OSHA’s Focus on the Grain Industry Industry.pdf · OSHA systematically laying groundwork for...

OSHA’sFocusontheGrainIndustry

March27,2014

EricJ.ConnHeadoftheOSHAPracticeatEpsteinBeckerGreen

econn@ebglaw.com/(202)861-5335

ERICJ.CONNistheHeadoftheOSHAPracticeGroupatEpsteinBecker&Green,wherehefocusesonallaspectsofoccupationalsafety&healthlaw:

– Representsemployersininspections,investigations&enforcementactionsinvolvingOSHA,CSB,MSHA,&EPA

– Respondstoandmanagesinvestigationsofcatastrophicindustrial,construction,andmanufacturingworkplaceaccidents,includingexplosionsandchemicalreleases

– HandlesallaspectsofOSHAlitigation,includingcriminalmatters,appealsofcitations,andnegotiationofsettlementstominimizeeffectofenforcementoncivilactionsandfutureenforcement

– Conductssafetytraining&compliancecounseling

EricJ.Conneconn@ebglaw.com/(202)861.5335

OSHA’sEnforcementHeavyPhilosophy

SevereViolatorEnforcementProgram

OSHAEnforcementintheGrainIndustry

SweepAugers

RailcarFallProtection

BootPitsasConfinedSpaces

Agenda

• 100+newCSHOs

• Morecitations

• Increasedpenalties

• Morecriminalcases

• Spikeinsignificant/egregiouscases

• Newenforcementinitiatives

• Addedspecialemphasisprograms

• Expandedscopebeyondsingleworkplace

Enforcement-HeavyPhilosophy

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

• Doubledminimumpenalties

• LookbackforRepeatsincreasedfrom3to5years

• Halvedpenaltyreductionforsize

• Lookbackforcleanhistoryreductionincreasedfrom3to5years

• Maximum30%penaltyreductionatinformalsettlementconferences

FieldOperationsManualAmended

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)

IncreaseduseofNational&LocalEmphasisPrograms

ProactiveTargetingPhilosophy

Grain Industry Local Emphasis Programs

Heat Illness

Workplace ViolenceAmputations

(LO/TO & Guarding)

Combustible Dust Falls In General Industry

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

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

Significant Cases ($100K + Penalty)

215 219

FY09 FY10 FY11 FY12

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

• Mandatoryfollow-upinspections

• Inspectionsat“related”facilities

• Enhancedsettlementagreements

–Corporate-wideabatement

–Thirdpartyaudits

• PublicShaming

Consequencesof“Qualifying”forSVEP

Becausemanymodernemployersoperatemultiplefacilities:

• Enhancethelinesofsafety&healthcommunicationbetweensisterfacilities

–Ex:EachfacilitymustbeawareofanyOSHAactivityatsisterfacilities

• ActtocorrectsimilarissuesidentifiedbyOSHAateachlocation;and

• Challengecitationitems

SVEPStrategy

OSHAEnforcement

intheGrainIndustry

IncreasedEnforcement• DirectorofOSHAsentlettersto13,000grainhandlerswarningthemofengulfmenthazards

• Issued2010“FactSheet”regardingbinentryhazardsandregulations

• SetstagetoissueWillfulviolations

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)

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

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

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)

OSHA’sSweepAugerEnforcement

Policy

• GrainStandardincludesnoprovisionre:sweepaugersorworkinsidebinswithsweepaugers

• Generalrequirementregardingequipmentinsidebins

1910.272(g)(1)(ii):“Allmechanical,electrical,hydraulic,&pneumaticequipmentwhichpresentsadangertoemployeesinsidegrainstoragestructuresshallbedeenergized &shallbedisconnected,locked-out&tagged,blocked-off,orotherwisepreventedfromoperatingbyotherequallyeffectivemeansormethods.”

HistoricSweepAugerEnforcement

• SeriesofInterpretationLettersbeginningin2008changedenforcementlandscape

SweepAugerInterpretations

• OSHArejectedtheindustry’sattemptstoeducateOSHAaboutsweepaugeroperations

• IndustrysolicitedhelpfromRep.KristiNoem andSen.ChuckGrassley

• OSHAissuedadditionalInterpretationLettersinMay2011andFebruary2012

• Neitherletterlistedalternativesweepaugerproceduresthatwouldsatisfythe“otherequallyeffectivemeansormethods”languageof1910.272(g)(1)(ii)

CongressionalIntervention

SweepAugerSettlements• Illinoiscompanyciteddespiteusingbothadministrativeandengineeringcontrolstokeepemployeesoutofdangerzone

• Area Directorhadpersonalknowledgeofsweepaugeroperations

• OSHAwithdrewcitationandagreedtosettlementtermsthatprovidedguidancere:acceptablealternativesweepaugeroperations

SweepAugerSettlements• Settlementincorporated10SweepAugerSafetyPrinciples thatpermitemployeesinsidegrainbinswithenergizedsweepaugers

• OSHA’sNationalOfficereviewedandapprovedthe10SweepAugerSafetyPrinciples

• May3,2013EnforcementMemorandumfromDirectorofEnforcementProgramstoallRegionalAdministrators&StatePlansDesignees

10SweepAugerSafetyPrinciples1. Follow1910.272permitrequirements

2. De-energizedandLO/TOsweepandsubflooraugersbeforesetting-up/digging-out

3. Installandsecuregrate/guardoversubfloorauger

4. Guardthetopandbackofthesweepauger

5. Postarescue-trainedandequippedobserveroutsidethebin

6. Nowalkingongrainthatisdeepenoughtopresentanengulfmenthazard

10SweepAugerSafetyPrinciples7. Donotusehands,legs,orothersimilarmeanstomanipulate/dislodgeanenergizedsweepauger

8. Installspeedcontrolmechanismorbinstopdevicetoeliminatetheuncontrolledrotationofthesweepaugeraroundthebin

9. Toadjustorperformmaintenanceonasweepauger,itmustbeunplugged(w/plugcontrolledbyadjuster)orlockedout

10.Implementengineeringcontrolstopreventcontactwithanenergizedsweepauger

AcceptableEngineeringControls• AugerwithAttachedStandardGuardRail (compliantwithOSHA’sMachineGuardingstandards)

• PortableGuardRailmaintainedatleast7feetbehindsweepauger

• PortableOperatorStandardGuardRailEnclosurewithdead-manswitch

–Augeroperatesonlywhenworkeriswithin

• AugerwithControlMechanism

–Augeroperatesonlywhenoperatorcontactsthecontrols

–Ex:SafetyHandlewithdead-manswitch

RailcarFallProtection

•Employeesmusttie-offorbeprotectedbyguardrailswhenworkingatheightsabove4feet

•FallprotectionforworkontopofRollingStockisNOTaddressedin:

–Walking-workingsurfacesgeneralindustrystandard(SubpartD);or

–ThePPE Standard(29CFR§ 1910.132(d))

FallProtection

• NGFArequestedclarificationofOSHA’senforcementpolicyre:fallhazardsfromworkatoprailcars

– IndustryconcernedthatOSHAwaswronglycitinggrainhandlers

• OSHAandindustryleadersmettofindapracticalsolution

• OSHAissuedaninternalenforcementmemotoitsRegionalAdministrators

The1996“MilesMemo”

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

• 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

• 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

• SomeOSHAAreaOfficesarenowissuingcitationscontrarytotheMilesMemo

– AdherencetotheMilesMemovariesbetweeneachareaoffice,region,andadministration

•Someonlyissuecitationsinsideloadingareascontiguoustotheelevator

•Othersissuecitationsoutsidetheloadingzone

OSHA’sEnforcementAgenda

•Casedidnotinvolvethegrainindustry

•Employeeseriouslyinjuredafterhefell10’offatankertruckduetowindgusts

•OSHAissuedaGeneralDutyClausecitation– “expos[ed]employeestofallhazardswhentheywereworkingontopoffueltankertrucks”

•TheALJaffirmedthecitationissuedbyOSHA

EricksonAir-Crane– ALJDecision

• OSHRCfoundthattheMilesMemodid putemployersonnoticeofadutytousefallprotectionorproviderelatedtraining

• But,theCommissionemphasized2elementsfromtheMilesMemo:

–BroadexemptionofallrollingstockfromOSHA’sfallprotectionrequirements(exceptforrollingstocklocatedinsideofornexttoabuilding);and

–UndertheGDC,OSHAonlyrequiresadministrativecontrolstoreducefallhazards,whicharedistinct fromthefallprotectionequipmentsoughtbytheSecretary

EricksonAir-Crane- OSHRCDecision

• TheEricksonAir-CanedecisionreinforcedthattheMilesMemo:

– RemainsOSHA’sbindingandofficialinterpretationofthelawasitrelatestofallprotectionontopofrollingstock;and

– Appliestocircumstancesbeyondjustgraininspectorswhohavetoinspectrailcarsdowntrack

• ThefactthatsomeOSHAAreaOfficescontinueissuingcitationscontrarytotheMilesMemodoesNOTchangethelaw

EricksonAir-CraneDecision

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.

Ifyoucannotperformallworkunderafallprotectionsystem,document aPPE HazardAssessmentthat:

• Recognizesthefallhazardforworkontopofrailcars;

• Explainsthefacility’srailcarfallprotectionpolicy&administrativecontrolstoaddressthefallhazard

• Explainswhere/why/whenitisnotfeasibletousefallprotection

Considerhavingafeasibilityanalysisperformedundertheprotectionoftheattorney-clientprivilege

Trainandenforcebydiscipline

Bepreparedtochallengecitations

BootPitsasPermit-RequiredConfinedSpaces

Permit-RequiredConfinedSpacesConfinedspaceshaveallthreeelements:

1.Largeenoughforemployeestoenterandperformcertainjobs

2.Limitedorrestrictedmeansforentryorexit;and

3.Notdesignedforcontinuoushumanoccupancy

PermitSpaceshaveatleastone ofthefollowing:1.Containsorpotentialtocontainhazardousatmosphere;

2.Containsamaterialthathaspotentialtoengulfanentrant;

3.Haswallsthatconvergeinwardorfloorsthatslopedownwardandtaperintosmallerareawhichcouldtraporasphyxiateentrant;and/or

4.Contains“anyotherrecognizedsafetyhazard”

AreBootPitsConfinedSpaces?

• Yes• Employeesentertoperformmaintenanceandinspections

Largeenoughforworkerstoenter

andwork

• Maybe• Doesanythingpreventtheworkerfromeasilyescaping?

Limitedorrestrictedmeansforentryorexit

• OftenNO!Notdesignedfor

continuousoccupancy

• Designedforcontinuoushumanoccupancy:“Intendedasaregularplaceofworkandsuppliedwithventilationandotherconditionsnecessarytosupportlife”

– Keyiswhetheremployeecanoccupythespaceundernormalworkingconditions

• NOoperationaladjustmentsneededbeforeemployeesenterbootpits

– Whenenterbootpit,employeesimmediatelystartworkingundernormaloperatingconditions

– Whenentergrainbin,employeesmustisolateoremptygrainfromgrainbinpriortoentrance

AreBootPitsConfinedSpaces?

• SomeOSHAAreaOfficesautomaticallyconsiderbootpitstobepermit-requiredconfinedspacesbecauseofthepotentialforatmospherichazard

• “Potential”forhazardousatmosphere–OSHA’sguidance:“Somespacesmaydevelopahazardousatmosphereundercertainconditions”

• BUTmustbearealisticpotential–Facthazardousatmospherecould forminaspacedoesnotautomaticallytransformitintoaPRCS

AreBootPitsPermitSpaces?

• Documentspacedeterminationforbootpits

• Gatheracriticalmassofairmonitoringdatatoshowthereisnopotentialforahazardousatmosphere

• UseNGFA’s“PermitRequiredConfinedSpace/BootPitEvaluationGuideforGrainElevators”(Sept.2013)

Questions

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