Hierarchy of Controls – Complete Guide to Workplace Risk Control

 

Hierarchy of Controls – Complete Guide for Workplace Safety

Introduction

Workplace safety is not only about providing PPE, putting up warning signs, or giving safety instructions to employees. Effective safety management starts by asking a more important question:

Can the hazard itself be eliminated or controlled before it reaches the worker?

This is where the Hierarchy of Controls becomes an important safety concept.

The Hierarchy of Controls is a structured approach used to identify and select measures for controlling workplace hazards. It helps organizations prioritize stronger controls before relying on administrative instructions or personal protective equipment.

For example, if employees are exposed to a chemical hazard, simply providing gloves may not always be the best first solution. The organization should first consider whether the hazardous chemical can be eliminated, replaced with a less hazardous substance, isolated through engineering controls, or otherwise controlled before depending on PPE.

The Hierarchy of Controls provides a practical framework for making these decisions.

This article explains the five levels of the Hierarchy of Controls, practical workplace examples, chemical warehouse applications, advantages and limitations, common mistakes, the connection with HIRA and ISO 45001, and how safety professionals can use the hierarchy in daily risk assessment.

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What is the Hierarchy of Controls?

The Hierarchy of Controls is a system used to identify and prioritize methods for controlling workplace hazards.

The traditional five levels are:

1. Elimination
2. Substitution
3. Engineering Controls
4. Administrative Controls
5. Personal Protective Equipment (PPE)

The controls are generally arranged from the most effective at the top to the least effective at the bottom.

Simple Definition

The Hierarchy of Controls is a risk-control framework that prioritizes eliminating or reducing hazards at their source before relying on administrative controls and PPE.

The basic principle is:

Control the hazard → protect the worker

rather than:

Leave the hazard → tell the worker to be careful

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Why is the Hierarchy of Controls Important?

Not all safety controls provide the same level of protection.

Consider a worker exposed to excessive noise.

Option 1 – PPE

Provide ear protection.

Option 2 – Administrative Control

Limit the worker's exposure time.

Option 3 – Engineering Control

Install acoustic barriers or isolate the noisy equipment.

Option 4 – Elimination

Remove the noisy process if it is no longer necessary.

These controls do not provide the same level of protection.

The Hierarchy of Controls helps safety professionals think about stronger and more reliable controls first.

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The Five Levels of the Hierarchy of Controls

The five commonly recognized levels are:

1. Elimination

Remove the hazard completely.

2. Substitution

Replace the hazard with something less hazardous.

3. Engineering Controls

Separate people from the hazard through physical or technical controls.

4. Administrative Controls

Change the way people work through procedures, training, scheduling, warning systems, etc.

5. PPE

Protect the individual worker with personal protective equipment.

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1. Elimination

What is Elimination?

Elimination means completely removing the hazard from the workplace.

This is generally considered the strongest level of control because the hazard no longer exists.

Examples

• Removing an unnecessary chemical from the process.
• Removing an unnecessary step that creates a fall hazard.
• Eliminating manual handling by redesigning the process.
• Removing an unnecessary source of ignition.
• Eliminating work at height by performing the task at ground level.

Warehouse Example

Suppose employees regularly climb onto pallets to inspect material.

Instead of simply providing safety instructions or fall protection, the organization may redesign the storage or inspection process so that workers can inspect the material from ground level.

The need to climb onto pallets is eliminated.

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2. Substitution

What is Substitution?

Substitution means replacing a hazardous material, process, or equipment with a less hazardous alternative.

The hazard is not completely eliminated, but the level of risk may be reduced.

Examples

• Replacing a highly hazardous chemical with a less hazardous alternative.
• Using a lower-noise machine.
• Using a less flammable material where technically suitable.
• Using a less toxic cleaning chemical.
• Replacing a hazardous process with a safer process.

Important Point

Substitution should not be based only on the fact that the replacement appears safer.

The alternative should be properly evaluated for:

• Safety.
• Quality.
• Compatibility.
• Performance.
• Environmental impact.
• Storage requirements.
• New hazards introduced by the substitute.

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Chemical Warehouse Example – Substitution

Imagine a cleaning operation where a particular chemical presents significant health or fire hazards.

The organization may investigate whether an alternative product with lower hazard characteristics can perform the same task effectively.

Before substitution, the organization should review the relevant SDS, technical information, compatibility, handling requirements, and applicable workplace controls.

The objective is not simply:

"Use another chemical."

The objective is:

"Use a technically suitable alternative that creates a lower overall risk."

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3. Engineering Controls

What are Engineering Controls?

Engineering controls are physical or technical measures designed to isolate workers from hazards.

Unlike administrative controls, engineering controls do not depend entirely on employees remembering to follow instructions.

Examples

• Machine guards.
• Fixed barriers.
• Interlocks.
• Local exhaust ventilation.
• Guardrails.
• Automatic shutdown systems.
• Enclosures.
• Noise barriers.
• Mechanical lifting systems.
• Safety sensors.
• Emergency stops.

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Warehouse Engineering Control Examples

In a warehouse, engineering controls may include:

Chemical Storage

• Physical segregation.
• Secondary containment where appropriate.
• Suitable storage systems.

Material Handling

• Mechanical lifting equipment.
• Pallet racking.
• Physical barriers.
• Dock protection.

Fire Safety

• Fire detection systems.
• Fire alarm systems.
• Fire extinguishing systems.

Electrical Safety

• Electrical enclosures.
• Circuit protection.
• Proper grounding/earthing.
• Interlocks where applicable.

Chemical Exposure

• Ventilation systems.
• Closed transfer systems.
• Enclosures.

Engineering controls can provide strong protection because they reduce worker dependence on individual behavior.

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4. Administrative Controls

What are Administrative Controls?

Administrative controls change the way work is organized or performed.

They may include:

• SOPs.
• Work instructions.
• Training.
• Safety signs.
• Job rotation.
• Exposure limits or work schedules.
• Permit-to-work systems.
• Inspection programs.
• Warning labels.
• Emergency procedures.
• Toolbox talks.
• Safety meetings.

Example

Suppose workers must enter an area where noise exposure is high.

An administrative control may be:

Limit the time employees spend in the area.

This may reduce exposure, but the noise source still exists.

Therefore, administrative controls are generally less reliable than eliminating or physically controlling the hazard.

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5. Personal Protective Equipment (PPE)

What is PPE?

PPE is equipment worn or used by an individual to reduce exposure to hazards.

Examples include:

• Safety helmets.
• Safety shoes.
• Safety goggles.
• Face shields.
• Gloves.
• Hearing protection.
• Respiratory protection.
• Chemical-resistant clothing.
• Safety harnesses.

PPE is important, but it should not automatically be the first control considered.

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Why PPE is at the Bottom

PPE depends heavily on human behavior.

For PPE to work properly:

• The correct PPE must be selected.
• It must fit the worker.
• It must be available.
• The worker must wear it correctly.
• It must be maintained.
• It must be replaced when damaged.
• The worker must understand its limitations.

For example, providing chemical-resistant gloves does not eliminate the chemical hazard.

The chemical is still present.

Therefore, PPE is an important part of risk control but should be considered within the overall hierarchy.

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Hierarchy of Controls Example

Consider a chemical exposure hazard.

Elimination

Remove the chemical from the process if it is unnecessary.

Substitution

Replace it with a less hazardous chemical where technically suitable.

Engineering Control

Use closed handling or ventilation.

Administrative Control

Provide SOPs, training, access controls, and exposure management.

PPE

Use suitable gloves, eye protection, protective clothing, and respiratory protection where required by the risk assessment.

This layered approach provides stronger overall protection than PPE alone.

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Hierarchy of Controls Pyramid

The concept can be remembered as:

MOST EFFECTIVE

Elimination

Remove the hazard.

↓

Substitution

Replace the hazard.

↓

Engineering Controls

Separate people from the hazard.

↓

Administrative Controls

Change how work is performed.

↓

PPE

Protect the individual.

LEAST EFFECTIVE

This does not mean that the bottom controls are unimportant. It means that organizations should consider stronger controls wherever reasonably practicable and appropriate.

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Hierarchy of Controls in HIRA

The Hierarchy of Controls can be very useful during Hazard Identification and Risk Assessment (HIRA).

For every significant hazard, ask:

Question 1

Can we eliminate the hazard?

Question 2

If not, can we substitute it?

Question 3

Can we introduce an engineering control?

Question 4

What administrative controls are required?

Question 5

What PPE is required?

This creates a structured approach to risk reduction.

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Practical HIRA Example – Manual Handling

Hazard

Manual handling of heavy chemical bags.

Elimination

Can the manual handling activity be removed?

For example, redesign the process so material does not need to be manually lifted.

Substitution

Can smaller or easier-to-handle packages be used where practical?

Engineering Control

Use:

• Pallet trolley.
• Mechanical lifting equipment.
• Conveyor.
• Suitable material-handling equipment.

Administrative Control

Use:

• Manual handling training.
• Weight limits.
• Safe lifting procedures.
• Job rotation where appropriate.

PPE

Use:

• Safety footwear.
• Suitable hand protection where required.

The important point is that PPE should not be the only control for a heavy manual handling hazard.

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Practical Example – Chemical Spill

Hazard

Chemical leakage from a damaged container.

Elimination

Can unnecessary storage of the chemical be avoided?

Substitution

Can a less hazardous chemical be used where technically possible?

Engineering Control

Use:

• Suitable containment.
• Appropriate storage systems.
• Spill containment arrangements.

Administrative Control

Use:

• Storage inspection.
• SDS availability.
• Spill response procedure.
• Employee training.
• Chemical compatibility controls.

PPE

Use:

• Chemical-resistant gloves.
• Eye protection.
• Protective clothing.
• Other PPE as identified by the SDS and risk assessment.

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Practical Example – Electrical Hazard

Hazard

Exposure to electrical energy during maintenance.

Elimination

Can the equipment or hazardous electrical task be removed?

Substitution

Can the system be redesigned to reduce the electrical hazard?

Engineering Control

Use:

• Guards.
• Enclosures.
• Interlocks.
• Circuit protection.
• Proper grounding/earthing.

Administrative Control

Use:

• Electrical procedures.
• Competent personnel.
• Permit systems where applicable.
• Training.
• Inspection.
• LOTO procedures.

PPE

Use task-specific electrical PPE based on the hazard assessment and applicable requirements.

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Practical Example – Working at Height

Hazard

Worker needs to access an elevated location.

Elimination

Can the work be performed from ground level?

Substitution

Can the process be redesigned to reduce the need for elevated work?

Engineering Control

Use:

• Guardrails.
• Platforms.
• Proper access systems.
• Fall-prevention systems.

Administrative Control

Use:

• Work-at-height procedure.
• Inspection.
• Training.
• Permit system where applicable.

PPE

Use:

• Appropriate fall-protection equipment where required.

Again, the objective is to prevent the fall rather than relying only on a harness.

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Hierarchy of Controls and Layered Protection

In real workplaces, one control is often not enough.

For example:

Chemical storage

→ Compatible storage

→ Suitable containment

→ Inspection

→ SDS availability

→ Training

→ Emergency preparedness

→ PPE

These layers can work together.

This is sometimes described as multiple layers of protection.

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Can Multiple Controls Be Used Together?

Yes.

In fact, multiple controls are often necessary.

For example, a chemical warehouse may use:

• Engineering controls.
• Storage segregation.
• Inspection.
• SOPs.
• Training.
• Emergency response.
• PPE.

The hierarchy helps determine which controls should be strengthened first.

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Hierarchy of Controls and ALARP

In some risk management frameworks, organizations aim to reduce risk as far as reasonably practicable or according to the applicable legal and organizational requirements.

The Hierarchy of Controls supports this thinking by encouraging organizations to consider stronger controls rather than accepting a risk simply because PPE is available.

The exact legal interpretation of ALARP or similar concepts depends on the applicable jurisdiction and regulatory framework.

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Personal Experience (Original Practical Learning)

From my experience in warehouse and industrial safety, I have learned that PPE is often the easiest safety control to introduce, but it should not automatically be considered the best solution. For example, if employees are exposed to a chemical handling hazard, simply providing gloves does not remove the chemical risk. We should first look at whether the activity can be eliminated, whether a safer alternative is possible, whether the process can be physically controlled, and then strengthen procedures and PPE as additional layers. This approach has helped me understand that effective safety is not only about protecting the worker from the hazard; it is also about reducing the hazard itself wherever practical.

Key Learning

• Do not jump directly to PPE.
• Always ask whether the hazard can be removed.
• Consider engineering controls before relying heavily on administrative controls.
• Use administrative controls and PPE as important supporting layers.
• Review whether controls actually reduce the risk.

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Common Mistakes in Applying the Hierarchy

1. Choosing PPE First

One of the most common mistakes is:

Hazard identified → PPE provided → Risk considered controlled

This approach may overlook stronger controls.

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2. Treating Training as the Main Solution

Training is important, but training alone may not adequately control a serious hazard.

For example:

"Employees were trained to avoid the machine."

A physical machine guard may provide stronger protection.

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3. Ignoring Engineering Controls

Sometimes organizations continue relying on procedures when a physical control could significantly reduce the hazard.

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4. Selecting a Substitute Without Evaluation

A replacement chemical or process may introduce another hazard.

Substitution must therefore be evaluated carefully.

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5. Assuming One Control is Enough

Many workplace hazards require multiple layers of protection.

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How to Select the Right Control

A practical approach is:

Step 1 – Identify the Hazard

What can cause harm?

Step 2 – Understand the Risk

Who can be exposed and how?

Step 3 – Consider Elimination

Can the hazard be removed?

Step 4 – Consider Substitution

Can it be replaced?

Step 5 – Consider Engineering Controls

Can people be physically separated from the hazard?

Step 6 – Add Administrative Controls

What procedures, training, inspection, and communication are needed?

Step 7 – Select PPE

What personal protection remains necessary?

Step 8 – Verify Effectiveness

Did the controls actually reduce the risk?

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Hierarchy of Controls and Change Management

When a process or equipment is changed, the organization should review whether the existing controls remain effective.

Examples:

• New chemical introduced.
• New machinery installed.
• Warehouse layout changed.
• New storage system introduced.
• New packaging introduced.
• New material-handling equipment purchased.

A change may introduce new hazards or change existing risks.

Therefore, risk assessment and appropriate Management of Change (MOC) processes should consider whether controls need to be modified.

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Hierarchy of Controls and Incident Investigation

After an incident, investigators can use the hierarchy to ask:

"Could a stronger level of control have prevented this incident?"

For example:

Incident

Worker slips due to a chemical spill.

Existing Control

Employees were trained to clean spills.

Investigation Question

Could an engineering control have reduced the possibility of leakage?

Could better containment have reduced the spill?

Could the storage arrangement have been improved?

This moves the investigation beyond simply saying:

"Employee was not careful."

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Hierarchy of Controls and Near Miss Reporting

Near misses provide a valuable opportunity to evaluate existing controls.

Suppose a pallet almost falls from a rack.

Instead of only reminding the employee to be careful, ask:

• Can the storage arrangement be improved?
• Can rack protection be strengthened?
• Is there an engineering control?
• Is the load configuration appropriate?
• Does the SOP adequately address the hazard?
• Is PPE relevant to the remaining risk?

This encourages proactive safety improvement.

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Hierarchy of Controls and ISO 45001

The Hierarchy of Controls supports the risk-control approach used within occupational health and safety management systems.

It can help organizations consider controls during:

• Hazard identification.
• Risk assessment.
• Operational planning.
• Change management.
• Incident investigation.
• Corrective action.
• Continual improvement.

For ISO 45001 implementation, organizations should establish controls based on their identified hazards, risks, applicable requirements, and operational conditions.

The Hierarchy of Controls is therefore a useful practical framework, but it should be applied according to the organization's actual risk assessment and applicable requirements.

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Do's

✔ Identify the hazard before selecting controls.

✔ Consider elimination first.

✔ Evaluate substitution carefully.

✔ Use engineering controls wherever appropriate.

✔ Strengthen administrative controls.

✔ Select suitable PPE for remaining risk.

✔ Use multiple layers where necessary.

✔ Involve workers in control selection.

✔ Review controls after incidents and near misses.

✔ Verify whether controls are actually effective.

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Don'ts

❌ Do not assume PPE alone controls the hazard.

❌ Do not use training as the only solution to every hazard.

❌ Do not ignore engineering solutions.

❌ Do not substitute one hazard with another without evaluation.

❌ Do not assume existing controls are automatically effective.

❌ Do not close a risk assessment simply because PPE has been provided.

❌ Do not forget to review controls after changes.

❌ Do not ignore worker feedback about practical problems with controls.

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Benefits of the Hierarchy of Controls

Using the Hierarchy of Controls can help organizations:

• Reduce workplace risks.
• Identify stronger control measures.
• Reduce dependence on human behavior.
• Improve HIRA quality.
• Improve incident prevention.
• Strengthen safety management.
• Improve workplace design.
• Support continual improvement.
• Improve safety culture.

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Limitations and Important Considerations

The Hierarchy of Controls is a framework, not a one-size-fits-all solution.

A control that works well in one workplace may not be suitable in another.

For example:

• A substitution may not be technically possible.
• An engineering control may require significant investment.
• Elimination may not be practical for an essential operation.
• Administrative controls may still be necessary.
• PPE may remain necessary even when higher-level controls are implemented.

Therefore, safety professionals should consider:

• Actual risk.
• Feasibility.
• Applicable requirements.
• Technical limitations.
• Worker exposure.
• Process requirements.
• Emergency conditions.

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Hierarchy of Controls – Quick Workplace Checklist

Before accepting a risk control, ask:

Elimination

Can we remove the hazard completely?

Substitution

Can we replace it with something safer?

Engineering

Can we physically separate people from the hazard?

Administrative

Can we improve the procedure, training, scheduling, or supervision?

PPE

What PPE is required for the remaining risk?

Verification

How will we confirm that the control is effective?

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Frequently Asked Questions (FAQ)

Q1. What is the Hierarchy of Controls?

It is a framework for selecting workplace hazard controls, generally arranged from elimination to substitution, engineering controls, administrative controls, and PPE.

Q2. Which is the strongest control?

Elimination is generally considered the most effective because it completely removes the hazard.

Q3. Is PPE a good safety control?

Yes. PPE is an important control, especially for residual risk, but it should not automatically be the first or only control considered.

Q4. Why are engineering controls better than administrative controls?

Engineering controls can physically separate workers from hazards and generally depend less on individual behavior.

Q5. Is training part of the Hierarchy of Controls?

Yes. Training is generally considered an administrative control.

Q6. Is HIRA the same as the Hierarchy of Controls?

No. HIRA identifies and evaluates hazards and risks. The Hierarchy of Controls helps select and prioritize control measures.

Q7. Can more than one level of control be used?

Yes. Effective risk management often uses several layers of control.

Q8. Should PPE be eliminated if engineering controls are installed?

Not necessarily. PPE may still be required for residual risk depending on the hazard assessment.

Q9. Can the Hierarchy of Controls be used for chemical hazards?

Yes. It can be applied to chemical exposure, chemical storage, handling, transfer, spills, and other relevant hazards.

Q10. Can the Hierarchy of Controls be used during incident investigation?

Yes. It can help investigators determine whether stronger controls could have prevented or reduced the incident.

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Conclusion

The Hierarchy of Controls is one of the most useful concepts for practical workplace risk management.

It reminds us that safety should not begin and end with PPE.

The basic approach is:

Eliminate → Substitute → Engineer → Administer → Protect with PPE

The objective is to control hazards as close to their source as reasonably practicable and to reduce dependence on individual behavior wherever stronger controls are possible.

For warehouse and industrial environments, this approach can be applied to:

• Chemical handling.
• Manual handling.
• Electrical hazards.
• Machine safety.
• Fire hazards.
• Working at height.
• Noise.
• Vehicle movement.
• Material storage.
• Chemical spills.

The most important lesson is:

Do not ask only, "What PPE should the worker wear?" Ask first, "How can we remove or control the hazard before it reaches the worker?"

A strong safety culture is created when organizations continuously look for better ways to control hazards rather than accepting existing risks as unavoidable.

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Discussion

How is the Hierarchy of Controls applied in your workplace? Share your experience, challenges, or best practices in the comments to help other safety professionals learn.

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About the Author

Written by Mahesh Chand

Warehouse Safety Professional | Chemical Warehousing | Fire Safety | ISO 9001 & ISO 45001

Mahesh Chand has 12+ years of professional experience in chemical warehousing, industrial safety, warehouse operations, fire prevention, HIRA, risk assessment, emergency preparedness, and ISO management systems. Through Trading Hatke, he shares practical workplace safety knowledge, real industrial experience, and easy-to-understand safety guidance to help safety professionals, students, and organizations build safer workplaces.

📌 Follow Trading Hatke for more practical safety guides, warehouse management tips, and ISO best practices.

Disclaimer: This article is intended for educational and informational purposes only. The appropriate control measures depend on the specific hazard, workplace conditions, applicable requirements, and risk assessment. Always follow your organization's approved safety procedures and applicable legal requirements.

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