UNITED STATES OF AMERICA
OCCUPATIONAL SAFETY AND HEALTH REVIEW COMMISSION
SECRETARY
OF LABOR, |
|
Complainant, |
|
v. |
OSHRC
DOCKET NO. 16235 |
TURNER
WELDING & ERECTION CO., INC., |
|
Respondent. |
|
June 18, 1980
DECISION
Before: CLEARY, Chairman; BARNAKO and COTTINE,
Commissioners.
COTTINE, Commissioner:
This
case is before the Commission for review under 29 U.S.C. § 661(i), § 12(j) of
the Occupational Safety and Health Act of 1970, 29 U.S.C. §§ 651–678 (‘the
Act’). In the proceedings below the Secretary alleged that the Respondent,
Turner Welding and Erection Co., Inc. (‘Turner’), failed to comply with the
safety standards published at 29 C.F.R. § 1926.28(a)[1]and 29 C.F.R.
1926.450(a)(9).[2]
Administrative Law Judge Jerry W. Mitchell vacated these citation items on the
basis that the violative conditions resulted from unpreventable employee
misconduct.[3]
The Secretary petitioned for review and review was granted.
I
The
citations in issue resulted from a November 17, 1975 inspection of a Turner
jobsite located on Interstate Highway 10, N.W., in San Antonio, Texas. Turner,
a subcontractor at the site, was responsible for the fabrication and erection
of concrete panels forming the base of a building under construction. Turner’s
president, Earl Achilles, testified about this method of construction. Panels
are lifted by crane and set onto pre-poured pads on the foundation. The panels
are not fastened to the pads, but are braced by ‘knee’ jacks in a vertical
position. In this process the panels are erected side by side to form the four
walls at the base of the building. Thereafter, a concrete floor is poured and
the panels are fastened to the foundation. Each panel measures approximately 15
feet wide, 29 feet high, and six-inches thick in its standing position and
weighs between 32,000 and 40,000 pounds.
The
allegedly violative condition occurred during the alignment stage of the
erection process. Alignment is accomplished after the panels are lifted into
position. First, the panel at each end of the wall is plumbed straight with a
leveling instrument. A member of the work crew then stands on a ladder or
platform at one end of the wall and ‘sights’ down the length of the wall. The
rest of the crew on the ground adjusts the position of the panels. This
procedure is repeated several times until the foreman considers the wall to be
straight. Turner had employed this type of panel erection procedure in only
five or six of the 800 erection jobs it had performed prior to the hearing in
this case.
On
the day of the inspection, Turner had five employees at the jobsite, including
Mike Castillo, a laborer, and Fred Leal, the foreman. The compliance officer
testified that upon arrival at the site he observed Castillo standing
unprotected atop the 29 foot-high, six-inch wide wall. He also observed an
extension ladder leaning against the wall. The top of the ladder was
approximately two rung spaces below the top of the wall. According to Leal,
prior to the date of inspection sighting had been either his responsibility or
that of Achilles. On this particular occasion, Leal decided to stay on the ground
to assist in bracing the panels, and he instructed Castillo to perform the
sighting work. Leal testified that he did not give Castillo specific
instructions regarding how the job was to be performed and that Castillo had
never sighted panels prior to that date. In addition, Leal testified that his
attention was concentrated on the bottom of the wall where the crew was bracing
the individual panels and that he did not observe Castillo atop the panel until
shortly before the compliance officer arrived at the site. However, upon seeing
Castillo atop the wall, Leal did not order him to descend, and Castillo did not
descend until the compliance officer informed Leal of the alleged violation.
Castillo
testified that he used the ladder to gain access to the panel top and that he
thought he would be able to sight the panels more accurately by standing above
a joint where two panels met. According to his testimony, he was atop the wall
for approximately ten minutes, walking back and forth along 20 to 25 feet of its
length, alternately standing and squatting.
Turner
was cited for failing to require its employee to use personal protective
equipment and for failing to provide a ladder that extended not less than 36
inches above the landing, alleged violations of §§ 1926.28(a) and
1926.450(a)(9), respectively. In his May 4, 1977 decision, Judge Mitchell
vacated both items, finding that the violations were the result of an ‘isolated
occurrence.’ Based upon Leal’s testimony, the judge round that industry
practice calls for sighting to be accomplished from a ladder so that the
employee’s line of vision is level with the entire length of the panel tops. He
reasoned that Turner could not reasonably have expected Castillo to climb atop
the panels because Castillo had not been instructed to work on the panel tops
and because the job would actually be more difficult to accomplish from that
position.
II
Citation
number 2 alleges a serious violation of the Act for noncompliance with § 1926.28(a)
in that Turner failed to require the use of personal protective equipment by an
employee exposed to a fall of 29 feet. Under Commission precedent, the
Secretary has the burden under § 1926.28(a) of establishing the existence of a
hazardous condition warranting the use of personal protective equipment and
identifying the appropriate form of personal protective equipment. S & H
Riggers and Erectors, Inc, 79 OSAHRC 23/A2, 7 BNA OSHC 1260, 1979 CCH OSHD
¶ 23,480 (No. 15855, 1979), appeal filed, No. 79–2358 (5th Cir. June 7,
1979). In this case, the Secretary met his prima facie burden by establishing
that Turner’s employee was exposed to a fall hazard and by identifying safety
belts, lanyards, or lifelines as appropriate forms of personal protective equipment.
In response, Turner argues that the exposed employee should have been
positioned on a ladder and that his failure to use a ladder was violative of
company policy. Turner does not argue that Castillo was not exposed to a
hazardous condition, nor does Turner challenge the feasibility of the personal
protective equipment identified by the Secretary. However, a review of the
record, including photographs introduced into evidence by the Secretary that
depict the panels in issue, reveals that neither safety lines nor safety belts
could have been attached to the wall panels. Where the record indicates that
the identified form of personal protective equipment is inappropriate under the
cited conditions, the Secretary’s prima facie case has been successfully
rebutted. Accordingly, Turner cannot be found in violation of § 1926.28(a).
Turner’s
defense that Castillo should have been positioned on a ladder, however, raises
the issue of whether Turner was in noncompliance with safety standards
requiring the use of a ladder as a method of protection when employees are
exposed to fall hazards. The construction safety standard published at 29
C.F.R. § 1926.105(a)[4] requires fall protection
to be provided for workers who are exposed to fall hazards of more than 25 feet.
A prima facie violation of § 1926.105(a) is established when an employee
is exposed to a fall of more than 25 feet and none of the devices listed in §
1926.105(a) are used. S. & H. Riggers, supra, 7 BNA OSHC at 1261
n.7, 1979 CCH OSHD at p. 28,434 n.7, and cases cited therein. A ladder is one
of the fall protection devices enumerated in § 1926.105(a). A ladder was
available but was not used to prevent employee exposure to the 29 foot fall
hazard. Nor was any other method of employee protection used. Accordingly, the
evidence of record establishes a prima facie failure to comply with the
requirements of § 1926.105(a), and we must determine whether an amendment of
the pleadings to conform to the evidence is appropriate.
III
Rule
15(b) of the Federal Rules of Civil Procedure requires amendment of the
pleadings when issues not specifically raised by the pleadings are nevertheless
tried by the express or implied consent of the parties.[5] The Federal Rules are made
applicable to Commission proceedings by 29 C.F.R. § 2000.2(b).[6] It is well settled, in
accordance with the Federal Rules, that pleadings before the Commission should
be liberally construed and easily amended. Bill C. Carroll Company, ___
OSAHRC ___, 7 BNA OSHC 1806, 1979 CCH OSHD ¶ 23,940 (No. 76–2748, 1979); Rogers
Manufacturing Co., ___ OSAHRC ___, 7 BNA OSHC 1617, 1979 CCH OSHD ¶ 23,800
(No. 76–896, 1979); Usery v. Marquette Cement Manufacturing Co., 568
F.2d 902 (2nd Cir. 1977); see generally National Realty Corp. v. OSAHRC,
489 F.2d 1257 (D.C. Cir. 1973). Because neither party in this case expressly
consented to try an alleged violation of § 1926.105(a), the appropriate inquiry
is whether the parties impliedly consented to try the charge.[7] See Bill C. Carroll
Company, supra; Kaiser Aluminum & Chemical Corp., 76 OSAHRC
52/C10, 5 BNA OSHC 1180, 1977–78 CCH OSHD ¶21,692 (No. 3685, 1977), appeal
dismissed, No. 77–2280 (9th Cir. June 12, 1978).
Where,
as here, an amendment changes the legal theory, consent will be implied
whenever the cited employer has not objected to the introduction of evidence
relevant to the unpleaded charge and prejudice would not result from the
amendment. Rogers Manufacturing, supra; John & Roy Garlstrom
d/b/a Carlstrom Brothers Construction, 7. OSAHRC 96/A2, 6 BNA OSHC 2101,
1978 CCH OSHD ¶ 23, 155 (No. 13502, 1978). Prejudice is determined on the basis
of whether the employer had a fair opportunity to defend against the
Secretary’s evidentiary case and whether the employer could have offered any
additional evidence if the case had been tried under the amended charge.[8] Rogers Manufacturing Co.,
supra; John & Roy Carlstrom, supra.
In
the instant case, the testimony of the compliance officer and of Turner’s
employees focused on the factual allegation that Turner’s employee was exposed
to a fall hazard of 29 feet, was unprotected at that height, and under company
policy should have remained on the ladder. Turner did not object to any
evidence in support of that allegation and did not attempt to refute it.
Rather, Turner admitted its employee was exposed to a fall hazard, introduced
the issue concerning the use of a ladder, but sought to be relieved of
liability by adducing other evidence that would support the affirmative defense
of unpreventable employee misconduct. In addition, no other defenses are
available to Turner with respect to the merits of the amended charge. It would
be anomalous for Turner to rely on either a ‘greater hazard’ or ‘impossibility
of compliance’ defense because Turner’s basic contention is that the exposed employee
should have been positioned on a ladder to begin with. Turner’s ‘unpreventable
employee misconduct’ defense was considered by the judge and is reviewed later
in this decision. Accordingly, Turner is not prejudiced in the presentation of
its case by an amendment from § 1926.28(a) to § 1926.105(a) under Fed. R.
Civ. P. 15(b). Therefore, the record indicates that issues relevant to the use
or non-use of the ladder as a method of fall protection were tried by the
parties and were fully defended by Turner. Accordingly, an amendment under Fed.
R. Civ. P. 15(b) to allege noncompliance with § 1926.105(a) is appropriate.
IV
Turner
maintains that the cited violative conduct resulted from the exposed employee’s
failure to follow proper work practices. In order for the affirmative defense
of unpreventable employee misconduct to prevail, an employer must establish
that it had safety rules designed to prevent the violation and the rules were
adequately communicated to its employees and effectively enforced. Jensen Construction
Co., 79 OSAHRC 49/D3, 7 BNA OSHC 1477, 1979 CCH OSHD ¶23,664 (No. 76–1538,
1979); Niagara Mohawk Power Corp., 79 OSAHRC 36/A2, 7 BNA OSHC 1447,
1979 CCH OSHD ¶ 23,670 (No. 76–2414, 1979). The defense fails where there is no
evidence of work rules, safety instructions, or employee training designed to
prevent employee exposure to a cited hazard. Brown & Root, Inc., 79
OSAHRC 20/A2, 7 BNA OSHC 1215, 1979 CCH OSHD ¶23,435 (No. 13685, 1979), appeal
filed, No. 79–2224 (5th Cir. May 21, 1979).
The
evidence in this case establishes that Turner failed to provide instruction to
an employee of limited experience who was assigned a task that he had not
performed previously. An employer cannot escape liability under the Act by
relying on the judgment of employees who are inadequately trained in safe work
procedures. See Butler Line and Cement Co., ___ OSAHRC ___, 7 BNA OSHC
1973, 1979 CCH OSHD ¶24,091 (No. 855, 1979), appeal filed, No. 80–1121 (7th Cir
Jan. 31, 1980). The employer’s duty extends to ensuring that employees
understand proper safety procedures. General Dynamics Corp., Quincy
Shipbuilding Division v. OSAHRC, 599 F.2d 453 (1st Cir. 1979). Accordingly,
Turner’s defense based on the assertedly unpreventable conduct of its employee
is rejected and a violation of § 1926.105(a) is affirmed.[9]
V
We
reach a different conclusion with respect to Citation No. 1, item 1, which
alleged noncompliance with § 1926.450(a)(9). The cited standard requires that
ladder side rails extend at least 36 inches above the landing or that grab
rails be installed so that a secure grip is available for an employee climbing
from the ladder onto the landing. If a ladder is used as a fall protection
device under § 1926.105(a) rather than as a means of access to an elevation,
the employee would not climb onto the landing and the extension or grab rails
would not be necessary. In this case, the alleged violations of § 1926.105(a)
and § 1926.450(a)(9) are mutually exclusive. Accordingly, the judge’s vacation
of Citation No. 1, item 1 is affirmed.
VI
In
assessing penalties under the Act the Commission must take into consideration
the employer’s history, its good faith, the size of its business and the
gravity of the violation. 29 U.S.C. § 666(i). The Respondent in this case was
inspected on one previous occasion and was cited for an unrelated nonserious
violation that was not contested. Good faith was demonstrated by the foreman in
cooperating fully with the compliance officer and in immediately removing the
exposed employee from danger. Respondent’s business is small, with an annual
gross income of approximately $200,000. Finally, although the likely result of
an accident resulting from this hazard would be death or serious injury, only
one employee was exposed to the fall hazard and his exposure was brief in
duration. Considering the foregoing criteria, we conclude that the Secretary’s
proposed penalty of $600 is excessive and that a penalty of $150 is
appropriate.
VII
Although
we conclude that the issue of whether Turner was in violation of § 1926.105(a)
has been tried by the parties and that the record establishes a violation of
that standard, we recognize that Turner has not had an opportunity to
specifically demonstrate whether it would be prejudiced by this amendment.
Therefore, we will affirm a citation for a serious violation of § 1926.105(a)
and assess a penalty of $150 unless within ten days from the date of this
decision Turner requests reconsideration on the ground that it has been
prejudiced by the amendment to the citation. In the event a motion for
reconsideration of the amendment is received, we will allow the parties an
opportunity to brief this issue and will reconsider our order in light of the
arguments and affidavits presented.
It is so ORDERED.
FOR THE COMMISSION:
RAY H. DARLING, JR.
EXECUTIVE SECRETARY
DATED: JUN 18, 1980
BARNAKO, Commissioner, dissenting:
I
agree with my colleagues that Turner Welding and Erection Company did not
violate 29 C.F.R. § 1926.28(a) by permitting an employee to stand on the top of
29-foot high concrete panels.[10] However, I do not agree
that a violation of 29 C.F.R. § 1926.105(a) was tried by express or implied
consent of the parties.[11] Therefore, amendment of
the pleadings to find a violation of that standard is improper. Thus, I would
affirm the judge’s vacation of the citation for alleged violation of 29 C.F.R.
§ 1926.28(a) and would not find Turner in violation of 29 C.F.R. § 1926.105(a).[12]
My
views concerning establishment of a violation of 29 C.F.R. § 1926.28(a) are set
forth in my concurring opinion in S. & H Riggers & Erectors, Inc.,
79 OSAHRC 23/A2, 7 BNA OSHC 1260, 1979 CCH OSHD ¶23,480 (No. 15855, 1979), appeal
docketed, No. 79–2358 (5th Cir. June 7, 1979). As I noted there, I would
find that a hazard within the meaning of § 1926.28(a) exists if a
reasonable person familiar with the cited employer’s industry would recognize
the cited condition as constituting a hazard. Here, one of Turner’s employees
stood without protective equipment on the top edge of concrete panels which
were only six inches wide and were about 27 feet above the ground. I find that
these circumstances present an obvious fall hazard within the meaning of §
1926.28(a). See Forest Park Roofing Co., 80 OSAHRC ——, 8 BNA OSHC 1181,
1186, 1980 CCH OSHD ¶24,344 (No. 76–1884, 1980) (concurring opinion), and cases
cited therein.
As I
also noted in S. & H. Riggers, supra, an additional element in
establishing a violation of § 1926.28(a) is demonstrating that another standard
contained in 29 C.F.R. Part 1926 indicates the need for using the protective
equipment which the Secretary asserts should have been used by Respondent’s
employees. Here the Secretary asserts that Respondent’s employees should have
used safety belts. The standard at 29 C.F.R. § 1926.104 establishes
specifications for safety belts, lanyards, and lifelines and thereby places
employers on notice that use of such equipment constitutes an appropriate means
of protecting against fall hazards. Thus, fall hazards for which such equipment
provides appropriate protection may be cited under § 1926.28(a).
Finally,
to establish a violation of § 1926.28(a) the Secretary must demonstrate that
there is a feasible means of protecting against the cited hazard through the
use of personal protective equipment. The Secretary failed to do so here. He
put forth no evidence to show how a safety belt and lanyard system could have
been installed on the top edge of the upright concrete panels. Moreover, the
photographic evidence shows that safety lines or belts could not have been
anchored to the panels so as to protect and employee working on top of them and
that there were no other adjacent structures to which such equipment could have
been anchored. Therefore, a violation of § 1926.28(a) was no shown.
Unlike
the majority, I would not amend the citation and complaint to find Turner in
violation of a different standard, 29 C.F.R. § 1926.105(a), for failing to
require an employee to work from a ladder rather than on top of the concrete
panels. My colleagues err in finding trial of this new charge on the basis of
implied consent of the parties, since the evidence concerning use of a ladder
on which they base their amendment was introduced as part of Turner’s defense
to the § 1926.28(a) charge and was relevant to that charge.[13] As the court of appeals
stated in reversing my colleagues in McLean-Behm Steel Erector, Inc. v.
OSHRC, 608 F.2d 580, 582 (5th Cir. 1979), ‘the unchallenged admission of
evidence relevant to both pleaded and unpleaded issues does not imply consent
to trial of the unpleaded issues, absent some obvious attempt to raise a new
issue.’ There was no attempt, obvious or otherwise, to raise the § 1926.105(a)
charge at trial here.
My
colleagues’ amendment to find violation of a different standard is premised
also on their determination that Turner could not have offered any additional
evidence if the case had been tried on the amended charge. It is unclear how
they can purport to divine whether Turner could have offered other evidence had
it actually been charged with the violation which they find it committed. Thus,
this basis for amendment is uncertain at best.
For
these reasons, I would affirm the judge’s holding vacating the alleged
violation of 29 C.F.R. § 1926.28(a) and would not amend the citation and
complaint to find a violation of 29 C.F.R. § 1926.105(a).
UNITED STATES OF AMERICA
OCCUPATIONAL SAFETY AND HEALTH REVIEW COMMISSION
SECRETARY
OF LABOR, |
|
Complainant, |
|
v. |
OSHRC
DOCKET NO. 16235 |
TURNER
WELDING & ERECTION CO., INC., |
|
Respondent. |
|
May 4, 1977
Appearances:
James F. Gruben, Esquire,
Dallas, Texas for Complainant.
Earl S. Achilles,
President of Turner, Welding & Erection Co., Inc., Ballad, Texas for
Respondent.
There was no
appearance by or on behalf of any affected employees.
STATEMENT
OF THE CASE
Jerry W. Mitchell, Judge
This is a proceeding pursuant to Section 10 of the
Occupational Safety and Health Act of 1970 (29 U.S.C. § 651 et seq.) contesting
a Citation issued against Turner Welding & Erection Co., Inc. (Respondent)
by the Secretary of Labor (Complainant) under the authority vested in
Complainant by Section 9(a) of the Act.
A place of business and employment under the operation
and control of Respondent, described as ‘Steel erection’ located at 7500 I.H.
10 N.W., San Antonio, Texas, was inspected by a representative of the Secretary
of Labor on 17–19 November 1975. During that inspection alleged violations of
three separate safety standards were noted. As a result of the inspection
Citation Number 1 (Non-serious, 2 Items) and Citation Number 2 (Serious, 1
Item) were issued to Respondent on 3 December 1975. The safety standards
allegedly violated were promulgated by the Secretary of Labor pursuant to
Section 6 of the Act.
Pursuant to the enforcement procedure provided in Section
10(a) of the Act, Respondent was duly advised by a Notice of Proposed Penalty
dated 3 December 1975 of the proposal to assess penalties of $50 and $600 in
connection with Citations Number 1 and Number 2, respectively. In a timely
manner Respondent filed a letter contesting these citations and proposed
penalties.
The alleged violations are described in the citations in
the following language with the cited safety standards quoted immediately
thereafter:
Citation Number 1 |
|
|
Item 1—29 CFR 1926.450(a)(9) |
Ladder at the following location was not
positioned so that the side rails extended at least 36 inches above the
landing and there were no grab rails provided: One portable ladder located on the
southeast corner of the south wall did not extend 36 inches above the
landing. |
ABATE—‘one day upon receipt of this
citation’ |
Item 2—28 CFR 1926.450(a)(10) |
‘Portable ladder being used at the
following location was not tied, blocked or otherwise secured to prevent
displacement: One portable ladder located on the
southeast corner of the south wall was not secured. |
ABATE—‘one day upon receipt of this
citation’ |
Citation Number 2 |
|
|
Item 1—29 CFR 1926.28(a) |
Employer did not require employees to
wear appropriate personal protective equipment: One man exposed to a fall of 29 feet
from the top of the south wall. |
ABATE—‘immediately upon receipt of this
citation’ |
SAFETY STANDARDS—29 CFR
Subpart C—General
Safety and Health Provisions
1926.28 Personal
protective equipment.
(a) The employer
is responsible for requiring the wearing of appropriate personal protective
equipment in all operations where there is an exposure to hazardous conditions
or where this part indicates the need for using such equipment to reduce the
hazards to the employees.
Subpart L—Ladders
and Scaffolding
§ 1926.450 Ladders.
(a) General
requirements.
(9) The side rails
shall extend not less than 36 inches above the landing. When this is not
practical, grab rails, which provide a secure grip for an employee moving to or
from the point of access, shall be installed.
(10) Portable
ladders in use shall be tied, blocked, or otherwise secured to prevent their
being displaced.
Complaint
was duly filed but Respondent did not answer until after he was served with an
Order to show cause why his Notice of Contest should not be dismissed for
failure to answer the complaint. His answer was filed pro se. Trial was held at
San Antonio, Texas.
PROCEEDINGS
AND EVIDENCE
When the trial convened Complainant was represented by
counsel and Respondent by its President, appearing pro se. At this time
Complainant withdrew its previously filed motion to affirm the citations and
proposed penalties. The parties entered into a stipulation on the record that
the welding equipment, cranes, etc., used by Respondent were from outside the
State of Texas. Jurisdiction was stipulated to at this time.
Complainant presents its case through the testimony of
three witnesses. Respondent’s President (Earl S. Achilles) states that he had a
superintendent (Fred Leal) in charge at the construction site at the time of
the inspection. Four men were working under that superintendent’s direction. He
describes the work being done and the equipment in use. The men were erecting
prefabricated concrete panels. Each panel was approximately 15 feet wide and 29
feet high when standing erect. He also describes the physical layout of the
worksite.
One of Respondent’s employees (Mike Castillo) describes
the work he was doing at the time of the inspection. He admits that there was
no life line or any other safety device on top of the wall where he was
working. He states that he walked along the top of the wall (panels) for 20 to
25 feet. The top of the wall was 6 inches wide and smooth.
The Compliance Officer (Charles W. McGlothlin) testifies
concerning his inspection of Respondent’s work place. He describes the work in
progress when he arrived and identifies the hazards involved. No safety nets
were present at the worksite. The employee (Castillo) on top of the wall was
not wearing any safety equipment.
Respondent presents its case through the testimony of its
Superintendent (Fred Leal) who was in charge of Respondent’s employees at the
time of the inspection. He describes the work in progress and states that he
did not send Castillo to the top of the wall. Castillo was instructed to sight
along the panels from the ladder. This witness was personally working with the
jacks being used to align the panels.
Respondent’s President testified as the final witness.
His testimony is that the ladder was not used for access to the top of the
panels. Its sole use was to permit Castillo to bring his eye to the level of
the top of the panels so as to align them. He admits that Castillo was not
wearing safety gear and insists he did not need the gear because he was not
supposed to be on top of the panels. Respondent’s gross annual business is
about $200,000.
Subsequent to receipt of the transcript Complainant filed
proposed Findings of Fact and Conclusions of Law. Respondent has not submitted
anything further.
DISCUSSION
JURISDICTION—
Respondent admits on the record that the welding
equipment, cranes, etc., in use were from outside the state of Texas.
Jurisdiction is stipulated.
THE VIOLATIONS—
Citation Number 1—Item 1—This Item alleges that the
ladder in use did not extend 36 inches above the ‘landing’ and was not fitted
with ‘grab rails’.
The evidence clearly shows that the ladder in use did not
extend above the top of the wall panels and was not fitted with any ‘grab
rails’. However, the evidence also establishes that the sole intended use of
the ladder was for a platform from which a man could sight along the panels so
as to align them. The ladder was not for use as access to the top of the panels
as a working position.
It is obvious from Exhibit 3 that the ladder was of
sufficient length to satisfy this intended use. If the man on the ladder in
Exhibit 3 were standing so as to sight along the top, rather than climbing down
from on top of the panels, his feet would be at least 2 and possibly 3 rungs
lower on the ladder. Such a lower position is clearly within safe and adequate
reach of the side rails. In the lower position the side rails would extend at
least 36 inches above the position of his feet and thereby satisfy the
requirements of the standard. The actual use of the ladder to gain the top of
the panels was an isolated occurrence (see discussion under Citation Number 2
below) and does not constitute a violation of the cited standard for which
Respondent should be held responsible.
Citation Number 1—Item 2—This Item alleges that the
ladder in use was not ‘. . . tied, blocked, or otherwise secured to prevent
displacement. . .’.
It is clear from the evidence that the ladder was not
tied or blocked. (See Exhibit 4.) There is some indication in the record that
another employee may have held the ladder while Castillo climbed it and again
while he descended. But it is absolutely clear that no one was holding the
ladder while he was sighting from it to align the panels. The other 4 men
present (including the Superintendent) were all adjusting jacks on the braces
while aligning the panels. At the same time Castillo was calling instructions
on how to move the panels. The Superintendent was facing so that the other 3
men were in his view. He should have known that no one was holding the ladder.
Complainant has established the existence of this violation.
Citation Number 2—This Citation alleges that an employee
was exposed to a fall of 29 feet from the top of a wall without being required
to wear appropriate personal protective equipment.
The evidence establishes the location of the employee
(Castillo) on top of the wall while not wearing any personal protective
equipment. It also shows, however, that Castillo was only instructed to go up
the ladder to align the panels. He was not told to go on top of them and it was
not necessary for him to do so. In fact, it was actually more difficult to
align from a position on top. Castillo unexpectedly took it upon himself to
climb on top of the panels.
Complainant urges that Respondent’s Superintendent knew
or at least should have known, that Castillo was on the panel top. The evidence
does not clearly establish this. The manner in which the work of plumbing the
panels was being done required that all of the Superintendent’s attention be
focused on the jacks in use on the braces. There was no reason for him to look
higher. Likewise, there was no reason for the Superintendent to anticipate that
Castillo would leave the ladder. He had been with Respondent for 3 years and
was apparently considered to be reliable. In addition, it is common practice
that aligning panels is always accomplished from a ladder where the eye is
level with the top of the panels—not from a position on top of them.
In short, it appears that Respondent did not and could
not reasonably have known that Castillo would climb to the top as opposed to
properly remaining on the ladder. The facts in this record are sufficient to
establish that this was indeed an ‘isolated occurrence’ within the holding of
the Commission’s decision in Secretary v. Murphy Pacific Marine Salvage Co.,
15 OSAHRC 1 (1975). The evidence is sufficient in extent to sustain
Respondent’s burden on this affirmative defense. The conclusion here is that
the presence of Castillo on top of the wall is an isolated occurrence which
Respondent could not have reasonably anticipated or foreseen.
APPROPRIATE PENALTY—
In determining the appropriateness of any penalty to be
assessed in connection with the violation proven in connection with Item 2 of
Citation Number 1 it is necessary to give due consideration to the criteria
history, size of business, good faith and gravity) set forth in section in
Section 17(j) of the Act.
1. Respondent had been inspected on 1 previous occasion
and cited for a hard hat violation.
2. Respondent’s business is very small. One
Superintendent and 4 other employees were at the work place. Respondent’s gross
annual business is about $200,000.
3. There is no indication of any lack of good faith. The
Superintendent cooperated fully and immediately removed the man from danger.
4. Only one employee was exposed to the hazard of the
unsecured ladder and his exposure was not long in duration.
Consideration of the foregoing criteria leads to the
conclusion here that a penalty of $25 is appropriate under these circumstances.
Consequently, based upon the evidence adduced, the
arguments made, and the brief submitted, we make the following:
FINDINGS
OF FACT
1. On 17 November 1975 and at all times material hereto
Turner Welding & Erection Co., Inc., Respondent herein, was engaged in the
construction industry at a work place at San Antonio, Texas. Welding equipment,
cranes, etc., in use at the work place were from outside the state of Texas.
Five employees were working at the inspected work place. Respondent was engaged
in a construction business affecting commerce. (Transcript pgs 10–15 and
23–25.)
2. On 17 November 1975 a Compliance Safety and Health
Officer inspected Respondent’s work place at San Antonio, Texas on behalf of
the Secretary of Labor. As a result of that inspection two Citations were
issued to Respondent on 3 December 1975. The Notification of Proposed Penalty
issued to Respondent on that same date sought penalties of $50 and $600,
respectively. Respondent contested the Citations and proposed penalties in a
timely manner on 18 December 1975. (File and Transcript pgs 18–19.)
3. On 17 November 1975 Respondent’s employees were
plumbing and aligning prefabricated concrete panels in an upright position.
Each panel was about 15 feet wide and 29 feet long (high) and weighed between
30,000 and 40,000 pounds. The top of the wall was about 6 inches wide and
smooth surfaced. They were raised into vertical position with a crawler-type
crane and held there by braces. Screw jacks, incorporated in the braces, were
used to plumb and align the panels. (Transcript pgs 18–24, 39–41, 67–71, 78–82
and Exhibits 1, 2, 3, and 4.)
4. Final aligning of the panels requires that someone
climb a ladder located at one end of the series of panels and sight along their
top. This person then gives instructions to the men on the ground so that they
can adjust the jacks until the panels are aligned. Sighting along the tops of
the panels is done with the eye level with the tops. The sighting is done from
a ladder—not from on top of the panels. (Transcript pgs 21–29, 33–34, 37–42,
67–74, 78–98, 102–104 and Exhibit 3.)
5. Respondent’s employee (Castillo) was instructed by the
Superintendent to go up on the ladder and sight along the panels. Castillo was
not told to go on top of the panels. There was no need for him to climb on top
in order to direct the aligning of the panels. Castillo climbed on top of the
panels of his own volition and walked along the top for about 20 to 25 feet. He
was on top of them in a position approximately 29 feet above the ground for
about 10 minutes. He was not wearing or protected by any personal protective
equipment. (Transcript pgs 32–42, 44–59, 67–74, 77–98, 101–104 and Exhibits 1,
2, and 3.)
6. Castillo climbed a ladder to sight along the panels
for aligning. The ladder did not reach all of the way to the top of the panels
but was adequate in length to put him in position to sight along the tops of
the panels. If he had remained at the height on the ladder where his eye was
level with the top of the panels his position would have been such as to have
the ladder’s side rails project more than 36 inches above the level of his
feet. (Transcript pgs 25–26, 33–42, 67–72, 83–92, 101, and Exhibit 3.)
7. The bottom of the ladder used by Castillo was not tied
or blocked. The bottom of the ladder was held by another employee while
Castillo ascended and during part of his descent. It was not held by anyone
during the time he was sighting along the wall or during part of the time he
was descending. (Transcript pgs 34–38, 42, 59, 95, and Exhibit 4.)
8. It was not necessary for Castillo to climb on top of
the panels to do the aligning. There was no reason for the Superintendent to
anticipate that Castillo would leave the usual aligning position on the ladder
for the top of the panels. (Transcript pgs 22–24, 38–42, 67–73, 76–98, 101, and
Exhibit 3.)
9. There is no showing that Respondent’s Superintendent
was negligent in sending Castillo to do the aligning or that he should have
observed Castillo climb on to the top of the panels. (Transcript pgs 42, 69–82,
97, and 103–104.)
10. Respondent’s business grossed $200,000 annually.
(Transcript pg 107.)
From the foregoing Findings of Fact we now make and enter
the following:
CONCLUSIONS
OF LAW
1. At all times material hereto Turner Welding &
Erection Company, Inc., Respondent herein, was an employer engaged in a
construction business affecting commerce within the meaning of Section 3 of the
Occupational Safety and Health Act of 1970. On 24 December 1975 Respondent
filed a letter contesting the Citations and penalties involved here. Respondent
thereby brought itself and the subject matter of this proceeding within the
jurisdiction of the Occupational Safety and Health Review Commission pursuant
to Section 10 of the Act.
2. The side rails of the ladder covered by Item 1 of
Citation Number 1 did project at least 36 inches above the place where it was
intended that a user’s feet should be located in the normal use of the ladder.
The circumstances found in Finding 6 do not constitute a violation of 29 CFR
1926.450(a)(9).
3. Respondent’s failure to tie, block or otherwise secure
the bottom of the ladder as found in Finding 7 is a non-serious violation of 29
CFR 1926.450(a)(10).
4. The presence of Respondent’s employee on top of the
wall, 29 feet above the ground, without any personal protective equipment or
nets as found in Finding 5 was an isolated brief occurrence. Respondent was NOT
in violation of 29 CFR 1926(a). as alleged in Citation Number 2.
ORDER
Based upon the foregoing Findings of Fact and Conclusions
of Law and for good cause shown, it is
ORDERED that:
1. Item 1 of Citation Number 1 be, and the same hereby
is, VACATED;
2. Item 2 of Citation Number 1 be, and the same hereby
is, AFFIRMED;
3. Citation Number 2 and the penalty proposed therefor
be, and the same hereby are, VACATED; and that
4. A penalty of $25 be, and the same hereby is, ASSESSED
in connection with the violation of 29 CFR 1926.450(a)(10) as set forth in Item
2 of Citation Number 1.
JERRY W. MITCHELL
Judge, OSHRC
DATED: May 4, 1977
OSHRC, San Francisco, CA
[1] Section
1926.28(a) provides:
§
1926.28(a) Personal protective equipment.
(a)
The employer is responsible for requiring the wearing of appropriate personal
protective equipment in all operations where there is an exposure to hazardous
conditions or where this part indicates the need for using such equipment to
reduce the hazards to the employees.
[2] Section
1926.450(a)(9) provides, in pertinent part:
§
1926.450 Ladders.
(a)
General requirements.
(9)
The side rails shall extend not less than 36 inches above the landing. When
this is not practical, grab rails, which provide a secure grip for an employee
moving to or from the point of access, shall be installed.
[3] Although the
judge used the phrase ‘isolated occurrence,’ rather than ‘unpreventable
employee misconduct,’ we consider the two to be indistinguishable. See, e.g., Jensen
Construction Co., 79 OSAHRC 49/D3, 7 BNA OSHC 1477, 1478 n. 4, 1979 CCH
OSHD ¶23,664, at p. 28,694 n. 4 (No. 76–1538, 1979); Briscoe Arace/Conduit,
a Joint Venture, 77 OSAHRC 35/C13, 5 BNA OSHC 1167, 1977–78 CCH OSHD ¶
21,631 (No. 12135, 1977).
[4] Section
1926.105(a) provides:
§
1926.105 Safety nets.
(a)
Safety nets shall be provided when workplaces are more than 25 feet above the
ground or water surface, or other surfaces where the use of ladders, scaffolds,
catch platforms, temporary floors, safety lines, or safety belts is
impractical.
[5] The Rule
provides, in pertinent part:
Rule 15. Amended and Supplemental
Pleadings
(b)
Amendments to Conform to the Evidence. When issues not raised by the pleadings
are tried by express or implied consent of the parties, they shall be treated
in all respects as if they had been raised in the pleadings. Such amendment of
the pleadings as may be necessary to cause them to conform to the evidence and
to raise these issues may be made upon motion of any party at any time, even
after judgment; but failure so to amend does not affect the result of the trial
of these issues. . . .
[6] 29 C.F.R. §
2000.2 Scope of Rules; applicability of Federal Rules of Civil Procedure.
(b)
In the absence of a specific provision, procedure shall be in accordance with
the Federal Rules of Civil Procedure.
[7] Although the
question of amendment to § 1926.105(a) was raised by the Secretary in his
Petition for Discretionary Review, the Secretary did not specifically move to
amend.
[8] If the evidence
admitted without objection is relevant to prove both the original and amended
charges, consent will not be implied unless it is determined that additional
relevant and material evidence in defense of the amended charge could not have
been adduced. See, e.g., Bill C. Carroll Co., supra, 7 BNA OSHC at 1810
n.11, 1979 CCH OSHD at p. 29,032 n. 11.
[9] The judge made a
credibility determination that Leal did not know of Castillo’s presence atop
the panels. However, this determination is unsupported by the weight of the
evidence. Foreman Leal testified as follows:
Q:
So you told him to get down after Mr. McGlothlin came up, did you?
A:
As soon as he mentioned the fact I told him to get down.
Q:
But you had seen him up there before Mr. McGlothlin got there. Is that a fact?
A:
Yes, sir.
Hearing Transcript at 69–70.
Accordingly, we reject the judge’s determination, see Okland Construction Co.,
76 OSAHRC 30/F4, 3 BNA OSHC 2023, 1975–76 CCH OSHD ¶20,441 (No. 3395, 1976),
and find that Turner’s foreman had actual knowledge of Castillo’s presence on
the panel tops. A supervisor’s knowledge, whether actual or constructive, is
imputable to his employer. Niagara Mohawk Power Corp., supra. Even
without the finding of actual knowledge, the instant record establishes that
the foreman could have known of the violation with the exercise of reasonable
diligence. Niagara Mohawk Power Corp., supra.
[10] 29 C.F.R. §
1926.28(a) states:
Personal
protective equipment.
(a)
The employer is responsible for requiring the wearing of appropriate personal
protective equipment in all operations where there is an exposure to hazardous
conditions or where this part indicates the need for using such equipment to
reduce the hazards to the employees.
[11] 29 C.F.R. §
1926.105(a) states:
Safety
nets.
(a)
Safety nets shall be provided when work-places are more than 25 feet above the
ground or water surface, or other surfaces where the use of ladders, scaffolds,
catch platforms temporary floors, safety lines, or safety belts is impractical.
[12] I would affirm
the citation charging Turner with violation of 29 C.F.R. § 1926.450(a)(9), in
that a ladder used by an employee did not extend 36 inches above the top of the
concrete panel and grab rails were not installed. For the reasons stated by my
colleagues, I reject the argument that this violative condition was caused by
unpreventable employee misconduct.
[13] Since turner also was charged with two violations concerning the ladder, evidence regarding the ladder also was introduced in relation to these charges. As noted in note 3, supra, Turner was charged with violating 29 C.F.R. § 1926.450(a)(9) for failure of the ladder to extend 36 inches above the panel. Also Turner was charged with violating 29 C.F.R. § 1926.450(a)(10) for not having the ladder secured. The latter violation was affirmed by the judge and is not before the Commission on review.