Investigation Guideline

Appendix 39

INVESTIGATION GUIDELINE
PLAYGROUND EQUIPMENT
August 2004
I.

INTRODUCTION

A.

Background Information

An estimated 220,000 injuries associated with playground equipment were treated in U.S.
hospital emergency rooms in 1997; approximately 87,000 of these injuries involved
children under the age of six. Previous analyses of data revealed deaths and serious
injuries resulting from falls, impact with moving equipment, entrapment and contact with
protrusions, pinch points, sharp edges and sharp points.
In 1981, the Commission published a two-volume handbook set for public playground
safety, ("A Handbook for Public Playground Safety," Volumes I and II). In 1991, these
handbooks were superseded by a single "Handbook for Public Playground Safety" that
was revised and republished in 1997 (see attached). In addition, there are ASTM
voluntary standards for both home and public playground equipment. A third ASTM
standard for Soft Contained Play Equipment (most commonly found in fast food
restaurants and "pay-for-play" settings) is about to be published.
In FY 1999, CPSC will conduct a NEISS-based special study of playground equipmentrelated injuries to obtain current information on the products and circumstances involved.
CPSC's last playground equipment injury study was conducted in 1988. Since that time,
there have been changes in the types and usage of equipment in the United States, and a
variety of actions have been taken to address playground hazards. The data for this study
will be collected through both telephone and on-site investigations, and will be analyzed in
FY 2000.
B.

Product Description

Playground equipment is divided into several major groups:
1.

PUBLIC PLAYGROUND EQUIPMENT - is usually found in schoolyards, public
parks, amusement parks, licensed child care facilities, apartment complexes and
other public recreational areas. The CPSC handbook contains recommendations
for this type of equipment. There is also an ASTM voluntary standard for public
playground equipment (ASTM F1487).

2.

PRE-SCHOOL PLAYGROUND EQUIPMENT - is a sub-set of public
playground equipment. Intended for children 2-5 years of age, it is usually found
at licensed child care facilities, pre-schools, and in separate pre-school areas at
public playgrounds. The CPSC playground handbook contains a number of
specific recommendations for pre-school playground equipment (see Section 6.3
on pages 8 & 9 of current handbook).

3.

HOME PLAYGROUND EQUIPMENT - is generally found in the backyards of
private residences. It is usually of lighter weight and less durable than public
playground equipment. There is an ASTM voluntary standard (ASTM F1148) for
this type of equipment. Home playground equipment may also be found in
childcare facilities that are being operated in private residences.

4.

SOFT CONTAINED PLAYGROUND EQUIPMENT - is generally found in fast
food restaurants, indoor shopping malls and facilities where children pay to play on
the equipment. Typically it consists of plastic crawl tubes and slides, climbing
nets, ball pits and other padded climbing apparatus. It is enclosed, generally by
netting, to minimize the likelihood that a child can fall to the ground surface.

C.

Specific Items of Interest

In addition to providing a full description of the incident sequence, please describe any
relationship there may have been between the injury and such factors as product design,
installation, modification, maintenance, or failure. For example, equipment with
appropriate and safe designs may be installed, repaired, or maintained improperly, thus
contributing to injuries. Improper modifications such as inserting additional rungs in
climbing apparatus could result in entrapment hazards. Poor design, such as improper
placement of moving components or excessive step spacing could lead to impact with
moving equipment or falls.
Multi-activity composite play structures (e.g., climber/slide/swing combinations) have
become increasingly common in both home and public settings. If the incident involved
such a structure, it is important to obtain a full description of the equipment, including any
design features that may have contributed to the incident.
Playground equipment-related injuries have been reported as among the most common
injuries that occur in daycare settings, but detailed information is lacking about the extent
of the problem and the circumstances involved. Please determine whether the incident
occurred while the child was in a daycare situation, such as in a school (e.g., before- and
after-school care), home, church-sponsored center, corporate- or government-sponsored
center, etc.
Be sure to include in the narrative any factors that were felt to have contributed to the
incident even if they were not specifically mentioned in the guidelines.
D.

Headquarters Contacts
Debbie Tinsworth, EHHA, 301-504-7307

Joyce McDonald, EHHA, 301-504-7331
Debra Ascone, EHHA, 301-504-7403

II.

INSTRUCTIONS FOR COLLECTING SPECIFIC INFORMATION
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NOTE: In the FY 1999 special study, each incident will be followed up by a telephone
investigation conducted by a CPSC contractor, prior to reassignment for an on-site
investigation. This is to ensure the timely collection of key data elements, improve the
sample response rate, and obtain information on incidents for which an on-site
investigation may not be possible. In order to avoid duplication of effort, it is not
necessary to repeat all questions previously answered when conducting the on-site
investigation. However, it is extremely important to "spot check" the accuracy of
previously collected data and obtain the additional on-site information to the extent
possible.
When documenting the on-site investigation, it is essential to provide a narrative
description of the incident (in an in-depth investigation format) in order to obtain a clear
understanding of the sequence of events and circumstances involved. However, it is also
important to complete and attach a data-recording sheet with each investigation
conducted. While the narrative portion of the investigation may duplicate some elements
of the data-recording sheet, the data recording sheet IS NOT to be used in lieu of an indepth investigation format. Rather, it is intended to enhance the investigation, facilitate
coding of the investigation, and provide guidance for the investigator. Answer all
questions using appropriate “unknown” or “not applicable” responses as needed.
A.

Synopsis

Please describe the sequence of events, reporting the victim's activity during the incident;
where the incident occurred (e.g., home, park, school, etc.); the specific type of equipment
involved (e.g., swing, slide, climber, etc.); and whether the equipment was part of a multiactivity composite play structure (e.g., climber/slide combination). Include the victim's
age and sex, and type of injury. Indicate whether the injury resulted from a fall to the
ground or onto part of the equipment; impact with moving equipment, such as a swing;
entrapment within the equipment; or other hazard. Please specify if the incident occurred
in a daycare setting (e.g., before- or after-school care, church-sponsored center,
community center, home daycare, corporate- or government-sponsored center, etc.).
For data retrieval from the computer, please include the following key words in the
synopsis as appropriate: HOME playground equipment, PUBLIC playground equipment,
SOFT CONTAINED playground equipment, PRESCHOOL playground equipment,
FALL, IMPACT, ENTRAPMENT, DAYCARE.
B.

Description of the Product
See Data Recording Sheet

C.

Description of the Incident
See Data Recording Sheet
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D.

Description of the Incident Environment
See Data Recording Sheet

E.

Description of the Injured Person(s)
See Data Recording Sheet

F.

Product Safety Standards

1.

While not a mandatory or voluntary standard, the CPSC publication, "Handbook
for Public Playground Safety," has served as a playground safety guideline for
parents and other officials overseeing playground use, as well as for manufacturers,
installers, school and park officials and others interested in technical criteria for
public playground equipment. A copy of the handbook has been attached to this
investigation guideline.

2.

In addition to the CPSC handbook, there is an ASTM voluntary standard,
"Standard Consumer Safety Specification for Playground Equipment for Public
Use, ASTM F1487-95." A copy is attached for your information. In 1997, a
third-party certification program was established by the International Playground
Equipment Manufacturers Association (IPEMA) in which most of the major
manufacturers participate. Staff of an independent laboratory visits participants
and the equipment is inspected at the manufacturer's plant to determine
conformance to the ASTM standard. Conforming equipment may bear an IPEMA
label.

3.

A voluntary standard for home playground equipment was originally published by
the department of Commerce in 1975 and has since been significantly revised and
republished by ASTM as the "Standard Consumer Safety Specification for Home
Playground Equipment, ASTM F1148-97a." A copy is attached for your
information. No third-party certification program has been established for home
playground equipment.

4.

As previously stated, an ASTM voluntary standard for Soft Contained Playground
Equipment is expected to be published shortly. A copy will be furnished at such
time as the standard is published.

5.

When performing an investigation, please determine, if possible, whether the injury
occurred because the equipment did not conform to the CPSC guidelines or the
applicable ASTM standard.

III.

INSTRUCTIONS FOR PHOTOGRAPHING AND/OR DIAGRAMING THE
ACCIDENT SCENE AND FACTORS RELATED TO THE ACCIDENT
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A.

Photograph or diagram the entire play area, including the area under and around
the equipment. Include all relevant measurements.

B.

Photograph the specific part of the equipment involved in the accident, showing
areas of impact or entrapment, as well as any protrusions or sharp edges or points
that may have contributed to the injury.

C.

Please diagram the position of the child in the equipment, if possible. This is
particularly important in entrapment incidents.

D.

Be sure photographs or diagrams provide the dimensions of the equipment,
especially areas directly involved in the accident. More specific instructions
follow:
Falls - Determine the height and location of the component from which the victim
fell. Determine (if possible) whether the component from which the child fell was
not intended by the manufacturer to be a play surface or component (e.g. a roof or
exterior of a tube slide). If the fall was to a loose-fill safety surface (e.g., gravel,
sand, wood chips, shredded bark mulch, etc.), measure the depth of the material in
the area where the child fell.
Impact - Where applicable, measure the distance between the components
involved (e.g., between swing and stationary member of swingset).
Entrapment - Determine the height of the area of entrapment from the ground.
Measure the width and height (or length) of the opening in which the child became
entrapped. Determine (if possible) if the child entered the opening head-first or
feet-first.

E.

Photograph any product labels, including warning labels and the manufacturer's
name and address.

IV.

INSTRUCTIONS FOR OBTAINING DOCUMENTS RELATED TO THE
INVESTIGATION

A.

Obtain copies of any police, insurance company, or coroner's reports that are
available.

B.

If possible, obtain copies of any maintenance checklists or any records regarding
frequency of inspection, promptness of repair following inspection, and history of
repairs (may need to contact parks department, school maintenance personnel,
etc.).

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PLAYGROUND EQUIPMENT
DATA RECORDING SHEET
Date of Investigation: _________________________
Task Number: _________________________
I.

PRODUCT

A.

Describe the equipment involved in the incident, including whether the equipment
was part of a multi-activity composite play structure. If possible, indicate whether
the equipment was intended for home, public, or preschool use, or was soft
contained playground equipment (attach photograph or sketch if possible):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

B.

Location of equipment:
____ schoolyard
____ public park
____ amusement park
____ apartment complex
____ home (including home daycare settings)
____ institutional/commercial daycare setting
____ commercial establishment (i.e., fast food restaurant, “pay-for-play,” etc.)
____ other, please specify:________________________
____ unknown

C.

Manufacturer or architect (name and address):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
Brand:
__________________________________________________________________
Model (if available):
__________________________________________________________________

D.

Materials of construction (check one):
____ wood
____ metal
____ plastic
____ combination, please describe: ____________________________________
____ unknown
If the victim slipped on the equipment, describe the surface texture of the part of

E.

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the equipment involved in the incident (e.g., smooth or rough):
__________________________________________________________________
F.

Age of equipment (date of assembly or purchase; also indicate, if known, whether
purchased new or used):
__________________________________________________________________
__________________________________________________________________

G.

Age of intended users (may be specified by the product's manufacturers or the
architect of custom-built equipment):
__________________________________________________________________

H.

Were there any safety instructions or warnings on the product or accompanying
literature?
____ yes. Please describe:___________________________________________
__________________________________________________________________
__________________________________________________________________
____ no
____ unknown

I.

Indicate who installed the equipment (i.e. homeowner, contractor, etc.):
__________________________________________________________________
__________________________________________________________________

J.

Describe the condition of equipment at the time of the incident; e.g., rusty, dirty,
broken or other state of disrepair (photograph such areas, if possible):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

K.

Had the equipment been repaired or modified in any way prior to the incident?
____ yes. Please describe how repaired or modified and report by whom:
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
____ no
____ unknown

II.

INCIDENT
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Include the following information as appropriate:
A.

Falls
If a fall occurred, report:
1.

The cause of the fall (e.g. equipment broke or collapsed, victim jumped,
slipped, collided with or pushed by another child, etc.):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
2.
The part of the equipment from which the victim fell:
__________________________________________________________________
3.

The type of ground surface or equipment component upon which victim
landed (see section III.A. of this data recording sheet):
__________________________________________________________________
4.
B.

The height from which the victim fell: ____ feet ____ inches.

Impact with Equipment
If the victim struck or was struck by the equipment, report:
1.

The parts of the equipment that were involved and how they were
involved:
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
2.

The cause of the impact (e.g., child walked in front of swing, ran into
climber, etc.):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
C.

Structural Entrapment
If entrapment of the head of other body part was involved:
1.

Explain how it occurred, indicating the position of the victim's head, limbs
and body (please diagram, if possible):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
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2.

D.

For incidents involving head entrapment, indicate whether the child went
head- or feet-first into the opening (check one):
____ head-first
____ feet-first
____ other, please specify:______________________
____ unknown

Other
Describe any protrusions (include dimensions) and sharp points or edges that may
have contributed to the injury:
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

III.

DESCRIPTION OF ENVIRONMENT AT TIME OF ACCIDENT

A.

Describe type(s) of material under equipment and how far the material extended
beyond the perimeter of the equipment (check all that apply):
____ shredded bark mulch; distance: ____ feet ____ inches
____ wood chips; distance:____ feet ____inches
____ sand; distance: ____ feet ____ inches
____ gravel; distance: ____ feet ____ inches
____ shredded tires; distance: ____ feet ____ inches
____ manufactured mats; distance: ____ feet ____ inches
____ seamless poured resilient surface; distance: ____ feet ____inches
____ synthetic turf; distance: ____ feet ____ inches
____ concrete; distance: ____ feet ____ inches
____ asphalt; distance: ____ feet ____ inches
____ dirt; distance: ____ feet ____ inches
____ grass; distance: ____ feet ____ inches
____ other; please describe:_____________________________
____ unknown

B.

Thickness or depth of surfacing materials (please note if there were any "bald
spots" in the surfacing materials at the site of the incident:
__________________________________________________________________

C.

Describe any debris embedded in the surfacing material (broken glass, bottle tops,
sticks, etc.), if this was a factor in the incident:
__________________________________________________________________
__________________________________________________________________

D.

Describe weather conditions prior to and during the incident; include any effects
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the weather had on the equipment [e.g., water or mud on surfaces from rain; hot
metal surfaces from exposure to sunlight (if burn was involved, indicate direction
equipment was facing); etc.]:
__________________________________________________________________
__________________________________________________________________
E.

g
Time of day incident occurred (please include a.m. or p.m.):_______________

F.

Approximately how many children were present on the playground at the time of
the incident? ____________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

G.

Describe the involvement of any other children in the incident, including ages,
behavior and activities as they related to the incident:
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

H.

Who was caring for the victim at the time of the incident?
____ mother/stepmother
____ father/stepfather
____ legal guardian
____ sister/brother
____ aunt/uncle
____ grandparent
____ teacher
____ daycare worker (ask question I)
____ adult friend/neighbor (ask question I)
____ nanny/au pair (ask question I)
____ baby sitter/friend’s child/neighbor’s child (ask question I)
g
____ other; please specify:____________________________________________

I.

If the person caring for the child when the injury occurred was a daycare worker,
adult friend/neighbor, nanny/au pair, or baby sitter/friend’s child/ neighbor’s child,
where did they take care of the child?
____ caregiver’s home
____ victim’s home
____ in a non-residential daycare center, school, church, or community center
____ somewhere else (please specify):__________________________________
____ unknown

J.

Describe the general nature of the supervision, including the number of adults
10

present and whether those supervising saw the incident happen (the ratio of
supervisors to the number of children present may be a significant factor in some
incidents):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
K.

Did the equipment on the playground appear to be separated for different age
groups (e.g. "tot-lot" separate from equipment for older children)?
____ yes. Please describe: __________________________________________
____ no
____ unknown

L.

Were any instructional or warning signs (including intended age of users) installed
in the play area?
____ yes. Please describe and indicate whether they could be seen from the
equipment: ___________________________________________________
____ no
____ unknown

M.

Describe any maintenance program used by the agency or group in charge of the
playground, including maintenance checklists and information on frequency of
inspection, promptness of repair following inspection and history of repairs
actually made to the playground (see “Instructions for Obtaining Documents
Related to the Investigation"):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

IV.

DESCRIPTION OF INJURED PERSON(S)

A.

Age at time of incident (it is important to include age in years and months, if
possible):
____ years ____ months

B.

Sex (check one):
____ male
____ female
____ unknown

C.

Height at time of accident: ____ feet ____ inches

D.
E.

Weight at time of accident: ____ pounds
Type of injuries, including part of body involved and location of injury:
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__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
F.

Describe the nature of treatment received, and long-term prognosis of the victim:
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

G.

Describe victim's familiarity with the equipment involved in the incident. Include
frequency of use and when victim first started using it or similar equipment:
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

H.

Determine exactly what the child was attempting to do when the incident occurred
(e.g., jump from swing):
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________
__________________________________________________________________

I.

Describe any physical or developmental characteristics of the child that may have
contributed to the accident and whether the equipment was designed to service a
child with that special characteristic:
__________________________________________________________________
__________________________________________________________________

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