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PLAINTIFF'S EXHIBIT
chemicals and plastics P. O. BOX 8361, SOUTH CHARI ESTON, WEST VIRGINIA 25303
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CSP Industrial HygIenis ts Exposure Guide 1 ines Commit tee (See Distributiion List)
Date Depi
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July 18, 1977 SHARE - Occupational Health Industrial Hygiene Manual
RECfci v D
JUL i 1 1977
G. F. HUrIeT
The enclosed information is forwarded to you for your interest and information.
REP/slh Attachment
Robert E. Peele
UCC 016457
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INDUSTRIAL HYGIENE MANUAL
CHAPTER I INDUSTRIAL HYGIENE AND OCCUPATIONAL HEALTH
S 109 77:8001
A. Introduction
This chapter sets forth guidelines for the handling of health inspections and citations. Health hazards discussed in this chapter are environmental conditions present in the workplace which may cause illness or in jury to the worker.
1. Scope
a. This chapter contains general instructions and poli cies on field compliance operations, with special em phasis on the assessment of health hazards found in the workplace. It supplements instructions and policies dis cussed in other chapters of the Field Operations Manual (FOM). It provides additional technical and manage ment guidance for field health compliance operations. This chapter will be supplemented by a detailed Indus trial Hygiene Manual and technological methodology for assessing workplace health hazards on a substance by substance basis.
b. Health compliance operations involve several technical and professional disciplines (i.e.. Industrial Hygienists, Safety Engineers, Safety Specialist). There fore the processing of all health inspections and citations requires close coordination between industrial hygienists, engineering specialists and local, regional and National staff. In addition, nonagency assistance either from out side consultants or from other agencies such as NIOSH may be required.
c. Within OSHA, a Compliance Safety and Health Officer (CSHO) with primary health expertise is an industrial hygienist. In this chapter, the designation of "I.H." refers to an industrial hygienist and "CSHO" refers to a safety specialist.
2. Responsibilities
a. The National Office shall coordinate the technical aspects of health programming among the regions through the Technical and Analytical Assistance Unit.
b. A Regional Industrial Hygienist will be designated in each Regional Office who will be responsible to the Regional Administrator through the Assistant Regional Administrator for Technical Support for coordinating the technical aspects of the health program within the region. Consultation and technical assistance on health related activities will be provided by the Regional I.H. and made available to the Regional staff, the Area Offices and the Regional Solicitor's staff. This respon sibility shall include, but is not limited to, providing guidelines for the determination of noncompliance, case file preparation, contested case preparation and training
in the use of technical equipment in accordance with criteria provided by the National Office.
c. As stated in Chapter III of the FOM, the Area Director shall administer the field compliance program within the designated geographic area. Each Area Direc tor shall designate a Senior Industrial Hygienist who is responsible for the technical aspects of the health com pliance program and for the determination and imple mentation of health inspection priorities on an area-wide basis.
d. Some inspections require a team effort involving more than one specialty. In such cases, the Area Director shall designate the team leader to coordinate such com pliance efforts. Such assignments shall be made with special attention to the nature of the total inspection and personnel qualification. The Senior I.H. shall provide guidance in health inspection procedures.
e. The I.H. shall conduct health inspections in indus tries in accordance with priorities established by the Area Director. A health inspection can be either a complete survey of a particular workplace for all health hazards or a special survey such as an accident investigation.
f. The industrial hygiene trainee is an industrial hygienist who does not have the authority independently to inspect a workplace and recommend citations until his training is completed. The trainee can accompany a compliance officer to a workplace and assist in an inspec tion. Industrial hygiene samples collected by a trainee are valid if overseen by an I.H.
B. Inspection Priorities
1. Generally, OSHA's priority system for conducting inspections for health hazards follows the programming set forth in Chapter IV. In addition, periodic health alerts and special programs generated by the National Office will receive priority as assigned by the National Office. The investigation of health complaints will follow the procedures outlined in Chapter VI of the FOM. Health complaints will be investigated by an I.H. or a CSHO who has received training to recognize heallh hazards and evaluate the conditions. Complaints in volving the appropriateness of unusual medical testing or questionable results of medical findings shall be discussed with the Regional I.H. and the Technical and Analytical Assistance Unit.
2. Regional Scheduled Inspection/Referral Inspec tions
a. The Senior I.H. and the Area Director shall prepare a priority inspection system for approval by the Regional
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Office. The Regional I.H. shall consult with the Technical and Analytical Assistance Unit and the Regional Program Director for NIOSH in the develop ment of regionally scheduled inspections.
b. The compliance activity must be determined on the Area Office level due to the unequal distribution of industrial health hazards from area to area. General con siderations for scheduled inspection activity are as follows:
Referrals from CSHO review. Industry inventory (paragraph C. of this chapter
contains details). Knowledge from past inspection activity. New industries or operations. Number and type of industries. Estimated number of workers at risk. Severity of hazard (i.e.. all carcinogens, high noise
levels, accumulative toxicants). Duration and extent of exposure. Status of promulgated standards. Injury and illness statistics.
.1. The Regional Administrator, with the assistance of the Regional I.H. shall annually assess the scheduled in spection programs in the region. A written report shall be submitted by January 30 of each year to the Assistant Secretary or his designee.
C. Workplace Inventory
I. Each Area Office shall establish an inventory of workplaces within the area. The purpose of the inven tory is to collect information for scheduling and pre paring inspections and for general use. The inventory shall be maintained by company name and shall include, as a minimum, the following:
Company name. Company location. Company telephone number. SIC codes and subcodes. Type of industry. Size of workplace. Estimated number of workers. Manufactured products and by products. Process information. Beginning materials and process intermediates. List of potential health hazards and the location of
likely occurrence. Inspection records. Status of compliance with health standards. Variances. Injury and illness statistics. Personal protective equipment utilized. Extent of control measures utilized.
2. I hc workplace inventory information can be ob tained through research literature, trade associations. NIOSH evaluations. State Directory of Industries. Regional Office data, National Office data, when necessary, and CSHO inspections.
3. The inventory shall be updated whenever new in formation is available to the Area Office and during January of each year.
REFERENCE FILE
I). Health Hazards Uncovered During CSHO Safety Inspection
1. After training in recognition and evaluation of health hazards the CSHO shall collect health hazard in formation for referral to the I.H. Priorities of inspection by the I.H. based on referrals are to be incorporated into the regular inspection schedule.
2. During the safety inspection, the CSHO shall carry a sound level meter and a detector tube kit. The detector tubes should be specific for the gases anticipated at the worksite based on the industry inventory. Spot samples shall be collected when a health hazard is suspected.
a. A health hazard can be suspected when any of the following occur:
(1) Eye irritation is felt when entering the work area. (2) A strong odor is noticed when entering the work area. (3) Visible dust clouds are observed coming from the operation into the workplace. (4) Visible clouds are observed coming from poorly maintained ventilation systems such as holes in ducts. (5) The local ventilation system is not capturing all of the contaminants, which are therefore being released into the workplace. (b) Visible fumes are released into the workplace. For example, in welding operations, local exhaust is not used by the welder. (7) The noise levels require raising the voice to be heard. (8) Chemicals are mishandled as evidenced by chemical spills and careless handling of highly toxic materials. (9) Substances which are hazardous under normal conditions of control and handling such as carcinogens are located at the worksite. (10) Worker's comments and symptoms indicate ex posure to contaminant. b. During a routine safety inspection, if the CSHO ob serves a potential health hazard for which he has the training to determine full-shift time weighted average exposures, the CSHO must return to the plant and collect the appropriate samples if he is unable to do so during the safety inspection. c. When a health hazard is suspected, during the course of safety inspection the CSHO shall make a written notation consisting of the following, as applicable:
Name of plant.
Sus|>cctcd health hazard(s). Description of operation. Description of location of operation in the plant. Reason for suspecting the health hazard. Worker comments regarding the health hazards,
Number of employees affected.
Results of spot samples.
Dale and time. Signature of CSHO and CSHO number. d. The CSHO shall collect samples and make referrals only when personal protective equipment is not worn or iililizctl 3. The Area Diicclor shall carefully screen all lcfcrrals to determine their appropriateness and inspec-
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lion priority. The Senior I.H. shall make recommenda tions lo the Area Director concerning CSHO referrals. Where a referral reveals a potential imminent danger or a polenlia! serious violation, immediate inspection by an I.H. is necessary. For less severe hazards, referrals may be delayed and scheduled as general or regular health inspections by the Area Director hut no later than 60 days after the CSIIO safety inspection.
4.The Regional Administrator with the assistance of the Regional I.H. shall annually assess the referral prac tices in the region. A written report shall be submitted by January 30 of each year to the Assistant Secretary or his designee.
E. The Health Inspection
An industrial hygiene inspection of an establishment is often complex and time consuming. The following are the essential elements: preinspection planning, opening conference, walkthrough inspection, collecting samples and closing conference.
1. Preinspection Planning. Preinspection preparation is necessary to expedite the process of an industrial hygiene inspection in the wide varieties of industries and associated health hazards.
a. The I.H. shall carefully review all information con tained in the workplace inventory for a particular industry or plant. The I.H. shall be familiar with the general process information and size of the industry or plant.
b. The I.H. shall review appropriate standards and sampling methods.
c. If the planned inspection is a referral visit to a workplace that has been previously inspected by a CSHO, the I.H. shall review all information contained in the previous inspection data and reports.
d. Based on his experience and the workplace inventory, the I.H. may be able to anticipate the field instruments necessary for the inspection. If so, the I.H. shall prepare instruments and equipment according to the standard methods of sampling and calibration.
2. Opening Conference. Upon entering the workplace, the industrial hygienist shall conduct the opening conference procedures found in Chapter V oftheFOM as follows:
a. T he I.H. shall obtain complete process flow charts and plant layouts from the plant management at the beginning of the inspection. If the plant layout chart is not available, the I.H. shall sketch a plant layout, identifying the operations, distribution of equipment, in cluding engineering controls, and approximate dimensions of the plant.
b. A brief examination shall he made of all required records of the workplace. Some valuable insights can be determined from such records (i.e., nature of injuries or illnesses, dermatitis, respirator usage, monitoring data, ventilation tests, process How sheets, and a log of hazardous materials received) which will assure a more effective inspection. Recordkeeping requirements shall be determined at the closing conference alter the inspec tion has been made or after sampling results have been analyzed.
3. Walkthrough Inspections. A walkthrough is required for all health inspections, regardless of w hether the plant was previously inspected. (See Chapter V. D. of the FOM.)
a. The main purpose of a walkthrough inspection is to identify potential health hazards in the workplace. The identification of potential health hazards requires that during the walkthrough the I.H. becomes familiar with plant processes, collects information of physical and chemical agents, observes workers' activities and surveys existing engineering controls. The information is needed to prepare for the field measurement phase of the inspection. As the I.H. proceeds with the walkthrough inspection, he or she shall identify and record on the plant layout or sketch, the potential sources of health hazards, locations of the workers, types of engineering controls, and Ihe usage of protective devices including
types of respirators. b. Data collection of physical and chemical agents. (1) As the I.H. proceeds v^ith the walkthrough
inspection, he or she shall obtain all information concerning substances used and produced, and inter mediate substances, if any. Estimated volumes of these substances present in the plant and a complete storeroom inventory shall be obtained. In addition a re quest shall be made for a list of raw materials received at the loading dock.
(2) The I.H. shall obtain all information concerning potential physical agents, such as noise and heat, present in the plant. It is also essential that the sources of these agents be identified and recorded.
(3) Utilizing visual and olfactory means and instrumentation, the I.H. shall estimate the diffusion of these agents within the plant. All openings to the external environment shall be identified and recorded.
c. Observation of worker activities. (1) The I.H. shall observe worker activities through out the plant, particularly concentrating on potential health hazard areas. Estimated numbers of workers at each such area shall be recorded on the plant layout or sketch. (2) Employee interviews are encouraged during this phase of the inspection. The I.H. shall observe and record the general mobility of the workers and indicate whether they are engaged in stationary or transient activities. d. Survey of existing engineering controls. (1) The I.H. shall sketch, identify and record the layout of existing engineering controls on Ihe plant layout or sketch. Ventilation measurements shall be made and recorded on Ihe plant sketch at strategic locations in the duct system. (2) Ihe I.H. shall request information Irom the plant manager concerning a preventive maintenance program for engineering controls. c. The I.H. must keep alert for all imminent dangers during the walkthrough inspection and take action as described in Chapter IX of Ihe FOM. I. In a very small plant, sampling lor obvious health hazards can be initiated soon after the opening confer ence and details of Ihe walkthrough can be accomplished while collecting samples.
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g. Photographs shall be used to document the survey and the plant sketch, and to record all employees who are
not wearing personal protective equipment. 4. Collecting Samples. After the initial walkthrough
inspection, the l.H. shall prepare a sampling schedule utilizing information collected during the walkthrough survey. The sampling schedule shall identify potential chemical and physical hazards, number of samples to be taken and the locations of potential health hazards.
a. Representative jobs must be selected for sampling and personal sampling devices prepared accordingly. Occupations with the highest expected exposure should be monitored.
b. It is suggested that the sampling program should
be planned, if possible, to follow the particular industrial process from its beginning to the final product. If the processes are mixed throughout the plant, such as in a machine shop, the sampling program should follow each operation (degreasing, welding, machinery, etc.)
c. All sampling equipment shall be checked and cali brated according to standard calibration methods. A record of each calibration must be included in the inspection report. The following are requirements for the sampling procedure:
(1) All sampling, calibration and analysis shall be per formed according to standard methods described in the Industrial Hygiene Manual.
(2) The levels of both physical and chemical agents in the work environment shall be measured as they relate to the workers. Unless otherwise specified in a standard, the measurements shall represent the personal exposure of the employee. The l.H. shall take measurements in close proximity to the employee (i.e., breathing zone for air contaminants, hearing zone for noise, etc.).
(3) Airborne concentrations of materials in TaHes Z-l, Z-2, and Z-3 of 29 CFR 1910.1000, air contaminants, and other promulgated standards such as noise and asbestos, must be measured on the basis of 8-hour time weighted averages (except for ceiling limits).
(4) The l.H. should collect samples that represent a full-shift exposure when the determination of time weighted average concentration or action level is made, unless a ceiling level applies. A minimum of 7 hours of sampling is required to evaluate a full 8-hour shift. A single sample or a series of samples that represent a 7-hour sampling can be utilized.
(5) A minimum of one full-shift, time weighted aver age concentration shall be determined for each employee selected for the inspection. When the results indicate that the values are at or near the time weighted average required by the standard, additional samples shall be collected. In order to determine the extent of exposure in a potentially hazardous area, the l.H. may collect several dozen samples. He should remain at the workplace until all of the necessary samples are obtained. When several
spot samples are collected to determine an employee exposure, the time weighted average shall be used to determine the full-shift exposure.
d. For the evaluation of ceiling limit, a short sampling time is necessary. Instantaneous sampling should be used to determine ceiling limits so long as multiple samplings can be made in a period of time specified by
the standard. Where time periods for exposure to ceiling limits are not specified in the standard, 15 minutes
should generally be used to determine peak limits. e. Records and notes shall be kept as described in the
standard methods for sampling, calibrations and analysis found in the Industrial Hygiene Manual.
5.Closing Conference. The general procedure
described in Chapter V of the FOM shall be followed. An immediate explanation of available inspection results shall be given along with general guidelines in controlling the hazards.
a. Since the l.H. may not have the results of environ mental measurements at the end of the inspection or during the closing conference, an ultimate or second closing conference may be held by telephone, in person
or by letter. At that time, if the results indicate noncom pliance, discussions shall be held on alleged violations, abatement procedures, and interim methods of control. Employees or their representatives shall be informed of the inspection results at that time. /
b. At the closing conference, written information on the employer's occupational health program is gathered for evaluation. The evaluation can be made onsite or if assistance of the Senior Industrial Hygienist or Area Director is required, in the OSHA office.
c. Information on the following aspects of the em ployer's occupational health program must be gathered during the inspection for evaluation. They are discussed in the closing conference and are later considered in relation to requirements of the standards and as evidence of good faith in the proposal of penalties.
(1) Monitoring program. Detailed information con cerning the industrial hygiene program shall be obtained, which includes qualified personnel, necessary sampling and calibration equipment, ventilation, measurement equipment and laboratory servicccs.
(2) Medical program. Detailed information concern ing the employer's medical program shall be obtained. The l.H. shall investigate whether the employer pro vides his employees with preemployment and regular medical examinations. The medical examination proto col shall be obtained to determine the extent of the medi cal examination.
(3) Education and training program. Detailed information concerning the employee education and training program shall be obtained. A special effort shall be made to evaluate the employee's knowledge about the hazards which exist in the plant; the extent to which the program covers precautions to be taken, emergency procedures and personal protective equipment; and the extent of employee participation in the education and training program.
(4) Recordkeeping program. The l.H. shall investigate the employer's recordkeeping program, including types and duration of recordkeeping. It is also required that the l.H. determine the accessibility of these records to the employees.
(5) Compliance program. (a) Engineering controls. The l.H. shall determine the employer's implementation of engineering controls, including work practices with appropriate equipment and preventive maintenance. The l.H. should evaluate a
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specific engineering control in the context of the plant. (b) Work-practicc and administrative controls. These
control techniques include isolation of operations, rotation of employees, sanitation and housekeeping prac tices. A detailed description of such controls shall be obtained. It is essential that work-practice controls and the education program be implemented simultaneously. The overall effect of such practices and programs shall be evaluated, emphasizing the employees' knowledge of their exposures.
(c) Protective devices. The I.H. shall determine whether an effective protective device program exists in the plant. A detailed investigation of the personal protection program shall be made to determine com pliance with 29 CFR 1910.134. If there is a written program, it should be obtained and evaluated. Special emphasis shall be given to the determination of sanitary condition of the equipment, of maintenance of the equip ment and of the training program on the selection and usage of protective devices. The I.H. shall also obtain information concerning any medical examinations which are required prior to the issuance of a respirator.
(6) Regulated areas. The I.H. shall investigate procedures for regulated areas, as required by certain standards, as follows:
(a) Regulated areas are clearly identified and known to all employees.
(b) Sampling has been utilized to determine designa tion of regulated areas.
(c) The regulated area designations are maintained according to the prescribed criteria of the standard.
(d) Daily rosters are maintained of authorized personnel entering and leaving the regulated area. Sum maries of such rosters are acceptable,
(e) Regulated areas are established based on employee exposures in excess of prescribed levels.
(7) Emergency procedures. Some standards provide for specific emergency procedures to be developed in handling certain hazardous substances. The I.H. and CSHO shall evaluate the emergency program for the following:
(a) Inclusion of all potential emergency conditions in the written plan.
(b) Explanation of such emergency conditions to employees.
(c) Training scheme for the protection of affected employees.
(d) Delegation of authority for the implementation of the operational plan for emergency situations.
F. Evaluation of Sampling Data
The I.H. and Area Director must use professional judgment in the evaluation of the data and conditions to confirm the sampling results. The following are guide lines to be weighed.
1. The l.H.'s past experiences must indicate that the sampling results are reasonable.
2. The sampling results in the plant must correlate with each other. For example, the occupation that is expected to be dusty should have higher dust concentra tions measured than those expected to be less dusty.
3. The sampling results should reasonably correlate with previous measurements made by OSHA, the company and labor, taking into account variations due to weather, production, breakdowns, etc.
4. The sampling results indicate exposure with allow ance mac}e for instrument accuracy.
5. All sampling must be performed according to OSHA standard methods and the industrial hygienists record must so state.
G. Issuance of Citations
1. A detailed description of the issuance of citations and classification of violations as serious or other-than-serious is provided in the Industrial Hygiene Manual.
2. The I.H. shall make a maximum effort to discover whether appropriate personal protective equipment as required by 29 CFR 1910.95(a), 1910.134, 1910.1000(e) and 1910.1000(d) is being fitted and worn by all employees exposed to toxic substances.
a. Where respirators or other personal protective equipment are not properly fitted or worn, and the affected employee is exposed to a toxic substance in excess of the permissible exposure limits required by the applicable standard, a citation shall be issued with classification as serious or other than serious, deter mined according to the hazard as described in the Indus trial Hygiene Manual.
b. For purposes of proposing a penalty, the gravity of the serious health violation will depend on (1) the number of employees exposed without personal protective equip ment, as compared with the number of employees properly wearing personal protective equipment; (2) the potential health consequences of the compound or condi tion to which the employee is exposed. More specific penalty guidelines will be given with the publication of Chapter XI.
3. An employer shall be cited for an other than serious violation where he has not established written operating procedures governing the use of respirators, has not trained and instructed employees in their proper use, and has not regularly cleaned and disinfected the respirators, even though such respirators are properly fitted and worn.
4. When appropriate personal protective equipment is being properly used, citations will be issued for failure to utilize administrative or engineering controls when the I.H. has a reasonable belief that such controls are feasible. Generally, such citations will be other than serious unless available data indicates that the personal protective equipment, even when properly fitted and worn, is not effective in fully reducing exposure to ac ceptable limits as required by the applicable standard.
5. During the course of the inspection, the I.H. will carefully investigate the source or cause of observed hazards to determine if some type of engineering or administrative control or combination thereof may be applied which would significantly reduce employee exposure. In order to cite, the OSHA representative's knowledge need not establish that the controls would reduce exposure to the limits prescribed by the applicable standard.
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(). Work practices and personal hygiene. a. Citations for serious violations should be issued where an air contaminant's route of ingress into the human body may be through ingestion or absorption and when employees consume food or drink where such contaminants are present. The proper citation would be for 29 CFR 1910.141(g)(2) for allowing an employee to consume beverages or food "in any area exposed to a toxic material.'' A "toxic material" is defined in 29 CFR I910.141(a)(2)(viii) as "a material in concentration or amount which exceeds the applicable limit established by a standard, such as 1910.1000 and 1910.1001 or, in the absence of an applicable standard, which is of such toxicity so as to constitute a recognized hazard that is causing or is likely to cause death or serious physical harm.'' b. The following paragraph is an explanation of the definition of toxic material as per 1910.14i(a)(2)(viii). Where a compound's permissible exposure limit is listed in fable Z-l of 29CFR 1910.1000, citation for improper work practices or personal hygiene will not depend on measurements of airborne levels in excess of those required by Table Z-l, which is only relevant when the hazards of airborne concentrations are present. Thus where a compound is either listed in Table Z-1 and Table Z-2 or is a recognized hazard and employees are exposed to the hazards of ingestion or absorption in an area where they are allowed to consume beverages or food, a citation should be issued under 1910.141(g)(2). c. Citations for specific work practices and personal hygiene requirements for carcinogenic substances: e.g., 29 CFR 1910.1004(c)(4)(iii) should be issued under the applicable standard. 7. Where ingestion or absorption dangers to Table Z-l and Table Z-2 substances or recognized hazards are present in nonconsumption areas a serious citation should be issued under section 5(a)(1) of the Act if it is a recognized hazard after consultation with the Regional Office with directions provided by the Technical and Analytical Assistance Unit. Thus, where airborne, ingestive or absorptive exposure to a toxic substance is not governed by a specific standard, a citation under the general duly clause should be issued if the exposure con stitutes a recognized hazard likely to cause death or serious physical harm. Particular attention should be given to establishing the systemic effects of this substance upon the human body, the levels of exposure, the number of employees affected, the effectiveness of the respirator program and the recognition of the hazard in the applicable industry. A toxic substance may be regulated for airborne exposures in 29 CFR 1910.1000 but not regulated for ingestive or absorptive exposures. These arc also subject to the general duty clause as specified above.
H. Feasible Engineering and Administrative Controls
/. Administrative Control
Any procedure which significantly limits daily exposure by control or manipulation of the work schedule. The use of personal protective equipment is not considered a means of administrative control.
2. Engineering Control
Any procedure other than administrative control or the use of personal protective equipment that reduces exposure at its sources or close to the employee; e g., hearing zone, breathing zone, etc. Proper work practices and personal hygiene facilities are defined as engineering controls.
3. Feasibility
Existence of general technical knowledge as to materials or methods which are available or adaptable to specific circumstances with a reasonable possibility that employee exposure to violative conditions of noise, dust or other substances or conditions will be reduced.
a. Determining Feasibility. (1) Engineering controls are feasible when the l.H. using directions and guidelines provided by the Technical and Analytical Assistance Unit through the Regional Technical Support possesses general knowledge as to present or developing technology based upon, but not limited to, one of the following sources: (a) Similar situations observed elsewhere with adequate engineering controls to reduce employee exposure. (b) Written source materials or conference presentations that indicate equipment and designs are available to reduce employee exposure in similar situa tions. (c) Studies by a qualified consulting firm, professional engineer, industrial hygienist, or insurance carrier that show engineering controls are technically feasible. (d) Studies and materials collected and prepared by the Technical and Analytical Assistance Unit. (e) Equipment catalogs and suppliers that indicate engineering controls are technically feasible and are or will become available within the citation's abatement period.
(2) General knowledge of industry and available and developing technology indicates that feasible engineer ing controls will exist in most cases.
b. Economics and Feasibility. (I) The employer's economic cost of abatement will not be considered (o be a factor in the issuance of a citation. However, if the cost of utilization of effective engineering or administrative controls, or combination, which would bring the employer into compliance with permissible exposure limits would so seriously jeopardize his financial condition as to result in the probable shutdown of his establishment or a substantial part, then only a personal protective equipment program should be required in the interim, and an extended abatement date should be granted to permit the extended implementation of feasible engineering or administrative controls taking into account the employer's financial condition. The burden of proof of economic infeasibility rests upon the employer. Any abatement date based on economic grounds shall be approved by the Regional Administrator. (a) Wherever feasible engineering controls which can be instituted are not sufficient to reduce exposures to, at. or below the permissible exposure limit, they shall be
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used nonetheless to reduce exposure to the lowest prac ticable level.
(b) Where a personal protective equipment program is being followed but feasible engineering and/or adminis trative controls have not been implemented, other-thanserious citations shall be issued. However, in light of the difficulty of discovering irregularities in a personal pro tective equipment program, as well as the presumptive inadequacy of personal protective equipment, an excep tional penalty schedule should be established for othcr-than-serious violations of feasibility requirements. For example, if exposure levels are very high and no controls have been put in place, an unadjusted penalty of $ 1000 should be proposed, subject to adjustment for size, good faith and past history.
Abatement
1. A batement Dates
Under Section 9(a) of the Act. the citation for feasible engineering or administrative controls must "Fix a reasonable time for abatement of the violation." In the implementation of such controls, a step-by-step program for abatement is of paramount importance. Therefore, the citation as reflected by the Standard Alleged Viola tion examples shall contain the following abatement ele ments with specific abatement dates for their comple tion as determined by the I.H., using guidelines of the Technical and Analytical Assistance Unit, in consultation with the Regional Technical Support.
a. The employer shall immediately insure the use of effective and appropriate personal protective equipment as an interim measure until feasible engineering or administrative controls can be developed and implemented.
b. By a date certain, a written detailed schedule of abatement shall be submitted to the Area Director, out lining the program for feasible engineering or adminis trative controls. (Note: With regard to the noise standard, engineering and administrative controls are equivalent abatement priorities; with regard to air eontaminants, engineering controls must be exhausted before an employer may rely upon administrative con trols.) The employer should be advised that the schedule should include target dates for such items as:
(1) Hiring of identified engineering consultant: (2) Completion of preliminary surveys and engineering studies; (3) Decision on optimally feasible abatement program; (4) Completion of design phase; (5) Selection of contractor: (6) Ordering of equipment and materials; and (7) Submission of regular progress reports, c. By a date certain, the feasible engineering controls must be determined. This date should reflect the progress in b. (3) above which provides for a "decision on optimally Feasible abatement program." d. By a date certain, all feasible engineering or administrative controls will be in place, thereby reducing employee exposure to the levels required by the relevant standard.
2. Monitoring oj A batement Plans
A multistep, extended abatement plan must be closely monitored by the Area Office in order to determine whether the schedule is being met and whether maximum effort is being directed toward the imple mentation of feasible controls. Although no formal ap proval of plans will be given by OSHA in the context of uncontested citation, OSHA shall acknowledge receipt of the plan in writing. Where an Area Office discovers ap parent deficiencies in the employer's proposed plan, the employer should be urged to correct such deficiencies if the abatement efforts are to be successful. The specific elements ot such a monitoring program arc as follows:
a. Careful analysis of the detailed abatement schedule and of all progress reports submitted pursuant thereto. Such analysis will require close coordination with the AARD for Technical Support, the Technical and Analytical Assistance Unit and National Office personnel familiar with the state of the technical art;
b. Monitoring visits conducted one or two times per year to insure that target dates are being met and that controls arc being expeditiously implemented. Such monitoring visits shall involve not only an evaluation of engineering progress, but also the sampling of employee exposures and the detailed examination of all medical data to determine the extent of continuing exposure and its effect upon the employees. In those instances where severe symptomology is detected by licensed physicians at any time, including during the course of abatement, serious consideration should be given to instituting imminent danger proceedings pursuant to Chapter IX of the FOM in coordination with the Regional Solicitor and the Technical Assistant and Analytical Unit.
3. Petitions for Modification of Abatement Dates
The Secretary has promulgated regulations. 29 CFR 1903.14a, governing the disposition of petitions for modification of abatement dates. Before the Area Director grants such a petition, the following procedure is to be followed:
a. No petition may be granted unless all five requirements in 29 CFR 1903.14a(b)(l)-(5) are set forth in detail in the employer's petition.
b. Before an extension is granted, a monitoring in spection must be conducted to insure that the employer's representations are true and in good faith and that the employer has attempted to implement controls as expeditiously as possible. This monitoring inspection can be conducted before the petition for modification of abatement is received providing the inspection adequately represents the conditions at the time the detection for modification of abatement date is received.
e. Where it is determined that the employer has not made a good faith effort to comply with the abatement requirements by the dates contained in the original cita tion, a failure to abate notification should be issued in conjunction with the objection of the petition for modification of abatement date. The latter document must be forwarded to the Commission pursuant to 29 CFR !903.14a(d).
d. Where employees comment on an extension of
6-IG 77
Copyright
1977 by The Bureau ot National Affairs, Inc.
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77:8008
abatement date, written notation of the fact and details must be recorded and placed in the case file.
4. Consultation with Affected Employees and Their Representatives
It should be emphasized that the implementation of engineering controls and work practices in the context of a long-range abatement plan vitally affects employees and their working conditions. Accordingly, in order to maximize the effectiveness of any abatement plan, close coordination and consultation with affected employees or their representatives is imperative. Specifically, the following actions should be taken:
a. All abatement schedules and progress reports shall be made available to affected employees or their representatives, subject to any trade secret protections of Section 15 of the Act.
b. All monitoring visits shall be conducted with the full opportunity for participation by employee representatives.
In such cases where an employee or his representative files objections, the petition is treated as a contested case pursuant to 29 CFR 1903.14a(d).
5. Failure to Abate
a. Where a determination is made during a
REFERENCE FILE
monitoring visit and prior to the expiration of the final abatement date (see 1.2.) the employer has failed to main tain the schedule for abatement, no failure to abate notification shall be issued unless the employer has not made a good faith effort to meet the target dates set forth in his abatement plan and such failure will make it impossible to complete abatement by the final date established in the citation.
b. A thorough investigation of the extent of abatement must be made at the expiration of a final abatement date. This investigation shall include analysis of the employer's final abatement report and an inspection of the worksite. Where the employer has failed to imple ment any controls, a failure to abate notification shall be issued. Where the employer has implemented some controls, but other technology was available during the abatement period which would have brought the levels of airborne concentrations or noise within the regulatory requirements, a failure to abate notification shall be issued. Where failure to abate by means of engineering controls is found to be due to infeasibility of technology, no failure to abate notification shall be issued for a failure to implement feasible engineering controls; however, if proper adminsitrative controls, work practices or personal protective equipment are not utilized, a failure to abate notification shall be issued.
Occupational Safety and Health Reporter
UCC 016465
82
INDUSTRIAL HYGIENE MANUAL
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UCC 016511
156
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INDUSTRIAL HYGIENE MANUAL
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S-109
77:8149
2 b l 0 Z1KCONIUM COMPDS <*S ZRI
6-16*77
Copyright 1977 by The Bureau of National Affairs. Inc.
UCC 016512
157
S-109
77:8181
INDUSTRIAL HYGIENE MANUAL
CHAPTER X VENTILATION
I. Ventilation measurements shall be taken during the industrial hygiene inspection when air quality is being determined. The purpose of the ventilation measurements are as follows:
Ventilation data can be correlated with air quality measurements when analyzing the air quality re sults for their reasonableness.
Knowledge of ventilation increases the reliability of compliance action based on air quality measure ments. For example, if measurements indicate that the air quality standards are slightly exceeded, poor ventilation practices increase the certainty that a potential health hazard exists and citations are re quired.
Evaluation of existing ventilation systems will assist in determination of feasible engineering controls.
Citations shall not be issued against improper ven tilation unless both of the following conditions exist: (1) the air quality standards are violated (2) specific ventilation requirements exist to require engineer ing controls, such as for open tanks and spray paint booths. In no case shall citations be issued to require specific volumes of air for ventilating operations.
II. Type of ventilation measurements to be taken. A thorough ventilation survey is time consuming and is not necessary during an OSHA health inspection. The following ventilation data is necessary:
Types of ventilation systems employed-natural, general forced air, dilution, local exhaust, and com binations.
Volume of general ventilation, location of air
inletfs).
General flow of air through plant.
Locations and type of local exhaust ventilation, face
velocities, capture velocities, the appropriateness of
the type for the job.
Operations that are normally ventilated in the
industry but are not ventilated in the one being
inspected.
r
Employer's maintenance on ventilation system,
what the employer does and is it enough (example--
check pressure drops, clean out elbows periodically,
check fan blades).
Variables that effect ventilation--doors, windows,
openings in building, and processes involving high
temperature.
General comments on effectiveness of system.
Approximate sizes of local exhaust. Type and size of fans and collector.
Make up air, how it is obtained and recirculation
volumes.
It will not be necessary to perform detailed velocity
traverses in ducts, determine rpm of fan, drill holes in
ducts for measurements, measure sizes of ducts and other detailed ventilation work.
Sketches and/or photographs must be used to
document ventilation and processes where air quality is
poor.
6-16-77
Copyright 1977 by The Bureau of National Affairs, Inc.
UCC 016513
159
OH Team: Industrial Hygienists: Exposure Guidelines Committee:
DISTRIBUTION LIST
Hr. N. W. Gaines - 511 E. Q. Hull, M.D. - 511 Mr. J. B. Johnson - 511 Hr. R. T. Kramer - 512 Hr. A. E. Montagna - NYO Hr. J. S. Novak - 312 (Somerville) Mr. T. P. Raby - 312 Mr. A. R. Randall - 312 (Somerville)
Mr. D. S. Carroll - 380 Mrs. J. A . Cosenza - 31*) Mr. J. L. Davidson - 513 Mr. D. E. Deese - 515 Mr. J. N. Derm it - 510 Mr. F. J. Garcia-Sharp - 293 Mr. G. F. Hurley - 511 Mr. W. D. Neal - 312 Mr. J. C. Schonberg - 519 Mr. K. G. Townsend - 526 Mr. F. Williams - 512 Mr. W. C. Young - 51*)
Dr. C. P. Carpenter - Mellon C. U. Dernehl , M.O. - NYO Mr. W. J. Hansen - 511 Mr. N. H. Ketcham - 511 Mr. J. V. Murray - NYO
UCC 016514