SECRETARY OF LABOR, Complainant, v. NU-WAY MOBILE HOME MANUFACTURING, INC., Respondent. OSHRC Docket No. 80-7082 _DECISION _ Before: BUCKLEY, Chairman; RADER and WALL, Commissioners. BY THE COMMISSION: This case is before the Occupational Safety and Health Review Commission under 29 U.S.C. § 661(i), section 12(j) of the Occupational Safety and Health Act of 1970, 29 U.S.C. §§ 651-678 ("the Act"). The Commission is an adjudicatory agency, independent of the Department of Labor and the Occupational Safety and Health Administration. It was established to resolve disputes arising out of enforcement actions brought by the Secretary of Labor under the Act and has no regulatory functions. See section 10(c) of the Act, 29 U.S.C. § 659(c). Administrative Law Judge E. Carter Botkin affirmed one item of a citation issued by the Secretary to Nu-Way Mobile Home Manufacturing Company ("Nu-Way"). The item alleged that, contrary to 29 C.F.R. § 1910.132(a), Nu-Way's employees had not worn safety belts to protect against a fall hazard while working on the roof of a mobile home. Nu-Way makes the threshold argument that because its employees are engaged in construction work, general industry standards do not apply to its workplace. We conclude that Nu-Way's employees are engaged in construction work and that the general industry standard cited by the Secretary is not applicable. At Nu-Way's facility mobile homes are constructed from the ground up as they move down an assembly line. The operation appears to be similar in all respects to that described in Cardinal Industries, Inc., No. 82-0427 (December 6, 1985), pet. for rev. filed, No. 86-3094 (6th Cir. Jan. 31, 1986). In Cardinal, housing modules were constructed from the ground up by carpenters, roofers, electricians, and plumbers as they moved down an assembly line. In finding that the work being performed at Cardinal's plant was "construction work" within the meaning of section 1910.12,[[1]] we held that the nature of the work rather than its location determines whether it is "construction work" within the meaning of section 1910.12. Slip op. at 6. The Secretary's arguments here that such assembly line work is not "construction work" were rejected in Cardinal. The facts here warrant no different result. We therefore conclude that Nu-Way's operation is "construction work" within the meaning of section 1910.12. We also find that, as in Cardinal, there are construction standards specifically applicable to the danger of falling in the process or operation of construction within the meaning of section 1910.5(c)(1), (for example, 1926. 28(a), 1926.451(u)(3), or 1926.105(a), under appropriate circumstances). These standards, among others requiring protection from falls, represent the considered decision of the Secretary as to the circumstances under which there is an obligation of the employer in the construction industry to provide protection from falls as well as the methods of protection feasible in a construction context. Indeed, the Secretary takes the position in his brief that, if Nu-Way's operation is construction, then 1926.28(a) is an applicable standard and alleges its violation. We need not address whether this standard or any of these standards would have been violated here, because we find amendment under Rule 15(b) of the Federal Rules of Civil Procedure inappropriate in this case. Under Rule 15(b) of the Federal Rules of Civil Procedure, pleadings may be amended to conform to the evidence when an issue not raised by the pleadings has been tried by express or implied consent of the parties. Chairman Buckley would not amend here because there was no express consent to try whether section 1926.28(a) had been violated. He would not find implied consent because he does not find that Nu-Way squarely recognized that violation of section 1926.28(a) was in issue, much less that it consented to try that issue. See McWilliams Forge Co., 84 OSARHC ___, 11 BNA OSHC 2128, 2129-30, 1984 CCH OSHD ¶ 26,979, p. 34,669 (No. 80- 5868, 1984). Commissioner Wall also would not amend, sua sponte, in the absence of an opportunity for Nu-Way to argue whether amendment is appropriate and whether it would be prejudiced. Therefore, the Commission will not amend the pleadings to allege a violation of section 1926.28(a). Accordingly, item 1 of citation 2 is vacated. FOR THE COMMISSION RAY H. DARLING, JR. EXECUTIVE SECRETARY DATED: February 4, 1986 RADER, Commissioner, dissenting: I respectfully dissent from the majority's decision to vacate the citation on the ground that a construction standard, rather than the general industry standard cited by the Secretary, applies to the cited condition. The facts of this case are indistinguishable from those of Cardinal Industries, Inc., No. 82-0427 (December 6, 1985). pet. for review filed, No. 86-3094 (6th Cir. Jan. 31, 1986). As with the modular housing units involved in Cardinal, Nu-Way builds its mobile homes in a factory setting, away from, and having no direct connection with, the actual site to which the mobile homes will be transported and where they will be eventually occupied. For the reasons set forth in my dissenting opinion in Cardinal, I conclude that Nu-Way was not engaged in construction within the meaning of 29 C.F.R. § 1910.12(b), and that therefore the general industry standards are applicable.[[1]] ------------------------------------------------------------------------ The Administrative Law Judge decision in this matter is unavailable in this format. To obtain a copy of this document, please request one from our Public Information Office by e-mail ( lwhitsett@oshrc.gov ), telephone (202-606-5398), fax (202-606-5050), or TTY (202-606-5386). FOOTNOTES: [[1]] Section 1910.12 provides in part: § 1910.12 Construction work. (a) Standards. The standards prescribed in Part 1926 of this chapter are adopted as occupational safety and health standards under section 6 of the Act and shall apply, according to the provisions thereof, to every employment and place of employment of every employee engaged in construction work. (b) Definition. For purposes of this section, "construction work" means work for construction, alteration, and/or repair, including painting and decorating. See discussion of these terms in § 1926.13 of this title. [[1]] The Standard Industrial Classification Manual, which classifies all American industry, lists "Mobile Homes" under number 2451 of its manufacturing index. Office of Management and Budget, Standard Classification Manual 93 (1972). As I stated in Cardinal, I consider the Standard Classification Manual to be relevant and to provide guidance in classifying Nu-Way's business activities.