National Institute of Standards and Techno

Technology Administration

U.S. Department of Commerce

NIST Response to the World Trade Center Di

Federal Building and Fire Safety Investiga

of 

the World Trade Center Disaster

Part VI - Recommendations

April 5, 2005
Building and Fire Codes in the United St

Building and Fire Codes in the United S

• In the United States, state and local governments are responsib

promulgating and enforcing building and fire regulations. 

• With some exceptions, the state and local regulations are based 

model building and fire codes developed by private sector organ

• The model codes, in turn, reference voluntary consensus standa

developed by a large number of private sector standards develoorganizations (SDOs) accredited by the American National StanInstitute (ANSI).

• NIST does not set building codes and standards, but provides te

support to the private sector and other government agencies in tdevelopment of U.S. building and fire practices, standards, and 

• NIST recommendations are given serious consideration by priva

organizations that develop national standards and model codes provide minimum requirements for public welfare and safety.
Approach to Recommendations Approach to Recommendations

• In accordance with Section 8 of the enabling statute (15 USC 7301 

National Construction Safety Team’s final report is required to includrecommendations that address:

• Specific improvements to building standards, codes, and practices• Changes to, or the establishment of, evacuation and emergency respon• Research and other appropriate actions needed to help prevent future b

• NIST intends to issue draft recommendations for public comment that identify 

improvements in the way buildings are designed, constructed, maintained, a

• NIST’s recommendations will be both realistic and achievable within a reaso

time, and their implementation would make buildings, occupants, and first resin future emergencies.

• NIST will strongly urge that immediate and serious consideration be given to 

recommendations by the building and fire safety communities—especially deowners, developers, fire safety professionals, and emergency responders.

• NIST is making a top priority to work vigorously with these communities to as

is complete understanding of the recommendations and their technical basis needed technical assistance. This includes a web-based system that will be the public so that progress in implementing NIST’s recommendations can be 
Approach to Recommendations (2) Approach to Recommendations (2)

• In formulating its recommendations, NIST will consider the following

• Findings from the Investigation objectives related to building perf

evacuation and emergency response, and procedures and practices

• Whether findings relate to the unique circumstances surroundin

attacks of September 11, 2001, or to normal building and fire saf

considerations, including evacuation and emergency response

• Technical solutions that are needed to address potential risks t

occupants, and first responders, considering both identifiable hazconsequences of those hazards.

• Whether the risks apply to all buildings or are limited to selected 

(e.g., buildings that exceed a certain height and floor area or that em

type of structural system), buildings that contain specific design featuiconic/signature buildings, or buildings that house critical functions.
Issues Related to Practice, Standards, C

Issues Related to Practice, Standards, C

• Based on the Investigation findings, NIST identified a broad set 

related to practice, standards, and codes that will provide the baformulating the Investigation’s recommendations.

• Issues arising from the investigation are grouped under the follo

categories:

• Increased Structural Integrity• Enhanced Fire Protection of Structures• Enhanced Active Fire Protection• Improved Building Evacuation • Improved Emergency Response• Improved Procedures and Practices• Education and Training Programs
Categories of Issues Categories of Issues

Category: Responsible Community (Level 1)

 Professional Practices Provisions in standards, codes and regulations

 Adoption and enforcement of the provisions

 R&D or requiring further study Education and training

Category: Application (Level 2)

 All tall buildings (buildings over 20 stories in height) Selected tall buildings (buildings over 20 stories in height that are 

design, location, use, iconic status, nature of occupancy, etc.)

 Selected other buildings (buildings less than 20 stories in height 

due to design, location, use, historic/iconic status, nature of occu

Category: Relation to the outcome on 9/11 (Level 3)

 Related to 9/11 outcome Unrelated to 9/11 outcome
Issues – Increased Structural Integrity Increased Structural Integrity

9 9 9 

Availability of protocols for selection of site-specific wind speed and directionality.

9 9 

Adequacy of prescriptive wind load standards for very tall buildings.

9 9 

Availability of standards for wind tunnel tests and for methods to estimate wind effects from test results for design purposes. 

9 9 

Availability of analytical methodologies for prediction of complex failure phenomena of structural systems under abnormal loads.

9 9 9 

Availability of explicit standards, code provisions, methodology, analytical design tools, and practical design guidance for designing structures to resist progressive collapse in the event of abnormal loads.

Enforcement

Adoption and 

Education & Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 

Issue
Issues - Enhanced Fire Protection Enhanced Fire Protection

9 9 9 

Adequacy of ASTM E 119 to provide guidance on:Criteria for determining structural limit states, including failure, and means for measurementScale of test assembly versus prototype applicationEffect of end restraint conditions on test results, including influence of stiffnessStructural connectionsCombination of loading and exposure (temperature profile) represent expected conditionsProcedures to analyze and evaluate data from fire resistance tests of other building 

components and assemblies to qualify an untested building element

Repeatability and reproduceability of test resultsRelationships between prescriptive ratings and performance of the assembly in realistic 

building fires

9 9 9 9 

Technical basis for construction classification and fire rating requirements for tall buildings (fire rating, sprinkler-tradeoff, compartmentation)

9 9 9 9 9 

Conformance of applied passive fire protection to conditions in actual or equivalent tests used to establish fire resistance rating of the building component or assembly.

9 9 9 9 

Availability of regulations that would adopt code provisions using the “structural frame” approach to fire resistance ratings, which requires structural members to be fire protected to the same rating as columns.

9 9 9 

Standardized design-basis fire scenarios for design of fire protection systems and analysis of structural and thermal response do not account for building-specific conditions.

9 9 9 9 9 

Availability of standards, codes, methodology, analytical design tools, and practical design guidance to permit considering fire as a design condition for the structure as a whole system.

All Tall Buildings

Enforcement

Adoption and 

Education & 

Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 L

Issue
Issues – Enhanced Fire Protection Enhanced Fire Protection

9 9 9 9 

Available means to transmit outside a building the status of emergency conditions in the building from information in the fire alarm system and other monitored building systems. 

9 9 

Survivability of fire alarm system information records of alarms during emergency events for investigation purposes.

9 9 9 

The quantity and reliability of information available to emergency responders at the fire/emergency command station. 

9 9 9 

Ability of fire alarm and communications systems to provide continuous, reliable, accurate, and sufficient information on conditions, so building fire emergencies including the evacuation process, if needed, can be managed using that information.

9 9 9 9 

Sensitivity of the level of performance of active fire protection systems (sprinklers, standpipes/hoses, fire alarms, smoke management) to the size and height of the building, compartmentation, building population, activities, transient fuel loads, fire department response, and threat profile.

9 9 9 

Evaluation of presently available fire-resistant steels; comparison with conventional steels; and test protocols and acceptance criteria. 

Buildings

All Tall Buildings

Enforcement

Adoption and 

Education & Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 Le

Issue
Issues – Improved Building Evacuation: Improved Building Evacuation: 

Egress System Design Egress System Design 

Lack of adequate egress models and performance-based egress design 9 methodology accounting for human behavior during evacuation.

9 

Stairwells can be physically proximate yet considered remote by a "walking path" measurement; does not adequately meet separation requirements under non-fire conditions.

9 9 9 

Required professional training or accreditation for egress system designers 

(often architects).

9 9 9 9 

Mobility-challenged occupants: areas of refuge create a delay in evacuation; insufficient procedures for identifying those with challenges and assisting them. Some mobility-challenged occupants are not capable of effecting their own escape.

9 9 9 9 

Building egress systems are not designed to accommodate full building evacuation. Full building evacuation is foreseeable under conditions of widespread power outage, earthquake, fire, or terrorist attack.

9 9 

The egress path may be compromised prior to evacuation of the affected population due to a variety of scenarios (e.g., wind, earthquake, overpressure, impact, fire).

Buildings

All Tall Buildings

Enforcement

Adoption and 

Education & Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 Le

Issue
Issues - Improved Building Evacuation: Improved Building Evacuation: 

Emergency Communications to Occupa

Emergency Communications to Occupa

9 9 9 

Use of emergency broadcast system for major emergencies such as that which occurred on September 11, 2001

9 9 

A building may have no capacity for public address announcements or instructions through the floor warden system

9 9 9 9 

Inadequate situational awareness from missed opportunities to better communicate information among occupants, 911 operator dispatch, fire department dispatch, and emergency management dispatch and site security

Buildings

All Tall Buildings

Enforcement

Adoption and 

Education & 

Training

R&D/study 

Further

Standards, 

Codes, 

Regulations

Practices

Level 1 Lev

Issue
Issues – Improved Building Evacuation: Improved Building Evacuation: 

Occupant Preparedness Occupant Preparedness

9 9 

Layouts (i.e., transfer floors) can be confusing to unprepared occupants.

9 

Need for floor wardens.

9 9 9 

Emergency plans are filed to achieve regulatory compliance, but are not adequately implemented in practice. In addition, occupants are often unprepared to evacuate a building. Preparedness includes adequate knowledge of the evacuation procedures and systems, and adequate means for pathway illumination.

Buildings

All Tall 

Buildings

Enforcement

Adoption and 

Education & 

Training

R&D/study 

Further

Standards, 

Codes, 

Regulations

Practices

Level 1 Lev

Issue
Issues – Improved Building Evacuation: Improved Building Evacuation: 

Egress Technology Egress Technology

9 9 

The electro-mechanical systems (e.g., elevators) integral to life safety may be compromised by a single event

9 9 9 

Egress systems do not enable all occupants an equal opportunity 

for evacuation. Hardened elevators, exterior escape devices, orstairwell navigation devices not considered.

9 9 

Elevator door restrictor plate can entrap building occupants in the event of an emergency.

Buildings

All Tall Buildings

Enforcement

Adoption and 

Education & 

Training

R&D/study 

Further

Standards, 

Codes, 

Regulations

Practices

Level 1 Lev

Issue
9 9 

Distance (i.e., remoteness) between stairwells where standpipes are located.

9 9 

Adequacy of capacity for egress and firefighter access during full evacuation of fully occupied tall buildings (access to tall buildings by first responders is hindered by counter flow, egress capacity, and lack of available elevators).

9 9 9 

Physiological impact on firefighters with equipment climbing more than 10 to 12 floors during an emergency. 

All Tall Buildings

Enforcement

Adoption and 

Education & Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 

Issue

Issues – Improved Emergency Respons

Improved Emergency Respons

Access and Firefighting Access and Firefighting
9 9 

Lack of communications network architecture (interoperability) and operational protocols for intra- and inter-agency communication at all levels of organizational hierarchy. This includes:

•Overall network architecture that covers local networking at incident sites, dispatching, and wide-area urban and rural networks.•Scalability in terms of the number of first responders using the system 

and in providing radio coverage in large buildings with challenging radiofrequency propagating environments.

•Interoperability with existing legacy emergency communication systems.•Localization techniques to identify first responders within indoor building 

environments.

•Conventional two-way versus wireless network systems

9 9 9 9 

Performance requirements for emergency communication systems in high-rise buildings (i.e., design, testing, certification standards and maintenance and inspection requirements).

9 9 9 9 

Lack of rigorous pre-emergency inspection and testing of radio 

communications systems within high-rise buildings to identify performance gaps and inadequacies. 

All Tall Buildings

Enforcement

Adoption and 

Education & 

Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 L

Issue

Issues – Improved Emergency Respons

Improved Emergency Respons

Emergency Communications Emergency Communications
Secure location of state and local emergency operation centers (EOCs). 9 9 

Rapid adoption and execution of a unified emergency response mission by all first 9 9 9 responder ranks.

9 9 9 9 

The dispatch of large numbers of personnel and apparatus and the ability of management to maintain accountability in a timely manner associated with arrival and deployment of personnel and the ability of the incident site to effectively accommodate 

large numbers of personnel and apparatus.

9 9 9 

Availability of effective codes and protocols for establishment and uninterrupted operation of the incident command and control system and for preservation and dissemination of information managed by command posts.

•Command posts established within the collapse zone of buildings that received serious 

structural damage and contained large multi-floor fires.

•Establishing the command post prior to dispatching needed units.•Effects of self-dispatch and free-lancing of first responders and ambulances, especially 

teams lacking protective clothing and medical equipment.

•Robustness of assignment and tracking (accountability) system for large scale 

emergencies.

9 9 9 9 9 9 

Availability of detailed procedures and methods for gathering, processing, and delivering situational information to all first responders, including 911 operators, wardens, incident commanders, etc.; this covers voice, video, and data integration.

All Tall Buildings

Enforcement

Adoption and 

Education & 

Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 L

Issue

Issues – Improved Emergency Respons

Improved Emergency Respons

Command and Control Command and Control
Issues – Other Major Issues Other Major Issues

9 9 

Structural principles education for fire protection engineers and fire protection principles education for structural engineers; structural and fire protection principles education for architects.

9 9 

Creation of broad training opportunities for rigorous use of computational fire dynamics and thermostructural analysis tools. 

9 9 9 9 

Availability of regulatory requirements for retention of documents related to the design, construction, operation, maintenance, andmodifications of buildings, including retention offsite and accessibility of building plans for emergency response.

•Maintenance and storage of documents.•Accessibility of building plans for emergency response.

Buildings

All Tall Buildings

Enforcement

Adoption and 

Education & 

Training

Standards, Codes, 

R&D/study Further

Regulations

Practices

Level 1 L

Issue
Approach to Recommendations (3) Approach to Recommendations (3)

• NIST urges organizations responsible for building and fire safety at all levels t

consider the draft findings, issues, and recommendations. 

• In its final report, a draft of which is expected to be released in June 2005, NIST wil

appropriate improvements in the way buildings are designed, constructed, maintain

will be important for those recommendations to be thoroughly and promptly conside

organizations responsible for building and fire safety. 

• NIST will welcome comments from the public on the draft final report. 

• As part of NIST’s overall WTC response plan, the Institute has begun to reach out t

organizations to pave the way for timely, expedited consideration of recommendatiofrom this investigation. 

• NIST will hold a major conference September 13-15, 2005 to reinforce the imp

findings and recommendations from the Investigation and encourage their imp

practice. The public will be provided an opportunity to comment.

• NIST will develop a web-based system that will be available to the public so th

implementing the recommendations can be tracked. The website will list each 

recommendations, the specific organization or organizations responsible for its 

implementation, the status of its implementation by the organization, and the p

progress to implement the recommendation.

• NIST also has expanded its research in areas of high priority need.
Web site Web site http:// http://wtc.nist.gov wtc.nist.gov

Email to Email to wtc@nist.gov wtc@nist.gov

Facsimile to (301) 975 Facsimile to (301) 975-6122

Regular mail: Regular mail:

WTC Technical Information Repository, Stop 8

Technical Information Repository, Stop 8

100 Bureau Drive, Gaithersburg, MD 20899 Bureau Drive, Gaithersburg, MD 20899-86