Building a Safety Culture: Why training alone isn’t enough — but it’s where it starts

Here is a pattern we see often. An organisation experiences a serious incident — a threat, an act of violence, a near-miss that shakes everyone. The response is swift: new policies are drafted, an incident report is filed, perhaps a consultant is brought in. And then, gradually, the urgency fades. The policies live in a folder. The consultant’s recommendations gather dust. Six months later, staff still aren’t sure what to do if it happens again.

Sound familiar? If so, you’re not alone. And the issue isn’t a lack of good intentions — it’s the gap between having safety procedures and having a safety culture.

This article is for HR directors and safety leaders who want to close that gap. We’ll walk through what safety culture actually means (beyond the buzzword), what the evidence says about how it develops, and why training — while not sufficient on its own — is the single most important place to start.

What do we actually mean by “safety culture”?

The term has been around since the Chernobyl investigation in 1986, and it has been defined dozens of different ways since. The most widely cited definition comes from the UK’s Advisory Committee on the Safety of Nuclear Installations (ACSNI, 1993): safety culture is “the product of individual and group values, attitudes, perceptions, competencies and patterns of behaviour that determine the commitment to, and the style and proficiency of, an organisation’s health and safety management.”

That’s a mouthful. But the core idea is straightforward: safety culture is what people in your organisation actually do when no one is watching. It’s whether the receptionist flags a concerning visitor. Whether a manager follows up after a reported incident. Whether a new employee knows who to call when something feels wrong. As psychologist James Reason put it simply: it’s “what people at all levels of an organisation do and say when their commitment to safety is not being scrutinised.”

Importantly, safety culture is not a switch you flip. It’s not a document you publish. It has three interconnected components: a psychological component (shared values, beliefs and attitudes about safety), a behavioural component (what people actually do), and a situational component (policies, procedures, management systems). All three need to be aligned. Training that changes knowledge but not behaviour, or policies that exist but aren’t lived — these create the illusion of safety culture without the substance.

Why policies and procedures aren’t enough

EU-OSHA’s European Survey of Enterprises on New and Emerging Risks (ESENER) found that 76% of European companies surveyed had a documented occupational safety and health policy, action plan or management system. That’s a solid number. But the same research made a crucial observation: the existence of policies does not guarantee effective safety management. What matters is whether those policies are actively implemented, communicated and lived.

The UK Health and Safety Executive makes a similar point: many organisations talk about safety culture when they really mean employee compliance with rules. But the culture and style of management, they note, is even more significant — including what they call “a natural, unconscious bias for production over safety.”

Here’s the uncomfortable truth: you can have all the right policies on paper and still have a workforce that doesn’t report threats, doesn’t know how to respond to aggression, and doesn’t believe management takes their safety seriously. That’s not a policy problem. That’s a culture problem.

What the evidence says about building safety culture

Research across industries converges on a set of factors that consistently predict whether an organisation develops a genuine safety culture — or just has safety paperwork:

1. Leadership commitment is the strongest driver

EU-OSHA’s analysis of ESENER data is unambiguous: management commitment is the single strongest driver of psychosocial risk management in European workplaces. Stronger than legal obligation, stronger than external pressure from inspectors, stronger than reputational concerns. When senior leaders visibly and consistently prioritise safety, it changes how the entire organisation behaves.

EU-OSHA’s research on OSH leadership also finds that leadership behaviour is directly associated with employee sick leave and wellbeing. When a manager moves to a new unit, the sick leave patterns of their previous staff remain unchanged — suggesting the manager’s approach had become embedded in the unit’s culture, not just their personal influence.

2. Worker involvement is non-negotiable

A culture can’t be imposed top-down alone. EU-OSHA’s practical guidance on psychosocial risk management states that worker involvement is crucial, as workers are best placed to recognise workplace problems. ESENER data confirms this: organisations with formal employee representation on safety matters consistently show stronger risk management outcomes. The most effective approach combines top-down commitment with bottom-up participation — what the literature calls a “just culture,” where staff feel safe reporting concerns without fear of blame.

3. Training is the foundational enabler

Research consistently identifies training as one of the most common and effective interventions for building safety culture. In EU-OSHA’s leadership and OSH case studies, employee training was the single most frequently mentioned activity when organisations described what they did to improve safety outcomes (cited in 10 of the analysed cases). Training appeared alongside involving workers, improving communication and involving management — but it was the most common starting point.

This aligns with a broader evidence base. A good safety culture, as the literature describes it, can be promoted by senior management commitment, realistic practices for handling hazards, continuous organisational learning, and care and concern for hazards shared across the workforce. Individual training forms the foundation from which to build that systemic culture.

4. It takes time and consistency

Safety culture is described in the research literature as a stable quality of an organisation’s general culture that is resistant to change. It develops through repeated experience, shared learning and accumulated trust. Quick fixes don’t work. One-off training events, no matter how good, don’t create lasting culture. What works is systematic, ongoing investment — training that is reinforced by leadership behaviour, supported by clear routines, and integrated into the organisation’s daily rhythm.

So why does training come first?

If culture is built by leadership, participation, systems and training together, why single out training as the starting point?

Because training is the mechanism that creates shared language. It’s what gives everyone in the organisation — from the newest hire to the most senior manager — a common vocabulary for talking about threats, risk and response. Without that shared language, everything else stalls. Leaders can’t communicate priorities if staff don’t understand the concepts. Workers can’t participate in risk assessment if they can’t recognise what a risk looks like. Incident reports are meaningless if people don’t know what constitutes a reportable event.

What this looks like in practice — real cases from Swedish organisations

Theory is useful. But safety culture is built in the specifics — in how a hotel chain responds to an aggressive guest, how a municipality equips its social workers, or how a school handles a threatening parent. That’s why Tesus experts Alexander Tilly (licensed psychologist) and Erik Jönsson (security advisor and former police officer) devoted an entire webinar to this topic: “Building a Safety Culture with Real-World Cases” — drawing on pedagogical experience from workshops and seminars with tens of thousands of participants across sectors.

Their core argument: organisations build resilience by systematically analysing their own real incidents. Not just to learn what went wrong, but to identify what went right, capture tacit knowledge, and develop shared decision-making frameworks. Here are some examples of what that looks like across different sectors:

Scandic Hotels: from policy to lived culture across hundreds of sites

When Scandic decided to address threats and violence across its hotel chain, they didn’t start with a generic module. They began with surveys capturing the situations their staff actually faced — aggressive guests, confrontations at reception, uncertainty about what to do. The result was a custom-built digital training using filmed scenarios with Scandic’s own staff, analysed by Tesus experts and reinforced through interactive exercises.

Nathalie Brantfalk, Safety & Security Manager at Scandic Sweden, described the result: the training was received overwhelmingly well because it reflected staff’s real experiences. As she put it, it was a perfect match for the organisation and hit the mark precisely. The training became mandatory for all employees, and the recognition factor — seeing their own situations reflected back — was what made it stick.

That’s safety culture in action: not a policy on a shelf, but a shared understanding that permeates the organisation, from reception to management.

Stockholms stad Idrottsförvaltning: zero sick leave from insecurity

Stockholm’s Sports Administration wanted to shift from responding to incidents to preventing them. They worked with Tesus to develop two tailored e-learning courses on service, approach and threats and violence. The result? Eric dos Santos, security coordinator, reported that they had no sick leave attributable to insecurity or incidents involving threats or violence. Staff felt more confident, and the organisation developed a shared understanding that extended beyond frontline workers.

Hägersten-Älvsjö (Stockholm): from reactive to proactive

Lina Wickberg, safety coordinator for Hägersten-Älvsjö stadsdelsförvaltning, described one of the clearest markers of cultural change: before the training, she was typically contacted after incidents had already occurred. After training reached the organisation’s roughly 3,000 staff, people started reaching out before — because they could now recognise warning signs and knew that early intervention was expected. That behavioural shift — from reactive reporting to proactive prevention — is precisely what defines a maturing safety culture.

Malmö stad Social Services: reaching 2,500 staff with consistent knowledge

When Malmö’s social services department wanted to build a shared safety foundation, their challenge was scale: 2,500 employees across multiple units. A single in-person workshop couldn’t reach everyone, and inconsistent knowledge meant inconsistent culture. Digital training solved the reach problem, and the sector-adapted content — built specifically for social services scenarios — ensured relevance. The result was a consistent knowledge base that gave the entire department a shared language for discussing and managing risk.

Örebro Riksgymnasiet: training as an “airbag”

One of the most evocative descriptions of what training does for safety culture came from Örebro’s Riksgymnasiet. After implementing a customised training for residential support workers, a staff member described the training as functioning like an airbag — it cushions the anxiety when a storm blows up. That metaphor captures something important: safety culture isn’t about eliminating every incident. It’s about giving people the confidence and competence to handle them when they arise.

These cases illustrate what the research confirms: safety culture is built through the combination of relevant training, leadership commitment, clear routines, and an organisation-wide approach that reaches every role. In a Tesus webinar dedicated to this topic (“Building a Safety Culture with Real-World Cases”, May 2024), Tilly and Jönsson emphasise two practical principles: use real cases from your own organisation to develop decision-making and conflict understanding, and focus on strengthening agency and autonomy — because staff who feel empowered to act are staff who actually prevent incidents.

Training alone isn’t enough — here’s what else you need

Training creates the foundation. But a safety culture requires ongoing reinforcement from the organisation itself. Based on the evidence and our own experience working with hundreds of organisations, here are the elements that turn training into culture:

Leadership that walks the talk.
Senior leaders need to visibly prioritise safety — in meetings, in resource allocation, in how they respond to incidents. EU-OSHA’s guidance is clear: OSH leadership should be included in management development programmes. Safety isn’t just an HR or security function; it’s a leadership responsibility.

Clear routines and documented processes.
Staff need to know exactly what to do before, during and after an incident. Who do they call? How do they report? What happens next? These routines need to be concrete, practised and visible — not buried in a policy document.

Systematic risk assessment that includes psychosocial hazards.
Under the EU Framework Directive 89/391/EEC and Sweden’s AFS 2023:2, employers must assess risks including threats, violence and harassment. Risk assessment isn’t a one-time exercise — it’s an ongoing process that feeds into training, routines and organisational improvement.

A reporting culture, not a blame culture.
Research distinguishes four types of safety accountability cultures: secretive, blame, reporting and just. Organisations with a “just culture” — where reporting is encouraged and followed up constructively — have significantly better safety outcomes. The ILO/Gallup finding that 50% of victims never report because they think it’s a waste of time tells you where most organisations still are.

Follow-up and continuous learning.
Every incident and every near-miss is a learning opportunity. Organisations that review, discuss and integrate these lessons into their training and routines build resilience over time. Tesus recommends combining digital training with follow-up workshops and seminars, creating a complete learning cycle that reinforces the digital foundation.

A practical framework for HR directors

If you’re reading this and wondering where to begin, here’s a sequence that works:

Step 1: Assess.
Conduct a thorough risk assessment that includes psychosocial hazards — threats, violence, harassment, undue influence. Identify your high-risk roles, settings and situations.

Step 2: Train broadly.
Don’t train only the most exposed staff. Train the entire organisation. Shared knowledge creates shared responsibility. Use sector-adapted training that reflects your staff’s real scenarios — generic modules don’t create recognition or engagement.

Step 3: Build routines.
Translate training into concrete, documented routines. Make sure every employee knows the steps — before, during and after an incident.

Step 4: Lead visibly.
Make safety a standing item at leadership and team meetings. Allocate resources. Follow up on reports. Signal, consistently, that this matters.

Step 5: Measure and improve.
Track training completion, incident reports, near-misses and employee perceptions. Use the data to refine your approach. Culture is built iteratively, not in a single deployment.

The bottom line

A safety culture isn’t built by one good training programme, one strong policy, or one committed leader. It’s built by all of those things working together, consistently, over time.

But it has to start somewhere. And the evidence — from EU-OSHA, from the research literature, and from our own experience working with organisations across Sweden — points clearly to the same starting point: training that gives every person in the organisation the knowledge, the language and the confidence to act.

From there, culture grows. Not overnight, but measurably and sustainably.
Ready to build the foundation?

Tesus offers E-learning on workplace threats, violence and undue influence — designed to be the starting point for a lasting safety culture. 

Sources

  1. ACSNI (1993): safety culture definition Advisory Committee on the Safety of Nuclear Installations, Human Factors Study Group, Third Report, 1993.
  2. James Reason: safety culture as behaviour "when not being scrutinised" Reason, J. (1997). Managing the Risks of Organizational Accidents. Ashgate.
  3. Safety culture: three components (psychological, behavioural, situational) Cooper, M.D. (2000). Safety Science, 36(2), 111–136. https://www.sciencedirect.com/topics/social-sciences/safety-culture
  4. 76% of European companies had a documented OSH policy/system EU-OSHA, ESENER https://osha.europa.eu/en/surveys/esener
  5. Policies don't guarantee effective OSH management EU-OSHA, Leadership and OSH Expert Analysis https://elcosh.org/document/3612/d001177/leadership-and-occupational-safety-and-health-(osh):-an-expert-analysis.html
  6. UK HSE: management culture more significant than worker compliance https://en.wikipedia.org/wiki/Safety_culture
  7. Management commitment: strongest driver of psychosocial risk management EU-OSHA, ESENER-2 analysis https://oshwiki.osha.europa.eu/en/themes/management-psychosocial-risks-european-workplaces-evidence-second-european-survey
  8. Leadership behaviour associated with sick leave EU-OSHA OSHwiki https://oshwiki.osha.europa.eu/en/themes/commitment-and-leadership-key-occupational-health-and-safety-principles
  9. Worker involvement crucial EU-OSHA https://osha.europa.eu/en/themes/psychosocial-risks-and-mental-health/mental-health-work-practical-resources
  10. Training most frequently cited OSH improvement activity EU-OSHA Leadership Expert Analysis (see #5)
  11. Training as foundation for systemic safety culture https://en.wikipedia.org/wiki/Safety_culture
  12. Vision Zero https://oshwiki.osha.europa.eu/en/themes/towards-occupational-safety-and-health-culture
  13. Four accountability cultures https://www.ebsco.com/research-starters/business-and-management/safety-culture
  14. 50% never report; "waste of time" ILO / Gallup, 2022 https://www.ilo.org/publications/major-publications/experiences-violence-and-harassment-work-global-first-survey
  15. EU Framework Directive 89/391/EEC https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=celex:31989L0391
  16. Sweden AFS 2023:2 https://www.av.se
  17. EU-OSHA Leadership and worker participation https://osha.europa.eu/en/themes/leadership-and-worker-participation