment and equipment selection; training; and the proper care, maintenance, useful life, 

and disposal; program evaluation; and record keeping. 

OSHA Regulation 29 CFR 1910.134—Respiratory Protection

The major requirements of this OSHA Respiratory Protective Standard include: 

permissible practices; definitions; respiratory protection program; selection of respirators; medical evaluations; fit testing; use, maintenance, and care of respirators; 

identification of filters, cartridges, and canisters; training; program evaluation; and 

record keeping.

NIOSH Regulation 42 CFR Part 84—Approval of Respiratory 

Protective Devices

The purpose of the NIOSH regulation is:

■ To establish procedures and prescribe requirements that must be met in filing 

applications for approval by NIOSH of respirators or changes or modifications of 

approved respirators

■ To provide for the issuance of certificates of approval or modifications of 

certificates of approval for respirators that have met the applicable construction, performance, and respiratory protection requirements set forth in this 

part

■ To specify minimum requirements and to prescribe methods to be employed by 

NIOSH and by the applicant in conducting inspections, examinations, and tests 

to determine the effectiveness of respirators used during entry into or escape 

from hazardous atmospheres

EPA Regulation 40 CFR Part 311—Worker Protection

The EPA promulgated a standard identical to 29 CFR 1910.120 (OSHA’s HAZWOPER 

Standard) to protect employees of State and local governments engaged in hazardous 

waste operations in States that do not have an OSHA-approved State plan.
8

OSHA/NIOSH Interim Guidance (February 2006): Chemical – 

Biological – Radiological – Nuclear (CBRN), Personal Protective 

Equipment Selection Matrix for Emergency Responders, Nerve 

Agents and Blister Agents

Nerve Agent: www.osha.gov/SLTC/emergencypreparedness/cbrnmatrix/nerve.html

Blister Agent: www.osha.gov/SLTC/emergencypreparedness/cbrnmatrix/blister.html

OSHA/NIOSH Interim Guidance (August 30, 2004): Chemical – 

Biological – Radiological – Nuclear (CBRN), Personal Protective 

Equipment Selection Matrix for Emergency Responders, 

Radiological Dispersal Devices (RDD)

Radiological Dispersal Devices (RDD):

www.osha.gov/SLTC/emergencypreparedness/cbrnmatrix/radiological.html

NFPA 1401: Recommended Practice for Fire Service Training 

Reports and Records, 2006 Edition

Includes training required by regulatory and/or other agencies such as the Occupational Safety and Health Administration (OSHA). 

NFPA 1500: Standard on Fire Department Occupational Safety and 

Health Program, 2007 Edition

The purpose of this standard is to specify the minimum requirements for an occupational safety and health program. The requirements of this standard are applicable to 

organizations providing rescue, fire suppression, emergency medical services, hazardous materials mitigation, special operations, and other emergency services including 

public, military, private, and industrial fire departments.
1–800–CDC–INFO

NIOSH atabout occupational safety and health topics, contact To receive NIOSH documents or more information research and preventionand health at work for all people through Delivering on the Nation’s promise: Safety 

 (1–800–232–4636)

or visit the NIOSH Web site at E-mail: cdcinfo@cdc.govTTY: 1–888–232–6348

www.cdc.gov/niosh.

NIOSH eNewsFor a monthly update on news at NIOSH, subscribe to 

 by visiting www.cdc.gov/niosh/eNews.

SAFER • HEALTHIER • PEOPLEDHHS (NIOSH) Publication No. 2008–132

TM

DEPARTMENT OF HEALTH HUMAN SERVICES

Centers for Disease Control and Prevention

National Institute for Occupational Safety and Health

4676 Columbia Parkway

Cincinnati, OH 45226–1998

Official Business

Penalty for Private Use $300