Manhattan District History: Book I - General; Volume 11 - Safety Program (redacted)

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MANHATTAN DISTRICT HISTORY VOLUME 11 “ SAFETY PROGRAM For The Atomic Energy Commission Qitaf. Declassification Branch rr»JFTRMF.D TO BE UNCLASSIFIED

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A Supplement to the Safety Program Volume of the Manhattan Distriot History referring to the period from 1 July 1946 to 31 December 1946 has been included in-ftront 'Of the original history in this volume* During this period atontio bombs were used, the war ended* security was relaxed, construction activities diminished and the Ata&io Energy Commission was appointed. There was a general reduction in the number of Manhattan Distriot contracts and considerable reorganization vat in progress irithin the District* In bringing this portion of the history up to date* there has been added a new section to the volume covering the fire prevention and protection phase of the Safety Program In greater detail than in the The numbering and subjects for Sections 1 to 6 Inclusive of this Supplement conform with those of the original history, with the words "SUPPLEMENT TO” preoeding each of the seotian numbers* Section 7 of the supplement covers a subject not included in the original history* The main paragraph numbers and subjects are In accordance with those of the original history (with the exception of the main paragraphs in Section 7) and the paragraph numbers are preoeded by the letter "S". Subparagraphs, so far as practicable, are designated and in the sequence as presented by The information oovered by this Supplement has not been included in the ftmmary of the volume*

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The portion of the Manhattan District history contained herein covers the District Safety Program from formation of the District in August 19^2, through 30 June 19^5. Although some construction took place at frail, British Columbia, and Chicago, and operations vere started in several research laboratories in the fall and early vlnter of 19^2 and vere adequately covered by local safety supervisors, they vere relatively small in scope and did not involve enough man-hours of exposure to provide significant safety statistics. Hajor District activity started with site preparation in November 19^2 and actual con struction in January 19^3 at the Clinton Engineer Works. Safety programs, activities and statistics discussed herein do not Include the Los Alamos, lew Mexico, project or its satelite subprojects vhich, vhile a part of the overall Manhattan District Project, are not under the direct supervision of the Manhattan District Engineer. Decause of the necessity of close and continuous coordination with higher authorlty and special scientific grocpe in Washington, the Los Alamos work was given a special status and is handled directly from the office of Major projects, although highly important, Involve as of 31 December I9M 1 only about 5^ of the total direct employment under the District program. The history of the Los Alamos projects is recorded In look of the Man*

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An Important part of the Safety Program consists of coordination of lte activities vith those of the Manhattan Bistrict Medical Program, which Is described In Yoluae 7 of this book. Attention Is invited to Section 1, Paragraph 1-2 as to the scope of the Manhattan district safety program as Included, in this discussion of fire prevention and protection are an injportant part of every Safety Program. During the period covered by this history the principal responsi bility for fire prevention and protection was assigned to the Intelligence and Security Division vhose history is contained in Volume lb, Book I. She safety staff gives special attention to fire hazards affecting In the Summary (vhich immediately follows this Foreword) the para graph and subparagraph designations correspond to the section and para graph designations of the aaln text of the history, leference is thus facilitated from any subject in the Suaaary to the same subject, vith greater detail, in the sain text. All references to appendices and other supporting data are confined to the aaln text.

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1-2 Purpose of Pragma 1.1 . 1-3 Scope of Program 1.2 1-7 Effect of Security 1.5 c. Inspection Beporte of Areas 2 .2 a. Safety in Design 2.3 b. Safety Procedures in the Field 2.k a. Operations Safe Practices 2.5 d. Adaptation of Old Buildings 2.7 ©. Liaison vith Medical Branch 2.7 f. Monthly Progress Beports 2.8 d. Driver Training Courses 2.10

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Par, go. Page Ho. b. ASF Changes, April 1944 and Subsequent 2.11 SECTION 3 - PUBLIC SAJETY SEOCBAM c. Enforcement of Traffic Regulations 3.3 SECTION 4 - OTHER SAJETY ACTIVITIES 4-1 Safety Materials and Equipment 4.1 4-2 Periodic Meetings of Safety Personnel 4.2 5-1 Occupational Safety Record 5*1 a. Magnitude of the District Safety b. Methods of Comparison 5.1 0. Units of Comparison 5.2 d. Trend of District Injury Rates 5.3 f. Comparisons of District Operations

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g. Savings Effected by District Safety 1. Detailed District Safety Records 5.6 Traffic Safety Record 5.7 Quality of Accomplishment 5.8 Present Organization and Responsibilities 6.3 b. The Occupational Safety Section d. Resident Safety Engineers f. Hanford Engineer Works 6.5 a. Calibre of Personnel 6,6 Coat of the Safety Program Assistance from Government Agencies and a. Office, Chief of Engineers 6.9 b. national Safety Council 6.9 e. American Bed Cross d. International Association of Chiefs 6.9

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1« Introduction*. The Manhattan District has had an unusually wide variety of accident prevention problems arising from construction, plant operation, and community management. The purpose of the safety program has been to reduce the number and severity of accidents to a minimum and increase efficiency. Its scope has included employees of the Government and all oonstruotlon or ”oost-plus" contractors, and residents of District-operated communities* The general policy has been to utilise every practicable means to eliminate aooident, fire and health hasards, and to place responsibility for safety on line"officers, utilising qualified safety engineers as technical consultants. Prime contractors have been required to develop an adequate aooident pre vention program and most Area engineers to have a full-time safety engineer* Thorough investigation of accidents, and detailed accident reporting have also been required* The construction safety regulations of the Corps of Engineers have been enforced, supplemented where neces sary for operations* The effect of seourity was to impede normal ac cident prevention pressures and means, but this effect was offset by the comprehensive safety program* 2* Occupational Safety Frogram. The function of the occupational safety program has been to prevent injuries to employees on construction and in plant and laboratory operations. The general procedures werei District inspections, which were particularly valuable in smaller Areas, and resident safety engineers on all major projects who forwarded inspection reports of Areas to the District Office. Construction

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safety included safety in design and safety procedures in the field. Special problems which arose due to the urgency of the District program, required unusual procedures, but the close relation between safety and efficiency was demonstrated. Operations safety was based on safe practices contained in established codes and standards, and the con~ traotors procedures and practice3 developed from experience. Research laboratories presented unusual problems. The Safety Branch has main tained close liaison with the Medical Branch to control radioactive and other hazards peculiar to Distriot work. Information on Safety programs was kept up to date by monthly progress report® prepared for operating contractors at Clinton Engineer Works. Safety training was included in indoctrination and job training and. In addition, special courses, safety rule books, stories in community and plant newspapers, and driver training courses were used. Safety films and posters were also widely used. The acoident reporting procedures of the Corps of Engineers were established in the Distriot early in 1943, and the ASF changes, January 1944, were adopted, but ASF changes, April 1944 and subsequent were not adopted because of the District's unusual organi 3. Public Safety Program. Public safety programs were needed in Riohland and Oak Ridge, the two District-operated towns. Traffic safety was based, first, on traffic engineering which aided in the planning and development of roads for elimination of oongestion as well as for acoident prevention. In addition, motor vehicle driver’s permits were required for operation of a Government-owned

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vehicle. They were issued on the basis of teste established by the Office, Chief of Engineers, and accurate records of test results and driving experience were maintained. Enforcement of traffic regu lations based on a traffio code, was a responsibility of Auxiliary Military Police and Military Police* Special polloe training raised the quality of traffio accident Investigation and other traffio work to a high level* Government vehicle inspection standards were rigidly maintained. Community safety included school safety) home safety, with a model trailer home, a model safe home, home safety courses, and other activltiesi and recreation safety. Rational Safety Council surveys aided In establishing the community programs* Community 4. Other Safety Activities. The safety materials and equipment utilised included literature and posters obtained through the Office of the Chief of Engineers and other sources, and equipment for tests for flammable and toxic substanoes. Periodlo meetings of safety personnel were held, both looal meetings and national conferences. Medioal oare fulfilled requirements of the Corps of Engineers. Safety programs were sometimes stimulated by oonduotlng contests of 6. Aooomplishments. the occupational safety record has been outstanding — injury rates averaged 62 percent below comparable rates for private industry. The magnitude of the District safety program may be judged from the 30-month total of 847,883,796 employee-hours worked. Trends of injury rates and comparisons with other groups are

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the two method® of comparison used to evaluate the District'a record. Rational standard units of comparison, such as "frequency rate" District injury rates has been generally downward* The comparisons of District construction injury rates and comparisons of District operations injury rates show that rates have been far below private industrial rates and generally lower than rates for comparable work supervised by other Ttar Department agencies* The savings effected by the District safety program in 30 months amounted to 94 lives, 9200 disabling injuries, and 814,000 employee-days of work and sub stantial Insurance savings will result* The detailed Distriot safety records show month-by-month reductions in rates and show that rates in most Areas were low* The traffic safety record at Clinton Engineer Works was equal to. If not better than, the average record of older, well-established communities* The quality of accomplishment is 6* Organisation* The formation of an adequate safety organi sation was initiated In August 1942* The development of the organi sation is shown by the history from June to December 194S when a Dis triot Safety-Aooldent Prevention Section with Construction, Industrial, Training, Traffic and Community Units was formed; from January to June 1944 when community safety activities at Clinton Engineer Works were assigned to an Advisory Committee and a contractor! from July to Deoember 1944 when community safety was again consolidated in the Distriot safety organisation; and from January to June 1945 when the major proportion of the District staff was assigned direct to Officer-In-

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Charge at Clinton Engineer Works® The present organization shows the District Safety Engineer coordinating the entire District program, with the Occupational Safety Section and the Safety Training and Off-the-Job Safaty Section dircctly under him# Hesident Safety Engineers are stationed with most Area Engineers and 0fficers-In-Charge| Clinton Engineer V.orks Central Facilities and Hanford Engineer Works The Government Safety personnel of the Distriot reached a peak of 72 on SO June 1944 of whom 36 were Army or civilian engineers, the calibre of personnel being generally excellent ana many key personnel outstanding* The contractors* safety organisations were also excellent, eaoh contractor following normal corporate organization and policy and the larger contractors employing fully qualified personnel. The total cost of the safety program has been estimated at $2,800,000, or fl.00 per month per employee. Valuable assistance was obtained from Govern ment agencies and other organisations, particularly the Office, Chief of Engineer*, National Safety Council, American Eed Cross, International Association of Chiefs of Police, U. S. Department of Interior, and U.S.

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VOLUME 11 - SAFETY PROGRAM 1-1. general. The Manhattan District has faced and Is continuing to enoounter an unusually vide variety of safety and accident preven tion problems. This has been principally due to the extremely vide scope of the district's program which encompassed a range of activity extending from coarentional industrial construction to the operation of plants vhleh vere unique In design and purpose and vhich required new and unusual techniques and procedures. Added to this was the oonstruction and management of two full-scale towns providing all the necessary living facilities for about 90,000 persons. 1*2. Purpose of Program. The objective of the Safety and Accident Prevention Program of the Manhattan District has been to reduce the number and severity of accidents to a minimum by safety engineering, safety education, and enforcement of established safety regulations for the protection of all employees and for the efficient oonduct of all work. The basic purposes of the District1s safety and accident prevention activities have been employee velfare, improved efficiency and elimi nation of loss in equipment, manpower and materials. The close relation ship of safety and working efficiency has been generally acknowledged by outstanding Industrial firms, engineers and engineering societies. A high degree of safety contributed to the early completion of the Job, not only through Improvement of supervision and work techniques, but

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also through improved employe© morale. 1-3. Soope of Program. The activities and direct responsibili ties of the Manhattan District Safety Program Included, and its policies have been applicable tos the occupational activities of the District's communities; contractors and their subcontractors engaged in construc tion on behalf of the District, and operations contractors receiving direct reimbursement for payroll costs from District funds. (See App. C 1 and X 1). Only such contractors have been included in this discus sion of the District Safety Program and in the statistics used herein, as distinguished from such contractors as lump sum and unit price suppliers. This Is in accordance with established (but unwritten) policy of the Corps of Engineers, which does not Insert the accident prevention clause (See App. C 3, page IX) in ordinary supply contracts. The scope of the Distriot safety program, and of this discus sion, does not include primeipal responsibility for fire prevention and protection, and production security of supply contracts, (See look I, Tolume 14, Intelligence and Security), nor for sanitation, medical facilities, and the evolution of protective measures for hazards assoc iated with materials and processes peculiar to the District's work (See look X, Tolume 1, Medical Program). The safety staff had certain secon dary responsibilities in these fields, as defined in App. C 1, Section T, 1-4. Oeneral Policy. She general policy of the District has been to utilize every practicable means to eliminate or minimize all acoi-

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dent, fire, and. health hazards In its operations, to provide such per sonal protective devices, equipment and apparel as the type of work exposure may require; and to maintain a comprehensive snd continuous accident prevention program for the purpose of preventing deaths, injuries, occupational sickness and disease to employees and the destructIon of and damage to materials, equipment, plant and other pro perty . The guiding principles of this policy may he found in 0 & S, Although a …