The 5 levels of the Safety Culture Ladder
The Safety Culture Ladder (SCL) divides safety culture into 5 levels. Level 1 is an organisation that does nothing with safety. Level 5 is an organisation where safety is woven into everything. The higher the level, the stronger the culture and the behaviour.
The levels come from the work of safety expert Patrick Hudson. They are set out in the SCL standard from NEN . Most clients ask for level 3 at least. This page explains each level with a concrete example of how a company sounds and acts at that level.
On this page
Below we go through the 5 levels, from low to high. For each level you read the attitude, the behaviour and an example from practice. Use the cards to jump straight to a level.
Level 1: pathological
On level 1, safety hardly plays a role. The attitude is: “what you don’t know can’t hurt you.” Rules are a nuisance, accidents are bad luck, and anyone who raises safety is told that the work must go on.
A company at level 1 sees safety as a cost. Incidents are brushed aside or kept quiet. There is no reporting, no analysis and no improvement.
Level 1 is not a certifiable result. It describes a starting point that you want to leave behind.
Level 2: reactive
On level 2, safety only comes into view when something goes wrong. After an accident, action follows: a new rule, an extra sign, a conversation. Until it goes quiet again.
The attitude is reactive, not forward-looking. A company at level 2 might say: “We put up that barrier after someone fell.” Learning happens afterwards, not beforehand.
Certification is possible from level 2, but for most tenders this is too low. You can read how to recognise level 2 and take the step to level 3 on the page Safety Culture Ladder level 2.
Level 3: calculative
On level 3, the systems and procedures are in order. There is a safety policy, risks are mapped out, and incidents are reported and analysed. Safety is taken seriously, but it is mainly managed from the top down.
The attitude is: “We have arranged it because we have to.” People follow the rules, but the driving force is often meeting requirements, not a deep belief. A company at level 3 says: “Our procedures are correct and everyone knows them.”
Level 3 is the threshold for most clients. From 1 July 2026, level 3 is the minimum under ViA (the Dutch scheme for safety in tenders) for contracts from €100,000. Check the requirements per level or read the detail on Safety Culture Ladder level 3.
Level 4: proactive
On level 4, attention shifts from systems to behaviour. Safety is a shared responsibility. People actively look for risks before anything happens, and they speak to each other, regardless of role or rank.
The attitude is: “We want to be ahead of problems.” A company at level 4 discusses near misses as seriously as real accidents, because it wants to learn from them. Managers actively ask for feedback about unsafe situations.
Some clients, such as ProRail for certain sectors, ask for level 4. With the SCL product, level 4 is the highest achievable level. You can find what the auditor looks for at this level on Safety Culture Ladder level 4.
Level 5: generative
On level 5, safety is fully woven into thinking and doing. It has the same priority as time, money and quality. Nobody needs to be reminded of it, because it is part of the culture.
The attitude is: “This is how we do things here, always.” A company at level 5 considers safety in every decision, from purchasing to planning. Safety is no longer a separate topic but something taken for granted.
Level 5 is a high bar. According to NEN, you can only achieve level 5 with SCL Original, the product that includes a full audit every year. You can read more on Safety Culture Ladder level 5.
Which level do you need?
The level you need depends on your clients. Most ask for level 3. Some infrastructure and rail parties ask for level 4 for high-risk work. Start with a baseline measurement to see where you stand now. That is the first step in the step-by-step plan.
The level you reach depends on the certification form you choose. SCL Light goes up to level 3, SCL up to level 4, and SCL Original up to and including level 5.
More about the Safety Culture Ladder
- What is the Safety Culture Ladder? - The hub with all topics
- Requirements per level - What do you need to demonstrate per level?
- Behaviour and culture - Why behaviour is the core
- Description of the SCL steps (NEN) - Official explanation of the levels