OSHRC ALJ decision
Docket 92-3636
Decided September 12, 1994
Mixed result
Judge Robert A. Yetman
Jewell Painting, Inc.
Lead-paint bridge job, serious items cut to nonserious, water-cooler general-duty item vacated
Apply this to your situation
This order from 1994 bound only the parties to this case; it isn't precedent. Ezel answers your situation under the current OSHA standards and Commission precedent, with citations.
Final order, not Commission precedent
This decision by an OSHRC
Administrative Law Judge became a final order of the Commission
because no Commissioner directed review (29 U.S.C. § 661(j)). It
binds the parties but is not binding precedent in other cases. The
full text below is from the official OSHRC release.
About this page: The plain-English summary and decision snapshot below were written by Ezel based on the official OSHRC release. The full text is the Commission's own document.
Read the official release (oshrc.gov)
Plain-English summary
Jewell Painting removed lead paint from a bridge over the Androscoggin River in Gilead, Maine, then repainted it. After an August 1992 OSHA inspection of the cleanup phase, the agency issued a serious citation and an other-than-serious citation covering nonpotable-water labeling, lead-dust exposure controls, hazard-communication labeling of a diesel tank and lead-waste drums, a contaminated drinking-water cooler, injury-log totals, and a frayed electric cord. Administrative Law Judge Robert A. Yetman affirmed most of the alleged violations but found the Secretary had not proved that any could cause serious physical harm, so he reclassified the four contested serious items as nonserious with a $50 penalty each. He vacated the water-cooler item, charged under the general duty clause, because the Secretary did not identify specific, feasible abatement steps beyond what Jewell already did. The injury-log item was affirmed as de minimis, and the frayed-cord item was affirmed with no penalty. Total penalties came to $200.
Decision snapshot
- Cited standard(s): 29 C.F.R. § 1926.51(b)(1); § 1926.55(a); § 1926.55(b); § 1926.59(f)(5)(i); § 1926.59(f)(5)(ii); § 1910.141(g)(2); 29 U.S.C. § 654(a)(1); 29 C.F.R. § 1904.2(a); § 1926.416(e)(1)
- Outcome: Four serious items affirmed but reclassified as nonserious ($50 each); water-cooler general duty clause item vacated; recordkeeping item affirmed as de minimis; frayed-cord item affirmed with no penalty. Total assessed $200.
- Key point: A serious classification requires proof that a violation could result in serious physical harm; where the Secretary shows only technical noncompliance, the item can stand while dropping to nonserious or de minimis.
Full text (OSHRC public release)
UNITED STATES OF AMERICA
OCCUPATIONAL SAFETY AND HEALTH REVIEW COMMISSION
One Lafayette Centre’
1120 20th Street, N.W. - 9th Floor
Washington, DC 20036-3419
PHONE:
COM (202) 606-5100 FE (202) 6oG5050
FTS (202) 606-51- Frs (202) 6o&5o!M
SECRETARY OF LABOR
Complainant,
v. OSHRC DOCKET
NO. 92-3636
JEWELL PAINTING, INC.
Respondent.
NOTICE OF DOCKETING
OF AIMINISTRA~ LAW JUDGE’S DECISION
The Administrative Law Judge’s Report in the above referenced case was
docketed with the Commission on August 11, 1994. The decision of the Judge
will become a final order of the Commission on September 12, 1994 unless a
Commission member directs review of the decision on or before that date. ANY
PARTY DESIRING REVIEW OF THE JUDGE’S DECISION BY THE
COMMISSION MUST FILE A PETITION FOR DISCRETIONARY REVIEW.
Any such petition should be received b the Executive Secretary on or before
August 31, 1994 in order to ermit suf B‘cient time for its review. See
Commission Rule 91, 29 C. Ep.R. 2200.91.
All further pleadings or communications regarding this case shall be
addressed to:
Executive Secretary
Occupational Safety and Health
Review Commission
1120 20th St. N.W., Suite 980
Washington, D.C. 20036-3419
Petitioning parties shall also mail a copy to:
Daniel J. Mick, Esq.
Counsel for Regional Trial Liti ation
Office of the Solicitor, U.S. DO5
Room S4004
200 Constitution Avenue, N.W.
Washington, D.C. 20210
If a Direction for Review is issued by the Commission, then the Counsel for
Regional Trial Litigation will represent the Department of Labor. Any party
havmg questions about review rights may contact the Commission’s Executive
Secretary or call (202) 606-5400.
FOR THE COMMISSION
Date: August 11, 1994
DOCKET NO. 92-3636
NOTICE IS GIVEN TO THE FOLLOWING:
Daniel J. Mick, Esq.
Counsel for Regional Trial Liti ation
Office of the Solicitor, U.S. DOf
Room S4004
200 Constitution Ave., N.W.
Washington, D.C. 20210
Albert H. Ross, Esq.
Re ‘onal Solicitor
O&e of the Solicitor U S DOL
One Congress Street, ilth l
Floor
P.O. Box 8396
Boston, MA 02114
Less L. Miller, Esq.
Kasimer & Itti 9 P.C.
T sons Office b ark
7%3 Leeburg Pike
Falls Church, VA 22043
Robert A. Yetman
Administrative Law Jud e
Occupational Safety an B Health
Review Commission
McCormack Post Office and
Courthouse, Room 420
Boston, MA 02109 4501
00109799296:Ol
UNITED STATES OF AMERICA
OCCUPATIONAL SAFETY AND HEALTH REVIEW COMMISSION
JOHN W. McCORMACK POST OFFICE AND COURTHOUSE
ROOM 420
BOSTON, MASSACHUSETTS 02109-4501
PHONE: FAX:
COM (617) 223-9746 COM (617) 2234004
FTS (617) 223-9746 ITS (617) 223-4004
SECRETARY OF LABOR, 0a
Complainant 0a OSHRC
l
0 DOCKET NO. 92-3636
.
l
JEWELL PAINTING, INC.
Respondent.
Appearances:
James Glickman, Esq. Joseph H. Kasimer, Esq.
Office of the Solicitor Kasimer & Ittig, P.C
U.S. Department of Labor Falls Church, VA
For Complainant For Respondent
Before: Administrative Law Judge Robert A Yetman
DECISION AND ORDER
This proceeding arises under 5 10(c) of the Occupational Safety and Health Act of
1970, 29 U.S.C. 0 651, et seq., (“the Act”), to review citations issued by the Secretary
pursuant to 0 9(a) of the Act and a proposed assessment of penalty thereon issued pursuant
to 3 10(a) of the Act.
On October 29, 1992, Jewell Painting, Inc. (“Jewell”) was issued two citations - one
serious and one other than serious - stemming from an inspection conducted by the
Occupational Safety and Health Administration (“OSHA”) of a work site located at the
Androscoggin River in Gilead, Maine. Jewel1 had been hired by CPM Construction to *
remove lead paint from a bridge spanning the river and then repaint it. Their portion of the
bridge project commenced in mid-July of 1992 and was completed by mid-August of 1992
(Tr. 46, 56-57, 67, 75-76, 562, 586, 676; Exhibit R-11 at 4-7).
Before beginning the paint removal process, Jewell suspended a platform underneath
half of the bridge, erected a scaffolding framework up around it, and enclosed the entire
area with tarp. This system was submitted to the Maine Department of Transportation in
accordance with project requirements and approved (Tr. 572074,586, 629, 676-77; Exhibits
R-18, C-10, C-11, C-21 & C-22). Jewell’s employees worked inside this containment, blasting
lead paint from the bridge’s surface with steel shot (Tr. 76,571,583-84). During the blasting
operation, a dust collector, attached to the containment by a hose or duct, drew
contaminated air out of the enclosure. As air was pulled out of the enclosure, specially
designed flaps cut into the tarps surrounding the containment opened, drawing in fresh,
clean air from outside and creating a flow of air across the containment (Tr. 292-93, 315-16,
347, 574-77, 619, 622-23). Once the bridge structure was stripped of lead paint, the
employees used a “vacuum classifier” to collect the paint residue and spent shot or “grits”
which accumulated in the containment during the blasting process (Tr. 78,132, 137,294,344,
348-49, 581-82, 710). The classifier separated the steel shot from the paint debris so that
the shot could be cleaned of contaminant before being reused for the blasting operation (Tr.
132, 137, 294, 579, 581-82). The lead paint waste collected by the classifier was eventually
emptied into 55.gallon drums (Tr. 130-32, 605, 692-93; Exhibit C-12 & R-11 at 11, 16).
A marked “sawhorse” barricade and yellow “Caution” tape was used to surround the
containment, as well as the areas along the River’s banks where Jewell’s large equipment
was located, clearly designating the entire section as a “lead work area” (Tr. 125-26, 16667,
196, 669-72; Exhibits C-9, C-21, R-4, R-11 at 10 & 15, R-21, & R-22). Whenever a Jewell
employee entered this area, he wore a full-length protective garment, known as a Tyvek suit,
and a respirator appropriate for the type of work he was to perform (Tr. 202, 600-01, 673,
74; Exhibits C-33, R-11 at 7-8, R-14). Located outside of the lead work area was a
decontamination trailer which contained shower facilities and a wash station, thus allowing
Jewell’s employees to remove any lead dust which may have accumulated on their bodies
and wash out their respirators (Tr. 79-80, 82, 489-90, 596, 679; Exhibit C-25). A water
cooler containing bottled drinking water was also provided by Jewell outside the trailer (Tr.
403-04, 415, 678; Exhibit C-24, C-25 & C-27).
2
On August 5, 1992, OSHA Industrial Hygienist Isaac LaSalle held an opening
conference with Donald Durgin, Jewell’s field superintendent at the Gilead site (Tr. 67-68,
665, 668). IaSalle, accompanied by Richard Stiefken, OSHA Senior Industrial Hygienist,
returned to the site the following day, but was unable to conduct an inspection of the work
area because Durgin requested a search warrant (Tr. 68.69,318.19, 333-35). On August 8,
1992, after obtaining a warrant, the industrial hygienists returned to the site to conduct the
inspection (Tr. 71, 73-74, 335-36; Exhibit C-l). At that time, the blasting portion of the
project was complete and Jewel1 was in the process of cleaning the work area with the
vacuum classifier (Tr. 77-78, 294, 600, 677, 718). During their inspection, the industrial
hygienists conducted air sampling for two Jewel1 employees engaged in the clean-up process
and took wipe samples of several surfaces at the site, as well as bulk samples of different
materials (Tr. 74-75, 87-89, 133-34, 139-40, 166, 337,417-18; Exhibits C-6, C-14. C-28, C-29
& R-l). On the basis of their findings, the subject citations were issued.
Jewel1 filed a timely notice of contest and a hearing was held in Boston,
Massachusetts from January 6,1994 to January 7,1994 and January 20,1994 to January 21,
1994. Both parties have submitted post-hearing briefs and this matter is now ready for
decision.
DISCUSSION
I. Serious Citation 1, Item 1
The Secretary alleges that Jewel1 failed to identify outlets supplying nonpotable water
in its decontamination trailer as unsafe for washing purposes in violation of 29 C.F.R.
5 1926.51(b)(l).’ Specifically, the Secretary contends that the wash station located on the
side of the trailer and the shower facilities located inside the trailer were not clearly labelled
with the appropriate warnings.
1 This standard provides:
Outlets for nonpotable water, such as water for industrial or firefighting
purposes only, shall be identified by signs meeting the requirements of
subpart G of this part, to indicate clearly that the water is unsafe and is not
to be used for drinking, washing, or cooking purposes.
3
Because there was no source of public water available at the site and no water
suppliers in close proximity, Jewel1 elected to pump water out of the Androscoggin River to
supply the washing facilities at its decontamination trailer (Tr. 83-84, 596-97, 678-79, 681).2
In making their decision, Jewell’s field superintendent, Durgin, and its president, Cameron
Jewell, discussed this option with the mayor of Gilead, who informed them that the river was
safe for swimming and that fish caught in the river were safe to eat; therefore, he saw no
problem with utilizing the water for showering and laundering purposes (Tr. 597, 679-80)?
In recognition of the fact that this water was not suitable for drinking purposes, Durgin
checked with Jewell’s safety consultant and was told to mark the trailer’s outlets as
“nonpotable” (Tr. 681). As a result, he stenciled the word “nonpotable” above the wash
station and also, he claims, on the wall underneath the shower heads inside the trailer (Tr.
80, 681-83; Exhibits C-3, C-4, & R-23).4
Under the terms of the cited standard, it is not enough to simply label an unsafe
water source as “nonpotable”. Section 1926.51(b)( 1) exp ressly provides that the sign on such
an outlet must “indicate clearly” the purposes for which the water may not be used -
drinking, washing, or cooking. Thus, although Jewell’s employees may have understood that
“nonpotable” meant the water source was unsafe, without a more definitive sign, they may
not have actually understood what the water could or could not be safely used for. The
parties, however, disagree over exactly what the prohibited uses of this water were. As the
citation indicates, the Secretary has focused on the very purpose for which this water was
used, arguing that the water was unsafe for washing or showering and therefore, should have
been identified as such. Jewell, on the other hand, believed that the water was safe for
2 Contrary to Jewell’s interpretation of the cited standard, this water need not have been used exclusively for
industrial or firefighting purposes for 8 1926.51@)(l) to apply. While the standard does include the phrase
“such as water for industrial or firefighting purposes only”, the “such as” portion of this language suggests that
these purposes are merely illustrative and not meant to limit the standard’s application.
3 The water quality classification assigned to the water in the Androscoggin River by Maine’s Department of
Environmental Protection confirms that it is safe for swimming and fishing but, unless treated, not for drinking
(Exhibits R-13 & C-39 at 13-16).
4 The OSHA hygienist testified that he did not see any signs regarding nonpotability in the shower area (Tr.
490-91).
4
washing purposes, but unsafe for drinking purposes, as evidenced by its efforts to mark these
outlets as nonpotable and the provision of a separate source of drinking water.
In either case, Jewell’s attempt to label these outlets with the appropriate warnings
falls short of the requirements of 0 1926.51(b)( 1). Whether the water was unfit for washing,
unfit for drinking, or both, Jewell was required to communicate this information to its
employees and failed to do so here. Thus, the alleged violation must be affirmed. The
Secretary, however, has failed to demonstrate that Jewell’s employees would suffer serious
physical harm as the result of its failure to properly label these outlets. The only illness cited
by one of the OSHA hygienists in connection with this item was a gastrointestinal tract
infection which apparently could be the result of drinking untreated river water (Tr. 214-15).
But the likelihood that an employee would actually ingest water from either the wash station
or the shower facility when cold bottled water was available in a water cooler just a few
steps away or, if he did, that he would contract such a malady that would progress to a level
of “serious physical harm”, is far too speculative to support classifying this violation as
serious. See 8 17(k) of the Act, 29 U.S.C. 0 666(k). Under these circumstances, the
violation is more appropriately classified as nonserious. Upon consideration of the penalty
criteria found at $ 17(j) of the Act, 29 U.S.C. 8 666(j), I find a penalty of $50 to be
reasonable and appropriate for this violation.
II. Serious Citation 1, Item 2(a) and (b)
At the hearing, the Secretary amended this citation to group Items 2 and 3 as Item
2(a) and (b), with one proposed penalty (Tr. 43-44). Under this item, the Secretary alleges
a grouped violation of 6 1926.55(a) and 8 1926.55(b), which provide in relevant part:
(a) Exposure of employees to inhalation, ingestion, skin
absorption, or contact with any material or substance at a
concentration above those specified in the “Threshold Limit
Values of Airborne Contaminants for 1970” of the American
Conference of Governmental Industrial Hygienists [“ACGIH”],
shall be avoided.
(b) To achieve compliance with paragraph (a) of this section,
administrative or engineering controls must first be
implemented whenever feasible. When such controls are not
5
feasible to achieve full compliance, protective equipment or
other protective measures shall be used to keep the exposure of
employees to air contaminants within the limits prescribed in
this section.
One of the personal air samples taken by OSHA hygienists on August 8, 1992, clearly
demonstrates that Ralph Williams, a Jewel1 employee engaged in the clean-up process at the
Gilead site, was exposed to a level of lead exceeding the established permissible exposure
limit (“PEL”) documented in the 1970 “Threshold Limit Values” table (Tr. 86-104, 200-03,
216.17,231.38,246.51,255.56,272-75; Exhibits C-6, C-7 & C=2OA)? Indeed, both Cameron
Jewel1 and field superintendent Durgin testified that based on their experience in the lead
paint removal industry, they assumed that the level of lead dust generated during the
removal/clean-up process would be in excess of the PEL and that no matter how many
controls they implemented, the use of protective garments and respirators would be required
to reduce that exposure to within an acceptable level (Tr. 587-92, 649-53, 685-86, 716-17).
In spite of this acknowledgement, Jewel1 challenges the validity of the air samples,
contending that the OSHA hygienists failed to follow the sampling procedure set forth in
OSHA Instruction CPL2-2.2OB dated November 13, 1990. Although failing to follow basic
testing procedures when taking an air sample can raise serious questions about the accuracy
of the sample’s results, none of the alleged procedural “defects” cited by Jewell warrant
invalidating either the citation or the results themselves. Indeed, even though almost three
days lapsed between the day that the air monitoring units were calibrated and the day that
the tests were actually conducted, the calibration was still performed, as required by OSHA,
“before...each day of sampling” (Tr. 181-84). Moreover, checking the air monitoring units
attached to each Jewell employee approximately every three hours instead of every two
hours as recommended is not a significant deviation from procedure and Jewel1 failed to
5 According to the 1970 ACGIH table, the PEL for lead over an eight-hour period is .2 milligrams (200
micrograms) per cubic meter (Tr. 86, 384-87; Exhibit C-23). The air sample taken for Williams indicated a
level of exposure at an eight-hour time-weighted average of .345 milligrams (345 micrograms) per cubic meter
(Tr. 87, 216.17,600; Exhibit C-7 & G2OA). The second air sample taken by hygienists indicated a level of
exposure within the established PEL (Tr. 181).
6
demonstrate that it had any impact upon the overall accuracy of these tests (Tr. 94-95, 184-
86; Exhibit C-6). The record also contains no evidence whatsoever to indicate that the
OSHA hygienists, contrary to procedure, shipped all of the samples they took during the
inspection to the OSHA laboratory in one package (Tr. 197-98, 271-72). As such, the air
sampling results represent a valid measure of the level of exposure to which at least one
Jewel1 employee was exposed.
Having recognized that the level of lead dust exposure was consistently higher than
the established PEL during all aspects of this project, Jewell made a serious effort at the
Gilead site to reduce the exposure levels as much as possrble through the use of engineering
controls. These controls included the 18,000 cubic feet per meter (“cfm”) dust collector
used to draw out lead-infested air from the enclosure, as well as the custom-designed
vacuum classifier which allowed for the efficient removal of lead paint waste and
contaminated steel shot (Tr. 309, 344-46, 378-79, 499-500, 558, 581-83, 599). According to
the OSHA hygienist, the proper use of these two controls reduced the level of lead dust
exposure as much as was feasible at the Gilead site (Tr. 349-50, 378, 500, 516-17).
Nonetheless, the Secretary maintains that Jewell, in accordance with the hierarchy of
requirements set forth in 5 1926.55(b), did not exhaust all feasible controls at this site before
relying upon the use of respirators to reduce the level of lead dust exposure. Specifically,
the Secretary claims that Jewell should have utilized a “make-up air” unit in conjunction
with the dust collector to ensure that enough air was being introduced into the containment;
continue to operate its dust collector throughout the clean-up process as performed on
August 8, 1992; and implement a formal employee rotation system thereby limit ing the
amount of time employees actually spent inside the containment!
At the hearing, the OSHA hygienist explained that a make-up air unit blows air into
a containment to essentially replace the air being exhausted through the dust collector (Tr.
6 Tkvo abatement methods listed in the citation - use of the “wet method” to clean up waste and a “HEPA”
filtration system to decontaminate employees - are not viable options here. Using water to clean up the lead
waste at this site was simply not feasible given the type of abrasive being used and the use of a HEPA system
would not only have had no affect on the exposure levels experienced by employees inside the containment,
but would be considered duplicative of the protection afforded by a decontamination trailer (Tr. 506~12,592.
96).
7
377,382-83). Apparently, this maximizes the efficiency of the dust collector by ensuring that
lead-infested air is being exchanged for fresh, clean air at an adequate rate (Tr. 378, 383,
501, 624-25, 722). However, the hygienist conceded that the dust collector used by Jewel1
at this site was sufficient enough to provide the appropriate number of “air changes”
required for a containment of this size. This comment confirms the testimony of Cameron
Jewell, who stated that calculations made at the start of the project in order to determine
the required air flow rate for this particular containment indicated that this type of “negative
air” system would be appropriate (Tr. 378,500,574-77,599,619,646-47,662). Furthermore,
not only did the hygienist conclude that the use of the dust collector together with the
vacuum classifier reduced the level of lead dust exposure as much as was feasible at this site,
he agreed that these systems were “all [Jewel11 could do in terms of engineering controls”
(Tr. 350). As such, there is no definitive evidence indicating that the use of a make-up air
unit would have improved the adequate ventilation system Jewel1 already had in place.’
At some point after the noon hour on the day of the inspection, the dust collector
being used by Jewell at the Gilead site was disconnected from the containment and
physically removed from the site by Jeffrey O’Regan, the owner of a bridge painting business
who had leased the dust collector from Jewel1 (Tr. 290-92, 306-07, 311-17, 337-41, 356,502,
688-89). The Secretary argues that use of the dust collector should not have been
discontinued when employees remained still inside the containment and therefore, represents
a control which Jewell could have implemented to reduce the exposure level during this
operation (Tr. 346-48, 355-56, 366, 638-39, 725).8 Jewel1 maintains, however, that at the
time the dust collector was disconnected, the employees had actually finished cleaning up
’ In fact, Cameron Jewell testified that although he owned a make-up air unit, he did not use it on this project
because he believed that forcefully blowing air into the containment could disrupt the negative air system or
create turbulence within the enclosure, allowing the lead dust to simply recirculate (Tr. 601-02, 619-21).
However, he also indicated, and the OSHA hygienist confirmed, that if such a system was deemed necessary,
it could have been designed to minimize these potential problems (Tr. 621-22, 720-22).
’ The Secretary attempts to correlate the removal of the dust collector with the fact that the level of lead dust
to which Williams was exposed during the clean-up process was higher during the afternoon sampling period
than the morning sampling period (Tr. 357-58; Exhibit C-7 ). There is nothing in the record, however, to
suggest a direct link between the two conditions, particularly where the afternoon sampling period was
twenty-six minutes longer than the morning sampling period (Tr. 359; Exhibit C-6 & C-7).
8
the inside of the containment and had started dismantling the structure by taking down the
tarps (Tr. 292,609, 631-37,689, 707-09). Once the containment was no longer intact, even
the OSHA hygienist admitted that the dust collector would not function as intended and
operating it under such conditions would essentially be useless (Tr. 503,599,609-10,689-90).
Although there was considerable debate over this issue at the hearing, I find that at
the time the dust collector was removed, Jewel1 was indeed engaged in the process of
dismantling the containment. Having reached the final stage of its project, removing the
tarps was clearly a prerequisite to completing the clean-up process so that the bridge could
be repainted. Once the integrity of the containment was violated, the dust collector was no
longer a feasible engineering control (Tr. 504, 609-10, 644, 660). Based on the credible
testimony of both Jewell’s president and field superintendent, I am simply not convinced that
Jewel1 would have disconnected the dust collector at a time when it could have still served
to adequately ventilate the work area. Such an action would clearly be inconsistent with
Jewell’s extensive efforts, documented supra, to protect its employees from overexposure at
this site. Moreover, the OSHA hygienist’s claim that the containment was intact both at the
end of the day and when he returned to the site with his wife at a later unspecified time is
clearly diminished by his admission that he was too far away to actually see inside the
containment and therefore did not know if anyone was inside, let alone what work, if any,
was being done (Tr. 366, 502-03, 722-25). Under these circumstances, the Secretary has
failed to establish that continuing the dust collector’s operation during the dismantling of the
containment would have benefitted Jewell’s employees in any measurable way.
While the engineering controls used by Jewell at this site can be considered state of
the art, the Secretary legitimately questions why no administrative or work practice controls
were employed here. Specifically, the Secretary contends that had Jewell implemented a
formal employee rotation program, the amount of time an employee actually spent inside
the containment would have been limited, thereby reducing his exposure to the high level
of contaminant (Tr. 372-74, 522, 541-45). Employing such a system would have been
particularly appropriate during the clean-up process. Indeed, where the use of the dust
collector, an adequate engineering control, was no longer feasible, Jewell should have
9
considered altering its work practices so as to reduce the actual length of time its employees
were exposed to what it acknowledged to be high levels of lead dust.
Jewel1 disputes the claim that it did not implement any administrative controls at this
site, claiming that a rotation system was actually in place at the Gilead site.g Under this
alleged system, Ralph Williams, whose blood lead level was high when tested during a Jewell
project he worked on the month before the Gilead job, was apparently “rotated” from
blasting work to clean-up work in order to minimize his exposure (Tr. 588-89, 654-56, 687,
716; Exhibit C-8). lo However 9 by linking this quasi-rotation policy to its monitoring of
blood lead levels, Jewel1 does not act to reduce an employee’s lead dust exposure until his
blood lead content has been elevated to a hazardous level; a true rotation program would
operate to reduce exposure before removal or rotation becomes necessary. Thus, by focusing
solely on engineering controls, Jewel1 failed to consider that modifying its work practices
could have further reduced the exposure of its employees to harmful levels of contaminant,
irrespective of the use of protective equipment. Therefore, the alleged violation must be
affirmed.
In order for this violation to be considered serious, the Secretary must prove that
Jewell’s employees were exposed to a level of lead dust that could have resulted in serious
physical harm or death. See 6 17(k) of the Act, 29 U.S.C. 6 666(k). There is nothing in the
record, however, to indicate that the controls Jewell had implemented, in conjunction with
the respirators and protective garments worn by each employee, did not serve to reduce the
level of actual exposure to within the established PET, As a result, the violation must be
characterized as nonserious. Upon consideration of the penalty criteria found at 6 17(j) of
g Contrary to Jewell’s interpretation of the cited standard, neither respirators nor decontamination facilities
constitute administrative controls under the terms of 8 1926.55(b) (Tr. 588,687). As the standard indicates,
the use of respirators is separate and apart from an employer’s obligation to implement feasible controls to
reduce exposure and decontamination facilities do not serve to directly reduce an employee’s exposure to lead
dust as measured inside the containment.
lo Cameron Jewel1 testified that the blood lead levels of Jewel1employees were typically monitored every two
to four months, but employees were sometimes tested more frequently depending upon the magnitude of the
removal project being performed (Tr. 560-61).
10
the Act, 29 U.S.C. 0 666(j), I find a penalty of $50 to be reasonable and appropriate for this
grouped violation.
III. Serious Citation 1, Items 4 and 5
Under these items, the Secretary alleges that Jewel1 failed to ensure that two
containers of hazardous chemicals at the Gilead site - a 500 gallon tank of diesel fuel and
a 55 gallon drum of lead paint waste - were labeled, tagged, or marked with the identity of
the chemical and the appropriate hazard warnings as required by 8 1926.59@(5)(i) and
8 1926.59(f)(5)@), respectively.
As a combustible liquid which can pose an inhalation hazard due its hydrocarbon
content, diesel fuel is considered a hazardous chemical within the meaning of the cited
standard (Tr. 129). When the OSHA hygienists initially visited the Gilead site, the tank
containing the fuel was labeled only with the name of its supplier, Brooks Oil Company (Tr.
124-28; Exhiiits C-9 & C-10). That the tank was delivered without the required information
on it does not excuse Jewel1 from its obligation under the cited standards to ensure that any
such container in its workplace be labelled with the required information (Tr. 691-92).
When the hygienists returned to the site on August 8, 1992, the tank had been labeled as
“diesel”, but still lacked the appropriate hazard warnings (Tr. 127-28; Exhibit C-11). As
there is nothing in the record to support Jewell’s contention that this fuel had been
transferred to a portable container and was intended for “immediate use” within the
meaning of 6 1926.59(f)(7), this exception to the labelling requirements of the cited
standards cannot apply. l1 Therefore 9 with regard to the diesel fuel tank, the alleged
violations must be affirmed.
As noted supra, lead paint waste emptied from the vacuum classifier was stored in
55 gallon drums or barrels at the Gilead site (Tr. 130-32, 134, 605, 692-93; Exhibit C-12 &
l1 Section 1926.59(f)(7) provides:
The employer is not required to label portable containers into which
hazardous chemicals are transferred from labekd containers, and which are
intended only for the immediate use of the employee who performs the
transfer.
11
R-11 at 11, 16). Thus, simply by virtue of its source, Jewel1 should have known that this
waste would contain some amount of lead; it did not need to have the waste tested to
establish this fact. l2 Recognizing that the contents were unsafe, Jewel1 labelled the drums
as “waste”, but failed to indicate that the waste contained lead, a substance which it has
already acknowledged can pose an exposure hazard (Tr. 138-39, 148-49, 195, 693; Exhibits
C-12 & R-8). That Jewell’s employees were told to treat these drums as containing
hazardous waste does not excuse Jewel1 from its obligation to comply with the specific
labelling requirements of the cited standards (Tr. 607, 694). Nor has Jewel1 definitively
shown that this waste was exempt from these standards pursuant to 0 1926.59(b)(6)(i).‘3
Thus, the violations must also be affirmed with regard to the drums containing lead waste.
The Secretary, however, has failed to prove that these violations should be
characterized as serious. While Jewell’s failure to label these containers properly constitutes
a technical violation of the cited standards, it has not been shown that this noncompliance
could have resulted in serious physical harm or death to Jewell employees. See 5 17(k) of
the Act, 29 U.S.C. 6 666(k). As noted, employees were specifically instructed to treat the
drums of waste as hazardous and keep them sealed. Similarly, those employees who had
to deal with the fuel tank apparently knew what it contained; indeed, it is difficult to believe
that any of Jewell’s employees did not know that the 500 gallon tank positioned near Jewell’s
equipment contained some type of fuel (Tr. 692). Under these circumstances, the
established violations are more appropriately classified as nonserious. Upon consideration
of the penalty criteria found at 0 17(j) of the Act, 29 U.S.C. 6 666(j), I find a penalty of $50
to be reasonable and appropriate for each violation.
I2 The bulk sample of the waste taken by the OSHA hygienist indicated a 30% lead content (Tr. 133,139-47,
265-70; Exhibits C-14, C-15 & C-20A).
l3 This subsection provides that the standards found at 0 1926.59 do not apply to:
Any hazardous waste as such term is defined by the Solid Waste Disposal
Act, as amended by the Resource Conservation and Recovery Act of 1976,
as amended (42 U.S.C. et seq.), when subject to regulations issued under
that Act by the Environmental Protection Agency.
12
IV. Serious Citation 1, Item 6
The Secretary alleges that Jewel1 employees were permitted to consume water from
a water cooler whose spigot was contaminated with lead in violation of 0 1910.141(g)(2) or,
in alternative, 0 S(a)(l) of the Act.14 Because 8 1910.141(g)(2) applies only to “permanent
places of employment”, it is obviously inapplicable to the temporary work site cited here (Tr.
434, 538, 676). See 8 1910.141(a)(l). A ccording to the Secretary, where none of the
subsections found at 0 1926.51, the specific construction standard dealing with sanitation, are
applicable to the condition cited here, 0 1910.141, the corresponding general industry
standard, may be cited pursuant to the “Index of General Industry Standards Applicable to
Construction” (Exhibit C-31). Any limitation, however, upon a general industry standard’s
application cannot be ignored simply by virtue of its inclusion on this list (Tr. 435-37; Exhibit
C-31). Indeed, the subsection which specifically restricts the applicability of 8 1910.141(g)(2)
to permanent places of employment, 0 1910.141(a)(l), is also included in the “Index” as
applicable to the construction industry (Exhibit C-31). As such, the Secretary’s case must
be proven under the general duty clause.
In order to establish a violation of 0 5(a)(l) of the Act, the Secretary must show that:
(1) a condition or activity in the employer’s workplace presented a hazard to its employees;
(2) either the cited employer or its industry recognized the condition or activity as
hazardous; (3) the hazard was causing or likely to cause death or serious physical harm; and
(4) a feasible means existed to eliminate or materially reduce the hazard. Wheeling-
Pittsburgh Steel Cop., 16 BNA OSHC 1218,1221,1993 CCH OSHD !I 30,048 (No. 89-3389,
1993). There is no question that Jewel1 recognized that surfaces contaminated with lead can
pose a serious hazard to its employees. Indeed, Jewell’s own lead hazard control program,
in effect at the time of the inspection, states that JewelI will “keep all surfaces as free as
possible of accumulations of lead” (Tr. 454, 558; Exhibit C-33). Also, by requiring
employees to wash their hands and face before eating or drinking and prohibiting them from
entering the food and beverage consumption area with contaminated work clothing or
l4 The Secretary amended the citation on March 5, 1993 to allege a violation of the general duty clause in
alternative to the cited standard.
13
equipment, Jewel1 acknowledged that the presence of contamination in these areas can
increase the potential for lead ingestion (Tr. 674-75; Exhibit C-33). Thus, in addition to
enforcing these work rules, the water cooler was removed from the Gilead site each night
and washed by Jewell’s foreman in order to remove any lead accumulation (Tr. 695-96).
A wipe sample taken by the OSHA hygienists indicates that lead was present on the
cooler at the time of the inspection. Samples were taken of two areas on the cooler - the
spigot and the top surface - but only the result from the spigot wipe sample was cited here
(Tr. 417-18, 421-28, 430-32; Exhibits C-29 & C-30). According to the OSHA laboratory’s
analysis, the spigot contained 100 micrograms of lead which, once converted to reflect the
size of the filter and the area sampled, translates in 259.7 micrograms per 100 square
centimeters (Tr. 231-38, 251-54, 262, 265, 276-77, 428-30; Exhibit C-20A & C-30).15 The
hygienist testified that based upon recommendations from the Department of Housing and
Urban Development regarding surface contamination, he would have expected to see a
contamination level of 25 to 50 micrograms per one hundred square centimeters (Tr. 455-56,
472-80, 484-86; Exhibits C-36 & C-37). l6 Thus 9 given the level of contaminant present on
the cooler’s spigot, the Secretary maintains that Jewell’s efforts to keep the cooler free from
lead were insufficient.
Where an employer has already taken steps to address a recognized hazard, the
Secretary must, in order to sustain a violation of the general duty clause, “specify the
[additional] steps a cited employer should have taken to avoid citation and...demonstrate the
feasibility and likely utility of those measures.” Natl. Realty and Constr. Co, Inc., 489 F.2d
l5 Jewel1 disputes the validity of the wipe sample, again claiming that the OSHA hygienists failed to follow
proper testing procedures. Neither of its alleged complaints, however, warrant dismissing these test results
as invalid. Clearly, the use of a template to measure the surface to be wiped was not feasl’blewith regard to
sampling the cooler’s spigot (Tr. 531-32). In addition, there is nothing in the record to indicate that the
OSHA laboratory’s substitution of a standard blank wipe sample for a blank of the actual sampling medium
used by the hygienist at this site significantly altered the final results of these tests, particularly where, as the
laboratory’s supervisory chemist testified, blank wipe samples rarely indicate the presence of lead and it has
not been shown that the samples were mishandled in any way (Tr. 256.63,278-79, 525).
I6 Since the inspection, OSHA has issued a compliance directive indicating that it considers an acceptable level
of surface contamination to be 50 micrograms of lead per 100 square centimeters (Tr. 48041).
14
1257,1268 (D.C. Cir. 1973). See also Pelron Corp., 12 BNA OSHC 1833,1836,1986-87 CCH
OSHD f 27,605 (No. 82-388, 1986); Cerro Metal Prod. Div., Mannon Group, Inc., 12 BNA
OSHC 1821, 1822, 1986-87 CCH OSHD U 27,579 (No. 78-5159, 1986). It is not enough,
therefore, for the Secretary to simply recommend that Jewel1 periodically conduct its own
wipe sampling to determine whether its work practices are keeping the water cooler
sufficiently free of contaminant (Tr. 48788, 528-29). Proof of the additional, feasrble
measures which Jewell should have taken to reduce the risk of lead ingestion must be
specific and include evidence that persons familiar with the employer’s industry would have
prescribed such steps under similar circumstances. Pelron, 12 BNA at 1836. Cerro, 12 BNA
at 1822-23.
The Secretary first contends that placing the water cooler on the “tongue” of the
decontamination trailer contributed to its contamination and encouraged employees to use
it before washing at the trailer (Tr. 403-06, 487; Exhibits C-24 & C-25). There is nothing
in the record, however, to suggest that Jewell’s employees, in violation of established work
rules, ever drank from the cooler prior to using the wash facilities. The Secretary also cites
to the cooler’s close proximity to two trash barrels, one of which contained a protective
Tyvek suit, and to pieces of equipment which were apparently worn by Jewell’s employees
in the designated lead area (Tr. 407, 412, 415-16, 440-41, 487, 529-30; Exhibits C-25, C-26,
& C-27). Furthermore, at the time of the inspection, the OSHA hygienist observed two
respirator filters resting on the top of the cooler, but was unable to determine whether the
filters were contaminated with lead or even belonged to Jewel1 (Tr. 405, 417,420, 441,525-
28, 696-97; Exhrbits C-24 & C-28). But without having tested any of these items for lead,
the Secretary cannot credibly argue that their presence somehow contrrbuted to the cooler’s
contamination. Moreover, the Secretary has failed to demonstrate that simply moving the
cooler from one side of the trailer to the other, the only alternative location proposed by the
OSHA hygienist, would have reduced the likelihood of contamination from any of these
alleged “sources” (Tr. 487).
In addition to relocating it, the Secretary claims that Jewel1 should have cleaned the
cooler more frequently and strictly enforced its work rules prohibiting employees from
handling the cooler with contaminated gloves or hands. However, the Secretary cannot
15
satisfy his burden of proving abatement by prescribing the very methods a cited employer
has already undertaken. Cerro, 12 BNA at 1822. Indeed, for such an argument to prevail,
there must be evidence demonstrating not only how the employer’s efforts in this area were
inadequate, but how they could have been improved. Id. As noted supra, the Secretary has
produced no evidence to suggest that Jewell’s enforcement of these particular work rules was
deficient. Even if there were such evidence, the Secretary has not specifically shown what
Jewel1 could have done to enhance its safety program in this respect. Similarly, while the
results of the wipe samples taken during the inspection could be considered proof of the fact
that cleaning the cooler once a day was insufficient, the Secretary has failed to specify how
many times and to what degree the cooler would have to be cleaned in order to reduce
contamination to what OSHA would consider an acceptable level. Such detailed information
would be particularly relevant here where the only water available for cleaning the cooler
onsite was the nonpotable water from the Androscoggin River.
Thus, the Secretary has failed to satisfy his burden of proving a specific, feasr%le, and
effective means of abating this hazard, beyond that already employed by Jewell at this site.
Since a violation has not been established, Jewell’s allegation of employee misconduct with
regard to the respirator filters found on top of the cooler need not be considered here.
Accordingly, the alleged violation is vacated together with any penalty proposed therein.
V. Other than Serious Citation 2, Item 1
The Secretary alleges that Jewell failed to complete three of its occupational injury
and illness logs “in the detail provided in the [OS-IA 2001 form and [its] instructions”, as
required by 3 1904.2(a). It is undisputed that almost all of the columns on Jewell’s logs for
1989,1990, and 1991, were not totaled at the bottom of the form (Tr. 149-54; Exhibits C-16,
C-17, & C-18). l7 As such 9 the violation must be affirmed.
Jewell contends, however, that this violation should be classified as de rninimk and
I agree. A de minimis violation has been defined as “one in which there is technical
l7 In his post-hearing brief, the Secretary withdrew instance 3(o) of this item regarding column #12 on Jewell’s
log for 1991 (Secretary’s Primary Brief at 36-37, n.28).
16
noncompliance with a standard but the departure from the standard bears such a negligible
relationship to employee safety and health as to render inappropriate the assessment of a
penalty or the entry of an abatement order.” Keco Iddu.~.,Inc., 11 BNA OSHC 1832, 1834,
1983-94 CCH OSHD 1126,519(No. 81-1976, 1984). On the logs in question here, only two
of the columns which contained actual figures were not totaled at the bottom; the remaining
columns contained no information at all and therefore, required only the insertion of a zero
at the bottom. As a result, it would not be difficult for anyone examining the logs to quickly
ascertain what these absent totals should be.
Where the basic purpose of the log - to accurately document the injuries and illnesses
suffered by employees during a given year - was accomplished here, Jewell’s failure to tally
the minimal or, in some cases, nonexistent information contained in the cited columns
constitutes only a minor deviation from the literal terms of 8 1904.2(a) which bears little or
no relationship to the safety and health of its employees (Tr. 161-62).18 See Anoplate
Cop., 12 BNA OSHC 1678,1688,1986-87 CCH OSHD Il27,519 (No. 80.4109,1986) (failure
to record injured employee’s job title and regular department on OSHA 200 log where small
workforce and details of injury allowed for such information to be easily ascertained
constitutes a technical violation of 6 1904.2(a) that is appropriately classified de minimis).
CJ El Paso Crane and Ri&ing Co., 16 BNA OSHC 1419,1993 CCH OSHD 1130,231(No. 900
1106, 1993) (failure to sign annual log summary in violation 0 1904.5(c) cannot be classified
as de minimis violation where signature is intended to certify that the summary was examined
for accuracy and there is no indication that this examination was performed). Therefore,
this violation, for which no penalty was proposed, should be reclassified as de minimk
VI. Other than Serious Citation 2, Item 2
l8 Although specifically questioned on cross-examination on the issue, the OSHA hygienist never explained
how the omission of these figures had any measurable impact upon the safety and health of Jewell’s employees
(Tr. 162).
17
The Secretary alleges that Jewell violated 6 1926.416(e)(l) when it used a frayed
electric cord to power the blasting machine at the Gilead site.19 The OSHA hygienist
testified that he noticed a green cord on the bridge outside the containment with exposed
wiring and duct tape around it (Tr. 155-57; Exhibit C-19). According to the hygienist, the
twelve volt cord ran from the compressor to the blasting machine, but because the blasting
work had been completed two days prior to the inspection, he did not observe any
employees operating the machine and did not know if the cord was actually energized at the
time (Tr. 157-60, 213). Jewell’s employees, however, apparently walked through this area
on their way to and from the containment and therefore, had access to this equipment (Tr.
158) 0
At the hearing, Jewell’s field superintendent attempted to claim that the cord was
actually a blast hose which carried steel shot to the end of the blasting nozzle (Tr. 698-700).
But his testimony on this issue was far from clear in that he referred to the item in question
as a “green hose” and there are two green items pictured in the photograph of the cited
condition which match this description. Moreover, it seems unlikely that steel shot could
have passed through this slim “hose”, especially where the photograph plainly supports the
hygienist’s contention that the frayed cord contained internal wiring (Exhibit C-19). Under
these circumstances, a violation of 6 1926.416(e)(l) has been established and the item is
affirmed with no penalty assessed.
FINDINGS OF FACT AND CONCLUSIONS OF LAVY
All findings of fact relevant and necessary to a determination of the contested issues
have been made above. Fed. R. Civ. P. 52(a). All proposed findings of fact and conclusions
of law inconsistent with this decision are denied.
ORDER
Serious citation 1, item 1, alleging a violation of 29 C.F.R. 8 1926.51(b)(l), is
AFFIRMED as a nonserious violation and a penalty of $50 is ASSESSED.
l9 This standard provides that “woti or frayed electric cords or cables shall not be used.”
18
Serious citation 1, item 2(a) and (b), alleging a grouped violation of 29 C.F.R.
5 192655(a) and 29 C.F.R. 5 1926.55(b), respectively, is AFFIRMED as a nonserious
violation and a penalty of $50 is ASSESSED.
Serious citation 1, item 4, alleging a violation of 29 C.F.R. 0 1926.59@(5)(i), is
AFFIRMED as a nonserious violation and a penalty of $50 is ASSESSED.
Serious citation 1, item 5, alleging a violation of 29 C.F.R. 0 1926.59@‘)(5)(ii), is
AFFIRMED as a nonserious violation and a penalty of $50 is ASSESSED.
Serious citation 1, item 6, alleging a violation of 29 C.F.R. 0 1910.141(g)(2), or in the
alternative, 0 5(a)(l) of the Act, is VACATED together with any penalty proposed therein.
Other than serious citation 2, item 1, alleging a violation of 29 C.F.R. 0 1904.2(a), is
AFFIRMED as a de minimis violation.
Other than serious citation 2, item 2, alleging a violation of 29 C.F.R.
0 1926.416(e)(l), is AFFIRMED and a zero penalty is ASSESSED.
August 5, 1994
Dated:
Boston, Massachusetts
19
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