RAILCAR FALL PROTECTION - GrainnetRAILCAR FALL PROTECTION: Eric J. Conn Head of the OSHA Practice...

RAILCARFALLPROTECTION:

EricJ.ConnHeadoftheOSHAPracticeGroupatEpsteinBecker&Green,P.C.

econn@ebglaw.com(202)861‐5335

WHATOSHAREQUIRESFROM GRAINELEVATOROPERATORS

December3,2013

ERICJ.CONN

istheHeadoftheOSHAPracticeGroupatEpsteinBecker&Green,wherehefocusesonallaspectsofoccupationalsafety&healthlaw:

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

– Respondstoandmanagesinvestigationsofcatastrophicindustrial,construction,andmanufacturingworkplaceaccidents,includingexplosionsandchemicalreleases

– HandlesallaspectsofOSHAlitigation,includingcriminalmatters,appealsofcitations,andnegotiationofsettlementstominimizeeffectofenforcementoncivilactionsandfutureoperations

– Conductssafetytraining&compliancecounseling

EricJ.Conn econn@ebglaw.com/(202)861.5335

Agenda

HistoryofRollingStockFallProtection

• Employeesmusttie‐offorbeprotectedbyguardrailswhenworkingatheightsabove4feet

• FallprotectionforworkontopofRollingStockisNOTaddressedin:– Walking‐workingsurfacesgeneralindustrystandard(SubpartD);or

– ThePPEStandard(29CFR§ 1910.132(d))

FallProtection

• NGFArequestedclarificationofOSHA’senforcementpolicyre:fallhazardsfromworkatoprailcars– IndustryconcernedthatOSHAwaswronglycitinggrainhandlers

• OSHAandindustryleadersmettofindapracticalsolution

• OSHAissuedaninternalenforcementmemotoitsRegionalAdministrators

The1996“MilesMemo”

TheMilesMemo

• Casedidnotinvolvethegrainindustry• Employeeseriouslyinjuredafterhefell10’

offatanker

truckduetowindgusts• OSHAissuedaGeneralDutyClausecitation– “expos[ed]employeestofallhazardswhentheywereworkingontopoffueltankertrucks”

• TheALJaffirmedthecitationissuedbyOSHA

EricksonAir‐Crane–

ALJDecision

EricksonAir‐CraneCaseSecretaryofLabor’sPosition:

• MilesMemoreferencetorollingstockpositionedinsideorcontiguoustobuildingwhereinstallationoffallprotectionisfeasibleputemployeronnoticethatithadtoprovidefallprotection

– Thetankerhadbracketstoholdahelicopterbladeboxinplace,whichcouldalsosecurefallprotectionequipment

• Employershouldhaverealizedthat,soequipped,itstankerwasessentiallylocatedinsideoforcontiguoustoastructurethatcouldsupportfallprotectionequipment

Employer’sPosition:

• BasedonguidancefromMilesMemo,itlackednoticethatfallprotectionwasrequired;and

• ItcannotbeheldinviolationoftheOSHActifitfailedtoreceivepriornoticeoftheconductrequiredofit

• OSHRCfoundthattheMilesMemodid putemployersonnoticeofadutytousefallprotecti

onorproviderelatedtraining

• But,theCommissionemphasized2elementsfromtheMilesMemo:– BroadexemptionofallrollingstockfromOSHA’sfallprotectionrequirements(exceptforrollingstocklocatedinsideofornexttoabuilding);and

– UndertheGDC,OSHAonlyrequiresadministrativecontrolstoreducefallhazards,whicharedistinct

from

thefallprotectionequipmentsoughtbytheSecretary

EricksonAir‐Crane‐

OSHRCDecision

EricksonAir‐CraneDecision

“[T]hepolicydescribedinthe[MilesMemo]regardingtheenforcementofsubpartD,thePPEstandard,andthegeneraldutyclauseasappliedtotankertrucks[or

railcars]thatarenotadjacenttoabuildingorstructureisconsistent–

theuseoffall

protectionequipmentisnotconsideredfeasibleandthus,arenotrequiredunder

anyoneoftheseprovisions.”

“[T]hepolicydescribedinthe[MilesMemo]regardingtheenforcementofsubpartD,thePPEstandard,andthegeneraldutyclauseasappliedtotankertrucks[or

railcars]thatarenotadjacenttoabuildingorstructureisconsistent–

theuseoffall

protectionequipmentisnotconsideredfeasibleandthus,arenotrequiredunder

anyoneoftheseprovisions.”

• TheEricksonAir‐CanedecisionreinforcedthattheMilesMemo:– RemainsOSHA’sbindingandofficialinterpretationofthelawasitrelatestofallprotectionontopofrollingstock;and

– Appliestocircumstancesbeyondjustgraininspectorswhohavetoinspectrailcarsdowntrack

• ThefactthatsomeOSHAAreaOfficescontinueissuingcitationscontrarytotheMilesMemodoesNOTchangethelaw

EricksonAir‐CraneDecision

• DespiteErickson

,someOSHAAreaOfficesstillissuecitationscontrarytotheMilesMemo– AdherencetotheMilesMemovariesbetweeneachareaoffice,region,andadministration

• Someonlyissuecitationsinsideloadingareascontiguoustotheelevator

• Othersissuecitationsoutsidetheloadingzone

OSHA’sEnforcementAgenda

• July2011:OSHAcitedUSDA’sFGISforlackoffallprotectionontopofrailcar– FGISperforminggraininspectionservicesatgrainfacilityinTexas

– FGISemployeesallegedlydidnot:• Conductproper“hazardassessments”beforeworkingontopofrailcars;and

• ReceiveadequatetraininginhowtousePPEwhileoncar

– Citationbasedonemployeeinterview

FGISCitation

• OSHAwithdrawrollingstockfallprotectioncitationbutkeptPPEtrainingcitations

• FGIShasagreedto:– Reviewandmodifyitsrollingstockfailprotectiontrainingprograms;

– Develop“scenarios”

thatincludedifferenttypesoffacilities,equipment,andoperationstodetermineiffallprotectionisfeasible;and

– Revisedemployeedirectiveduetobecompletedbytheendofthisyear(2013)

OSHA– FGISSettlement

• May24,2010:OSHApublishedNPRMtorevisetheWalkingWorkingSurfacesStandard

• NPRM:TheMilesMemo“didnotresultincleardirectiontothepublicortoOSHA”

• NotincludedonDOL's2013FallRegulatoryAgenda(i.e.,itisnotcomingsoon)

• OSHAalsoindicateditwouldproposeseparaterollingstockfallprotectionrule

NPRMWalking‐WorkingSurfaces

NPRMWalking‐WorkingSurfaces

1. Inyourestablishmentorindustry,howmanyorwhatpercentageofemployeesworkingontopofrollingstockareexposedtofallhazards?

2. Howaretheseemployeesprotectedfromfallhazardswhileworkingonsuchequipment?

3. Ifemployeetrainingontherecognitionoffallhazardsisprovided inyourworkplace,describethenatureandfrequencyofthetraining.

4.

Iffallprotectionequipmentisused,pleaseprovidedetailedinformationonthetypesandcostsofthefallprotectionusedonrollingstockandpleaseexplainhowitisused.

5. Iffallprotectionequipmentisnotused,pleaseexplainwhattechnologicaland/oreconomicobstaclestosuchusemaybeinvolved.

6. Aretherealternativemeanstoprotectemployeesfromfallhazardswhileworkingonrollingstock?Pleaseexplain.

7. Whatisyoursafetyexperiencew/fallhazardson/fromrollingstock?8. ShouldOSHAexcluderollingstockfromcoverageundersubpartD?

NPRMQuestionsre:RollingStockFallProtection

Performallrailcarworkunderfallprotectioniffeasible

Ifnotfeasible,providefallprotectionforworkonrailcarslocatednexttotheelevator

Forworkonrailcarsawayfromtheelevator,implementasetofadministrativecontrols,suchas:

– Blue‐flag/isolatetrackstoensurecarsarenotmovedwithworkersontop

– Employeesareprohibitedfromworkingontopofrailcarsininclementweather(snow/ice/highwinds)

– Trainemployeesonproperwaystoclimbontocars(i.e.,three‐pointsofcontactwithoutcarryinganything)

– Requireallworktobedonefromtherailcar’scatwalk

RecommendedPractices

PhotocourtesyofFallProtectionSystems,Inc.

Ifyoucannotperformallworkunderafallprotection system,document

aPPEHazardAssessmentthat:

• Recognizesthefallhazardforworkontopofrailcars;• Explainsthefacility’srailcarfallprotectionpolicy&administrativecontrolstoaddressthefallhazard

• Explainswhere/why/whenitisnotfeasibletousefallprotection

Considerhavingafeasibilityanalysisperformedundertheprotectionoftheattorney‐clientprivilege

Trainandenforcebydiscipline

Bepreparedtochallengecitations

RecommendedPractices

QUESTIONS?

PhotocourtesyofFallProtectionSystems,Inc.