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OSHA’sFocusontheGrainIndustry
March27,2014
EricJ.ConnHeadoftheOSHAPracticeatEpsteinBeckerGreen
[email protected]/(202)861-5335
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ERICJ.CONNistheHeadoftheOSHAPracticeGroupatEpsteinBecker&Green,wherehefocusesonallaspectsofoccupationalsafety&healthlaw:
– Representsemployersininspections,investigations&enforcementactionsinvolvingOSHA,CSB,MSHA,&EPA
– Respondstoandmanagesinvestigationsofcatastrophicindustrial,construction,andmanufacturingworkplaceaccidents,includingexplosionsandchemicalreleases
– HandlesallaspectsofOSHAlitigation,includingcriminalmatters,appealsofcitations,andnegotiationofsettlementstominimizeeffectofenforcementoncivilactionsandfutureenforcement
– Conductssafetytraining&compliancecounseling
[email protected]/(202)861.5335
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OSHA’sEnforcementHeavyPhilosophy
SevereViolatorEnforcementProgram
OSHAEnforcementintheGrainIndustry
SweepAugers
RailcarFallProtection
BootPitsasConfinedSpaces
Agenda
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• 100+newCSHOs
• Morecitations
• Increasedpenalties
• Morecriminalcases
• Spikeinsignificant/egregiouscases
• Newenforcementinitiatives
• Addedspecialemphasisprograms
• Expandedscopebeyondsingleworkplace
Enforcement-HeavyPhilosophy
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Total OSHA Inspections Conducted
37,000
37,500
38,000
38,500
39,000
39,500
40,000
40,500
41,000
2006 2007 2008 2009 2010 2011 2012
38,579
39,324
38,66739,004
40,993
40,64840,961
Annual Federal OSHA Inspections
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• Doubledminimumpenalties
• LookbackforRepeatsincreasedfrom3to5years
• Halvedpenaltyreductionforsize
• Lookbackforcleanhistoryreductionincreasedfrom3to5years
• Maximum30%penaltyreductionatinformalsettlementconferences
FieldOperationsManualAmended
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Follow-up Inspections/Repeat Violations
OSHA Historically:
• Treated workplacesas individual, independent establishments
• Limited its reviewof employers’ OSHA records to 3 years
• Reactive Philosophy (less likely to revisit workplaces within a few years)
OSHA Today:• Treats workplaces in a
corporate family as 1 workplace
• Looks back 5 years at employers’ OSHA enforcement records
• Proactive Philosophy (hand selects past violators as targets for inspection)
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IncreaseduseofNational&LocalEmphasisPrograms
ProactiveTargetingPhilosophy
Grain Industry Local Emphasis Programs
Heat Illness
Workplace ViolenceAmputations
(LO/TO & Guarding)
Combustible Dust Falls In General Industry
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OSHAsystematicallylayinggroundworkforfutureRepeatviolationsby:
• Issuingcitationswithnumerouscitedstandards(oftenwithlow-dollarpenalties)
• OSHAsettlesthesecitationsbyreducingthepenaltyand/orre-classifyingcitationsto“OtherThanSerious”
• OSHAconducts“follow-up”inspectionsatthesameorarelatedfacility
Follow-upInspections/RepeatViolations
Increased Follow-up Inspections =Increased Repeat Violations =
Much Higher Penalties
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FocusonRepeatViolations
Characterization 2006 2010 2011 2012
SeriousViolations
61,337 74,885 60,165 60,637
Repeat Violations 2,551 2,758 3,098 3,277
Willful Violations
479 1,519 525 463
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Significant Cases ($100K + Penalty)
120
164
215 219
0
50
100
150
200
250
FY09 FY10 FY11 FY12
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Severe Violator Enforcement Program
Employers who “demonstrate indifference to their OSH Act obligations” by committing:
Any Egregiousenforcement
action
1+ Willful, Repeat, or FTA
citations related to a Fatality or
Catastrophe
2+ Willful, Repeat, or FTA
citations related to High
Emphasis Hazards
3+ Willful, Repeat, or FTA citations under
the PSM Standard
High Emphasis Hazard
- Falls - Combustible Dust - Lead- Amputations - Shipbreaking - Silica
- Excavations - Grain handling - Primary Metals
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• Mandatoryfollow-upinspections
• Inspectionsat“related”facilities
• Enhancedsettlementagreements
–Corporate-wideabatement
–Thirdpartyaudits
• PublicShaming
Consequencesof“Qualifying”forSVEP
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Becausemanymodernemployersoperatemultiplefacilities:
• Enhancethelinesofsafety&healthcommunicationbetweensisterfacilities
–Ex:EachfacilitymustbeawareofanyOSHAactivityatsisterfacilities
• ActtocorrectsimilarissuesidentifiedbyOSHAateachlocation;and
• Challengecitationitems
SVEPStrategy
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OSHAEnforcement
intheGrainIndustry
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IncreasedEnforcement• DirectorofOSHAsentlettersto13,000grainhandlerswarningthemofengulfmenthazards
• Issued2010“FactSheet”regardingbinentryhazardsandregulations
• SetstagetoissueWillfulviolations
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LocalandRegionalEnforcementProgramsforGrain
RegionV(IL,IN,MI,MN,
OH,WI)
RegionVI(AR,LA,NM,OK,TX)
RegionVII(IA,KS,MO,NE)
RegionVIII(CO,MT,ND,SD,
UT,WY)
RegionX(AK,ID,OR,WA)
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GrainLEP EnforcementData
2009 2010 2011 2012 2013
InspectionsConducted 238 296 379 438 356
InspectionsResultinginViolations
198 225 300 311 229
TotalViolationsIssued
858 1,289 1,552 1,160 958
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GrainLEP EnforcementData
10Most FrequentlyCitedStandards
GrainHandlingFacilities § 1910.272
MechanicalPower-Transmission Apparatus § 1910.219
GuardingFloorandWallOpeningsandHoles § 1910.23
Permit-RequiredConfinedSpaces § 1910.146
ElectricalSafety §§ 1910.305&303
Fixed Ladders § 1910.27
HazardCommunication § 1910.1200
RespiratoryProtection § 1910.134
PersonalProtective Equipment § 1910.132
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GrainLEP EnforcementData10MostFrequently CitedGrainStandards
Implement writtenhousekeepingprogram § 1910.272(j)(1)
Train employeesforspecialtasks § 1910.272(e)(2)
Harness/lanyard forentryintobinsabovethelevelofgrain § 1910.272(g)(2)
Issue permitspriortobinentries § 1910.272(g)(1)(i)
Providerescueequipmentforbinentry § 1910.272(g)(4)
Testatmospherebefore enteringbins § 1910.272(g)(1)(iii)
KeepcertificationrecordsofPMinspections § 1910.272(m)(3)
Train employeesforspecialtasks § 1910.272(e)(1)(ii)
Providespecific proceduresandsafetypractices § 1910.272(e)(1)(ii)
Implementemergencyactionplan § 1910.272(d)
Deenergize equipmentinsidebinsbeforeentry § 1910.272(g)(1)(iii)
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OSHA’sSweepAugerEnforcement
Policy
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• GrainStandardincludesnoprovisionre:sweepaugersorworkinsidebinswithsweepaugers
• Generalrequirementregardingequipmentinsidebins
1910.272(g)(1)(ii):“Allmechanical,electrical,hydraulic,&pneumaticequipmentwhichpresentsadangertoemployeesinsidegrainstoragestructuresshallbedeenergized &shallbedisconnected,locked-out&tagged,blocked-off,orotherwisepreventedfromoperatingbyotherequallyeffectivemeansormethods.”
HistoricSweepAugerEnforcement
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• SeriesofInterpretationLettersbeginningin2008changedenforcementlandscape
SweepAugerInterpretations
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• OSHArejectedtheindustry’sattemptstoeducateOSHAaboutsweepaugeroperations
• IndustrysolicitedhelpfromRep.KristiNoem andSen.ChuckGrassley
• OSHAissuedadditionalInterpretationLettersinMay2011andFebruary2012
• Neitherletterlistedalternativesweepaugerproceduresthatwouldsatisfythe“otherequallyeffectivemeansormethods”languageof1910.272(g)(1)(ii)
CongressionalIntervention
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SweepAugerSettlements• Illinoiscompanyciteddespiteusingbothadministrativeandengineeringcontrolstokeepemployeesoutofdangerzone
• Area Directorhadpersonalknowledgeofsweepaugeroperations
• OSHAwithdrewcitationandagreedtosettlementtermsthatprovidedguidancere:acceptablealternativesweepaugeroperations
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SweepAugerSettlements• Settlementincorporated10SweepAugerSafetyPrinciples thatpermitemployeesinsidegrainbinswithenergizedsweepaugers
• OSHA’sNationalOfficereviewedandapprovedthe10SweepAugerSafetyPrinciples
• May3,2013EnforcementMemorandumfromDirectorofEnforcementProgramstoallRegionalAdministrators&StatePlansDesignees
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10SweepAugerSafetyPrinciples1. Follow1910.272permitrequirements
2. De-energizedandLO/TOsweepandsubflooraugersbeforesetting-up/digging-out
3. Installandsecuregrate/guardoversubfloorauger
4. Guardthetopandbackofthesweepauger
5. Postarescue-trainedandequippedobserveroutsidethebin
6. Nowalkingongrainthatisdeepenoughtopresentanengulfmenthazard
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10SweepAugerSafetyPrinciples7. Donotusehands,legs,orothersimilarmeanstomanipulate/dislodgeanenergizedsweepauger
8. Installspeedcontrolmechanismorbinstopdevicetoeliminatetheuncontrolledrotationofthesweepaugeraroundthebin
9. Toadjustorperformmaintenanceonasweepauger,itmustbeunplugged(w/plugcontrolledbyadjuster)orlockedout
10.Implementengineeringcontrolstopreventcontactwithanenergizedsweepauger
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AcceptableEngineeringControls• AugerwithAttachedStandardGuardRail (compliantwithOSHA’sMachineGuardingstandards)
• PortableGuardRailmaintainedatleast7feetbehindsweepauger
• PortableOperatorStandardGuardRailEnclosurewithdead-manswitch
–Augeroperatesonlywhenworkeriswithin
• AugerwithControlMechanism
–Augeroperatesonlywhenoperatorcontactsthecontrols
–Ex:SafetyHandlewithdead-manswitch
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RailcarFallProtection
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•Employeesmusttie-offorbeprotectedbyguardrailswhenworkingatheightsabove4feet
•FallprotectionforworkontopofRollingStockisNOTaddressedin:
–Walking-workingsurfacesgeneralindustrystandard(SubpartD);or
–ThePPE Standard(29CFR§ 1910.132(d))
FallProtection
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• NGFArequestedclarificationofOSHA’senforcementpolicyre:fallhazardsfromworkatoprailcars
– IndustryconcernedthatOSHAwaswronglycitinggrainhandlers
• OSHAandindustryleadersmettofindapracticalsolution
• OSHAissuedaninternalenforcementmemotoitsRegionalAdministrators
The1996“MilesMemo”
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TheMilesMemo
Subpart D
• Does not explicitly address falls from rolling stock
• A proposed fall protection standard at that time explicitly excluded rolling stock from coverage
PPE
• Inappropriate to use 1910.132(d) to cite exposures to fall hazards on top of rolling stock
• Unless employees working atop stock positioned inside of or contiguous to a building/structure and installation is feasible
GDC
• Citation may be issued under § 5(a)(1) where feasible means exist to eliminate or materially reduce the fall hazards
• The abatement examples listed in the memo do not include the use PPE
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• SomeOSHAAreaOfficesarenowissuingcitationscontrarytotheMilesMemo
– AdherencetotheMilesMemovariesbetweeneachareaoffice,region,andadministration
•Someonlyissuecitationsinsideloadingareascontiguoustotheelevator
•Othersissuecitationsoutsidetheloadingzone
OSHA’sEnforcementAgenda
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•Casedidnotinvolvethegrainindustry
•Employeeseriouslyinjuredafterhefell10’offatankertruckduetowindgusts
•OSHAissuedaGeneralDutyClausecitation– “expos[ed]employeestofallhazardswhentheywereworkingontopoffueltankertrucks”
•TheALJaffirmedthecitationissuedbyOSHA
EricksonAir-Crane– ALJDecision
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• OSHRCfoundthattheMilesMemodid putemployersonnoticeofadutytousefallprotectionorproviderelatedtraining
• But,theCommissionemphasized2elementsfromtheMilesMemo:
–BroadexemptionofallrollingstockfromOSHA’sfallprotectionrequirements(exceptforrollingstocklocatedinsideofornexttoabuilding);and
–UndertheGDC,OSHAonlyrequiresadministrativecontrolstoreducefallhazards,whicharedistinct fromthefallprotectionequipmentsoughtbytheSecretary
EricksonAir-Crane- OSHRCDecision
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• TheEricksonAir-CanedecisionreinforcedthattheMilesMemo:
– RemainsOSHA’sbindingandofficialinterpretationofthelawasitrelatestofallprotectionontopofrollingstock;and
– Appliestocircumstancesbeyondjustgraininspectorswhohavetoinspectrailcarsdowntrack
• ThefactthatsomeOSHAAreaOfficescontinueissuingcitationscontrarytotheMilesMemodoesNOTchangethelaw
EricksonAir-CraneDecision
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Performallrailcarworkunderfallprotectioniffeasible
Ifnotfeasible,providefallprotectionforworkonrailcarslocatednexttotheelevator
Forworkonrailcarsawayfromtheelevator,implementasetofadministrativecontrols,suchas:
– Blue-flag/isolatetrackstoensurecarsarenotmovedwithworkersontop
– Employeesareprohibitedfromworkingontopofrailcarsininclementweather(snow/ice/highwinds)
– Trainemployeesonproperwaystoclimbontocars(i.e.,three-pointsofcontactwithoutcarryinganything)
– Requireallworktobedonefromtherailcar’scatwalk
RecommendedPractices
Photo courtesy of Fall Protection Systems, Inc.
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Ifyoucannotperformallworkunderafallprotectionsystem,document aPPE HazardAssessmentthat:
• Recognizesthefallhazardforworkontopofrailcars;
• Explainsthefacility’srailcarfallprotectionpolicy&administrativecontrolstoaddressthefallhazard
• Explainswhere/why/whenitisnotfeasibletousefallprotection
Considerhavingafeasibilityanalysisperformedundertheprotectionoftheattorney-clientprivilege
Trainandenforcebydiscipline
Bepreparedtochallengecitations
RecommendedPractices
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BootPitsasPermit-RequiredConfinedSpaces
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Permit-RequiredConfinedSpacesConfinedspaceshaveallthreeelements:
1.Largeenoughforemployeestoenterandperformcertainjobs
2.Limitedorrestrictedmeansforentryorexit;and
3.Notdesignedforcontinuoushumanoccupancy
PermitSpaceshaveatleastone ofthefollowing:1.Containsorpotentialtocontainhazardousatmosphere;
2.Containsamaterialthathaspotentialtoengulfanentrant;
3.Haswallsthatconvergeinwardorfloorsthatslopedownwardandtaperintosmallerareawhichcouldtraporasphyxiateentrant;and/or
4.Contains“anyotherrecognizedsafetyhazard”
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AreBootPitsConfinedSpaces?
• Yes• Employeesentertoperformmaintenanceandinspections
Largeenoughforworkerstoenter
andwork
• Maybe• Doesanythingpreventtheworkerfromeasilyescaping?
Limitedorrestrictedmeansforentryorexit
• OftenNO!Notdesignedfor
continuousoccupancy
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• Designedforcontinuoushumanoccupancy:“Intendedasaregularplaceofworkandsuppliedwithventilationandotherconditionsnecessarytosupportlife”
– Keyiswhetheremployeecanoccupythespaceundernormalworkingconditions
• NOoperationaladjustmentsneededbeforeemployeesenterbootpits
– Whenenterbootpit,employeesimmediatelystartworkingundernormaloperatingconditions
– Whenentergrainbin,employeesmustisolateoremptygrainfromgrainbinpriortoentrance
AreBootPitsConfinedSpaces?
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• SomeOSHAAreaOfficesautomaticallyconsiderbootpitstobepermit-requiredconfinedspacesbecauseofthepotentialforatmospherichazard
• “Potential”forhazardousatmosphere–OSHA’sguidance:“Somespacesmaydevelopahazardousatmosphereundercertainconditions”
• BUTmustbearealisticpotential–Facthazardousatmospherecould forminaspacedoesnotautomaticallytransformitintoaPRCS
AreBootPitsPermitSpaces?
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• Documentspacedeterminationforbootpits
• Gatheracriticalmassofairmonitoringdatatoshowthereisnopotentialforahazardousatmosphere
• UseNGFA’s“PermitRequiredConfinedSpace/BootPitEvaluationGuideforGrainElevators”(Sept.2013)
RecommendedPractices
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Questions