National Construction Safety Teams 

Annual Report 

Fiscal Year 2006 

Introduction

In October 2002, the President signed into law the National Construction Safety Team 

(NCST) Act (P.L. 107-231), which authorized the Director of the National Institute of 

Standards and Technology (NIST) to establish National Construction Safety Teams for 

deployment after events causing the failure of a building or buildings that has resulted in 

substantial loss of life or that posed significant potential for substantial loss of life. 

The purpose of these investigations is to improve the safety and structural integrity of 

buildings in the United States. A team shall: 

(A) establish the likely technical cause or causes of the building failure; 

(B) evaluate the technical aspects of evacuation and emergency response procedures; 

(C) recommend as necessary, specific improvements to building standards, codes, and 

practices based on the findings made pursuant to subparagraphs (A) and (B); and, 

(D)recommend any research and other appropriate actions needed to improve the 

structural safety of buildings, and improve the evacuation and emergency 

response procedures, based on the findings and recommendations of the 

investigation. 

Under Section 10 of the NCST Act, NIST is to provide by February 15 of each year a 

report that includes: 

(1) a summary of the investigations conducted by Teams during the prior fiscal year; 

(2) a summary of recommendations made by Teams in reports issued under Section 8 

during the prior fiscal year and a description of the extent to which those 

recommendations have been implemented; and, 

(3) a description of the actions taken to improve building safety and structural 

integrity by the National Institute of Standards and Technology during the prior 

fiscal year in response to reports issued under Section 8. 

This report summarizes NIST’s activities under the NCST Act for Fiscal Year 2006. 

1
Investigations Conducted by Teams during Fiscal Year 2006 

No new investigations were undertaken during Fiscal Year 2006. NIST issued the final 

report on the federal building and fire safety investigation of the World Trade Center 

Towers in October 2005. The final report, and the 42 supporting project and technical 

topic reports are available on the NIST WTC web site, http://wtc.nist.gov. NIST’s 

investigation of the collapse of World Trade Center 7 continued during 2006 and NIST 

anticipates releasing the draft final report on the investigation in the spring of 2007. 

Recommendations Made by Teams and the Extent of Implementation

NIST has conducted its building and fire safety investigation of the World Trade Center 

disaster of September 11, 2001, under the authority of the National Construction Safety 

Team Act (15 USC 7301 et seq.). The National Construction Safety Team’s final report 

is required by the Act to include recommendations that address (1) specific improvements 

to building standards, codes, and practices, (2) changes to, or the establishment of, 

evacuation and emergency response procedures, and (3) research and other appropriate 

actions needed to help prevent future building failures. 

As a part of its investigation of the World Trade Center disaster, NIST issued thirty 

recommendations that identified specific improvements in the way buildings are 

designed, constructed, maintained, and used in evacuation and emergency response 

procedures. Recommendations were made in eight areas: 

(1) Increased Structural Integrity 

(2) Enhanced Fire Endurance of Structures 

(3) New Methods for Fire Resistant Design of Structures 

(4) Improved Active Fire Protection 

(5) Improved Building Evacuation 

(6) Improved Emergency Response 

(7) Improved Procedures and Practices 

(8) Education and Training 

These recommendations are documented in Chapter 9 of NIST’s Final Report on the 

Collapse of the World Trade Center Towers (NIST NCSTAR 1, September 2005). In 

addition, NIST maintains a status of the implementation of these recommendations on the 

NIST WTC web site (http://wtc.nist.gov/recommendations/index.htm). The current 

status of the implementation of the recommendations from the World Trade Center 

investigation is shown in Appendix 1. 

NIST conducted its investigation of the Station Nightclub Fire under the authorities of the 

NCST Act. The final report on the investigation was issued in June 2005 and included 

ten specific recommendations to improve building safety. NIST tracks the status of the 

implementation of recommendations resulting from it investigation of the Station 

Nightclub Fire. The current status of the implementation of these recommendations is 

shown in Appendix 2. 

2
3

Actions Taken to Improve Building Safety and Structural Integrity 

NIST has undertaken a number of actions to improve the safety and structural integrity 

responding to the recommendations resulting from the World Trade Center Investigation. 

NIST contracted with the National Institute of Building Sciences (NIBS) to assemble a 

group of code experts to review the recommendations resulting from the World Trade 

Center Investigation and develop proposals for code changes where appropriate. NIST 

technical experts provide technical support to the NIBS Code Experts Committee. 

The members of the committee submitted nineteen proposals for change to the 

International Code Council in March of 2006 for consideration at the September 2006 

Code Hearings. Four of the proposals (those related to improved fireproofing installation 

practices, bond strength, and inspections and one on the fire rating of the primary 

structural frame) were voted favorably by the technical committee. Also, the proposal to 

require special elevators for firefighter access in high-rise buildings was voted favorably 

by assembly action (overturning the negative vote of the technical committee). 

In addition, there was positive movement on three other code change proposals. While 

the committee voted down the current proposal on progressive collapse, a coalition of 

relevant industry groups has formed to develop an alternative proposal and the group's 

representative committed to submitting a proposal by August 2007 deadline for the next 

code change cycle. The proposal on wind tunnel testing was turned down on a 

technicality since the referenced ASCE standard is a few weeks away from being issued 

in final form. The proposal on structural integrity of stairwell and elevator enclosures 

was voted down but a representative of the ICC Code Technology Committee promised 

to work the issue and come back with an alternate proposal. 

The NIBS Code Experts Committee is also working with the NFPA to support proposals 

for change to the NFPA 5000 building code and the NFPA fire codes that respond to the 

recommendations of the WTC investigation. Table 1 includes on updated information on 

the status of code change proposals and next steps that are being taken as a result of the 

Code Hearing results. 

NIST technical experts are also working closely with several standards and industry 

organizations including the American Society of Civil Engineers, ASTM International, 

the National Council of Structural Engineering Associations, American Society of 

Mechanical Engineers and others to provide technical support as these bodies consider 

actions that respond to the WTC recommendations. 

NIST has also undertaken nearly a dozen research projects under the Research and 

Development for the Safety of Threatened Buildings program that support research needs 

identified in the WTC recommendations. A detailed description of the Safety of 

Threatened Buildings Program and the component projects is available on the NIST 

Building and Fire Research Laboratory web site, 

http://www2.bfrl.nist.gov/projects/goalslist.asp. 
Appendix 1 

NIST's Recommendations Following the Federal 

Building and Fire Investigation of the World Trade Center Disast

Recommendation Affected Standards and Codes Status as of (FebruRecommendation 1. NIST recommends that: (1) progressive collapse be prevented in buildings through the development and nationwide adoption of consensus standards and code provisions, along with the tools and guidelines needed for their use in practice; and (2) a standard methodology be developed—supported by analytical design tools and practical design. 

Affected Standards: ASCE-7, AISC Specifications, and ACI 318. These standards and other relevant committees should draw on expertise fromASCE/SFPE 29 for issues concerning progressive collapse under fire conditions. Model Building Codes: The consensus standards should be adopted in model building codes (i.e., the International Building Code and NFPA 5000) by mandatory reference to, or incorporation of, the latest edition of the standard. State and local jurisdictions should adopt and enforce the improved model building codes and national standards based on all 30 WTC recommendations. The codes and standards may vary from the WTC recommendations, but satisfy their intent. 

NIBS: The ICC AHCIBC change proposaDisproportionate Coplans to challenge at Fin May. NCSEA: NCSEA has coalition of relevant incommitted to developcode provision on probe submitted to ICC bdeadline. This proposconsidered for inclusiNIST and the NIBS/Mvoting representatives committee. CTBUH: The Counciand Urban Habitat placommittee to develop guidance on progressistaff will participate o

4
ASCE: ASCE has est

committee to develop mitigation of progressplans to establish a staprogressive collapse tstandard. NIST staff technical committee. NIST: Multi-year NIthe development of peprediction tools, and pprevention of progresis working through AIAnalysis, & Systems, report on Comparison Standards on Progressconsideration. NFPA: Rec

ommends 

such as ASCE, NCSEof the two work towarguideline docum

ent. 

NFPA 5000 would cosuch a guidance documconsider m

aking this 

recommendation to Athe NFPA High Rise BAdvisory Committee 

5
Recommendation 2. NIST recommends 

that nationally accepted performance standards be developed for: (1) conducting wind tunnel testing of prototype structures based on sound technical methods that result in repeatable and reproducible results among testing laboratories; and (2) estimating wind loads and their effects on tall buildings for use in design, based on wind tunnel testing data and directional wind speed data. 

Affected National Standard: ASCE-7. Model Building Codes: The standard 

should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC CTC change proposal to reASCE standard -- see Code Change Pro

• Determinatio

and Wind Tu

• Special Inspe

Applied Fire 

• Structural Fr

Fire Resistan

The ICC Committee dproposal because it wreference the wind tunan exception to ASCE requirements. CTC, Iand Home Safety (IBHhave submitted a requcombining the two proaddressing comments September 2005 code proposal will be consAction hearings in MaIBHS: Submitted a pforward recommendatASCE 7-05 commenton reductions of base on wind-force resistin

6
pressures for cladding 

proposal give these limcode provisions. ASCE: A wind load taddresses the first parrecommendation is beASCE. (NI

ST staff h

wind tunnel testing drprovided the commencommittee for their coNFPA: Rec

ommende

such as ASCE, NCSEof the two work towarguideline docum

ent. 

NFPA 5000 would cosuch a guidance documconsider m

aking this 

recommendation to Athe NFPA High Rise BAdvisory Committee NIST: Plans to work upgrade the standard tstandardized m

ethods 

estimation from wind year NIST project to sdevelopment of predicfor wind loads estima

7
generation standards. 

Recommendation 3. NIST recommends that an appropriate criterion be developed and implemented to enhance the performance of tall buildings by limiting how much they sway under lateral load design conditions (e.g., winds and earthquakes). 

Affected National Standards: ASCE-7, AISC Specifications, and ACI 318. Model Building Codes: The standards should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: Not directly an an AISC, ACI, ASCE committee wrote to A7 chair encouraging thaddressed in the near-committee be involveNIBS/MMC committeupdate on ASCE/SEI May 2 meeting. NIST: Consulted with and reviewed designs tabulate range of drift common practice. NIASCE Committee on Building Structures to related to Design of SWind Loads.NFPA: Recommendesuch as ASCE, NCSEof the two work towarguideline document. NFPA 5000 would cosuch a guidance docum

8
limit criteria for seism

serviceability issues swhen any changes are ASCE/NCSEA. NFPmaking this a formal rASCE or NCSEA via Building Safety Advi(HRBSAC). 

Recommendation 4. NIST recommends evaluating, and where needed improving, the technical basis for determining appropriate construction classification and fire rating requirements (especially for tall buildings)—and making related code changes now as much as possible—by explicitly considering factors including: 

• timely access by emergency 

responders and full evacuation of occupants, or the time required for burnout without partial collapse; 

• the extent to which redundancy in 

active fire protection (sprinkler and standpipe, fire alarm, and smoke management) systems should be credited for occupant life safety ; 

Model Building Codes: A comprehensive review of current construction classification and fire rating requirements and the establishment of a uniform set of revised thresholds with a firm technical basis that considers the factors identified above should be undertaken. 

NIBS: The ICC AHCIBC change proposaBuilding Contents FCollapse. This proposal change committee action at thHearings in Septembeaddressing the commecommittee and plans tproposal for considerFinal Action HearingNFPA: The NFPA HSafety Advisory Comconsidering a categorihigh rise buildings. Hworking to determine 

9
• the need for redundancy in fire 

protection systems that are critical to structural integrity; 

• the ability of the structure and local 

floor systems to withstand a maximum credible fire scenario without collapse, recognizing that sprinklers could be compromised, not operational, or non-existent; 

• compartmentation requirements 

(e.g., 12,000 ft2 (27)) to protect the structure, including fire rated doors and automatic enclosures, and limiting air supply (e.g., thermally resistant window assemblies) to retard fire spread in buildings with large, open floor plans; 

• the effect of spaces containing 

unusually large fuel concentrations for the expected occupancy of the building; and 

• the extent to which fire control 

systems, including suppression by automatic or manual means, should be credited as part of the prevention of fire spread. 

redundant features maon this resultant categNFPA committees wireviewing the WTC 7 Bullet Item 6. 

Recommendation 5. NIST recommends Affected National and International NIBS: The NIBS Bui

10
that the technical basis for the century-old 

standard for fire resistance testing ofcomponents, assemblies, and systems be improved through a national effort. Necessary guidance also should be developed for extrapolating the results of tested assemblies to prototypical building systems. A key step in fulfilling thisrecommendation is to establish a capability for studying and testing the components, assemblies, and systems under realistic fire and load conditions. 

Standards: ASTM E 119, NFPA 251, UL 263, and ISO 834. Model Building Codes: The standards should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

will support efforts to and related Underwritand National Fire Pro(NFPA) standards. Ameeting, the NIBS/Mto receive an update odevelopment efforts oal. NIST: Developed and changes to the standarby ASTM, NFPA, ULASTM: International on Fire Resistance berecommendation concASTM standard E 119 Committee Chairman subcommittees review consider adopting NISinto their standards wNFPA: The Fire ProtFoundation (FPRF) of working along side thto complete a literaturan evaluation process

11
Recommendation 6. NIST recommends 

the development of criteria, test methods, and standards: (1) for the in-serviceperformance of sprayed fire-resistive materials (SFRM, also commonly referred to as fireproofing or insulation) used to protect structural components; and (2) to ensure that these materials, as-installed, conform to conditions in tests used to establish the fire resistance rating ofcomponents, assemblies, and systems. 

Affected Standards: AIA MasterSpec and AWCI Standard 12 for field inspection and conformance criteria; ASTM standards for SFRM performance criteria and test methods. Model Building Codes: The standards should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. (See Recommendation 10 for more on this issue.) 

NIBS: The ICC CTC change proposal to imperformance of sprayematerials - see Code Con: 

• Special Inspe

Applied Fire 

Approved as Modified technical support data the proposal, this propwith the NIST recommprovide for more reliasteel in high-rise buildgreater bond strengthprobability that the prplace and will be less dislodged. Placing the high-rise provisions owithin Chapter 7 is loprovisions are only apand will be more visibThe committee agreed bond strength requirebuilding's height as tamore critical and that buildings such as vibraffect the long-term ptestimony provided, th

12
requirement was cons

relatively small. The hproducts which are cugenerally meet these rThe ICC AHC-TRB schange proposals addaspects of this recomm

• Bond Strengt

Spray-ApplieMaterials in T

• In-Place Dura

Applied Fir

e 

and 

• Special Inspe

Spray-ApplieMaterials. 

NFPA: Technical Coexpected to review prm

andate confor

m

ance 

quality control issues AWCI and FCIA. ASTM: International Perform

ance of Build

recommendation and recommendations. 

13
NIST: Developing pr

improvement to in-serstandards of SFRM foAWCI and ASTM. Nfor ICC Journal on uscoatings for fire proteformed an industry cothe test methods, meadetermine in-service pfor fire protective coa

Recommendation 7. NIST recommends the adoption and use of the “structural frame” approach to fire resistance ratings. 

This approach is currently required by the International Building Code (IBC), 

one of the model codes, and was incorporated into the 2006 edition of NFPA 5000,Building Construction and Safety Code. This requirement ensures consistency in the fire protection provided to all of the structural elements that contribute to overall structural stability. State and local jurisdictionsshould adopt and enforce this requirement. 

NIBS: The ICC CTC change proposal to aframe approach to fire see Code Change Pro

• Structural Fr

Fire Resistan

Approved as Submittewith concerns that the needs to be better defilevel of fire protection determine. This revisiand distinguish the difprimary and secondar

14
NFPA: The structural 

mandated in the 2006 5000. 

Recommendation 8. NIST recommends that the fire resistance of structures beenhanced by requiring a performance objective that uncontrolled building fires result in burnout without partial or global (total) collapse. 

Model Building Codes: This recommendation should be included into the national model codes as an objective and adopted as an integral part of fire resistance design for structures. The issue of non-operational sprinklers could be addressed using the existing concept of Design Scenario 8 of NFPA 5000, where such compromise is assumed and the result is required to be acceptable to the Authority Having Jurisdiction. Affected Standards: ASCE-7, AISC Specifications, ACI 318, and ASCE/SFPE 29. 

NIBS: NIBS: The ICsubmitted an IBC chaSurvival of a BuildinWithout Collapse. SRecommendation 4.NFPA: NFPA Technlikely to parse this recdistinguish between loglobal collapse. PerfoDesign (PBD) options NFPA 101 and NFPA possibility of non-funsystems or features. Nadoption of more formestablish performance guidelines or informaNIST: Will develop cto enhance criteria for and ventilation as an ithe March 2006 deadlsupplement. Multi-ye

15
support the developm

objectives, criteria, evprediction tools, and pfire resistance design structures. NIST is w8 Design for Fire Conperformance-based apdesign. 

Recommendation 9. NIST recommends the development of: (1) performance-based standards and code provisions, as an alternative to current prescriptive design methods, to enable the design and retrofit of structures to resist real building fire conditions, including their ability to achieve the performance objective of burnout without structural or local floor collapse: and (2) the tools, guidelines, and test methods necessary to evaluate the fire performance of the structure as a whole system. 

Affected National and International Standards: ASCE-7, AISC Specifications, ACI 318, and ASCE/SFPE 29 for fire resistance design and retrofit of structures; NFPA, SFPE, ASCE, and ISO TC92 SC4 for building-specific multi-compartment, multi-floor design basis fire scenarios; and ASTM, NFPA, UL, and ISO for new test methods. Model Building Codes: The performance standards should be adopted as an alternate method in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The NIBS Buisupport the performanconcept and will bring interests to identify gaevaluation tools and taction plan (with estimthose gaps. Three nat(ASCE/SFPE 29, ACI Specifications) have igeneration performanan alternative to curremethods, to enable the of structures to resist methods are limited to fires. NFPA: Technical Coparse this recommend

16
between local collaps

PBD options already iNFPA 5000 address thfunctioning/available NFPA supports the adformal guidance to escriteria and relevant ginformation. ASTM: Various comInternational have beeissue of performance-discussions will contiand June Committee WNIST: NIST is workiand other industry grodevelopment of perfostandards for fire resisretrofit of structures. project to support the performance objectivemethods, prediction toguidance for fire resisretrofit of structures. 

Recommendation 10. NIST recommends Affected Standards: Technical barriers, NIBS: Not directly a 

17
the development and evaluation of new 

fire-resistive coating materials, systems, and technologies with significantly enhanced performance and durability to provide protection following major events. 

if any, to the introduction of new structural fire resistance materials, systems, and technologies should be identified and eliminated in the AIA MasterSpec, AWCI Standard 12 and ASTM standards for field inspection, conformance criteria, and test methods. Model Building Codes: Technical barriers, if any, to the introduction of new structural fire resistance materials, systems, and technologies should be eliminated from the model building codes. 

Building Code Expertfor looking at new matheir testing and use. ASTM: International Performance of Buildrecommendation. NIST: NIST has formconsortium to develop measure performanceservice performance cprotective coating mayear project to assess current spray-applied protective materials adevelopment of new swrite paper for ICC Jointumescent coatings 

Recommendation 11. NIST recommends that the performance and suitability of advanced structural steel, reinforced and pre-stressed concrete, and other highperformance material systems be evaluated for use under conditions expected in building fires. 

Affected Standards: AISC Specifications and ACI 318. Technical barriers, if any, to the introduction of these advanced systems should be eliminated in ASTM E 119, NFPA 251, UL 263, ISO 834. Model Building Codes: Technical barriers, if any, to the introduction of 

NIBS: Not directly a Building Code Expertfor looking at new matheir testing and use. NIST: Project to deteperformance propertie

18
these advanced systems should be 

eliminated from the model building codes. 

steels and compile proNFPA: Will forward information to the NFCommittee for further ASTM: Has establishunder subcommittees and Chemical Testing Methods of Steel Prodand E28.10 (MechaniTemperature and Stredefine fire resistant ststandard material test resistance of such stee

Recommendation 12. NIST recommends that the performance and possibly the redundancy of active fire protection systems (sprinklers, standpipes/hoses, fire alarms, and smoke management systems) in buildings be enhanced to accommodate the greater risks associated with increasing building height and population, increased use of open spaces, high-risk building activities, fire department response limits, transient fuel loads, and higher threat 

Affected Standards: NFPA 13, NFPA 14, NFPA 20, NFPA 72, NFPA 90A, NFPA 92A, NFPA 92B, and NFPA 101. Model Building Codes: The performance standards should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC change proposaredundancy – see RelSuppression Systems This proposal was disHearings in SeptembeThe ICC AHC-TRB achange proposal relate(fuel oil storage and p

19
profile. directly related to this 

associated with it – seDistribution of Fuels This proposal was dishearings in SeptembeNFPA: The NFPA HSafety Advisory Comconsidering a categorihigh rise buildings. Hdetermine what enhanfeatures m

ay be neces

any new high rise buirelated to this HRBSAdevelop the LeadershiDesign (LLSD) approwill look at resource dCTBUH Building EnGuidelines and apply system for enhancememini

m

um code m

anda

NIST: Has for

med a 

NEMA 3SB to develotechnologies to enhansprinkler systems. Thfor

m the basis for cod

NIST is collaborating industry, through a co

20
NEMA, to develop ne

features for fire alarm active surveillance anfire safety systems anto primary modes of fprovide maximum op

Recommendation 13. NIST recommends that fire alarm and communications systems in buildings be developed to provide continuous, reliable, and accurate information on the status of life safety conditions at a level of detail sufficient to manage the evacuation process in building fire emergencies; all communication and control paths in buildings need to be designed and installed to have the sameresistance to failure and increased survivability above that specified in present standards. 

Affected Standards: NFPA 1, NFPA 72, and NFPA 101. Model Building and Fire Codes: The performance standards should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC code change prorecommendation as wRecommendations 13Emergency CommanBoth parts of proposathe September 2006 cTRB is planning to adexpressed at Code heato be presented at the Action Hearing.NFPA: The NFPA 72 work to incorporate aptechnologies when thedeveloped. The 2007 (available September proposals and comme

21
marking audible notif

NIST: The DepartmeSecurity has asked NIspecifications and profire/emergency commbuildings to accept anquantity of more reliathe active fire protectifire alarm, smoke manpurposes of providing to fireground commanmanaging the evacuat

Recommendation 14. NIST recommends that control panels at fire/emergency command stations in buildings be adapted to accept and interpret a larger quantity of more reliable information from the active fire protection systems that provide tactical decision aids to fireground commanders, including water flow rates from pressure and flow measurement devices, and that standards for their performance be developed. 

Affected Standards: NFPA 1, NFPA 72, and NFPA 101. Model Building and Fire Codes: The performance standards should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC code change prorecommendation as wRecommendations 13Emergency Commanrevisions to RecommeNFPA: The NFPA 72 work to incorporate aptechnologies when thedeveloped. NIST: The Departme

22
Security has asked NI

specifications and profire/emergency commbuildings to accept anquantity of more reliathe active fire protectifire alarm, smoke manpurposes of providing to fireground commanmanaging the evacuat

Recommendation 15. NIST recommends that systems be developed and implemented for: (1) real-time off-site secure transmission of valuable information from fire alarm and other monitored building systems for use by emergency responders, at any location, to enhance situational awareness and response decisions and maintain safe and efficient operations; and (2) preservation of that information either off-site or in a black box that will survive a fire or other building failure for purposes of subsequent investigations and analysis. Standards for the performance of such systems should be developed, and their use should be 

Affected Standards: NFPA 1, NFPA 72, and NFPA 101. Model Building and Fire Codes: The performance standards should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC code change prorecommendation as wRecommendations 13Emergency CommanRecommendation 13.NFPA: The NFPA 72 work to incorporate aptechnologies when thedeveloped. The NFPA Safety Advisory Comconsidering a process information from the simulcast to a remote 

23
required. 

Recommendation 16. NIST recommends that public agencies, non-profit organizations concerned with building and fire safety, and building owners and managers develop and carry out public education and training campaigns, jointly and on a nationwide scale, to improve building occupants’ preparedness for evacuation in case of building emergencies. 

Affected Standard: ICC/ANSI A117-1. Model Building and Fire Codes: The 

standard should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. Affected Organizations: NFPA, NIBS, NCSBCS, BOMA, and CTBUH. 

NIBS: A NIBS/MMC has prepared a white pcommittee on the a stasummary of research public information cageneral populations. Tidentifies three other asimilar exploration to a concerted effort. (seNFPA: At present, NEducation materials devacuation issues. Hounderway to establish protocol that works to ‘traditional’ building NFPA Disability AccAdvisory Committee recommended that a gpersons with disabilitiaddress emergency prwith disabilities. A drassembled by NFPA sprovide a list of systemoptions for employers assist those with disab

24
Recommendation 17. NIST recommends 

that tall buildings be designed to accommodate timely full building evacuation of occupants when required in building-specific or large-scale emergencies such as widespread power outages, major earthquakes, tornadoes, hurricanes without sufficient advanced warning, fires, explosions, and terrorist attack. Building size, population, function, and iconic status should be taken into account in designing the egress system. Stairwell capacity and stair discharge door width38 should be adequate to accommodate counterflow due to emergency access by responders. 

Affected Standards: NFPA 101, ASME A 17. Model Building and Fire Codes:The standards should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC change proposaadditional exit – see ACapacity for Full EvThis proposal was disSeptember 2006 ICC TRB has addressed that the Code Hearings for consideration at thHearings in May 2007NFPA: The 2006 ediand NFPA 5000 inclu56 inch wide (minimuaggregate of 2000 occto use a stair. NIST: Multi-year NInew data, on occupanstairwells, including temergency responderevacuation prediction provisions. NIST has evacuation modeling TRB's resubmittal of 

25
Recommendation 18. NIST recommends 

that egress systems be designed: (1) to maximize remoteness of egress components (i.e., stairs, elevators, exits) without negatively impacting the average travel distance; (2) to maintain their functional integrity and survivability under foreseeable building-specific or large-scale emergencies; and (3) with consistent layouts, standard signage, and guidance so that systems become intuitive and obvious to building occupants during evacuations. 

Affected Standard: NFPA 101. Model Building and Fire Codes: The standard should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC change proposachange proposal relarecommendation – see 

• Photolumines

Exit Paths; RStair Enclosu

• Structural In

Stair EnclosuExit Stairs froServed to the Discharge; an

• Elimination o

Obstructions 

The five code change by AHC-TRB were diCode Hearings in SepTRB will focus on the photoluminescent marand submit a challengduring the Final Actio2007. AHC-TRB wilproposal to eliminate at a later time. AHC-resubmit the proposal 

26
Integrity Criteria for S

consideration at the FMay 2007. NFPA: Prior to expanremoteness and hardedetermination will havhazard scenario(s) shobeyond what is curren2007 edition of NFPA September 2006) has and comments to recoaudible notification apNIST: Provided ACHimpulse data represenexplosion to support rStructural Integrity CrEnclosures proposal. 

Recommendation 19. NIST recommends that building owners, managers, and emergency responders develop a joint plan and take steps to ensure that accurate emergency information is communicated in a timely manner to enhance the situational awareness of building occupants and 

Affected Standard: NFPA 101 and/or a new standard. Model Building and Fire Codes: The standard should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard to the extent it is within the scope of

NIBS: One of the NIBcode experts has prepthe committee on the summary of research public information cageneral populations. Tidentifies three other a

27
emergency responders affected by an 

event. This should be accomplished through better coordination of information among different emergency responder groups, efficient sharing of that information among building occupants and emergency responders, more robust design of emergency public address systems, improved emergency responder communication systems, and use of the Emergency Broadcast System (now known as the Integrated Public Alert and Warning System) and Community Emergency Alert Networks. 

building and fire codes. similar exploration to 

a concerted effort. (seNFPA: The 2007 edi(available September proposals and commemarking audible notifaddition, the new versproposals and commecriteria for mass notifwill formalize notificabuilding, campus and The NFPA 72 Commiincorporate additional technologies when thedeveloped. 

Recommendation 20. NIST recommends that the full range of current and next generation evacuation technologies should be evaluated for future use, including protected/hardened elevators, exterior escape devices, and stairwell descent devices, which may allow all occupants an equal opportunity for evacuation and facilitate emergency response access.

Affected Standards: NFPA 101, ASME A 17, ASTM E 06, ANSI A117.1. Model Building and Fire Codes: The standards should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NFPA: The 2006 ediand NFPA 5000 incluthe installation of staiuse by mobility impaicertain circumstancesthe codes also consideexterior escape devicewas not included at thNFPA staff actively pASTM E-06 process f

28
it is expected that new 

2009 editions of NFPA will be considered latASTM: International Performance of Buildrecommendation and evacuation related isstheir upcoming April meetings. 

Recommendation 21. NIST recommends the installation of fire-protected and structurally hardened elevators to improve emergency response activities in tall buildings by providing timely emergency access to responders and allowing evacuation of mobility-impaired building occupants. 

Affected Standards: ASME A 17, ANSI 117.1, NFPA 70, NFPA 101, NFPA 1221, NFPA 1500, NFPA 1561, NFPA 1620, and NFPA 1710. Model Building and Fire Codes: The standards should be adopted in model building and fire codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: Two code chasubmitted to ICC for tdeadline to address threcommendations: FiRequirements (IBC S3007) and Fire ServicRequirements (IBC S2702) and Illustration Separation and Fire-Current codes referenrequires that signs be elevators stating that ebe used in an emergencontinue to operate unis triggered in either tmachinery room, in w

29
autom

atically recalled 

m

anually recalled by 

personnel. A survey oelevators has been comresults) The proposal for Fire Requirements was disSeptember 2006 Code in general, the commithe proposal. CTC hamodification to the prconsideration at the MHearings.ASME: A 17.1 task gwith the U.S. elevator are working to develooperational protocols elevators for fire servioccupant egress. This followed adoption in mcodes. GSA: Has agreed to isystem in a federal budemonstration projectNFPA: Staff is very aproject and has contri

30
work product. Pendin

required updates to ANFPA codes (NFPA 1evaluate the new editiand related criteria. Ndeveloped preliminary based on ASME task point. 

Recommendation 22. NIST recommends the installation, inspection, and testing of emergency communications systems, radio communications, and associated operating protocols to ensure that the systems and protocols: (1) are effective for large-scale emergencies in buildings with challenging radio frequency propagation environments; and (2) can be used to identify, locate, and track emergency responders within indoor building environments and in the field. 

Affected Standards: FCC, SAFECOM, NFPA Standards on Electronic Safety Equipment, NFPA 70, NFPA 297, and NFPA 1221. Model Building Codes:The standards should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC code change prorecommendation as wRecommendations 13Emergency Commanstatus for Recommendpaper is being planned aspects of information large scale events. NFPA: The NFPA HSafety Advisory Comconsidering that broadsupplemental antennatall building environmcommunication ability equipment be integratdesign. Such supplem

31
become a mandate via 

101, NFPA 5000 or sothere-of. 

Recommendation 23. NIST recommends the establishment and implementation ofdetailed procedures and methods for gathering, processing, and delivering critical information through integration of relevant voice, video, graphical, and written data to enhance the situational awareness of all emergency responders. An information intelligence sector should be established to coordinate the effort for each incident. 

Affected Standards: National Incident Management System (NIMS), NRP, SAFECOM, FCC, NFPA Standards on Electronic Safety Equipment, NFPA 1500, NFPA 1561, NFPA 1620, NFPA 1710, and NFPA 1221. Model Building Codes: The standards should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC code change prorecommendation as wRecommendations 13Emergency Commanstatus for RecommendNFPA: The NFPA 72 work to incorporate aptechnologies when thedeveloped. 

Recommendation 24. NIST recommends the establishment and implementation ofcodes and protocols for ensuring effective and uninterrupted operation of the command and control system for largescale building emergencies. 

Affected Standards: NIMS, NRP, SAFECOM, FCC, NFPA Standards on Electronic Safety Equipment, NFPA 1221, NFPA 1500, NFPA 1561, NFPA 1620, and NFPA 1710. Model Building Codes: The standards should be adopted in model building codes by mandatory reference to, or incorporation of, the latest edition of the standard. 

NIBS: The ICC AHCIBC code change proprecommendation as wRecommendations 13Emergency Commanstatus for Recommendpaper is planned on thof information deliverevents. 

32
NFPA: The NFPA H

Safety Advisory Comconsidering that expanfrequencies that could emergency responderreduce overuse of limemergency responder

Recommen

dation 25. Nongovernm

ental 

and quasi-governm

ental entities that own 

or lease buildings and are not subject to building and fire safety code requirem

ents 

of any governm

ental jurisdiction are 

nevertheless concerned about the safety of the building occupants and the responding emergency personnel. NIST recommends that such entities be encouraged to provide a level of safety that equals or exceeds the level of safety that would be provided by strict com

pliance with the code 

requirem

ents of an appropriate 

governm

ental jurisdiction. To gain broad 

public confidence in the safety of such buildings, NIST further recommends that asdesigned and as-built safety be certified by a qualified third party, independent of 

NIBS: Jurisdictional issue. The p

otential f

relevant groups devellegislation for special explored. NIST: Has shared wiCode Experts the stat

u

40, Section 3312) conthe federal governm

en

com

pliance. 

33
the building owner(s). The process should 

not use self-approval for code enforcement in areas including interpretation of code provisions, design approval, product acceptance, certification of the final construction, and post-occupancy inspections over the life of the buildings. Recommendation 26. NIST recommends that state and local jurisdictions adopt and aggressively enforce available provisions in building codes to ensure that egress and sprinkler requirements are met by existing buildings. Further, occupancy requirements should be modified where needed (such as when there are assembly use spaces within an office building) to meet the requirements in model building codes. 

Provisions related to egress and sprinkler requirements in existing buildings are available in such codes as the International Existing Building Code (IEBC), International Fire Code, NFPA 1, NFPA 101, and ASME A 17.3. 

NIBS: The NIBS/MMconcluded that this is that there needs to be it incrementally. ACHconsider at retrofit fire NFPA: NFPA 101 habuilding safety requirretroactive for myriad types. It requires impof safety provided to tignoring grandfatherinthe hallmarks of other expansion of the NFPother than fire type haof a separate documenby NFPA. NIST: To prepare art

34
Journals on the need f

existing buildings. 

Recommendation 27. NIST recommends that building codes incorporate a provision that requires building owners to retain documents, including supporting calculations and test data, related to building design, construction, maintenance and modifications over the entire life of the building. Means should be developed for offsite storage and maintenance of the documents. In addition, NIST recommends that relevant building information be made available in suitably designed hard copy or electronic format for use by emergency responders. Such information should be easily accessible by responders during emergencies. 

Model Building Codes: Model building codes should incorporate this recommendation. State and local jurisdictions should adopt and enforce these requirements. 

NIBS: The NIBS/MMconcluded that probleownership changes, thof some documents, dmedium to use to save unreimbursable expeninformation. It also wthreat assessment docof the public domain. submitted a code chanincludes some provisiresponders needed infthat it be available in NFPA: The NFPA HSafety Advisory Comconsidering a recommbuilding inventory plareadily available to th

Recommendation 28. NIST recommends that the role of the “Design Professional in 

Affected Standards: AIA Practice Guidelines. Model Building Codes: The 

NIBS: Selected NIBS Experts have been ass

35
Responsible Charge” be clarified to ensure 

that: (1) all appropriate design professionals (including, e.g., the fire protection engineer) are part of the design team providing the standard of care when designing buildings employing innovative or unusual fire safety systems, and (2) all appropriate design professionals (including, e.g., the structural engineer and the fire protection engineer) are part of the design team providing the standard of care when designing the structure to resist fires, in buildings that employ innovative or unusual structural and fire safety systems. 

IBC, which already defines the “Design Professional in Responsible Charge,” be clarified to address this recommendation. The NFPA 5000 should incorporate the “Design Professional in Responsible Charge” concept and address this recommendation. 

issue with AIA and Nplans to examine wheNational Council of ARegistration Boards aCouncil of Examiners Surveying would be himplementing this recNFPA: NFPA 5000 uRegistered Design ProPending any clarificatthe AIA-NIST effort, would be amenable to description of this ent

Recommendation 29. NIST recommends that continuing education curricula bedeveloped and programs be implemented for (1) training fire protection engineers and architects in structural engineering principles and design, and (2) training structural engineers, architects, fire protection engineers, and code enforcement officials in modern fire protection principles and technologies, including fire-resistance design of structures, and (3) training building 

Affected Organizations: AIA, SFPE,ASCE, ASME, AISC, ACI, and state licensing boards. Model Building Codes: Detailed criteria and requirements should be incorporated into the model building codes under the topic “Design Professional in Responsible Charge.” 

NIST: NIST staff are with National Fire AcEmergency Managemdevelop curricula and 

36
regulatory and fire service personnel to 

upgrade their understanding and skills to conduct the review, inspection, and approval tasks for which they are responsible. Recommendation 30. NIST recommends that academic, professional short-course, and webbased training materials in the use of computational fire dynamics and thermostructural analysis tools be developed and delivered to strengthen the base of available technical capabilities and human resources. 

Affected Organizations: AIA, SFPE,ASCE, ASME, AISC, and ACI, ICC, NFPA. 

NIST: NIST staff are with National Fire AcEmergency Managemdevelop curricula and 

37
Appendix 2

Summary of actions needed and/or taken regarding the recommendations from the NCST investigatio

nightclub fire 

Updated 2/6/2007 

NIST Recommendation Responsible Parties Comments 

1. Adopt and enforce model codes 

• state and local 

jurisdictions 

• ICC and NFPA 

• Continuous education and training effort required to rais

benefits and importance of embracing recommendation. 

• NFPA TIA #742R required owner to maintain records o

(NFPA 101:12.7.1 and 101:13.7.1); adopted in 2006 edi

• RI adopted NFPA 1 and NFPA 101, and strengthened fi

enforcement power. 

2. Strengthen requirement for sprinklers 

• state and local 

jurisdictions 

• NFPA and ICC 

• NFPA TIA #739R required existing nightclub facilities 

venues with occupant loads greater than 100 to be sprink101:13.3.5.1); adopted in 2006 edition. 

• NFPA TIA #743R required all new nightclub facilities a

venues to be sprinklered (NFPA 101:12.3.5.1); adopted 

• Continuous effort required to raise awareness of the ben

of embracing recommendation. 

• RI strengthened regulation requiring sprinklers based up

150 rather than 100, some exemptions. 

• Change to Section 903.2.1.2 of the 2006 IFC (F58-03/

Modified]) to tighten threshold for sprinklers in Grooccupancies, such as nightclubs, restaurants and banmembership voted to require such occupancies to be the occupant load exceeds 100 (rather than 300). 

38
NIST Recommendation Responsible Parties Comments 

3. Strengthen restrictions on foam plastic finish materials 

• state and local 

jurisdictions 

• NFPA, ICC, 

ASTM, UL 

• NAFTL • building materials 

industry

• NIST 

• ICC FS108-03/04 dealt with one small aspect of foam p

materials; additional revisions needed to be developed uprocedures. 

• NIST will work with standards committees (UL 94, AST

and NFPA 286) to develop ways to address recommendlong term effort due to the research needed to support chand fire codes and standards. 

• State and local jurisdictions can have immediate impact 

enforcing existing model codes. 

4. Strengthen restrictions on use of pyrotechnics 

• state and local 

jurisdictions 

• NFPA, ICC 

• NIST needs to work with NFPA 1126 to develop technic

recommendation. This activity has not yet started. 

• RI strengthened restrictions to prohibit use of pyrotechn

assembly such as nightclubs and to strictly regulate their that can accommodate them safely.

• State and local jurisdictions can have immediate impact 

enforcing existing model codes. 

39
NIST Recommendation Responsible Parties Comments 

5. Increase factor of safety on egress 

• state and local 

jurisdictions 

• NFPA, ICC • NIST 

• NFPA TIA #737R and NFPA TIA #740 restricted festiv

existing facilities if occupant load is greater than 250 unevaluation in conducted (NFPA 101:12.2.5.4.1 and 101:in 2006 edition. 

• NFPA TIA# 738 required trained crowd managers for ex

assembly occupancies (NFPA 101:12.7.5 and 101:13.7.5edition. 

• NIST will work with NFPA 101, NFPA 5000, and IBC; 

effort required, which NIST is pursuing.

• State and local jurisdictions can have immediate impact 

enforcing existing model codes. 

6. Conduct portable fire extinguisher study

• fire protection 

equipment manufacturers 

• NFPA 

• Workshop held at NIST with equipment manufactur

owners, fire service, NFPA, ICC, and testing organizoutline of study, and identify participants, to feed tecinto NFPA 10 committee.

• RI now requires two 20 pound extinguishers in stage are

7. Adopt and practice communication, response, command structures, and staffing guidelines alreadyestablished 

• state and local 

jurisdictions 

• NFPA, ICC 

• Continuous education and training effort required to rais

benefits and importance of embracing recommendation established guidelines for communication, response, comand staffing. 

• No research nor code changes are required. 

8. Conduct research to understand human behavior 

• NSF, NIST, DHS, 

CDC, NIH, DOD, 

• NIST has established research program. 

40
NIST Recommendation Responsible Parties Comments 

better in emergency situations GSA 

• universities 

• Energized multi-agency effort is needed. • Initial planning of international workshop to deal wi

for safe egress and access. 

9. Conduct research to understand fire spread and suppression better 

• NSF, NIST, DOD, 

DHS 

• building materials 

industry

• Research is ongoing at NIST and elsewhere. 

10. Conduct research to refine computer-aided decision tools 

• NSF, NIST, DOD, 

DHS, GSA, EPA 

• universities 

• Research is ongoing at NIST and elsewhere. 

Acronym Organization TypeASTM American Society for Testing Materials non-governmental model standards organ

CDC Centers for Disease Control federal government DHS Department of Homeland Security federal government DOD Department of Defense federal government EPA Environmental Protection Agency federal government FPRF Fire Protection Research Foundation non-profit research GSA General Services Administration federal government ICC International Code Council non-governmental model code organizatIFC International Fire Code non-governmental model code organizat

41
NAFTL North American Fire Testing Laboratory organization industry group 

NFPA National Fire Protection Association non-governmental model standards/codeNIH National Institutes of Health federal government NIST National Institute of Standards and Technology federal government NSF National Science Foundation federal governmentUL Underwriters Laboratories non-governmental model standards organ

42