Recommended Practices for

SafetyandHealth

Programs

Worker Participation

Find and Fix Hazards

Management Leadership

Occupational Safety 

and Health Administration

osha.gov/safetymanagement

 OSHA 3885 October 2016
DISCLAIMER

These practices for safety and health programs are 

recommendations only. Employers are not required to 

have a safety and health program that complies with 

them and will not be cited for failing to have a safety 

and health program that complies with this document.

These recommended practices apply to employers, 

except in the construction industry, for whom there 

are separate Recommended Practices for Safety and 

Health Programs for the Construction Industry.
FOREWORD

FOREWORD

Establishing a safety and health program in your 

workplace is one of the most effective ways 

of protecting your most valuable asset: your 

workers. Losing workers to injury or illness, even 

for a short time, can cause significant disruption 

and cost—to you as well as the workers and their 

families. It can also damage workplace morale, 

productivity, turnover, and reputation.

Safety and health programs foster a proactive 

approach to “finding and fixing” workplace 

hazards before they can cause injury or illness. 

Rather than reacting to an incident, management 

and workers collaborate to identify and solve 

issues before they occur. This collaboration builds 

trust, enhances communication, and often leads 

to other business improvements. Employers who 

have implemented safety and health programs, 

including many who are in OSHA’s Voluntary 

Protection Programs (VPP) or the Safety and 

Health Achievement Recognition Program 

(SHARP) for small and medium-sized businesses, 

have also found that managing for safety results 

in higher-quality product or output and higher 

profits.

Thousands of responsible employers have 

used OSHA’s 1989 Safety and Health Program 

Management Guidelines as a blueprint for setting 

up an effective safety and health program.1

Much has changed, however, since those 

guidelines were published: 

• The nature of work is evolving as the 

economy continues to shift from a 

manufacturing to a service base, and from a 

fixed to an often mobile workforce.

Resources and Tools to Support 

Implementation of These 

Recommended Practices

OSHA has created a dedicated Web page 

to support the implementation of these 

recommended practices at osha.gov/

safetymanagement. The page includes the 

following:

• Additional resources. Articles and 

information sources related to each core 

element of the recommended practices, 

plus other topics discussed in the 

recommended practices. 

• Tools. Downloadable templates, 

worksheets, and reference materials you 

can use as you develop your own safety 

and health program. 

Please visit the recommended practices 

Web page and explore the resources 

available. OSHA will update the Web page 

and add resources and tools as they become 

available.

• Automation of work activities means that 

technology, computers, and robotics are 

being integrated into our workplaces, often 

introducing new and different hazards. 

• Greater diversity in the workplace means 

that people from different backgrounds and 

cultures are working alongside each other, 

often speaking different languages. 

1 54 FR 3904–16, January 26, 1989.

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS i
FOREWORD

• An aging workforce and the rise of sedentary 

work and lifestyle means that some 

workers are at higher risk for work-related 

musculoskeletal disorders. 

• There is greater recognition that workers 

in industries that some think of as safe 

(such as healthcare, lodging, retail, and 

transportation) face significant hazards. 

• Increased temporary and contract 

employment, and the rise of the “gig 

economy” mean that traditional relationships 

between workers and employers are shifting, 

and changes in safety programs and policies 

will be required to ensure the safety of all 

workers at worksites characterized by these 

newer and more fluid relationships. 

These new recommended practices reflect these 

changes. They also reflect what we have learned 

from best-in-class programs and what makes 

them effective. In particular, these recommended 

practices place greater emphasis on involving 

workers, and include a more robust program 

evaluation element to help drive continuous 

improvement. The recommended practices 

also stress the need for communication and 

coordination on worksites involving more than 

one employer.

In addition, the new recommended practices 

build on successful approaches and practices 

that have evolved under OSHA programs such 

VPP and SHARP. They also align with national 

and international consensus standards.2

2 A comparison of these recommended practices, the 1989 guidelines, OSHA voluntary programs, and other consensus standards is 

available on the Recommended Practices for Safety and Health Programs website.

ii RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
INTRODUCTION................................................................................................................................................... 2

MANAGEMENT LEADERSHIP .......................................................................................................................... 9

WORKER PARTICIPATION................................................................................................................................11

HAZARD IDENTIFICATION AND ASSESSMENT........................................................................................15

HAZARD PREVENTION AND CONTROL....................................................................................................20

EDUCATION AND TRAINING.........................................................................................................................24

PROGRAM EVALUATION AND IMPROVEMENT....................................................................................... 27

COMMUNICATION AND COORDINATION FOR HOST EMPLOYERS, CONTRACTORS, 

AND STAFFING AGENCIES.............................................................................................................................30

LIST OF ABBREVIATIONS.............................................................................................................................. 34

GLOSSARY OF TERMS.................................................................................................................................... 34

CONTENTS

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 1
INTRODUCTION

THESE RECOMMENDED PRACTICES provide 

responsible employers, workers, and worker 

representatives3 with a sound, flexible 

framework for addressing safety and health 

issues in diverse workplaces. They may be 

used in any workplace, but will be particularly 

helpful in small and medium-sized workplaces. 

They can be applied equally well in traditional, 

fixed manufacturing workplaces and in the 

service sector, healthcare, retail, and even 

mobile or office-based work environments. 

They also include information specifically aimed 

at temporary worker and multiemployer work 

situations. Separate recommended practices are 

available for the construction industry.

3 Worker participation is vital to the success of the program. In several places in this document, OSHA refers not just to workers but also 

to their representatives, such as labor unions or religious or community groups.
Source: Ohio Bureau of Workers’ Compensation (2011), Ohio 21(d) SHARP Program Performance Assessment.

INTRODUCTION

The recommended practices emphasize a 

proactive approach to managing workplace 

safety and health. Traditional approaches are 

often reactive—that is, actions are taken only 

after a worker is injured or becomes sick, a 

new standard or regulation is published, or an 

outside inspection finds a problem that must 

be corrected. Finding and fixing hazards before

they cause injury or illness is a far more effective 

approach. Doing so avoids the direct and indirect 

costs of worker injuries and illnesses, and 

promotes a positive work environment.

The concept of continuous improvement is 

central to the recommended practices. As with 

any journey, the first step is often the most 

challenging. The idea is to begin with a basic 

program and grow from there. By initially 

focusing on achieving modest goals, monitoring 

performance, and evaluating outcomes, you can 

help your workplace progress, over time, along 

the path to higher levels of safety and health. 

THE BENEFITS OF IMPLEMENTING 

THESE RECOMMENDED PRACTICES

Responsible employers know that the main goal 

of a safety and health program is to prevent 

workplace injuries, illnesses, and deaths, as well 

as the suffering and financial hardship these 

events can cause for workers, their families, and 

their employers. 

Employers may find that implementing these 

recommended practices brings other benefits 

as well. The renewed or enhanced commitment 

to safety and health and the cooperative 

atmosphere between employers and workers 

have been linked to:

• Improvements in product, process, and 

service quality. 

• Better workplace morale.

• Improved employee recruiting and retention.

• A more favorable image and reputation 

(among customers, suppliers, and the 

community). 

(per million 

dollars of payroll)

A study of small employers in Ohio found that workers’ compensation claims fell dramatically after working 

with OSHA’s SHARP program to adopt programs similar to those described in these recommended practices.

average

number of claims cost per claim claims

52%

+

DECREASED DECREASED

80% 88%

DECREASED

average lost time per claim

87%

DECREASED

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 3
HOW TO USE THE RECOMMENDED 

PRACTICES

Each section of the recommended practices 

describes a core program element (see page 

7), followed by several action items. Each 

action item is an example of steps that employers 

and workers can take to establish, implement, 

maintain, and improve your safety and health 

program. You can use the self-evaluation tool 

found on the recommended practices Web page

to track your progress and assess how fully you 

have implemented (or will implement) each 

action item.

Seven interrelated elements

The seven core elements are interrelated and 

are best viewed as part of an integrated system. 

Actions taken under one core element can (and 

likely will) affect actions needed under one or 

more other elements. For example, workers must 

be trained in reporting procedures and hazard 

identification techniques in order to be effective 

Source: Leigh, J.P. (2011), Economic Burden of Occupational Injury and Illness in the United States. Milbank Quarterly, 89:728-772.4

4 The 2.7 multiplier for indirect costs includes some social costs, such as workers’ compensation costs not covered by insurance.

INTRODUCTION

IMPLEMENTING

a safety & health program

can help employers avoid the 

that result

from 

due to work 

stoppages and

investigations, 

training and other 

costs associated with to material, 

machinery 

and property. 

and

such as 

TIME

LOST

REPLACING 

INJURED 

WORKERS 

LOSS OR

DAMAGE

INDIRECT

COSTS

These have been estimated

to be at least 

2.7

 times the

INDIRECT

COSTS

DIRECT

COSTS

WORKPLACE

INCIDENTS

4 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
INTRODUCTION

10 EASY THINGS TO GET YOUR PROGRAM STARTED

If these recommended practices appear challenging, here are some simple steps you can 

take to get started. Completing these steps will give you a solid base from which to take on 

some of the more structured actions presented in the recommended practices.

1. SET SAFETY AND HEALTH AS A 

TOP PRIORITY

Always set safety and health as the top priority. Tell 

your workers that making sure they finish the day and 

go home safely is the way you do business. Assure 

them that you will work with them to find and fix any 

hazards that could injure them or make them sick.

2. LEAD BY EXAMPLE

Practice safe behaviors yourself and make safety part 

of your daily conversations with workers.

3. IMPLEMENT A REPORTING 

SYSTEM

Develop and communicate a simple procedure for 

workers to report any injuries, illnesses, incidents 

(including near misses/close calls), hazards, or safety 

and health concerns without fear of retaliation. 

Include an option for reporting hazards or concerns 

anonymously.

4. PROVIDE TRAINING

Train workers on how to identify and control hazards 

using, for example, OSHA’s Hazard Identification 

Training Tool.

5. CONDUCT INSPECTIONS

Inspect the workplace with workers and ask them to 

identify any activity, piece of equipment, or material 

that concerns them. Use checklists, such as those 

included in OSHA’s Small Business Handbook, to help 

identify problems.

6. COLLECT HAZARD CONTROL 

IDEAS

Ask workers for ideas on improvements and follow up 

on their suggestions. Provide them time during work 

hours, if necessary, to research solutions.

7. IMPLEMENT HAZARD CONTROLS

Assign workers the task of choosing, implementing, 

and evaluating the solutions they come up with.

8. ADDRESS EMERGENCIES

Identify foreseeable emergency scenarios and develop 

instructions on what to do in each case. Meet to 

discuss these procedures and post them in a visible 

location in the workplace.

9. SEEK INPUT ON WORKPLACE 

CHANGES

Before making significant changes to the workplace, 

work organization, equipment, or materials, consult 

with workers to identify potential safety or health 

issues. 

10. MAKE IMPROVEMENTS

Set aside a regular time to discuss safety and health 

issues, with the goal of identifying ways to improve 

the program.

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 5
participants. Thus, the “Education and Training” 

core element supports the “Worker Participation” 

core element. Similarly, setting goals (as 

described under “Management Leadership”) will 

be more effective if you routinely evaluate your 

progress in meeting those goals (see “Program 

Evaluation and Improvement”). Progress in each 

core element is important to achieve maximum 

benefit from the program.

One size does not fit all

While the action items under each core element 

are specific, they are not prescriptive. The 

process described in these recommended 

practices can, and should, be tailored to the 

needs of each workplace. Likewise, your safety 

and health program can and should evolve. 

Experimentation, evaluation, and program 

modification are all part of the process. You 

may also experience setbacks from time to 

time. What is important is that you learn from 

setbacks, remain committed to finding out what 

works best for you, and continue to try different 

approaches. 

Injuries and illnesses occur in all types of 

workplace settings, from manufacturing sites, to 

hospitals and healthcare facilities, to offices and 

service industries.5 Workers can even be injured 

or become ill outside physical facilities, such 

as when driving a vehicle as part of a sales or 

service job. The preventive approaches described 

in these recommended practices work equally 

well across all sectors of the economy; for all 

different kinds of hazards; in both mobile and 

fixed work environments; and for small, mediumsized, and large organizations. Small employers 

may find that they can best accomplish the 

actions outlined in these recommended practices 

using informal communications and procedures. 

Larger employers, who have more complex work 

processes and hazards, may require a more 

formal and detailed program. They may also wish 

to integrate their safety and health program with 

other programs that they are using to manage 

production, quality control, and environmental 

protection or sustainability.

The importance of worker 

participation

Throughout these recommended practices, 

OSHA emphasizes the importance of worker 

participation in the safety and health program. 

For a program to succeed, workers (and, 

if applicable, their representatives) must 

participate in developing and implementing 

every element of the safety and health program. 

This emphasis on worker participation is 

consistent with the OSH Act, OSHA standards, 

and OSHA enforcement policies and procedures, 

which recognize the rights and roles of workers 

and their representatives in matters of workplace 

safety and health. Several action items described 

in these recommended practices rely on 

perspectives, expertise, and input that can come 

only from workers and their representatives. 

When more than one employer is 

involved

Host employers, contractors, staffing agencies, 

and their workers should pay particular attention 

to the “Communication and Coordination for 

Host Employers, Contractors, and Staffing 

Agencies” section. This section describes 

actions that host employers and contractors, 

subcontractors, and temporary staffing agencies 

(and their workers) should take to ensure 

protection of everyone on the worksite.

For tools and resources to help you 

implement these recommended practices, 

visit: osha.gov/safetymanagement

5 Please note: OSHA has developed a separate document of Recommended Practices for Safety and Health Programs for the 

Construction Industry.

INTRODUCTION

6 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
INTRODUCTION

CORE ELEMENTS OF THE SAFETY AND HEALTH PROGRAM 

RECOMMENDED PRACTICES

MANAGEMENT 

LEADERSHIP

• Top management demonstrates its commitment to continuous improvement in safety and 

health, communicates that commitment to workers, and sets program expectations and 

responsibilities. 

• Managers at all levels make safety and health a core organizational value, establish safety and 

health goals and objectives, provide adequate resources and support for the program, and set 

a good example.

WORKER 

PARTICIPATION

• Workers and their representatives are involved in all aspects of the program—including setting 

goals, identifying and reporting hazards, investigating incidents, and tracking progress. 

• All workers, including contractors and temporary workers, understand their roles and 

responsibilities under the program and what they need to do to effectively carry them out. 

• Workers are encouraged and have means to communicate openly with management and to 

report safety and health concerns without fear of retaliation.

• Any potential barriers or obstacles to worker participation in the program (for example, 

language, lack of information, or disincentives) are removed or addressed.

HAZARD 

IDENTIFICATION & 

ASSESSMENT

• Procedures are put in place to continually identify workplace hazards and evaluate risks.

• Safety and health hazards from routine, nonroutine, and emergency situations are identified 

and assessed.

• An initial assessment of existing hazards, exposures, and control measures is followed by 

periodic inspections and reassessments, to identify new hazards.

• Any incidents are investigated with the goal of identifying the root causes.

• Identified hazards are prioritized for control.

HAZARD 

PREVENTION & 

CONTROL

• Employers and workers cooperate to identify and select methods for eliminating, preventing, 

or controlling workplace hazards. 

• Controls are selected according to a hierarchy that uses engineering solutions first, followed by 

safe work practices, administrative controls, and finally personal protective equipment (PPE).

• A plan is developed to ensure that controls are implemented, interim protection is provided, 

progress is tracked, and the effectiveness of controls is verified.

EDUCATION & 

TRAINING

• All workers are trained to understand how the program works and how to carry out the 

responsibilities assigned to them under the program. 

• Employers, managers, and supervisors receive training on safety concepts and their 

responsibility for protecting workers’ rights and responding to workers’ reports and concerns. 

• All workers are trained to recognize workplace hazards and to understand the control measures 

that have been implemented.

PROGRAM 

EVALUATION & 

IMPROVEMENT

• Control measures are periodically evaluated for effectiveness. 

• Processes are established to monitor program performance, verify program implementation, 

and identify program shortcomings and opportunities for improvement.

• Necessary actions are taken to improve the program and overall safety and health performance.

COMMUNICATION AND 

COORDINATION FOR 

HOST EMPLOYERS, 

CONTRACTORS, AND 

STAFFING AGENCIES

• Host employers, contractors, and staffing agencies commit to providing the same level of 

safety and health protection to all employees.

• Host employers, contractors, and staffing agencies commmunicate the hazards present at the 

worksite and the hazards that work of contract workers may create on site.

• Host employers establish specifications and qualifications for contractors and staffing agencies. 

• Before beginning work, host employers, contractors, and staffing agencies coordinate on work 

planning and scheduling to identify and resolve any conflicts that could affect safety or health. 

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 7
INTRODUCTION

FOR MORE INFORMATION

For more information about these recommended 

practices, tools to help you implement them, and 

related topics, see the recommended practices 

Web page. This page includes links to many tools 

and resources developed by OSHA and others 

that can help employers and workers implement 

these recommended practices. OSHA will 

continue to update and add to this resource list. 

OSHA’s On-site Consultation Program offers free 

and confidential occupational safety and health 

services to small and medium-sized businesses in 

all states and several territories across the country, 

with priority given to high-hazard worksites. 

On-site Consultation Program services are separate 

from enforcement and do not result in penalties 

or citations. Consultants from state agencies 

or universities work with employers to identify 

workplace hazards, provide advice on compliance 

with OSHA standards, and help them establish and 

improve their safety and health programs. 

For free assistance, including help 

implementing your program, visit: 

www.osha.gov/smallbusiness

or call 1-800-321-6742 (OSHA)

8 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
MANAGEMENT 

LEADERSHIP

MANAGEMENT PROVIDES the leadership, 

vision, and resources needed to implement 

an effective safety and health program. 

Management leadership means that business 

owners, managers, and supervisors:

• Make worker safety and health a core 

organizational value.

• Are fully committed to eliminating hazards, 

protecting workers, and continuously 

improving workplace safety and health.

• Provide sufficient resources to implement 

and maintain the safety and health program.

• Visibly demonstrate and communicate their 

safety and health commitment to workers 

and others.

• Set an example through their own actions.

Action item 1: Communicate your commitment to a safety and health program

A clear, written policy helps you communicate that safety and health is a primary organizational 

value—as important as productivity, profitability, product or service quality, and customer satisfaction. 

How to accomplish it

Establish a written policy signed by top 

management describing the organization’s 

commitment to safety and health, and pledging 

to establish and maintain a safety and health 

program for all workers.

• Communicate the policy to all workers and, 

at appropriate times and places, to relevant 

parties, including: 

— Contractors, subcontractors, staffing 

agencies, and temporary workers at your 

worksite(s)

— Suppliers and vendors 

— Other businesses in a multi-tenant 

building

— Visitors

— Customers

• Reinforce management commitment by 

considering safety and health in all business 

decisions, including contractor and vendor 

selection, purchasing, and facility design and 

modification. 

• Be visible in operations and set an example 

by following the same safety procedures 

you expect workers to follow. Begin work 

meetings with a discussion or review 

of safety and health indicators and any 

outstanding safety items on a “to do” list.

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 9
MANAGEMENT LEADERSHIP

Action item 2: Define program goals 

By establishing specific goals and objectives, management sets expectations for managers, 

supervisors, and workers, and for the program overall. The goals and objectives should focus on 

specific actions that will improve workplace safety and health.

How to accomplish it

• Establish realistic, measurable goals for improving 

safety and health. Goals emphasizing injury 

and illness prevention should be included, 

rather than focusing on injury and illness rates.

• Develop plans to achieve the goals by 

assigning tasks and responsibilities to 

particular people, setting timeframes, and 

determining resource needs.

Action item 3: Allocate resources

Management provides the resources needed to implement the safety and health program, pursue 

program goals, and address program shortcomings when they are identified. 

How to accomplish it

• Estimate the resources needed to establish 

and implement the program. 

• Allow time in workers’ schedules for them to 

fully participate in the program. 

• Integrate safety and health into planning and 

budgeting processes, and align budgets with 

program needs. 

• Provide and direct resources to operate and 

maintain the program, meet safety and health 

commitments, and pursue program goals.

Note: Resource needs will vary depending on your organization’s size, complexity, hazard types, and program maturity and development. 

Resource needs may include capital equipment and supplies, staff time, training, access to information and tools (e.g., vendor information, Safety 

Data Sheets, injury/illness data, checklists, online databases) and access to safety and health experts, including OSHA’s free and confidential Onsite Consultation Program (see “For More Information” in the introduction to these recommended practices).

Action item 4: Expect performance

Management leads the program effort by establishing roles and responsibilities and providing an 

open, positive environment that encourages communication about safety and health. 

How to accomplish it

• Identify a frontline person or persons 

who will lead the safety program effort, 

make plans, coordinate activities, and 

track progress. Define and regularly 

communicate responsibilities and authorities 

for implementing and maintaining the 

program, and hold people accountable for 

performance.

• Provide positive recognition for meeting or 

exceeding safety and health goals aimed at 

preventing injury and illness (e.g., reporting 

close calls/near misses, attending training, 

conducting inspections).

• Establish ways for management and all workers 

to communicate freely and often about safety 

and health issues, without fear of retaliation.

Note: Maintaining a positive and encouraging tone is important. Successful programs reward, rather than discipline, workers who identify problems 

or concerns, much like successful quality programs. Disciplinary measures should be reserved for situations in which an individual manager or 

worker is uncooperative or becomes an impediment to progress.

10 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
WORKER 

PARTICIPATION

TO BE EFFECTIVE, any safety and health 

program needs the meaningful participation of 

workers and their representatives. Workers have 

much to gain from a successful program, and 

the most to lose if the program fails. They also 

often know the most about potential hazards 

associated with their jobs. Successful programs 

tap into this knowledge base.

Worker participation means that workers 

are involved in establishing, operating, 

evaluating, and improving the safety and 

health program. All workers at a worksite 

should participate, including those employed 

by contractors, subcontractors, and temporary 

staffing agencies (see “Communication and 

Coordination for Host Employers, Contractors, 

and Staffing Agencies”). 

RETALIATION AGAINST

WORKERS IS ILLEGAL

Section 11(c) of the Occupational Safety and Health 

Act of 1970 prohibits employers from retaliating 

against employees for exercising a variety of rights 

guaranteed under the OSH Act, such as filing a 

safety and health complaint with OSHA, raising a 

health and safety concern with their employers, 

participating in an OSHA inspection, or reporting 

a work-related injury or illness. OSHA vigorously 

enforces the anti-retaliation protections provided 

under 11(c) of the OSH Act and other federal statutes. 

For more information, see www.whistleblowers.gov.

IN AN EFFECTIVE safety and health program, all 

workers: 

• Are encouraged to participate in the program 

and feel comfortable providing input and 

reporting safety or health concerns.

• Have access to information they need to 

participate effectively in the program.

• Have opportunities to participate in 

all phases of program design and 

implementation.

• Do not experience retaliation when they raise 

safety and health concerns; report injuries, 

illnesses, and hazards; participate in the 

program; or exercise safety and health rights.

Note: Where workers are represented by a union, it is important that 

worker representatives also participate in the program, consistent with 

the rights provided to worker representatives under the Occupational 

Safety and Health Act of 1970 and the National Labor Relations Act.

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 11
WORKER PARTICIPATION

Action item 1: Encourage workers to participate in the program

By encouraging workers to participate in the program, management signals that it values their input 

into safety and health decisions.

How to accomplish it

• Give workers the necessary time and 

resources to participate in the program.

• Acknowledge and provide positive reinforcement to those who participate in the program.

• Maintain an open door policy that invites 

workers to talk to managers about safety and 

health and to make suggestions.

Action item 2: Encourage workers to report safety and health concerns

Workers are often best positioned to identify safety and health concerns and program shortcomings, 

such as emerging workplace hazards, unsafe conditions, close calls/near misses, and actual incidents. 

By encouraging reporting and following up promptly on all reports, employers can address issues 

before someone gets hurt or becomes ill.

How to accomplish it

• Establish a process for workers to report injuries, 

illnesses, close calls/near misses, hazards, and 

other safety and health concerns, and respond 

to reports promptly. Include an option for 

anonymous reporting to reduce fear of reprisal.6

• Report back to workers routinely and 

frequently about action taken in response to 

their concerns and suggestions.

• Emphasize that management will use 

reported information only to improve 

workplace safety and health, and that no 

worker will experience retaliation for bringing 

such information to management’s attention 

(see Action item 5). 

• Empower all workers to initiate or request a 

temporary suspension or shutdown of any 

work activity or operation they believe to be 

unsafe.

• Involve workers in finding solutions to 

reported issues.

Action item 3: Give workers access to safety and health information

Sharing relevant safety and health information with workers fosters trust and helps organizations make 

more informed safety and health decisions.

How to accomplish it

• Give workers the information they need to 

understand safety and health hazards and 

control measures in the workplace. Some OSHA 

standards require employers to make specific 

types of information available to workers, such as:

— Safety Data Sheets (SDSs)

— Injury and illness data (may need to be 

redacted and aggregated to eliminate 

personal identifiers)

6 Under OSHA’s injury and illness recordkeeping rule (29 CFR 1904), employers are required to establish a “reasonable” procedure for 

employees to report work-related injuries and illnesses promptly and accurately. A reasonable procedure is defined as one that would 

not deter or discourage a reasonable employee from accurately reporting a workplace injury or illness.

12 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
WORKER PARTICIPATION

— Results of environmental exposure 

monitoring conducted in the workplace 

(prevent disclosure of sensitive and 

personal information as required)

• Other useful information for workers to 

review can include:

— Workplace job hazard analyses

— Chemical and equipment manufacturer 

safety recommendations

— Workplace inspection reports

— Incident investigation reports (prevent 

disclosure of sensitive and personal 

information as required)

Action item 4: Involve workers in all aspects of the program

Including worker input at every step of program design and implementation improves your ability to identify 

the presence and causes of workplace hazards, creates a sense of program ownership among workers, 

enhances their understanding of how the program works, and helps sustain the program over time.

How to accomplish it

• Provide opportunities for workers to 

participate in all aspects of the program, 

including, but not limited to helping:

— Develop the program and set goals.

— Report hazards and develop solutions 

that improve safety and health.

— Analyze hazards in each step of 

routine and nonroutine jobs, tasks, and 

processes.

— Define and document safe work practices.

— Conduct site inspections.

— Develop and revise safety procedures.

— Participate in incident and close call/near 

miss investigations.

— Train current coworkers and new hires.

— Develop, implement, and evaluate 

training programs.

— Evaluate program performance and 

identify ways to improve it.

— Take part in exposure monitoring and 

medical surveillance associated with 

health hazards.

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 13
WORKER PARTICIPATION

Action item 5: Remove barriers to participation

To participate meaningfully in the program, workers must feel that their input is welcome, their 

voices will be heard, and they can access reporting mechanisms. Participation will be suppressed if 

language, education, or skill levels in the workplace are not considered, or if workers fear retaliation 

or discrimination for speaking up (for example, if investigations focus on blaming individuals rather 

than the underlying conditions that led to the incident, or if reporting an incident or concern could 

jeopardize the award of incentive-based prizes, rewards, or bonuses).

How to accomplish it

• Ensure that workers from all levels of the 

organization can participate regardless of 

their skill level, education, or language.

• Provide frequent and regular feedback to 

show employees that their safety and health 

concerns are being heard and addressed.

• Authorize sufficient time and resources to 

facilitate worker participation; for example, 

hold safety and health meetings during 

regular working hours.

• Ensure that the program protects workers from 

being retaliated against for reporting injuries, 

illnesses, and hazards; participating in the 

program; or exercising their safety and health 

rights. Ensure that other policies and programs 

do not discourage worker participation.

• Post the 11(c) fact sheet (found at 

www.whistleblowers.gov) in the workplace 

or otherwise make it available for easy 

access by workers.

Note: Incentive programs (such as point systems, awards, and prizes) should be designed in a manner that does not discourage injury and illness 

reporting; otherwise, hazards may remain undetected. Although sometimes required by law or insurance providers, mandatory drug testing following 

injuries can also suppress reporting. Effective safety and health programs recognize positive safety and health activities, such as reporting hazardous 

conditions or suggesting safer work procedures. (See OSHA’s “Employer Safety Incentive and Disincentive Policies and Practices” memorandum, 

dated March 12, 2012: www.whistleblowers.gov/memo/2012-03-12 and “Clarification of OSHA’s Position on Workplace Safety Incentive Programs and 

Post-Incident Drug Testing Under 29 C.F.R. § 1904.35(b)(1)(iv) memo, dated October 11, 2018: www.whistleblowers.gov/memo/2018-10-11.)

14 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
HAZARD 

IDENTIFICATION 

AND ASSESSMENT

ONE OF THE “root causes” of workplace injuries, 

illnesses, and incidents is the failure to identify 

or recognize hazards that are present, or that 

could have been anticipated. A critical element 

of any effective safety and health program is 

a proactive, ongoing process to identify and 

assess such hazards.

TO IDENTIFY AND ASSESS hazards, employers 

and workers:

• Collect and review information about the hazards 

present or likely to be present in the workplace.

• Conduct initial and periodic workplace 

inspections of the workplace to identify new 

or recurring hazards.

• Investigate injuries, illnesses, incidents, and 

close calls/near misses to determine the 

underlying hazards, their causes, and safety 

and health program shortcomings.

• Group similar incidents and identify trends in 

injuries, illnesses, and hazards reported.

• Consider hazards associated with emergency 

or nonroutine situations.

• For each hazard identified, determine the 

severity and likelihood of incidents that could 

result, and use this information to prioritize 

corrective actions.

Some hazards, such as housekeeping and 

tripping hazards, can and should be fixed as they 

are found. Fixing hazards on the spot emphasizes 

the importance of safety and health and takes 

advantage of a safety leadership opportunity. 

Fixing other hazards identified using the 

processes described here will be addressed in the 

next section, “Hazard Prevention and Control.” 

Action item 1: Collect existing information about workplace hazards

Information on workplace hazards may already be available to employers and workers from both 

internal and external sources.

How to accomplish it

• Collect, organize, and review information with 

workers to determine what types of hazards 

may be present and which workers may be 

exposed or potentially exposed.

• Information available in the workplace may 

include:

— Equipment and machinery operating 

manuals.

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 15
— SDSs provided by chemical manufacturers.

— Self-inspection reports and inspection 

reports from insurance carriers, 

government agencies, and consultants.

— Records of previous injuries and illnesses, 

such as OSHA 300 and 301 logs and 

reports of incident investigations.

— Workers’ compensation records and 

reports.

— Patterns of frequently occurring injuries 

and illnesses.

— Exposure monitoring results, industrial 

hygiene assessments, and medical 

records (appropriately redacted to ensure 

patient/worker privacy).

— Existing safety and health programs 

(lockout/tagout, confined spaces, 

process safety management, PPE, etc.). 

— Input from workers, including surveys 

or minutes from safety and health 

committee meetings.

— Results of job hazard analyses (JHAs, also 

known as job safety analyses or JSAs).

• Information about hazards may be available 

from outside sources, such as:

— OSHA, National Institute for Occupational 

Safety and Health (NIOSH), and Centers 

for Disease Control and Prevention (CDC) 

websites, publications, and alerts.

— Trade associations.

— Labor unions, state and local 

occupational safety and health 

committees/coalitions (“COSH groups”), 

and worker advocacy groups.

— Safety and health consultants.

Action item 2: Inspect the workplace for safety hazards

Hazards can be introduced over time as workstations and processes change, equipment or tools 

become worn, maintenance is neglected, or housekeeping practices decline. Setting aside time 

to regularly inspect the workplace for hazards can help identify shortcomings so that they can be 

addressed before an incident occurs.

How to accomplish it

• Conduct regular inspections of all operations, 

equipment, work areas, and facilities. Have 

workers participate on the inspection team, 

and talk to them about hazards that they see 

or report. 

• Be sure to document inspections so you can 

later verify that hazardous conditions are 

corrected. Take photos or video of problem 

areas to facilitate later discussion and 

brainstorming about how to control them, 

and for use as learning aids.

• Include all areas and activities in these 

inspections, such as storage and 

warehousing, facility and equipment 

maintenance, purchasing and office functions, 

and the activities of on-site contractors, 

subcontractors, and temporary employees.

• Regularly inspect both plant vehicles (e.g., 

forklifts, powered industrial trucks) and 

transportation vehicles (e.g., cars, trucks).

• Use checklists that highlight things to look for. 

Typical hazards fall into several major categories, 

such as those listed below; each workplace will 

have its own list:

— General housekeeping

— Slip, trip, and fall hazards

HAZARD IDENTIFICATION AND ASSESSMENT

16 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
— Electrical hazards

— Equipment operation

— Equipment maintenance

— Fire protection

— Work organization and process flow 

(including staffing and scheduling)

— Work practices

— Workplace violence

— Ergonomic problems

— Lack of emergency procedures

• Before changing operations, workstations, 

or workflow; making major organizational 

changes; or introducing new equipment, 

materials, or processes, seek the input of 

workers and evaluate the planned changes 

for potential hazards and related risks. 

Note: Many hazards can be identified using common knowledge and available tools. For example, you can easily identify and correct hazards 

associated with broken stair rails and frayed electrical cords. Workers can be a very useful internal resource, especially if they are trained in how to 

identify and assess risks.

Action item 3: Identify health hazards 

Identifying workers’ exposure to health hazards is typically more complex than identifying physical 

safety hazards. For example, gases and vapors may be invisible, often have no odor, and may not 

have an immediately noticeable harmful health effect. Health hazards include chemical hazards 

(solvents, adhesives, paints, toxic dusts, etc.), physical hazards (noise, radiation, heat, etc.), biological 

hazards (infectious diseases), and ergonomic risk factors (heavy lifting, repetitive motions, vibration). 

Reviewing workers’ medical records (appropriately redacted to ensure patient/worker privacy) can be 

useful in identifying health hazards associated with workplace exposures.

How to accomplish it

• Identify chemical hazards—review SDSs and 

product labels to identify chemicals in your 

workplace that have low exposure limits, are 

highly volatile, or are used in large quantities 

or in unventilated spaces. Identify activities 

that may result in skin exposure to chemicals. 

• Identify physical hazards—identify any 

exposures to excessive noise (areas where 

you must raise your voice to be heard by 

others), elevated heat (indoor and outdoor), 

or sources of radiation (radioactive materials, 

X-rays, or radiofrequency radiation).

HAZARD IDENTIFICATION AND ASSESSMENT

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 17
• Identify biological hazards—determine 

whether workers may be exposed to sources 

of infectious diseases, molds, toxic or 

poisonous plants, or animal materials (fur or 

scat) capable of causing allergic reactions or 

occupational asthma.

• Identify ergonomic risk factors—examine 

work activities that require heavy lifting, 

work above shoulder height, repetitive 

motions, or tasks with significant vibration.

• Conduct quantitative exposure assessments, 

when possible, using air sampling or direct 

reading instruments.

• Review medical records to identify cases 

of musculoskeletal injuries, skin irritation or 

dermatitis, hearing loss, or lung disease that 

may be related to workplace exposures.

Note: Identifying and assessing health hazards may require specialized knowledge. Small businesses can obtain free and confidential occupational 

safety and health advice services, including help identifying and assessing workplace hazards, through OSHA’s On-site Consultation Program (see 

www.osha.gov/consultation).

Action item 4: Conduct incident investigations 

Workplace incidents—including injuries, illnesses, close calls/near misses, and reports of other 

concerns—provide a clear indication of where hazards exist. By thoroughly investigating incidents and 

reports, you will identify hazards that are likely to cause future harm. The purpose of an investigation 

must always be to identify the root causes (and there is often more than one) of the incident or 

concern, in order to prevent future occurrences.

How to accomplish it

• Develop a clear plan and procedure for 

conducting incident investigations, so that an 

investigation can begin immediately when an 

incident occurs. The plan should cover items 

such as: 

— Who will be involved

— Lines of communication 

— Materials, equipment, and supplies 

needed

— Reporting forms and templates

• Train investigative teams on incident 

investigation techniques, emphasizing 

objectivity and open-mindedness throughout 

the investigation process.

• Conduct investigations with a trained 

team that includes representatives of both 

management and workers. 

• Investigate close calls/near misses.

• Identify and analyze root causes to address 

underlying program shortcomings that 

allowed the incidents to happen.

• Communicate the results of the investigation 

to managers, supervisors, and workers to 

prevent recurrence. 

Note: OSHA has special reporting requirements for work-related incidents that lead to serious injury or a fatality (29 CFR 1904.39). OSHA must be 

notified within 8 hours of a work-related fatality, and within 24 hours of an amputation, loss of an eye, or inpatient hospitalization.

Note: Effective incident investigations do not stop at identifying a single factor that triggered an incident. They ask the questions “Why?” and 

“What led to the failure?” For example, if a piece of equipment fails, a good investigation asks: “Why did it fail?” “Was it maintained properly?” 

“Was it beyond its service life?” and “How could this failure have been prevented?” Similarly, a good incident investigation does not stop when it 

concludes that a worker made an error. It asks such questions as: “Was the worker provided with appropriate tools and time to do the work?” “Was 

the worker adequately trained?” and “Was the worker properly supervised?”

HAZARD IDENTIFICATION AND ASSESSMENT

18 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
Action item 5: Identify hazards associated with emergency and nonroutine situations

Emergencies present hazards that need to be recognized and understood. Nonroutine or infrequent 

tasks, including maintenance and startup/shutdown activities, also present potential hazards. Plans 

and procedures need to be developed for responding appropriately and safely to hazards associated 

with foreseeable emergency scenarios and nonroutine situations.

How to accomplish it

• Identify foreseeable emergency scenarios 

and nonroutine tasks, taking into account the 

types of material and equipment in use and 

the location within the facility. Scenarios such 

as the following may be foreseeable:

— Fires and explosions

— Chemical releases

— Hazardous material spills 

— Startups after planned or unplanned 

equipment shutdowns 

— Nonroutine tasks, such as infrequently 

performed maintenance activities

— Structural collapse

— Disease outbreaks

— Weather emergencies and natural 

disasters

— Medical emergencies

— Workplace violence

Action item 6: Characterize the nature of identified hazards, identify interim 

control measures, and prioritize the hazards for control 

The next step is to assess and understand the hazards identified and the types of incidents that 

could result from worker exposure to those hazards. This information can be used to develop interim 

controls and to prioritize hazards for permanent control (see “Hazard Prevention and Control”). 

How to accomplish it

• Evaluate each hazard by considering the 

severity of potential outcomes, the likelihood 

that an event or exposure will occur, and the 

number of workers who might be exposed. 

• Use interim control measures to protect 

workers until more permanent solutions can 

be implemented.

• Prioritize the hazards so that those 

presenting the greatest risk are addressed 

first. Note, however, that employers have 

an ongoing obligation to control all serious 

recognized hazards and to protect workers.

Note: “Risk” is the product of hazard and exposure. Thus, risk can be reduced by controlling or eliminating the hazard, or by reducing workers’ 

exposure to hazards. An assessment of risk helps employers understand hazards in the context of their own workplace, and prioritize hazards for 

permanent control. 

HAZARD IDENTIFICATION AND ASSESSMENT

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 19
HAZARD 

PREVENTION AND 

CONTROL

EFFECTIVE CONTROLS protect workers from 

workplace hazards; help avoid injuries, illnesses, 

and incidents; minimize or eliminate safety 

and health risks; and help employers provide 

workers with safe and healthful working 

conditions. The processes described in this 

section will help employers prevent and control 

hazards identified in the previous section. 

TO EFFECTIVELY CONTROL and prevent 

hazards, employers should:

• Involve workers, who often have the best 

understanding of the conditions that create 

hazards and insights into how they can be 

controlled.

• Identify and evaluate options for controlling 

hazards, using a “hierarchy of controls.” 

• Use a hazard control plan to guide the 

selection and implementation of controls, 

and implement controls according to the 

plan.

• Develop plans with measures to protect 

workers during emergencies and nonroutine 

activities. 

• Evaluate the effectiveness of existing controls 

to determine whether they continue to 

provide protection, or whether different 

controls may be more effective. Review new 

technologies for their potential to be more 

protective, more reliable, or less costly. 

Action item 1: Identify control options 

A wealth of information exists to help employers investigate options for controlling identified hazards. 

Before selecting any control options, it is essential to solicit workers’ input on their feasibility and 

effectiveness.

How to accomplish it

• Review sources such as OSHA standards and 

guidance, industry consensus standards, NIOSH 

publications, manufacturers’ literature, and 

engineering reports to identify potential control 

measures. Keep current on relevant information 

from trade or professional associations.

• Investigate control measures used in other 

workplaces and determine whether they 

would be effective at your workplace.

20 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
• Get input from workers who may be able 

to suggest and evaluate solutions based on 

their knowledge of the facility, equipment, 

and work processes.

• For complex hazards, consult with safety 

and health experts, including OSHA’s On-site 

Consultation Program. 

Action item 2: Select controls

Employers should select the controls that are the 

most feasible, effective, and permanent.

How to accomplish it

• Eliminate or control all serious hazards 

(hazards that are causing or are likely to 

cause death or serious physical harm) 

immediately.

• Use interim controls while you develop and 

implement longer-term solutions. 

• Select controls according to a hierarchy that 

emphasizes engineering solutions (including 

elimination or substitution) first, followed by 

safe work practices, administrative controls, 

and finally PPE. 

• Avoid selecting controls that may directly or 

indirectly introduce new hazards. Examples 

include exhausting contaminated air into 

occupied work spaces or using hearing 

protection that makes it difficult to hear 

backup alarms. 

• Review and discuss control options with 

workers to ensure that controls are feasible 

and effective.

• Use a combination of control options when 

no single method fully protects workers.

Note: Whenever possible, select equipment, machinery, and materials that are inherently safer based on the application of “Prevention through 

Design” (PtD) principles. Apply PtD when making your own facility, equipment, or product design decisions. For more information, see the link to 

the NIOSH PtD initiative on the recommended practices Web page. 

Action item 3: Develop and update a hazard control plan

A hazard control plan describes how the selected controls will be implemented. An effective plan 

will address serious hazards first. Interim controls may be necessary, but the overall goal is to ensure 

effective long-term control of hazards. It is important to track progress toward completing the control 

plan, and periodically (at least annually and when conditions, processes, or equipment change) verify 

that controls remain effective.

How to accomplish it

• List the hazards needing controls in order of 

priority.

• Assign responsibility for installing or 

implementing the controls to a specific 

person or persons with the power or ability 

to implement the controls.

Most Hierarchy of Controls effective

Change the way

people work

Least

effective

Physically remove

the hazard

Replace

the hazard

Isolate people

from the hazard

Protect the worker with

Personal Protective Equipment

Administrative

Controls

PPE

Engineering

Controls

Substitution

Elimination

Source: NIOSH

HAZARD PREVENTION AND CONTROL

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 21
• Establish a target completion date.

• Plan how you will track progress toward 

completion. 

• Plan how you will verify the effectiveness 

of controls after they are installed or 

implemented.

Action item 4: Select controls to protect workers during nonroutine operations 

and emergencies

The hazard control plan should include provisions to protect workers during nonroutine operations 

and foreseeable emergencies. Depending on the workplace, these could include fires, explosions, 

chemical releases, hazardous material spills, unplanned equipment shutdowns, infrequent maintenance 

activities, natural and weather disasters, workplace violence, terrorist or criminal attacks, disease 

outbreaks (e.g., pandemic influenza), or medical emergencies. Nonroutine tasks, or tasks workers 

don’t normally do, should be approached with particular caution. Prior to initiating such work, review 

JSAs/JHAs with any workers involved and notify others about the nature of the work, work schedule, 

and any necessary precautions. 

How to accomplish it

• Develop procedures to control hazards that 

may arise during nonroutine operations 

(e.g., removing machine guarding during 

maintenance and repair).

• Develop or modify plans to control hazards 

that may arise in emergency situations. 

• Procure any equipment needed to control 

emergency-related hazards.

• Assign responsibilities for implementing the 

emergency plan.

• Conduct emergency drills to ensure that 

procedures and equipment provide adequate 

protection during emergency situations. 

Note: Depending on your location, type of business, and materials stored or used on site, authorities including local fire and emergency response 

departments, state agencies, the U.S. Environmental Protection Agency, the Department of Homeland Security, and OSHA may have additional 

requirements for emergency plans. Ensure that your procedures comply with these requirements. 

Action item 5: Implement selected controls in the workplace

Once hazard prevention and control measures have been identified, they should be implemented 

according to the hazard control plan. 

How to accomplish it

• Implement hazard control measures 

according to the priorities established in the 

hazard control plan. 

• When resources are limited, implement 

measures on a “worst-first” basis, according 

to the hazard ranking priorities (risk) 

established during hazard identification 

and assessment. (Note, however, that 

regardless of limited resources, employers 

have an obligation to protect workers from 

recognized, serious hazards.)

• Promptly implement any measures that 

are easy and inexpensive—such as general 

housekeeping, removal of obvious tripping 

hazards such as electrical cords, and basic 

lighting—regardless of the level of hazard 

they involve. 

HAZARD PREVENTION AND CONTROL

22 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
Action item 6: Follow up to confirm that controls are effective

To ensure that control measures are and remain effective, employers should track progress in 

implementing controls, inspect and evaluate controls once they are installed, and follow routine 

preventive maintenance practices.

How to accomplish it

• Track progress and verify implementation by 

asking the following questions:

— Have all control measures been 

implemented according to the hazard 

control plan?

— Have engineering controls been properly 

installed and tested?

— Have workers been appropriately trained 

so that they understand the controls, 

including how to operate engineering 

controls, safe work practices, and PPE 

use requirements?

— Are controls being used correctly and 

consistently? 

• Conduct regular inspections (and industrial 

hygiene monitoring, if indicated) to confirm 

that engineering controls are operating as 

designed. 

• Evaluate control measures to determine if 

they are effective or need to be modified. 

Involve workers in the evaluation of the 

controls. If controls are not effective, 

identify, select, and implement further 

control measures that will provide adequate 

protection.

• Confirm that work practices, administrative 

controls, and PPE use policies are being 

followed.

• Conduct routine preventive maintenance of 

equipment, facilities, and controls to help 

prevent incidents due to equipment failure.

HAZARD PREVENTION AND CONTROL

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 23
EDUCATION AND 

TRAINING

EDUCATION AND TRAINING are important 

tools for informing workers and managers 

about workplace hazards and controls so they 

can work more safely and be more productive. 

Another role of education and training, however, 

is to provide workers and managers with a 

greater understanding of the safety and health 

program itself, so that they can contribute to its 

development and implementation. 

EDUCATION AND TRAINING provides employers, 

managers, supervisors, and workers with: 

• Knowledge and skills needed to do their 

work safely and avoid creating hazards that 

could place themselves or others at risk.

• Awareness and understanding of workplace 

hazards and how to identify, report, and 

control them.

• Specialized training, when their work involves 

unique hazards.

Additional training may be needed depending on 

the roles assigned in the program. For example, 

employers, managers, and supervisors may need 

specific training to ensure that they can fulfill 

their roles in providing leadership, direction, and 

resources for the safety and health program. 

Workers assigned specific roles in the program 

(e.g., incident investigation team members) may 

need training to ensure their full participation in 

those functions. 

Effective training and education can be provided 

outside a formal classroom setting. Peer-topeer training, on-the-job training, and worksite 

demonstrations can be effective in conveying safety 

concepts, ensuring understanding of hazards and 

their controls, and promoting good work practices.

Action item 1: Provide program awareness training

Managers, supervisors, and workers all need to understand the program’s structure, plans, and 

procedures. Having this knowledge ensures that everyone can fully participate in developing, 

implementing, and improving the program.

How to accomplish it 

• Provide training to all managers; supervisors; 

workers; and contractor, subcontractor, and 

temporary agency workers on:

— Safety and health policies, goals, and 

procedures

— Functions of the safety and health 

program

— Whom to contact with questions or 

concerns about the program (including 

contact information)

24 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
— How to report hazards, injuries, illnesses, 

and close calls/near misses

— What to do in an emergency

— The employer’s responsibilities under the 

program

— Workers’ rights under the OSH Act

• Provide information on the safety and health 

hazards of the workplace and the controls for 

those hazards. 

• Ensure that training is provided in the 

language(s) and at a literacy level that all 

workers can understand.

• Emphasize that the program can only 

work when everyone is involved and feels 

comfortable discussing concerns; making 

suggestions; and reporting injuries, incidents, 

and hazards. 

• Confirm, as part of the training, that all workers 

have the right to report injuries, incidents, 

hazards, and concerns and to fully participate 

in the program without fear of retaliation. 

Action item 2: Train employers, managers, and supervisors on their roles in the 

program 

Employers, managers, and supervisors are responsible for workers’ safety, yet sometimes have little 

training on safety-related concepts and techniques. They might benefit from specific training that 

allows them to fulfill their leadership roles in the program. 

How to accomplish it

• Reinforce employers, managers, 

and supervisors’ knowledge of their 

responsibilities under the OSH Act and the 

workers’ rights guaranteed by the Act.

• Train employers, managers, and supervisors 

on procedures for responding to workers’ 

reports of injuries, illnesses, and incidents, 

including ways to avoid discouraging 

reporting. 

• Instruct employers, managers, and 

supervisors on fundamental concepts and 

techniques for recognizing hazards and 

methods of controlling them, including the 

hierarchy of controls (see “Hazard Prevention 

and Control”). 

• Instruct employers, managers, and 

supervisors on incident investigation 

techniques, including root cause analysis. 

EDUCATION AND TRAINING

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 25
Action item 3: Train workers on their specific roles in the safety and health program

Additional training may be needed to ensure that workers can incorporate any assigned safety and 

health responsibilities into their daily routines and activities. 

How to accomplish it

• Instruct workers on how to report injuries, 

illnesses, incidents, and concerns. If a 

computerized reporting system is used, 

ensure that all employees have the basic 

computer skills and computer access 

sufficient to submit an effective report. 

• Instruct workers assigned specific roles within 

the safety and health program on how they 

should carry out those responsibilities, including: 

— Hazard recognition and controls (see 

Action item 4)

— Participation in incident investigations

— Program evaluation and improvement

• Provide opportunities for workers to ask 

questions and provide feedback during and 

after the training.

• As the program evolves, institute a more 

formal process for determining the training 

needs of workers responsible for developing, 

implementing, and maintaining the program.

Action item 4: Train workers on hazard identification and controls

Providing workers with an understanding of hazard recognition and control, and actively involving 

them in the process, can help to eliminate hazards before an incident occurs. 

How to accomplish it

• Train workers on techniques for identifying 

hazards, such as job hazard analysis (see 

OSHA Publication 3071).

• Train workers so they understand and can 

recognize the hazards they may encounter in 

their own jobs, as well as more general workrelated hazards.

• Instruct workers on concepts and techniques 

for controlling hazards, including the 

hierarchy of controls and its importance. 

• Train workers on the proper use of work 

practice and administrative controls.

• Train workers on when and how to wear 

required PPE.

• Provide additional training, as necessary, 

when a change in facilities, equipment, 

processes, materials, or work organization 

could increase hazards, and whenever a 

worker is assigned a new task.

EDUCATION AND TRAINING

26 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
PROGRAM 

EVALUATION AND 

IMPROVEMENT

ONCE A SAFETY and health program is 

established, it should be evaluated initially 

to verify that it is being implemented as 

intended. After that, employers should 

periodically, and at least annually, step back 

and assess what is working and what is not, 

and whether the program is on track to 

achieve its goals. Whenever these assessments 

identify opportunities to improve the program, 

employers, managers, and supervisors—in 

coordination with workers—should make 

adjustments and monitor how well the program 

performs as a result. Sharing the results of 

monitoring and evaluation within the workplace, 

and celebrating successes, will help drive 

further improvement.

PROGRAM EVALUATION and improvement 

includes:

• Establishing, reporting, and tracking goals 

and targets that indicate whether the 

program is making progress. 

• Evaluating the program initially, and 

periodically thereafter, to identify shortcomings 

and opportunities for improvement.

• Providing ways for workers to participate in 

program evaluation and improvement.

Action item 1: Monitor performance and progress

The first step in monitoring is to define indicators that will help track performance and progress. Next, 

employers, managers, supervisors, and workers need to establish and follow procedures to collect, 

analyze, and review performance data.

Both lagging and leading indicators should be used. Lagging indicators generally track worker exposures 

and injuries that have already occurred. Leading indicators track how well various aspects of the program 

have been implemented and reflect steps taken to prevent injuries or illnesses before they occur.

How to accomplish it

• Develop and track indicators of progress 

toward established safety and health goals.

— Track lagging indicators, such as:

 Number and severity of injuries and 

illnesses

 Results of worker exposure 

monitoring that show that exposures 

are hazardous

 Workers’ compensation data, 

including claim counts, rates, and cost

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 27
— Track leading indicators, such as: 

 Level of worker participation in 

program activities

 Number of employee safety 

suggestions

 Number of hazards, near misses, and 

first aid cases reported 

 Amount of time taken to respond to 

reports

 Number and frequency of 

management walkthroughs 

 Number and severity of hazards 

identified during inspections 

 Number of workers who have 

completed required safety and health 

training

 Timely completion of corrective 

actions after a workplace hazard is 

identified or an incident occurs

 Timely completion of planned 

preventive maintenance activities

 Worker opinions about program 

effectiveness obtained from a safety 

climate or safety opinion survey

• Analyze performance indicators and evaluate 

progress over time.

• Share results with workers and invite 

their input on how to further improve 

performance.

• When opportunities arise, share your 

experience and compare your results to 

similar facilities within your organization, 

with other employers you know, or through 

business or trade associations. 

Note: Indicators can be either quantitative or qualitative. Whenever possible, select indicators that are measurable (quantitative) and that will help 

you determine whether you have achieved your program goals. The number of reported hazards and near misses would be a quantitative indicator. 

A single worker expressing a favorable opinion about program participation would be a qualitative indicator.

Action item 2: Verify that the program is implemented and is operating

Initially and at least annually, employers need to evaluate the program to ensure that it is operating 

as intended, is effective in controlling identified hazards, and is making progress toward established 

safety and health goals and objectives. The scope and frequency of program evaluations will vary 

depending on changes in OSHA standards; the scope, complexity, and maturity of the program; and 

the types of hazards it must control.

How to accomplish it

• Verify that the core elements of the program 

have been fully implemented.

• Involve workers in all aspects of program 

evaluation, including reviewing information 

(such as incident reports and exposure 

monitoring results); establishing and tracking 

performance indicators; and identifying 

opportunities to improve the program.

• Verify that the following key processes are in 

place and operating as intended:

— Reporting injuries, illnesses, incidents, 

hazards, and concerns

— Conducting workplace inspections and 

incident investigations

— Tracking progress in controlling identified 

hazards and ensuring that hazard control 

measures remain effective

— Collecting and reporting any data needed 

to monitor progress and performance

PROGRAM EVALUATION AND IMPROVEMENT

28 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
• Review the results of any compliance audits 

to confirm that any program shortcomings 

are being identified. Verify that actions are 

being taken that will prevent recurrence. 

Action item 3: Correct program shortcomings and identify opportunities to 

improve

Whenever a problem is identified in any part of the safety and health program, employers—in 

coordination with supervisors, managers, and workers—should take prompt action to correct the 

problem and prevent its recurrence. 

How to accomplish it

• If you discover program shortcomings, take 

actions needed to correct them.

• Proactively seek input from managers, 

workers, supervisors, and other stakeholders 

on how you can improve the program. 

• Determine whether changes in equipment, 

facilities, materials, key personnel, or work 

practices trigger any need for changes in the 

program. 

• Determine whether your performance 

indicators and goals are still relevant and, 

if not, how you could change them to more 

effectively drive improvements in workplace 

safety and health. 

Note: The scope and frequency of program evaluations will depend on the scope, complexity, and maturity of the program and on the types of 

hazards it must control. Program evaluations should be conducted periodically (and at least annually) but might also be triggered by a change in 

process or equipment, or an incident such as a serious injury, significant property damage, or an increase in safety-related complaints.

PROGRAM EVALUATION AND IMPROVEMENT

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 29
COMMUNICATION AND 

COORDINATION FOR 

HOST EMPLOYERS, 

CONTRACTORS, AND 

STAFFING AGENCIES

IN TODAY’S ECONOMY, an increasing number 

of workers are assigned by staffing agencies 

to work at specific “host” worksites under the 

direction and control of the host employer. 

Examples include seasonal workers, such as 

delivery drivers and warehouse workers, who 

help fill a temporary staffing need, as well as 

office and production workers who may be 

placed in both short- and long-term assignments. 

In these situations, it is important for the staffing 

agency and the host employer to communicate 

and coordinate to provide and maintain a safe 

work environment for their workers.

In other situations, some workers are employed 

by a host employer and others by a contractor 

or subcontractor. Examples include electrical 

or mechanical contractors working in a facility, 

a vendor installing or maintaining equipment, 

or long-term contractors providing building 

cleaning and maintenance. OSHA refers to 

these as “multiemployer” worksites. In these 

circumstances, it is important that each employer 

and contractor consider how its work and safety 

activities can affect the safety of other employers 

and workers at the site. 

IN BOTH TEMPORARY WORKER and 

multiemployer situations, safety is enhanced if 

employers establish mechanisms to coordinate 

their efforts and communicate effectively to 

afford all workers equal protection against 

hazards. These mechanisms include measures 

to ensure that all workers on site (and their 

representatives) can participate in preventing 

injuries and illnesses. Failure to take these steps 

may undermine safety programs. For example, if 

the different employers have inconsistent policies 

for when and where to wear PPE, workers 

may mistakenly believe that the equipment 

is not needed, leading to injury. Inconsistent 

safety policies may also cause workers to 

question the credibility of safety and health 

programs, resulting in less meaningful employee 

engagement and participation.

30 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
Effective communication and coordination 

among such employers means that:

• Before coming on site, contractors and staffing 

agencies and their workers are aware of:

— The types of hazards that may be 

present.

— The procedures or measures they need to 

use to avoid or control their exposure to 

these hazards.

— How to contact the host employer to 

report an injury, illness, or incident or if 

they have a safety concern.

• Host employers and their workers are aware 

of: 

— The types of hazards that may arise from 

the work being done on site by workers 

employed by contractors or staffing 

agencies. 

— The procedures or measures needed 

to avoid or control exposure to these 

hazards. 

— How to contact the contract or staffing 

firm if they have a safety concern.

— What to do in case of an emergency.

Definitions

Host employer: An employer who has 

general supervisory authority over the 

worksite, including controlling the means and 

manner of work performed and having the 

power to correct safety and health hazards or 

require others to correct them. 

Contractor: An individual or firm that agrees 

to furnish materials or perform services at 

a specified price, and controls the details 

of how the work will be performed and 

completed. 

Staffing agency: A firm that provides 

temporary workers to host employers. A 

staffing agency hires its own employees 

and assigns them to support or supplement 

a client’s workforce in situations involving 

employee absences, temporary skill 

shortages, seasonal workloads, and special 

projects.

Temporary workers: Workers hired and paid 

by a staffing agency and assigned to work 

for a host employer, whether or not the job is 

actually temporary.

COMMUNICATION AND COORDINATION FOR HOST EMPLOYERS, CONTRACTORS, AND STAFFING AGENCIES

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 31
Action item 1: Establish effective communication 

Each host employer establishes and implements a procedure to ensure the exchange of information 

about hazards present on site and the hazard control measures in place. Thus, all workers on the site 

are aware of worksite hazards, and the methods and procedures needed to control exposures to them. 

How to accomplish it

• The host employer communicates with 

contractors and staffing agencies to 

determine which among them will implement 

and maintain the various parts of the safety 

and health program, to ensure protection of 

all on-site workers before work begins. These 

determinations can be included in contract 

documents that define the relationships 

between the parties.

• The host employer establishes and 

implements procedures to exchange 

information with contractors and staffing 

agencies about hazards present in the 

workplace and the measures that have been 

implemented to prevent or control such 

hazards. 

• The host employer gathers and disseminates 

information sufficient to enable each 

employer to assess hazards encountered by 

its workers and to avoid creating hazards that 

affect workers on the site.

• Contractors and staffing agencies regularly 

give the host employer any information 

about injuries, illnesses, hazards, or concerns 

reported by their workers and the results of 

any tracking or trend analysis they perform. 

• Each contractor establishes and implements 

a procedure for providing the host employer 

with information about the hazards and 

control measures associated with the 

work being done by its workers, and the 

procedures it will use to protect workers on 

the site.

• The host employer gives contract employers 

and staffing agencies the right to conduct 

site visits and inspections and to access 

injury and illness records and other safety 

and health information. 

• The host employer communicates with 

contractors and staffing agencies and their 

workers about nonroutine and emergency 

hazards and emergency procedures.

• Information is communicated before on-site 

work starts and, as needed, if conditions 

change. 

COMMUNICATION AND COORDINATION FOR HOST EMPLOYERS, CONTRACTORS, AND STAFFING AGENCIES

32 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
Action item 2: Establish effective coordination

Host employers, contractors, and staffing agencies coordinate on work planning, scheduling, and 

resolving program differences to identify and work out any concerns or conflicts that could impact 

safety or health.

How to accomplish it

• Host employers:

— Include in contracts and bid documents 

any safety-related specifications and 

qualifications and ensure that contractors 

and staffing agencies selected for the 

work meet those requirements. 

— Identify issues that may arise during 

on-site work and include procedures 

to be used by the host employer and 

contractors and/or staffing agencies for 

resolving any conflicts before work starts.

• Host employers coordinate with contractors 

and staffing agencies to:

— Ensure that work is planned and 

scheduled to minimize impacts on safety.

— Ensure that staffing agency workers are 

adequately trained and equipped before 

arriving on the worksite.

— Harmonize their safety and health policies 

and procedures to resolve important 

differences, so that all workers at the site 

have the same protection and receive 

consistent safety information.

• Host employers and staffing agencies:

— Work together to deal with unexpected 

staffing needs by ensuring that enough 

trained and equipped workers are 

available or that adequate lead time is 

provided to train and equip workers.

— Make sure that managers with decisionmaking authority are available and 

prepared to deal with day-to-day 

coordination issues.

COMMUNICATION AND COORDINATION FOR HOST EMPLOYERS, CONTRACTORS, AND STAFFING AGENCIES

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 33
LIST OF ABBREVIATIONS 

CDC Centers for Disease Control and Prevention

NIOSH National Institute for Occupational Safety and Health

OSHA Occupational Safety and Health Administration 

PPE personal protective equipment

PtD Prevention through Design

SDS Safety Data Sheet

SHARP Safety and Health Achievement Recognition Program

VPP Voluntary Protection Programs

GLOSSARY OF TERMS 

close call/near miss: An incident that could have, but did not, result in death, injury, 

or illness. They signal that hazards are not being adequately 

controlled or that new hazards have arisen. 

contractor: An individual or firm that agrees to furnish materials or perform 

services at a specified price.

elimination: A change in process or workplace condition that removes the 

hazard or ensures that no worker can be exposed to a hazard 

under any foreseeable circumstances. 

hierarchy of controls: A system for selecting and implementing the most effective 

control solutions for workplace hazards that includes:

• Elimination.

• Substitution.

• Engineering controls.

• Administrative controls.

• Personal protective equipment. 

This is known as the “hierarchy of controls” because they should 

be considered in the order presented. Controls at the top of the 

hierarchy are potentially more effective and more protective 

than those lower in the hierarchy.

34 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement
host employer: An employer who has general supervisory authority over the 

worksite, including controlling the means and manner of work 

performed and having the power to correct safety and health 

hazards or require others to correct them. 

industrial hygiene: The science of protecting and enhancing the health and safety 

of people at work and in their communities.

job hazard analysis: A technique that focuses on job tasks as a way to identify 

hazards before they occur. It focuses on the relationships among 

the worker, the task, the tools, and the work environment.

joint-employed worker: A worker hired and paid by a staffing agency and assigned to work 

for a host employer, whether or not the job is actually temporary. 

lagging indicators: Measures of the occurrence and frequency of events in the past 

such as the number or rate of injuries, illnesses, and fatalities. 

leading indicators: Measures intended to predict the occurrence of events in the 

future. Leading indicators are proactive, preventative, and 

predictive measures that provide information about the effective 

performance of safety and health program activities that can 

drive the control of workplace hazards. 

metrics: Measures of performance.

multiemployer worksite: Any worksite where two or more employers are present. See 

OSHA’s Multiemployer Citation Policy.

nonroutine operations: Operations that do not occur frequently or that occur as a result 

of an emergency.

peer-to-peer training: A type of on-the-job training where workers exchange information 

about hazards, controls, reporting procedures, and work 

procedures that are relevant to the safety and health program.

Prevention through Design: A NIOSH national initiative to prevent or reduce occupational 

injuries, illnesses, and fatalities through the inclusion of 

prevention considerations in all designs that impact workers. 

PtD encompasses all of the efforts to anticipate and design out 

hazards to workers in facilities, work methods and operations, 

processes, equipment, tools, products, new technologies, and 

the organization of work. 

quantitative exposure assessment: Techniques used to quantitatively measure workers’ exposure 

to hazards, particularly health hazards, such as sampling for 

chemicals, dusts, biological organisms, noise, radiation, or other 

assessments. The purpose of such assessments is to quantify 

the level of workers’ exposure to a hazard. Also known as 

exposure monitoring.

root cause analysis: A collective term that describes a wide range of approaches, 

tools, and techniques used to uncover causes of problems. 

GLOSSARY OF TERMS

osha.gov/safetymanagement RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS 35
Safety and Health Achievement An OSHA program that recognizes small business employers 

Recognition Program: who have used OSHA's On-site Consultation Program services 

and operate an exemplary injury and illness prevention program.

safety data sheet: Written or printed material used to communicate the 

hazards of substances and chemical products to employees 

prepared in accordance with paragraph (g) of OSHA’s Hazard 

Communication standard. 

serious hazards: Hazards that are causing or are likely to cause death or serious 

physical harm. See OSHA’s Field Operations Manual, Chapter 4.

shortcoming: A fault, deficiency, or gap that results in a failure to meet 

program design criteria. 

staffing agency: A firm that provides temporary workers to host employers. 

A staffing agency hires its own employees and assigns them 

to support or supplement a client’s workforce in situations 

involving employee absences, temporary skill shortages, 

seasonal workloads, and special projects.

substitution: The replacement of toxic or hazardous materials (or the 

equipment or processes used with them) with ones that are less 

harmful. 

Voluntary Protection Programs: An OSHA initiative that recognizes employers and workers in the 

private industry and federal agencies who have implemented 

effective safety and health management systems and maintain 

injury and illness rates below the U.S. Bureau of Labor Statistics 

averages for their respective industries.

work practices: A set of procedures for performing a specific work assignment 

safely.

GLOSSARY OF TERMS

36 RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS osha.gov/safetymanagement