[Federal Register Volume 62, Number 143 (Friday, July 25, 1997)]
[Rules and Regulations]
[Pages 40142-40234]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-19381]
[[Page 40141]]
_______________________________________________________________________
Part II
Department of Labor
_______________________________________________________________________
Occupational Safety and Health Administration
_______________________________________________________________________
29 CFR Part 1910, et al.
Longshoring and Marine Terminals; Final Rule
Federal Register / Vol. 62, No. 143 / Friday, July 25, 1997 / Rules
and Regulations
[[Page 40142]]
DEPARTMENT OF LABOR
Occupational Safety and Health Administration
29 CFR Parts 1910, 1917, and 1918
[Docket No. S-025]
RIN 1218-AA56
Longshoring and Marine Terminals
AGENCY: Occupational Safety and Health Administration (OSHA), Labor.
ACTION: Final rule.
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SUMMARY: The Occupational Safety and Health Administration (OSHA) is
revising its Safety and Health Regulations for Longshoring and those
parallel sections of its Marine Terminals Standard. These rules address
cargo handling and related activities conducted aboard vessels (the
Longshoring Standard) and landside operations at marine terminals (the
Marine Terminals Standard). The comprehensive revisions to the
Longshoring Standard essentially rewrite that standard for the first
time since it was adopted in 1971 under Section 6(a) of the
Occupational Safety and Health Act, while the amendments being made to
the Marine Terminals Standard will provide consistency with the
language of the new Longshoring Standard. The changes that OSHA is
making to both standards are part of OSHA's continuing efforts to
reinvent its workplace regulations to keep them current with evolving
work practices and to reduce inconsistencies in regulatory
requirements. Although the longshoring and marine terminal rules are
``vertical'' standards that apply only to longshoring and marine
terminal activities, OSHA has also made minor changes to some of the
general industry provisions referenced within these rules. These
changes, which are non-substantive, have been made to conform the
general industry requirements to the terminology used in the marine
cargo-handling environment.
This final document contains requirements for the testing and
certification of specific types of cargo lifting appliances and
associated auxiliary gear and other cargo handling equipment such as
conveyors and industrial trucks; access to vessels; entry into
hazardous atmospheres; working surfaces; and use of personal protective
equipment. Additionally, OSHA addresses specialized longshoring
operations such as containerized cargo, logging, and roll-on/roll-off
(Ro-Ro) operations.
The principal hazards this rule addresses are injuries and
fatalities associated with cargo lifting gear, transfer of vehicular
cargo, manual cargo handling, and exposure to hazardous atmospheres.
OSHA also addresses those hazards posed by more modern and
sophisticated cargo handling methods, such as intermodalism.
DATES: Effective Dates: This rule becomes effective on January 21,
1998. The incorporation by reference of certain publications listed in
the regulations is approved by the Director of the Federal Register as
of January 21, 1998.
Compliance: Start-up dates for specific provisions are set in
Secs. 1917.43(f)(3), 1917.71(f)(4), 1918.11(a) (1) and (2), 1918.24(d),
(f)(1), and (g), 1918.62 (h)(5)(ii), 1918.65(d)(4) and (g),
1918.85(j)(1)(1) and (ii), 1918.86(g), and 1918.98(b)(1). However,
affected parties do not have to comply with the information collection
requirements in Sec. 1917.25 (g) warranty of fumigated tobacco,
Sec. 1917.26(d)(7) labelling of stretcher closets, Sec. 1917.50(i)(2)
labelling of cargo handling gear, Sec. 1917.71(f)(4) marking of
trailers, Sec. 1918.22(g) labelling gangway hazards, Sec. 1918.74(i)(1)
tagging ladders, Sec. 1918.61(b)(2) labelling gear, Sec. 1918.86(g)
labelling trailers, and Sec. 1918.94(b)(3) maintenance of air sampling
results, until the Department of Labor publishes in the Federal
Register the control numbers assigned by the Office of Management and
Budget (OMB). Publication of the control numbers notifies the public
that OMB has approved these information collection requirements under
the Paperwork Reduction Act of 1995.
Comments: Interested parties may submit comments on the information
collection requirements for this standard until September 23, 1997.
ADDRESSES: In compliance with 28 U.S.C. 2112(a), the Agency designates
the Associate Solicitor for Occupational Safety and Health, Office of
the Solicitor, Room S-4004, U.S. Department of Labor, 200 Constitution
Ave., N.W., Washington, D.C. 20210, as the recipient of petitions for
review of the standard.
Comments on the paperwork requirements of this final rule are to be
submitted to the Docket Office, Docket No. ICR97-3, U.S. Department of
Labor, Room N-2625, 200 Constitution Ave., N.W., Washington, D.C.
20210, telephone (202) 219-7894. Written comments limited to 10 pages
or less in length may also be transmitted by facsimile to (202) 219-
5046.
Copies of the referenced information collection request are
available for inspection and copying in the Docket Office and will be
mailed immediately to persons who request copies by telephoning Vivian
Allen at (202) 219-8076. For electronic copies of the final Longshoring
and Marine Terminals Standards and Information Collection Request,
contact OSHA's WebPage on Internet at http://www.osha.gov/ under
Standards.
FOR FURTHER INFORMATION CONTACT: Mr. Larry Liberatore, Director of the
Office of Maritime Safety Standards, or Paul Rossi, Project Officer,
Office of Maritime Safety Standards, Occupational Safety and Health
Administration, Room N-3609, U.S. Department of Labor, 200 Constitution
Avenue, NW, Washington, D.C. 20210, (202) 219-7234.
SUPPLEMENTARY INFORMATION: The principal author of this final rule is
Paul Rossi, Directorate of Safety Standards Programs, with editorial
assistance from Joseph Daddura, Michael B. Moore and Odet Shaw of the
Directorate of Safety Standards Programs and Paul Bolon of the
Directorate of Policy; the economic analysis was developed by Paul
Bolon and Clarinda Giddings of the Directorate of Policy; and James
Estep of the Office of the Solicitor provided legal assistance.
General
The preamble to the final rule on the Longshoring and Marine
Terminals Standards discusses the events leading to the final rule, the
Summary of the Final Economic Analysis and Regulatory Flexibility
Analysis, and the rationale behind the specific provisions set forth in
the final Standard. The discussion follows this outline:
I. Background
II. Pertinent Legal Authority
III. Review of General Industry Standards for Applicability to
Longshoring Operations
IV. Summary and Explanation of the Final Rule
V. Other Issues
VI. Summary of the Final Economic Analysis and Regulatory
Flexibility Analysis
VII. Environmental Impact
VIII. Recordkeeping and Paperwork Requirements
IX. State Plan Requirements
X. Federalism
XI. Unfunded Mandates
I. Background
Because of the high number and serious nature of accidents
occurring to port employees in the United States, Congress, in 1958,
amended the Longshore and Harbor Workers' Compensation Act (LHWCA) (33
U.S.C. 901 et seq.) to provide a large segment of port-based employees
with a safer work environment. The amendments (Pub. L. 85-742, 72 Stat.
835)
[[Page 40143]]
significantly strengthened section 41 of the LHWCA (33 U.S.C. 941) by
requiring employers covered by that Act to ``furnish, maintain and
use'' equipment, and to establish safe working conditions, in
accordance with regulations promulgated by the Secretary of Labor. Two
years later, in 1960, the Labor Standards Bureau (LSB) of the
Department of Labor issued the first set of safety and health
regulations for longshoring activities as 29 CFR part 9 (25 FR 1565).
LSB amended these standards several times between 1960 and 1971. Since
1971, there have been no substantive changes to these provisions.
The Occupational Safety and Health Act of 1970 (the Act) (29 U.S.C.
650 et seq.), which established the Occupational Safety and Health
Administration (OSHA), granted the Secretary of Labor the authority for
two years to adopt, under section 6(a) of the Act, ``any established
Federal standard'' as an OSHA standard. OSHA adopted the Longshoring
Standard, then codified as 29 CFR part 1504, under section 6(a) in
1971, and recodified the standard as 29 CFR part 1918.
The longshoring industry has changed dramatically since 1971. The
methods of cargo handling and the equipment associated with those
methods have undergone significant modification. Vessels designed
specifically for the carriage of intermodal containers, vehicular
rolling stock, and even barges, are now the most common types of ships
calling at U.S. ports. By contrast, the existing Longshoring Standard
was designed largely for activities using methods and equipment that
have since been overshadowed or replaced by more modern methods of
cargo handling. The final rule will modernize OSHA's regulatory
approach to deal with these changes in the industry. However, because
some older, more conventional vessel types, equipped with features and
aspects addressed in the existing standard, continue to call at U.S.
ports, the Agency will retain in this final rule several provisions
whose utility, although diminished, continues on a more limited scale.
On July 5, 1983, OSHA published its final rule for Marine Terminals
(48 FR 30886) (Ex. 1-101). OSHA issued the Marine Terminals rule to
address the shoreside segment of marine cargo handling operations.
Since the Marine Terminals Standard currently addresses equipment and
situations (i.e., powered industrial trucks, conveyors, passage between
levels and across openings, etc.) that have shipboard counterparts,
appropriate provisions from the Marine Terminals Standard were
incorporated into this rulemaking for shipboard cargo handling as well.
Accordingly, the Agency relied upon background material and data used
to support OSHA's Marine Terminals Standard and incorporated the docket
(Docket No. S-506) developed in that rulemaking into the record of this
rulemaking.
OSHA published a Notice of Proposed Rulemaking (NPRM) for
Longshoring and Marine Terminals on June 2, 1994 (59 FR 28594). As part
of the NPRM, OSHA announced three public hearings to be held in
Charleston, SC on September 20, 1994; Seattle, WA on October 19, 1994;
and in New Orleans, LA on November 15, 1994. Later, OSHA published a
notice of correction changing the dates of the hearings and announcing
the specific hearing sites. Hearings were held October 4-6, 1994 in
Charleston, SC; October 19-21, 1994 in Seattle, WA; and November 15-17,
1994 in New Orleans, LA. Administrative Law Judge Stuart A. Levin
presided at the hearings. After receipt of all evidence and testimony,
the record was closed on May 15, 1995.
This final rule will provide continuity for the cargo handling
industry because it addresses both the more conventional and time-
proven methods of cargo handling and more modern and innovative
approaches. In keeping with OSHA's commitment to clarity, flexibility,
and in order to encourage employers to comply with these standards,
OSHA has adopted the performance approach except in those cases in
which employee safety would be enhanced by more specific requirements.
Longshoring Hazards
Traditionally, the longshore industry, which is classified within
Standard Industrial Classification (SIC) 449, has been notable in terms
of its accident experience. The work environment found in marine cargo
handling exposes employees to a greater risk of injury than is true for
most other industries. In fact, in 1993, the last calendar year for
which full tables of industrial illnesses and accidents are currently
available, this industrial sector had one of the highest rates of lost
workdays in the nation. The following data, shown in Table A below,
came from Bureau of Labor Statistics reports (Exs. 1-109, 1-110, 1-111,
1-112, 1-113, 1-154, and 1-155), and are useful in making a comparative
assessment:
Table A--Rate of Total Lost Workday Cases
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Total lost workday cases (rate per 100 full time employees) 1989 1990 1991 1992 1993
----------------------------------------------------------------------------------------------------------------
Private sector overall............................................. 4.0 4.1 3.9 3.9 3.8
Construction....................................................... 6.8 6.7 6.1 5.8 5.5
SIC 449............................................................ 9.1 7.8 8.5 6.1 7.1
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Thus, serious job-related injuries have continued to occur in the
marine cargo handling industry at an unacceptably high rate. Based on
this historical injury data, OSHA concludes that regulatory action is
necessary to meet its mandate under the Act. The standards being
published today, which were developed by OSHA with substantial input
from labor and industry representatives from the marine cargo handling
industry, have been developed specifically to address the principal
causes of these illnesses, injuries, and fatalities.
II. Pertinent Legal Authority
The purpose of the Occupational Safety and Health Act, 29 U.S.C.
651 et seq. (``the Act'') is to ``assure so far as possible every
working man and woman in the nation safe and healthful working
conditions and to preserve our human resources'' (29 U.S.C. 651(b)). To
achieve this goal, Congress authorized the Secretary of Labor to
promulgate and enforce occupational safety and health standards. (See
29 U.S.C. 655(a) (authorizing summary adoption of existing consensus
and federal standards within two years of the Act's enactment), 655(b)
(authorizing promulgation of standards pursuant to notice and comment),
654(b) (requiring employers to comply with OSHA standards).)
A safety or health standard is a standard ``which requires
conditions, or the adoption or use of one or more practices, means,
methods, operations, or processes, reasonably necessary or appropriate
to provide safe or healthful employment or places of employment.'' 29
U.S.C. 652(8).
[[Page 40144]]
A standard is reasonably necessary or appropriate within the
meaning of section 652(8) if it substantially reduces or eliminates
significant risk, and is economically feasible, technologically
feasible, cost effective, consistent with prior Agency action or
supported by a reasoned justification for departing from prior Agency
actions, supported by substantial evidence, and is better able to
effectuate the Act's purposes than any national consensus standard it
supersedes. See 58 FR 16612-16616 (March 30, 1993).
The Supreme Court has noted that a reasonable person would consider
a fatality risk of 1/1000 to be a significant risk, and would consider
a risk of one in one billion to be insignificant. Industrial Union
Department v. American Petroleum Institute, 448 U.S. 607, 646 (1980)
(the ``Benzene decision''). So a risk of 1/1000 (10-3)
represents the uppermost end of a million-fold range suggested by the
Supreme Court, somewhere below which the boundary of acceptable versus
unacceptable risk must fall. The Court further stated that ``while the
Agency must support its findings that a certain level of risk exists
with substantial evidence, we recognize that its determination that a
particular level of risk is significant will be based largely on policy
considerations.'' See, e.g. International Union, UAW v. Pendergrass,
878 F.2d 389 (D.C. Cir. 1989) (formaldehyde standard); Building and
Constr. Trades Department, AFL-CIO v. Brock, 838 F.2d 1258, 1265 (D.C.
Cir. 1988) (asbestos standard).
A standard is technologically feasible if the protective measures
it requires already exist, can be brought into existence with available
technology, or can be created with technology that can reasonably be
expected to be developed. American Textile Mfrs. Institute v. OSHA 452
U.S. 490, 513 (1981) (``ATMI''), American Iron and Steel Institute v.
OSHA, 939 F.2d 975, 980 (D.C. Cir 1991) (''AISI'').
A standard is economically feasible if industry can absorb or pass
on the cost of compliance without threatening its long term
profitability or competitive structure. See ATMI, 452 U.S. at 530 n.
55; AISI, 939 F.2d at 980.
A standard is cost effective if the protective measures it requires
are the least costly of the available alternatives that achieve the
same level of protection. ATMI, 453 U.S. at 514 n. 32; International
Union, UAW v. OSHA, 37 F.3d 665, 668 (D.C. Cir. 1994) (``LOTO III'').
All standards must be highly protective. See 58 FR 16614-16615;
LOTO III, 37 F.3d at 668. However, health standards must also meet the
``feasibility mandate'' of section 6(b)(5) of the Act, 29 U.S.C.
655(b)(5). Section 6(b)(5) requires OSHA to select ``the most
protective standard consistent with feasibility'' that is needed to
reduce significant risk when regulating health hazards. ATMI, 452 U.S.
at 509.
Section 6(b)(5) also directs OSHA to base health standards on ``the
best available evidence,'' including research, demonstrations, and
experiments (29 U.S.C. 655(b)(5)). OSHA shall consider ``in addition to
the attainment of the highest degree of health and safety protection *
* * the latest scientific data * * * feasibility and experience gained
under this and other health and safety laws.'' Id.
Section 6(b)(7) of the Act authorizes OSHA to include among a
standard's requirements labeling, monitoring, medical testing and other
information gathering and transmittal provisions (29 U.S.C. 655(b)(7)).
III. Review of General Industry Standards for Applicability to
Longshoring Operations
Among the work environments OSHA regulates, the marine cargo
handling industry ranks high in terms of the number of hazards that are
not adequately addressed by OSHA's general industry regulations (29 CFR
part 1910). Longshoring is essentially a transport industry and, as
such, is free from some of the hazards found in general industry such
as those associated with woodworking machinery, spray painting, power
presses, and so on. On the other hand, many hazards that are common in
longshoring, such as those posed by falling loads and working on the
top of intermodal containers, are less common in other types of
workplaces.
The Longshoring Standards (part 1918) were designed to deal with
these and other unique hazards encountered in marine cargo handling.
Where the standards in part 1918 did not provide coverage of hazards
encountered in longshoring they were supplemented by the applicable
General Industry Standards. This final rule updates and revises OSHA's
existing Longshoring Standard (29 CFR part 1918) but continues to rely
on OSHA's General Industry Standards (29 CFR part 1910) to address a
number of hazards and operations that are not unique to longshoring.
The applicable standards from part 1910 are cross-referenced in the
final rule. Examples of such provisions are the toxic and hazardous
substances requirements from subpart Z of 29 CFR part 1910 (with an
exception for intact or sealed cargo and the Bloodborne Pathogens
Standard), and 29 CFR part 1910 subpart T, which addresses commercial
diving operations. In other instances, such as when addressing
container and roll-on roll-off (Ro-Ro) operations, OSHA has developed
new regulatory language specifically to address the hazards posed by
these specialized operational aspects of modern stevedoring. This
approach is similar to the one followed by OSHA in developing its
Marine Terminals Standard (part 1917) for shoreside cargo handling
promulgated in 1983.
In many situations, shipside cargo handling (i.e. longshoring)
hazards are directly parallel to those encountered in shoreside cargo
handling (i.e. marine terminals), such as hazards requiring the use of
personal protective equipment and risks associated with the handling of
intermodal containers. One of the goals of this rulemaking effort has
been to provide consistent coverage of these hazards, regardless of
whether the cargo handling is shipside or shoreside. Accordingly, in
drafting its revised provisions for longshoring (part 1918), OSHA
incorporated similar language into the Marine Terminals Standard (part
1917).
IV. Summary and Explanation of the Final Rule
This section discusses the important elements of the final
standard, explains the purpose of the individual requirements, and
explains differences between the final rule, the proposed rule, and
existing standard. Issues raised in the public hearings and in written
comments to the standard's docket are presented and summarized. The
Agency also presents its discussion of the issues and its reasoning for
specific determinations. References in parentheses are to exhibits and
transcript \1\ pages in the rulemaking record.
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\1\ CH--Transcript of the hearings held in Charleston, SC,
October 4, 5, 6, 1994.
SEA--Transcript of the hearings held in Seattle, WA, October 19,
20, 21, 1994.
NO--Transcript of the hearings held in New Orleans, LA, November
15, 16, 17, 1994.
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In developing the final rule the Agency actively worked with the
marine cargo handling industry to build a consensus among labor and
management with OSHA. This was possible because the marine cargo
handling industry is relatively small and well-defined. In addition, a
high percentage of employees are represented by labor unions. Employers
are also well-organized into employer groups at each port and in each
of the four major port regions of the country--East Coast,
[[Page 40145]]
West Coast, Gulf Coast, and Great Lakes and Inland Waterways. Drafts of
the 1994 proposal were circulated to key stakeholders, and many issues
were resolved before the proposed rule was published. As a result,
there was considerable support for the proposed regulation.
General comments of support such as ``supports OSHA efforts to
promote workplace safety'' or ``strongly supports revision'' were
expressed by several commenters (Exs. 19, 6-20, 6-21, 6-35, and 6-44).
Many commenters submitted statements to the effect that they
``wholeheartedly endorse'' the comments submitted by the National
Maritime Safety Association (NMSA) in Ex. 8-20. These commenters, who
wished to go on record as concurring with the views expressed by the
NMSA in Ex. 8-20 are represented by Exs. 6-6, 6-7, 6-8, 6-9, 6-11, 6-
12, 6-13, 6-14, 6-15, 6-16, 6-17, 6-27, 6-32, 6-34, 6-35, 6-36, 6-39,
6-40, and 6-43. Another group of commenters submitted statements to the
effect that they concurred with the Pacific Maritime Association's
(PMA's) written comments, which were submitted as Ex. 8-8. These
commenters are represented by Exs. 6-7, 6-27, 6-32, 6-34, 6-40, and 6-
43. Accordingly, throughout this preamble, whenever reference is made
to ``Ex. NMSA et al.'', the citation reflects the written comments
received from NMSA and those commenters listed above that supported
NMSA. The same applies to exhibit ``Ex. PMA et al.'' which refers to
PMA's comments and those of the commenters that supported the PMA. This
condensed referencing technique streamlines the document.
A. 29 CFR Part 1910--General Industry
In the proposal (59 FR 28594 et seq.), OSHA proposed a number of
editorial changes to several provisions of part 1910 (the General
Industry Standards being incorporated by reference into the Longshoring
Standard) to make the application of the General Industry Standards to
the Longshoring and Marine Terminals Standards clearer. OSHA received
no substantive comments on the proposed editorial changes to the
General Industry Standards. Accordingly, these editorial revisions have
been made in the final rule.
Paragraphs (a) and (b) of Sec. 1910.16, Longshoring and Marine
Terminals, have been updated and revised editorially. The definition of
a ``marine terminal'' (Sec. 1910.16(b)(4)) has been amended to be
consistent with the revised definition in Sec. 1917.2(u). The Marine
Terminals Standard preamble, which follows, has a detailed explanation
of this definitional change.
B. 29 CFR Part 1917--Safety and Health Regulations for Marine Terminals
1. Non-substantive changes. In the proposal, OSHA proposed numerous
revisions to provisions in OSHA's existing Marine Terminals Standard
(29 CFR part 1917) that were considered non-substantive. These changes
were widely supported by commenters. For the purposes of this final
regulation, OSHA has divided these changes into two categories:
correction of typographical errors \2\ and changing the phrase ``shall
be available at the terminal'' to ``shall be made available for
inspection''.\3\ The paragraphs affected by each type of change are
identified in the appropriate footnote below.
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\2\ Sections 1917.13(g); .17(i), (j), (k); .20; .23(b)(1), (d);
.27(a)(2); .42(d)(2), (h)(4), (j)(1); .44(a), (i), (o)(3)(i); .45,
(f)(4)(iii), (f)(5)(i), (f)(7), (f)(13)(ii), (i)(5), (j)(1)(iii)(D);
.48(d)(2); .71(c); .112(a)(1); .118(d)(2)(i), (f)(2); .119(b)(1),
(d)(2), (f)(4); .121(b)(3); .156(b)(3)(iii)(D); .157(n).
\3\ Sections 1917.24(d), 1917.25.(c), 1917.42(b)(4),
1917.42(c)(1), 1917.42(d)(1), 1917.42(h)(4), and 1917.42(h)(5).
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OSHA had proposed deleting the introductory phrase ``the employer
shall ensure'' from various requirements to correct technical drafting
amendments from the final Marine Terminals Standard published on July
5,1983 (48 FR 30886). These paragraphs included: Secs. 1917.18(a),
1917.43(e)(1)(i), 1917.44(o)(3)(ii), 1917.44(o)(4), 1917.126(b),
1917.152(f)(1), 1917.152(f)(2), and 1917.152(f)(3)(iv).
However, after the June 2, 1994, publication of the Longshore and
Marine Terminals proposal, OSHA compliance staff reported that deletion
of this phrase in other standards actions (e.g. 61 FR 19547) had caused
difficulty in connection with the employer's obligation to have
employees wear personal protective equipment (PPE). Therefore, OSHA is
retaining this language in the current part 1917 paragraphs noted
above. For the sake of clarity and consistency, the word ``required''
(which is used extensively in parts 1917 and 1918) and the word
``ensure'' shall be synonymous for compliance purposes.
In keeping with the Agency's efforts to develop regulatory language
that is more ``user-friendly'' and easier to follow, the references to
part 1910 (OSHA's General Industry Standards) in Sec. 1917.1(a) have
been renumbered and placed in alphabetical order.
2. Substantive changes made in both parts 1917 and 1918. OSHA
proposed substantive, identical changes to OSHA's existing part 1917
(the Marine Terminals Standard) and part 1918 (the Longshoring
Standard) to provide consistency between them. The rationale for these
changes to part 1917 can be found in Section IV of this preamble,
Summary and Explanation of the Final Rule, at the respective part 1918
section discussion. The following table (Table B, Parallel Changes in
parts 1917 and 1918) lists the sections or paragraphs changed in part
1917, along with the sections or paragraphs in part 1918 in which
parallel changes were made:
Table B--Parallel Changes in Parts 1917 & 1918
------------------------------------------------------------------------
Part 1918 sections/
Part 1917 sections/paragraphs paragraphs
------------------------------------------------------------------------
Sec. 1917.22 (hazardous cargo)........... Sec. 1918.89
Sec. 1917.24(a) (carbon monoxide)........ Sec. 1918.94(a)(1)(ii)
Sec. 1917.25(a) (fumigants).............. Sec. 1918.94(d)
Sec. 1917.26(c) (first aid).............. Sec. 1918.97(c)
Sec. 1917.26(d) (stretchers)............. Sec. 1918.97(d)
Sec. 1917.27(a)(2) (personnel)........... Sec. 1918.98(a)(2)
Sec. 1917.30 (emergency response)........ Sec. 1918.99
Sec. 1917.42(g)(2)(vi) (slings criteria). Sec. 1918.62(g)(2)(vi)
Sec. 1917.45(f)(5) (crane glass)......... Sec. 1918.55(b)(1)
Sec. 1917.45(j)(2) (cranes).............. Sec. 1918.66(c)(2)
Sec. 1917.45(j)(9) (riding the load)..... Sec. 1918.85(h)
Sec. 1917.50(c)(5) (special gear)........ Sec. 1918.61(f)
Sec. 1917.51 (hand tools)................ Sec. 1918.69
Sec. 1917.71(f) (vertical lifts- Sec. 1918.85(f)(1)(i)
containers).
Sec. 1917.71(b)(6) (autos in containers). Sec. 1918.85(b)(6)
Sec. 1917.73(a)(2) (menhaden)............ Sec. 1918.94(f)(4)
Sec. 1917.91(a)(1) (eye protection)...... Sec. 1918.101(a)(1)
Sec. 1917.93(b) (head protection)........ Sec. 1918.103(b)
Sec. 1917.94(b) (foot protection)........ Sec. 1918.104(b)
Sec. 1917.95(b)(2) (PFDs)................ Sec. 1918.105(b)(2)
Sec. 1917.124(c)(5),(6) (dockboards)..... Sec. 1918.25(a)(4)
Sec. 1917.124(d)(1),(5) (ramps).......... Sec. 1918.25(b)(5)
Sec. 1917.127(a)(1) (sanitation)......... Sec. 1918.95(a)(1)
Sec. 1917.151 (machine guarding)......... Sec. 1918.96(e)
------------------------------------------------------------------------
3. Substantive changes only in part 1917. OSHA also has made
several substantive changes to the Marine Terminals Standard that have
no
[[Page 40146]]
parallel in the Longshoring Standard. These changes are discussed in
the following paragraphs. In final subpart A, Scope and Definitions of
the Marine Terminals Standard, SHA has updated and clarified the scope,
applicability, and definitions sections of the Marine Terminals
Standard. The Marine Terminals Standard (part 1917) covers all
shoreside activities taking place within a marine terminal (48 FR
30891) except those that are specifically exempted in
Secs. 1917.1(a)(1) and 1917.2(u). It is OSHA's intent that the marine
cargo handling standards (part 1917 for shoreside and part 1918 for
shipboard) apply to all functions that are associated with the movement
of cargo. However, the current marine terminal definition
(Sec. 1917.2(u)) includes a geographical as well as functional test to
be applied when determining when the Marine Terminals Standard, rather
than the General Industry Standards applies. Section 1917.1(a),
entitled ``Scope and applicability,'' is worded as follows in OSHA's
existing Marine Terminals Standard:
The regulations of this part apply to employment within a marine
terminal as defined in Sec. 1917.2(u), including the loading,
unloading, movement or other handling of cargo, ship's stores or
gear within a marine terminal or into or out of any land carrier,
holding or consolidation area, or any other activity within and
associated with the overall operation and functions of the terminal,
such as the use and routine maintenance of facilities and equipment.
(Emphasis added)
The definition of ``marine terminal'' in the existing standard is
as follows:
``Marine terminal'' means wharves, bulkheads, quays, piers, docks
and other berthing locations and adjacent storage or contiguous
areas and structures associated with the primary movements of cargo
or materials from vessel to shore or shore to vessel including
structures that are devoted to receiving, handling, holding,
consolidation and loading or delivery of waterborne shipments or
passengers, including areas devoted to the maintenance of the
terminal or equipment. The term does not include production or
manufacturing areas having their own docking facilities and located
at a marine terminal nor does the term include storage facilities
directly associated with those production or manufacturing areas.
(Emphasis added)
OSHA received comments to the effect that the relationship of the
work being performed to cargo handling operations should determine
whether an activity is included within the scope of the Marine
Terminals Standard, not the location where the work is being performed.
For example, the National Maritime Safety Association (NMSA) stated,
Additional language should be added to allow gear and maintenance
shops located off-terminal to fall under the scope of 1917. Even
though the same workers perform the same job tasks in both shop
locations, the off-terminal shops must [currently] comply with the
rules found in 1910. In many cases, the local Port Authority will
not allow shops to be located on their terminal so the Stevedore or
Marine Terminal operator has no choice but to locate off-terminal.
As long as work performed in off-terminal shops is the same as work
performed in shops located on-terminal and is primarily in support
of Longshoring or Marine Terminal operations, the same rules should
apply to both locations. (Ex. 8-20)
OSHA finds merit in this recommendation, and no views to the
contrary were presented. There is no geographical limitation to
maritime jurisdiction on shore other than the limitation of the Act
itself, and it is not OSHA's intent to impose an artificial geographic
boundary through the standards-setting process. The controlling test
should be whether the operation is associated with the primary movement
of cargo. If maintenance of terminal equipment is performed within the
limitations of OSHA's marine cargo handling rules, then part 1917
applies regardless of where the ``terminal'' gate exists. In the final
standard, OSHA has therefore relaxed the language suggesting a strict
geographical test. In Sec. 1917.1(a) of the final rule, the first
sentence of the term ``marine terminal'' is changed to read: ``Marine
Terminal means wharves, bulkheads, quays, piers, docks and other
berthing locations and adjacent storage or adjacent areas and
structures associated with the primary movement of cargo or materials
from vessel to shore or shore to vessel including structures which are
devoted to receiving, handling, holding, consolidation and loading or
delivery of waterborne shipments or passengers, including areas devoted
to the maintenance of the terminal or equipment * * *''. In addition,
for purposes of clarity, the phrase, ``having their own docking
facilities and located at a marine terminal,'' is deleted in the final
rule. This deletion does not change the intended effect of this
definition.
Another marine terminal-related scope issue was previously
addressed by OSHA after publication of the final Marine Terminals
Standard in 1983. In 1984, OSHA and the National Grain and Feed
Association (NGFA) came to a settlement agreement that identified those
provisions of the Marine Terminals Standard (part 1917) that are
generally applicable and those that are not applicable at marine
terminal grain elevators. (For a copy of the agreement, see Ex.1-156.)
In the present rulemaking, OSHA has made no substantive changes to
those sections of the Marine Terminals Standard that were part of this
agreement. For information purposes, OSHA is providing the following
excerpt (Table C) from the 1984 agreement that lists the provisions of
the Marine Terminals Standard (part 1917) that are generally not
applicable to marine terminal grain elevators:
Table C--Provisions Generally Inapplicable To Marine Terminal Grain Elevators
--------------------------------------------------------------------------------------------------------------------------------------------------------
Part 1917 Section Subject
--------------------------------------------------------------------------------------------------------------------------------------------------------
.13.................................... Slinging
.14.................................... Stacking of Cargo and Pallets
.15.................................... Coopering
.17(c),(d)(1), (f),(h)&(k)............. Railroad Facilities
.18.................................... Log Handling
.22.................................... Hazardous Cargo
.23.................................... Hazardous Atmospheres and Substances
.41.................................... House Falls
.43(g)&(h)............................. Powered Industrial Trucks
.46.................................... Crane Load and Limit Devices
.48(b),(c), (d)&(e).................... Conveyors
.49(e)&(g)............................. Spouts, Chutes, Hoppers, Bins and Associated Equipment
.71.................................... Terminals Handling Intermodal Containers or Roll On Roll Off Operations
.73.................................... Terminals Handling Menhaden and Similar Species of Fish
.114................................... Cargo Doors
[[Page 40147]]
.115................................... Platforms and Skids
.124................................... Passage between Levels and across Openings
.153................................... Spray Painting
--------------------------------------------------------------------------------------------------------------------------------------------------------
Proposed Sec. 1917.25(g), which concerned tobacco that has been
loaded into containers and then fumigated prior to loading the
container onto a vessel, required that the contents of the container be
aerated by opening the container doors for a 48-hour period after
fumigation and before loading. The proposed requirement also stipulated
that the aeration period be extended to 72 hours in cases where the bag
liners of the cases in which the tobacco is shipped are made of
polyethylene or similar material. The proposal required that employers
obtain a warranty from the fumigator stating that the aeration period
had been met. This requirement differs from the fumigated tobacco issue
addressed in subpart I of part 1918, which applies to cargoes that are
break-bulk such as bales or hogsheads (Sec. 1918.94(c)). Tobacco
cargoes, both imported and exported, are shipped most typically in
bales, in hogsheads, and in intermodal containers. Thus,
Sec. 1917.25(g) applies to tobacco that is fumigated while it is in
containers but before it is loaded into the vessel.
In determining the appropriateness of required aeration intervals,
OSHA is relying on documents from the U.S. Department of Agriculture
and the Tobacco Association of the United States. The studies reported
in these documents concluded that intermodal containers loaded with
fumigated tobacco required an additional 48 to 72 hours of aeration to
be free of hazardous fumigant levels, depending on whether or not the
tobacco is within shipping cases having polyethylene or similar bag
liners (Exs. 1-70, 1-95).
Comment was received on proposed Sec. 1917.25(g); commenters asked
OSHA to delete the proposed requirement for a 48-hour aeration period
for fumigated tobacco that is loaded into containers before those
containers are loaded on a vessel (Exs. 6-1, NMSA et al.):
OSHA's attention is directed to document number 1, earlier submitted
into evidence by NMSA. This document contains a copy of a letter
from the United States Environmental Protection Agency to Soil
Chemicals Corporation, permitting containers under fumigation to be
transferred onto and off of ships.
Also in the document is a letter from the California Department
of Pesticides regulation accepting this practice.
NMSA feels that the words ``and prior to loading'' should be
deleted from the end of the first sentence. Aeration of fumigated
containers aboard ship is a common practice that has been in effect
for many years. Continuing this practice will result in a delay in
cargo delivery and disrupt vessel sailing schedules. (NO Tr. p.150)
OSHA has determined that the studies and data supplied by the U.S.
Department of Agriculture and the Tobacco Association which show that
48-and 72-hour aeration periods are necessary to reduce fumigant levels
to non-hazardous levels in containers without and with polyethylene
lined bags, respectively, are more compelling than the evidence
submitted by these commenters. Accordingly, Sec. 1917.25(g) of the
final rule remains the same as proposed and requires employers to
provide the appropriate aeration period for tobacco that is fumigated
in a container prior to loading.
In Sec. 1917.45(f)(5)(ii), OSHA proposed to require seat belts for
the operators of high speed container gantry cranes.\4\ This new
proposed requirement would have allowed a 90-day phase-in period for
the installation of the seat belts. Comment was received that supported
the requirement for seat belts but requested that a 180-day phase-in
period be given to allow more time to purchase and install the
necessary equipment (Exs. 6-1, 6-16b, 6-31a). The majority of U.S.
marine terminals are owned by quasi-governmental organizations (i.e.,
port authorities). Typically, major capital equipment such as container
gantry cranes are owned and maintained by the aforementioned quasi-
governmental organizations. In order to allow sufficient time to
accommodate government budget cycles, OSHA has concluded that a 180-day
phase-in period is appropriate and has written Sec. 1917.45(f)(5)(ii)
of the final rule accordingly.
---------------------------------------------------------------------------
\4\ High speed container gantry cranes are those capable of
hoist speeds of 360 feet per minute (110 m/min) (without a load) and
trolley speeds of 500 feet per minute (152 m/min) or faster.
---------------------------------------------------------------------------
Paragraph (a)(1) of Sec. 1917.46 of the existing and proposed
Marine Terminals Standard, crane load and limit devices, requires all
cranes, except those specifically exempted, to be equipped with a load
indicating device. OSHA received one comment (Ex. 82) requesting that
overhead cranes used in marine terminals be included in the types of
cranes exempted from this requirement. This commenter pointed out that
overhead cranes are similar to bridge-type container gantry cranes,
which are exempted from this requirement, in that the load capacity of
the crane is the same regardless of the actual position of the load. In
other words, the load capacity of the crane does not depend on a boom
that can change radius (and thus the load capacity); it is this factor
that makes a load indicating device necessary. OSHA agrees with this
commenter, and final rule Sec. 1917.46(a)(1)(viii)(A) specifically
exempts overhead cranes from the requirement to have a load indicating
device.
C. 29 CFR Part 1918--Safety and Health Regulations for Longshoring
Subpart A--Scope and Definitions
This subpart updates and clarifies the scope, applicability, and
definition sections of the Longshoring Standard.
Section 1918.1 Scope and application
The Longshoring rules apply from the foot of the gangway up to the
vessel and address all activities related to cargo handling aboard the
vessel. This means that ship-to-shore/shore-to-ship cargo transfer
operations using shore-based material handling devices and all lifting
device-specific aspects of such transfers will be covered by the Marine
Terminals Standard (29 CFR part 1917). When cargo handling is
accomplished using ship's cargo gear, the Longshoring Standard (29 CFR
part 1918) applies.
This final rule has been written to stand by itself, i.e., to be a
``vertical standard.'' Vertical standards are those that apply to a
specific industry and address the hazards present in that industry. For
industries such as longshoring, the vertical standards in part 1918 are
intended to provide comprehensive coverage of the hazards in an
industry and make it unnecessary for employers in that industry to
refer to, or comply with, most other OSHA standards. However, in
several areas of coverage, OSHA's General Industry Standards have been
incorporated into the Longshoring Standard by reference, and these 29
CFR part 1910
[[Page 40148]]
incorporations are listed in paragraph (b) of the final rule's scope
and application section. This approach follows the approach taken by
OSHA in its other marine cargo handling standard, the Marine Terminals
Standard, 29 CFR part 1917 (48 FR 30886). The Agency is incorporating
by reference the General Industry Standards (from 29 CFR part 1910)
that are needed to supplement the specific marine cargo handling
provisions in the Longshoring Standard. The incorporation-by-reference
approach is an efficient means of providing coverage for those hazards
that are not unique to the marine cargo handling industry. This idea
was endorsed by many commenters (Ex. NMSA et al.). For example, in his
testimony at the October 20, 1994, Seattle hearing, Mr. Hank Bynaker,
manager of environmental safety and health for American President
Lines, stated `` . . . I would like to recognize OSHA's efforts to
modernize their approach and to support that effort.'' (SEA Tr. p. 295)
The following 29 CFR part 1910 General Industry Standard provisions
will have application to longshoring operations, under Sec. 1918.1:
(b)(1) Access to employee exposure and medical records. Subpart Z,
Sec. 1910.1020;
(b)(2) Commercial diving operations. Subpart T;
(b)(3) Electrical. Subpart S when shore-based electrical
installations provide power for use aboard vessels;
(b)(4) Hazard communication. Subpart Z, Sec. 1910.1200;
(b)(5) Ionizing radiation. Subpart Z, Sec. 1910.1096;
(b)(6) Noise. Subpart G, Sec. 1910.95;
(b)(7) Nonionizing radiation. Subpart G, Sec. 1910.97; and
Note: Exposures to nonionizing radiation emissions from
commercial vessel radar transmitters are considered hazardous under
the following situations: (a) where the radar is transmitting, the
scanner is stationary, and the exposure distance is 19 feet (6 m) or
less; or (b) where the radar is transmitting, the scanner is
rotating, and the exposure distance is 5 feet (1.8 m.) or less.
(b)(8) Respiratory protection. Subpart I, Sec. 1910.134.
(b)(9) Toxic and hazardous substances. Subpart Z applies to marine
cargo handling activities except for the following:
(A) when a substance or cargo is contained within a sealed, intact
means of packaging or containment complying with Department of
Transportation or International Maritime Organization requirements; \5\
---------------------------------------------------------------------------
\5\ The International Maritime Organization publishes the
International Maritime Dangerous Goods Code to aid compliance with
the international legal requirements of the International Convention
for the Safety of Life at Sea, 1960.
---------------------------------------------------------------------------
(B) Bloodborne pathogens, Sec. 1910.1030;
(C) Carbon monoxide, Sec. 1910.1000 (See Sec. 1918.94 (a)); and
(D) Hydrogen sulfide, Sec. 1910.1000 (See Sec. 1918.94 (f)).
These subparts and sections of OSHA's General Industry Standards
are also incorporated into the Marine Terminals Standard
(Sec. 1917.1(a)(2)) by reference along with several other part 1910
sections that have application only in a marine terminal. Incorporating
the same General Industry Standards into the Longshoring and Marine
Terminals Standards will make both of OSHA's marine cargo handling
rules similar with respect to these issues, an approach that has long
been advocated by the marine cargo handling industry and is supported
by this record.
OSHA's Bloodborne Pathogens Standard (29 CFR 1910.1030) does not
apply to marine cargo handling operations. OSHA will continue its past
policy of applying the first aid requirements of Secs. 1917.26 and
1918.97. In a letter dated July 31, 1992, to the National Maritime
Safety Association, OSHA addressed the coverage of the Bloodborne
Pathogen Standard to the marine cargo handling industry. It states, in
pertinent part, as follows:
* * * the bloodborne pathogen standard primarily applies to general
industry establishments and not the cargo handling industry that
N.M.S.A. represents. (Ex. 6-158).
Bloodborne pathogens are most commonly encountered in the cargo-
handling environment during a first aid response when an injured
employee is bleeding. Under these circumstances, first aid, which
encompasses universal precautions (procedures for handling human blood
and certain human body fluids in a manner that prevents the
transmission of infection), must be followed by first aid responders.
For further guidance, particularly for small employers, OSHA has
included a non-mandatory appendix, Appendix V, titled Basic Elements of
a First Aid Training Program.
In addition, as was proposed, OSHA is exempting from subpart Z all
sealed, intact packages or containers that meet the Department of
Transportation (DOT) or International Maritime Organization (IMO)
requirements. OSHA's existing Longshoring Standard contains no such
exemption, although the existing Marine Terminals Standard
(Sec. 1917.1(a)(2)(ii)) does. Packages and containers that are sealed
present no exposure hazards to marine cargo handling employees,
provided that such containment remains intact. In order for packages
and containers to qualify for the exemption in Sec. 1918.1(b)(9)(B),
they must meet DOT or IMO requirements. This will ensure that exempted
packages are properly packaged, and thus highly unlikely to expose
workers to toxic or hazardous substances. Including the exemption for
intact packages and containers in the final Longshoring Standard will
thus make that standard consistent with the Marine Terminals Standard.
OSHA also proposed to incorporate various other provisions of the
General Industry Standards into the Longshoring and Marine Terminals
Standards. These included subpart P of 29 CFR part 1910, which covers
hand and portable tools, 29 CFR 1910.120(q), which addresses emergency
response to hazardous substance releases, and subpart O of 29 CFR part
1910, which covers machine guarding. At the time of the proposal, OSHA
had made an initial determination that these general industry
provisions provided more comprehensive coverage than the corresponding
provisions of the Longshoring and Marine Terminals Standards. However,
commenters did not support the incorporation of these general industry
provisions, as discussed in detail below.
To ensure safe practices in the use of hand tools, in
Sec. 1918.1(b)(5), OSHA proposed deleting the current longshoring
requirements for hand tools, Sec. 1918.72, titled ``Tools,'' and
replacing this section with the more comprehensive requirements of
subpart P of 29 CFR part 1910, titled Hand and Portable Powered Tools
and Other Hand Held Equipment. OSHA also proposed to incorporate the
same general industry section into the Marine Terminals Standard
(proposed Sec. 1917.1(a)(2)(vii)). This approach was not supported by
rulemaking participants, however. For example, the Pacific Maritime
Association in their comments asserted that:
About the only hand tools used by longshoremen aboard vessels
are hammer-hatchets, chain saws, hand saws, hydraulic wire cutters
and manual wrenches. There is no need for OSHA to require the
adoption of 1910 Subpart P that includes hand tools never used
aboard vessels (Ex. 8-8).
This position was also voiced by several respondents (Ex. NMSA et
al.). In addition, OSHA has re-examined its compliance history for
marine cargo handling found in its Integrated Management Information
System (which contains computerized data on all OSHA compliance
inspection data,
[[Page 40149]]
dating back to 1972). While citations were found for the provisions
addressing the hazards associated with hand and portable power tools
found in Parts 1917 and 1918, no such citations were found for Part
1910. After considering these comments and in light of the Agency's own
enforcement data, OSHA has determined that the hand tool provisions in
the Agency's existing Marine Terminals and Longshoring Standards do
address the hand tool hazards present in marine cargo handling
operations more effectively than would be the case if subpart P of the
General Industry Standards were incorporated by reference. Accordingly,
the final rule does not incorporate these general industry
requirements.
OSHA proposed to include from the General Industry Standards a
paragraph from Subpart H, Hazardous waste operations and emergency
response, Sec. 1910.120(q), to address the issue of appropriate
coverage of emergency response to hazardous incidents. This paragraph,
essentially, requires employers to develop and implement an emergency
response plan to handle anticipated toxic substance emergencies prior
to the commencement of emergency response operations. If employers
decide to evacuate their employees from the danger area when an
emergency occurs and do not permit their employees to assist in
handling the emergency, they are exempt from the requirements of this
paragraph if they have provided an emergency action plan and met other
requirements in accordance with Sec. 1910.38(a).
The existing longshore and marine terminals regulations address the
issue of responding to hazardous cargo spills in Sec. 1917.22 (marine
terminals) and Sec. 1918.86 (longshoring). In general, these sections
require the employer to remove employees from the area that the cargo
has been spilled in, to determine the hazard involved, and to instruct
employees in proper clean-up procedures.
Many commenters felt that adding this general industry provision
duplicated the existing marine terminal and longshoring regulations
discussed in the last paragraph (Exs. 6-29a, 6-39, NMSA et al.).
Mr. Richard Buonocore, Director of Safety for Matson Terminals,
Incorporated and Matson Navigation Company, Incorporated, and Shore
Side Operations, stated at the Seattle hearings:
I also direct the Committee's attention to proposed 1918.89(a)
and (c). These sections would repeat in the marine terminals rules
existing sections 1917.22(a) and (c) from the longshoring rules.
We're still with preparation for receiving hazard cargo and for
responding to hazard cargo spills.
We believe these proposals, both of which deal with hazard
materials, awareness, and responses to hazard material incidents,
are unnecessary because these subjects are adequately and
appropriately addressed by other existing provisions.
Emergency response plans were addressed in 1910.38(a), preparing
for receipt of hazard cargos and dealing with spills are addressed
in 1918.86(a) and (c).
Hazard communications issues are addressed in 1918.90,
particularly subpart (h), as well as in the general OSHA hazard
communication standard of 29 CFR 1910.1200.
Ventilation risks for particular hazard commodities are
addressed by 1918.93.
Perhaps most importantly in this regard is DOT's HAZMAT employee
training rules, 49 CFR 172.204, which was alluded to by John Pavelko
but not by citation number, requiring training on hazard material,
risk, and emergency response.
Under the DOT rules, all employees, including longshore
personnel working with hazardous materials and transportation must
be given awareness and safety training and must know how to
recognize potential dangers and how to take appropriate actions to
protect their personal safety in the event of a hazardous release
(SEA Tr. pp. 218-219).
Mr. John Pavelko, the Pacific Maritime Association Coast Director
for Training and Accident Prevention testified to the issue that the
marine cargo handling industry does not do hazardous material clean-up:
Again, the PMA members on the West Coast have an agreement that if
there is an emergency, the emergency will be responded to by a
professional vendor. Longshoremen will not be called to respond to
any emergency.
Under the HAZWOPER, the HAZWOPER, as you know, was designed for
hazardous waste generators. It was for big time corporations that
generate a lot of hazardous waste. The maritime industry just kind
of got sucked into this thing by that one little sentence in there
that says if there's going to be an emergency, then you've got to
have a plan.
Then if you don't respond to an emergency, then you've got to
refer to, what was it, 1910.38. So all of our members fall under
1910.38 and not under the HAZWOPER, but yet when a compliance
officer, on several--I shouldn't say several--on at least two or
three occasions when compliance officers have come to the
waterfront, they try to cite our employers under the HAZWOPER.
We're saying, it's not us, it doesn't apply, and there's back
and forth, back and forth, and this is another issue that causes a
lot of problems for employers. (SEA Tr. pp. 189-190)
Mr. Ron Signorino, Director of Regulatory Affairs, Universal
Maritime Service Corporation, testified in the New Orleans hearings:
The HAZWOPER rule was written by OSHA in response to a mandate by
Congress to have rules in place, whereby employees responding to an
emergency situation could be protected from the hazards that are
associated with that response.
Now, the position of the National Maritime Safety Association
has been traditionally that when employees employed by members of
NMSA are aware of the spill that those employees be directed to
evacuate any area in a spill, so that a professional team can come
in and respond to that emergency, the professional teams are outside
contractors who have no affiliation with the work.
Typically, they're specialists in performing these clean-ups of
these hazard emergency responses.
Then, as a consequence, the provisions of HAZWOPER, rightly
should not apply to employees who have, in fact, no exposure (NO Tr.
p. 202).
OSHA agrees with the commenters that the HAZWOPER regulations are
for those employers and employees that are in the business of cleaning
up spills of hazardous chemicals and hazardous waste generators.
However, if a marine cargo handling employer decides to respond to an
emergency that is beyond the scope of the Emergency Action Plan
developed by the employer in accordance with the final rule
(Secs. 1917.30 and 1918.100), that employer ceases to be acting in a
``marine cargo handling'' capacity and the appropriate sections of
OSHA's General Industry Standards (e.g., 29 CFR 1910.120(q), HAZWOPER)
would apply. This is reflective of the application of
Sec. 1910.120(q)(1) which reads in relevant part:
Employers who will evacuate their employees from the danger area
when an emergency occurs, and who do not permit any of their
employees to assist in handling the emergency, are exempt from the
requirements of this paragraph if they provide an emergency action
plan in accordance with Sec. 1910.38(a) of this part.
In the final rule, OSHA has decided to address these hazards by
adding a new section to each of the Longshoring and Marine Terminals
Standards. These new sections, which are identical, will alleviate the
duplication and confusion that would be caused by the proposed cross-
referencing of paragraphs from the Hazardous Waste Operations and
Emergency Response Standard, Sec. 1910.120(q), and from the Emergency
Action Plans Standard Sec. 1910.38(a). These new sections, which are
codified in subpart B, Marine Terminal Operations (Sec. 1917.30), and
subpart I, General Working Conditions (Sec. 1918.100), require marine
terminal and longshoring employers, respectively, to develop a written
(if there are 10 or fewer employees, oral
[[Page 40150]]
communication of the emergency action plan is acceptable) emergency
action plan to handle anticipated emergencies of all types, including
those involving fires and toxic substances, before the commencement of
emergency response operations. These sections identify the basic
elements of an emergency action plan (escape route planning,
accountability, employer contacts); an alarm system; evacuation
procedures; and training requirements. OSHA believes that, as a
practical matter, the emergency action plan can be adequately
communicated to a small group of employees of 10 or fewer when the
requirements of the plan are orally explained; a written plan is
therefore unnecessary in this circumstance.
OSHA proposed to protect marine cargo handling employees from the
hazards of fixed machines by referencing the comprehensive list of
machine guarding provisions contained in OSHA's General Industry
Machine Guarding Standards (29 CFR 1910 subpart O) into the scope of
both the Marine Terminals and Longshoring Standards.
The existing regulations address machine guarding in different
ways. In the Longshoring Standard, machine guarding is addressed in
several areas such as cargo winches (``When moving parts of winches or
other deck machinery present a hazard, they shall be guarded,''
Sec. 1918.53(a)(1)) and in powered conveyors (``All conveyor and
trimmer drives which create a hazard shall be adequately guarded,''
Sec. 1918.69(c)). In the Marine Terminals Standard, the existing
regulations on machine guarding center around the ``danger zone''
concept. A ``danger zone'' is defined in the Marine Terminals Standard
as any place in or about a machine or piece of equipment where an
employee may be struck by or caught between moving parts, caught
between moving and stationary objects or parts of the machine, caught
between the material and a moving part of the machine, burned by hot
surfaces or exposed to electric shock. The danger zone performance
approach to machine guarding provides coverage of all hazards within
the danger zone without the need to address each hazard separately.
This approach also requires employers to use their judgment about which
machine parts or areas at or near a machine do in fact expose employees
to workplace hazards.
Several commenters noted that the existing danger zone concept used
in the Marine Terminals Standard provided the necessary employee
protection and that the proposed machine guarding provisions were
unnecessary (Exs. 6-29a, 6-31a, 6-35). Other commenters favored the
danger zone approach and stated that the machine guarding provisions in
the General Industry Standards were voluminous and addressed several
types of machinery that were not found in marine cargo handling
operations (Ex. NMSA et al.).
Mr. Signorino addressed this issue during the hearings in New
Orleans, testifying as part of a panel representing the National
Maritime Safety Association:
We adopt the approach that was originated by OSHA, implemented by
that agency in the promulgation of the 1917 standards; and, in the
space of time since the promulgation of those standards, has borne
significance in terms of lack of accident experience, in terms of
moving parts of machinery. That concept is, of course, the dangers
[zone] (NO Tr. p. 413).
OSHA agrees with the above comments and testimony and in the final
rule has decided that the same danger zone approach to machine guarding
hazards pioneered in the Marine Terminals Standard (Secs. 917.2(g) and
1917.151) will provide appropriate protection from machine guarding
hazards in marine cargo handling operations regardless of location,
i.e., in both marine terminal and longshoring operations. In addition,
using the danger zone concept will allow employers some compliance
flexibility. For example, although an unguarded nip point near an
employee's work station will usually present a significant caught-in
hazard, a nip point located 10 feet above the working surface is far
less likely to present such a hazard.
Accordingly, the final rule does not incorporate subpart O of the
General Industry Standards into the scope of the Marine Terminals and
Longshoring Standards as proposed. Instead the final rule retains the
existing machine guarding protections provided by Sec. 1917.151 of the
Marine Terminals Standard and brings these provisions into the final
Longshoring Standard as Sec. 1918.96(e). (Guidance on a wide range of
machine guarding techniques and background information may be found in
the OSHA pamphlet ``Concepts and Techniques of Machine Guarding'' (OSHA
3067-1992) or the American National Standards Institute (ANSI)
publication ``American National Standard for Machine Tools'' (ANSI
Bll.l9-1990).)
In keeping with the Agency's efforts to develop regulatory language
that is easier to follow, the references to part 1910, OSHA's General
Industry Standards in Sec. 1918.1(b) have been renumbered and placed in
alphabetical order.
Section 1918.2 Definitions
Final rule Sec. 1918.2 carries over many definitions from the
proposed and existing Longshoring Standards because those definitions
are still relevant and are used in the final rule. However, some new
definitions and modifications to existing definitions were proposed and
have been added or made to reflect changes in current custom and
practice in the longshore industry.
The existing rule's references to ``Federal maritime jurisdiction''
and ``navigable waters'' in the definitions of ``employee'' in
Sec. 1918.2 paragraph (e) and ``employer'' in paragraph (f) were not
included in the proposal. The existing rules were originally
promulgated under the Longshore and Harbor Workers' Compensation Act
(33 U.S.C. 941), whose jurisdiction was limited to navigable waters.
The promulgation of the OSH Act, which applies to private sector
employment in covered workplaces, no longer uses navigable waters to
establish jurisdiction. The final rule does not include these
references.
New definitions or definitions that OSHA has revised substantially
in the proposal or final are described below.
The definition of ``danger zone'' in the final rule is taken from
OSHA's existing Marine Terminals Standard, as discussed above. This
definition exists in the existing Marine Terminals Standard and is
being added to the final Longshore Standard. OSHA finds it appropriate
to include identical definitions of this term in the Marine Terminals
and Longshoring Standards because various kinds of equipment that pose
similar hazards to employees are present in both marine cargo handling
environments.
OSHA proposed a new definition for ``designated person,'' which
received considerable support (Ex. NMSA et al., Ex. 6-22). This term
has been incorporated in the final rule, and is defined to mean a
person who has a special skill in a particular area and has been
assigned by the employer to do a specific task in that area. Examples
of the use of this term in the final Longshoring Standard are:
Sec. 1918.51(b) which requires that a designated person inspect a
vessel's cargo gear before use and at intervals during use; and
Sec. 1918.55(c)(7) which requires that a designated person supervise
tandem lifting operations.
The definitions for ``enclosed space'' and ``fumigant'' in the
final are essentially unchanged from those proposed in the Longshore
Standard. In
[[Page 40151]]
addition, these definitions are essentially identical to those found in
the Marine Terminals Standard.
A definition for ``fall hazard'' has been added to the final rule
in Sec. 1918.2. According to the final rule, a fall hazard exists when
employees are working within 3 feet of the unprotected edge of a work
surface that is 8 or more feet above the adjoining surface and 12
inches or more horizontally from the adjacent surface, or when weather
conditions are such as to impair the vision or footing of employees
working on top of containers. This definition was proposed as a
footnote to the container top fall protection section; however, because
it has application in several other sections of the Longshoring
Standard (Secs. 1918.32, 1918.85, and 1918.87), it has been placed in
the definitions section. The definition makes it clear that it is the
unprotected edge that poses a fall hazard and not necessarily the
entire work surface (except in bad weather or when ice, grease etc. is
present so the entire surface may be slippery). Additionally, any gap
of 12 inches (.31 m) or more on a horizontal surface formed by
containers is considered an unprotected edge and would constitute a
fall hazard under this definition. OSHA believes that any work within 3
feet (.92 m) of an unprotected edge constitutes a hazard (Ex. 1-139),
providing that the second essential element of this definition exists,
i.e. that the vertical distance is such as to constitute a fall hazard.
In proposed Sec. 1918.85(j), the Agency defined the fall height trigger
at 10 or more feet above the adjoining surface. The final rule,
however, sets the vertical height for fall hazards at 8 or more feet
above the adjoining surface; this fall height is consistent with the
fall height established in the final rule for non-containerized cargo
(see Sec. 1918.32(b)). The final trigger height of 8 feet is identical
to the existing requirement for fall protection found in
Sec. 1918.32(b). OSHA believes that this height was originally adapted
from an industry practice that pre-dated containerization. At that
time, cargo was usually palletized into a standard 4 foot high pallet.
It became an industry practice that whenever pallets were stacked two
or more, the top working surface would be considered a fall hazard,
thus requiring nets or other equivalent protection.
The definition of ``Hazardous cargo, materials, substance or
atmosphere'' in the final longshore rule has been expanded to reflect
the Marine Terminal Standard's definition of hazardous cargo. This
definition goes beyond the existing part 1918 definition by including
references to subpart Z of part 1910 and oxygen-deficient atmospheres.
The definition for ``intermodal container,'' which remains
unchanged from the definition in the proposal, reflects a combination
of definitions found both in the International Labor Organization (ILO)
Code of Practice for Safety and Health in Dock Work (Ex.1-135) and the
definition found in the International Standards Organization (ISO)
Standard 830, Freight Containers-Terminology (Ex.1-134). The definition
in the final rule more accurately describes an intermodal container
than the definition that is in the existing rule. This updated
definition is also in the Marine Terminals Standard at Sec. 1917.2.
The definitions of ``dockboards'' and ``ramps,'' found in the
existing Marine Terminals Standard, have been brought into the
Longshoring Standard with minor editorial modifications.
The extensive list of definitions that were included in
Sec. 1918.3(r) of the existing Longshoring Standard that specifically
refers to existing Sec. 1918.13, ``Certification of shore-based
material handling devices,'' has been deleted in the final rule. These
definitions are no longer needed in the Longshoring Standard because
part 1917, the Marine Terminals Standard, now contains OSHA's
regulations for the certification of shore-based material handling
devices.
The proposed definition for ``vessel's cargo handling gear'' had
been modified by adding language to reflect cargo gear included under
the ILO Convention 152. The final definition gives examples of the
kinds of cargo handling gear that are included in this newer definition
to reflect comments received that requested a more descriptive
definition (Ex. 6-22).
For the sake of clarity and consistency, the word ``required''
(which is used extensively in parts 1917 and 1918) and the word
``ensure'' shall be synonymous for compliance purposes.
Subpart B--Gear Certification
Section 1918.11 Gear Certification
In OSHA's current Longshoring Standard, subpart B includes
requirements for vessels' cargo gear certification, the certification
of shore-based material handling equipment, and some provisions for
gangways. The final rule's requirements for the certification of shore-
based material handling equipment and for gangways are essentially
unchanged from those in the current Longshoring Standard, although they
have been moved from this subpart to the Marine Terminals Standard and
to subpart C of the Longshoring Standard, respectively, as explained
below. The final rule's requirements relating specifically to vessels'
cargo gear certification, entitled ``Gear Certification,'' have been
streamlined and are now consolidated in subpart B of the Longshoring
Standard. The gangway requirements in subparts B and C of OSHA's
existing Longshoring Standard have, in the final rule, been moved to
subpart C ``Gangways and Other Means of Access'' (Sec. 1918.21).
Furthermore, existing Secs. 1918.13 through 1918.15, which covered
shore-based material handling devices and container cranes, have been
removed from part 1918 because shore-based handling devices are
currently covered exclusively under part 1917, the Marine Terminals
Standard. In the existing definitions section, Sec. 1918.3(r)(5) (i) to
(vi) listed material handling devices that were exempted from the
certification requirements of existing Sec. 1918.13. Section 1918.13
required that shore-based material handling devices be certified in
accordance with part 1919, OSHA's gear certification regulations. As
mentioned above, these requirements are now found in part 1917, the
Marine Terminals Standard. Material handling devices are now exempted
from certification only if they are listed in Sec. 1917.50(h). Huletts,
bridge cranes, ore and taconite loading facilities, and bulk coal
loading facilities, which were exempted from certification under
existing Sec. 1918.3, are not exempted under existing and final
Sec. 1917.50.
Some commenters (Exs. 6-16a and NMSA et al.) urged OSHA to move the
remaining regulations from subpart B of the Longshoring Standard to
subpart F of that standard, ``Vessels's Cargo Handling Gear,'' on the
grounds that doing so would consolidate all vessel cargo handling gear
requirements into one section (Ex. 8-20). OSHA disagrees with this
position because subpart B's vessel cargo gear certification
requirements are procedural in nature, have international significance,
and apply to all lifting appliances aboard the vessel, such as
elevators and material handling equipment. In contrast, subpart F
primarily addresses the specific operational requirements for cranes
and derricks. Accordingly, the final rule continues to address vessel
cargo gear certification in subpart B.
Section 1918.11 of the final rule, entitled ``Gear certification,''
requires employers to ensure that the vessel has a current and valid
cargo gear register and certificates that are in accord with the
recommendations of the International Labor Organization (ILO)
Convention No. 152 as these pertain to
[[Page 40152]]
the testing and examination of cargo gear (paragraph (a)). Vessels
holding a valid Certificate of Inspection from the U.S. Coast Guard
(USCG) or public vessels are deemed to meet the requirements of
paragraph (a). Paragraphs (c) and (d) of Sec. 1918.11 specify the
competencies that persons and organizations making entries and issuing
the certificates required by paragraph (a) of this section must have,
both with regard to U.S. vessels not holding a valid USCG Certificate
of Inspection and vessels under foreign registry.
These requirements of the final rule are essentially unchanged from
the corresponding provisions of the proposal. However, by requiring
that vessel cargo gear be certificated in accordance with ILO 152
rather than ILO 32, OSHA is effecting a change from the Agency's
existing Longshoring Standard.
Since 1960, safety and health regulations designed to protect U.S.
dockworkers (with particular regard to vessels' cargo handling gear)
have relied upon the documentary proofs of tests and examinations
mandated by ILO 32 (Ex. 1-34). In Article 9 of that Convention, units
and articles comprising ships' cargo handling gear are specified and
assigned an annual/quadrennial schedule of tests/examinations that must
be attended and attested to by individuals judged to be ``competent''
by the national authorities of the vessel's registry. Although not a
signatory to that Convention, the United States has conformed to this
Convention via regulations promulgated by: (1) the U.S. Coast Guard,
regarding inspected U.S. flag vessels; and (2) OSHA, regarding foreign
flag vessels (existing Sec. 1918.12). The Coast Guard has promulgated
cargo gear regulations that exceed those found in ILO 32, namely those
codified at 46 CFR part 91, that promote safe and unencumbered
operations for U.S. flag vessels trading at foreign ports. On foreign
flag vessels trading at U.S. ports, however, OSHA has sole
responsibility for regulating and enforcing rules that address the
cargo gear U.S. longshore workers use.
Under ILO 32, proof load testing \6\ was only required initially
before gear was put into service. After that initial test, such gear
received various degrees of visual scrutiny, supplemented occasionally
by nondestructive testing, e.g., a hammer test. Components such as
derricks, goosenecks, mast bands, derrick bands and any other difficult
to disassemble fixed gear, were to be ``thoroughly examined'' every 4
years and ``inspected'' every 12 months. Other hoisting machinery, such
as cranes, winches, blocks, shackles, and any other accessory gear, was
to be ``thoroughly examined'' every 12 months.
---------------------------------------------------------------------------
\6\ Proof load testing, as used here, means lifting a known
weight that is in excess of the safe working load (SWL) of the
lifting appliance being tested.
---------------------------------------------------------------------------
ILO 152, adopted June 25, 1979, requires that proof load testing be
conducted at least every 5 years, and applies to all ships' lifting
appliances. Within Article 3 of ILO 152, the term ``lifting appliance''
means:
Lifting appliance covers all stationary or mobile cargo-handling
appliances used on shore or on board ship for suspending, raising or
lowering loads or moving from one position to another while
suspended or supported (Ex. 1-5, p. 2).
Thus, because the final rule requires compliance with ILO 152
instead of ILO 32, it expands testing and certification requirements
for cargo handling equipment on board vessels. Such testing and
certification, which was formerly restricted to specific assemblies and
components (i.e., derricks, cranes, winches, etc.) will now include all
``lifting appliances'' as defined by the newer ILO Convention. This
includes forklifts and other powered equipment used to handle cargo
that might be carried by a Ro-Ro vessel, and elevators found on Ro-Ro
vessels used to move cargo (including vehicles) from one deck level to
another, in addition to the vessel's cranes and derricks. Under final
rule Sec. 1918.11, all of this equipment is required to be: tested and
thoroughly examined initially before being put into use; retested and
thoroughly examined every 5 years; and thoroughly examined every 12
months.
In 1993, OSHA received a letter from Sea-Land Service, Inc.
requesting that OSHA interpret the current regulations to allow the
lifting of two empty 40 foot ISO freight containers that are vertically
coupled using semi-automatic twist locks (Ex. 1-161). OSHA's response
allowed the practice under the existing regulations, provided that
certain additional requirements were met (Ex. 1-160). However, the
existing regulations, which reference Convention 32, did not require
the certification of the ``lifting appliance,'' i.e., the top container
and the semi-automatic twist locks.
In the preamble to the proposed rule, the Agency discussed
differences between Convention 32 and Convention 152, including the
requirement in the latter convention to certify lifting appliances.
OSHA stated that, under Convention 152, when a container was used to
lift another container, the top container would fall within the
definition of ``lifting appliance'':
In those situations where one container is used to lift another
container, using twist locks, then the upper container and twist
locks become, in effect, a lifting appliance and must be certified
as such. Page 28602.
In response to this proposed interpretation of Article 3, paragraph
(e) of ILO Convention 152, OSHA received comments only from the
International Longshoremen's and Warehousemen's Union (ILWU) (Exs. 19,
6-19, and 78). Although these comments favored the proposed
interpretation and requested the Agency to include it as a requirement
in the regulatory text, they included no specific information regarding
lifting containers vertically coupled. Furthermore, while Sea-Land
Services, Inc. submitted a detailed six page comment (Ex. 1-6)
addressing a number of the proposed changes to the Marine Terminals and
Longshoring Standards, it did not address this issue. In addition, OSHA
received a late, post-hearing submission from the International
Longshoremen's Association (ILA) that indicated a serious problem with
this type of lift, citing several incidents at U.S. ports where
failures occurred (L-90a). While this letter cannot be the basis of
rulemaking at this time since it is not part of the record, it has made
OSHA aware of safety concerns that may need to be addressed by the
Agency. The record contains a dearth of information regarding safety
considerations associated with double container lifts, as well as
feasibility information regarding certificating containers and twist
locks as ``lifting appliances''. In light of this lack of information,
OSHA has decided to reserve judgment on this issue, pending further
study.
In the near future, OSHA will reopen the record on this narrow
issue and publish a notice requesting specific information regarding
whether or not OSHA should allow the practice of lifting vertically
coupled containers, and, if so, under what circumstances. The notice
will request information regarding the lifting of one container by
another container using twist locks, including data on the following
issues:
Have the bottoms of intermodal containers been designed and tested
for the purposes of ``lifting''?
Have the twist locks been designed and tested for ``lifting''of
containers?
What information do the manufacturers of containers and twist locks
have regarding the use of their products as lifting appliances?
Do any international bodies currently certify containers and twist
locks as ``lifting appliances''?
[[Page 40153]]
Is there any scientific data that addresses maintenance testing and
``life'' of the components used for lifting purposes?
Has the impact of adverse weather conditions been evaluated in both
design and operational concerns with regard to double container lifts?
What precautions can be taken to assure that the containers being
lifted are empty?
What precautions can be taken to assure that the twist locks are
all locked properly when the lifting occurs?
What precautions can be taken to assure that employees are not
exposed to the hazard of a falling container?
What precautions can be taken to assure that defective or damaged
containers should not be used to hoist other containers?
To what extent are lifts of vertically coupled containers currently
being conducted and by whom?
How many containers and twist locks would have to be certificated
for use as lifting appliances?
What would it cost to certificate the upper containers and twist
locks for use as lifting appliances?
In vessel sharing agreements, is it feasible for upper containers
and twist locks to be used as lifting appliances to be certificated?
What are the productivity gains, if any, associated with the
lifting of vertically coupled containers?
What information, including anecdotal information is available on
incidents involving vertically coupled containers that have fallen and
hurt or killed employees or caused ``near-misses''?
Several commenters (Exs. NMSA et al., NO Tr. pp. 388-393, 638-644)
asked that OSHA continue to recognize and allow vessel's cargo gear on
vessels whose cargo gear registers are in accordance with ILO 32 but
not ILO 152:
* * * Refusal by stevedores to work vessels of nations that have not
ratified ILO 152 will result in loss of business for the stevedore
and terminal operator and can possible [sic] damage U.S. and foreign
trade agreements. Until such nations of the world have ratified ILO
152, those still a signatory to ILO 32 should be recognized and
accepted (Ex. 8-20, p. 4).
During the three public hearings held for this rulemaking, OSHA
questioned witnesses about the difficulty posed by provisions requiring
vessel's cargo gear to comply with the pertinent parts of ILO 152 ( SEA
Tr. pp. 276-278 and 333; NO Tr. pp. 388-394, 454-455, 638-642, and
712). Several commenters (NO Tr. pp. 638-642, 1391, and 1158) expressed
concern that if OSHA requires vessel's cargo gear to meet ILO 152,
vessels with cargo gear that does not comply will go to other countries
to load and unload cargo that will then be brought into the United
States by truck and rail, thereby having an adverse economic impact on
the U.S. marine cargo handling industry. The two other countries that
were of primary concern were Mexico and Canada. However, during the
public hearings, it was pointed out by one witness that Mexico has
ratified ILO 152 and Canada is expected to adopt the basics of ILO 152
in the near future (NO Tr. p. 627). (Also see the discussion in the
section that follows, ``International Aspects.'')
OSHA recognizes that some vessels may need a longer phase-in period
to comply with the ILO 152 cargo gear requirements. In addition, OSHA
recognizes that the stevedore, who is the employer, does not own or
have control of the vessels' cargo gear and thus must depend on the
owner to accomplish the change before the stevedore can determine that
the register is current and valid. Testimony by Mr. Mike Compton, Chair
of the Safety Panel of the International Cargo Handling and
Coordination Association (ICHCA), addressed the phase-in periods
granted by the United Kingdom, for the ILO 152 cargo gear requirements.
Mr. Compton stated:
* * * there were two lead-in periods given. For the change from a
quadrennial to an annual thorough examination on derricks, there was
one year given as a lead-in period.
The way in which this worked was that all of our member ports
told their shipping company customers that this was going to happen
in a year's time, and that in a year's time they would legally not
be able to handle their derricks unless there was a thorough
examination and record of it in the register within the last 12
months, and there was no problem with that. That ship owner had a
year to see that was done.
With regard to the testing, which is now a new requirement of
testing every five years, we gave a four-year lead-in time to that,
which is more than enough time for a shipowner to ensure that the
testing required was carried out.
Again, the member ports told their shipping company customers,
who also heard about it in the course of their own trade
associations, made appropriate requirements, arrangements, and there
was no problem with that either (NO Tr. pp. 630-640).
OSHA finds Mr. Compton's recommendations persuasive and consistent
with the goals of current International Trade Agreements.
Therefore, effective a year from the publication date of the final
rule (Sec. 1918.11(a)(1)), all lifting appliances and all loose gear
are required to have had a thorough examination that is duly recorded
in a cargo gear register in accordance with ILO 152. Effective four
years from the publication date of the final rule (Sec. 1918.11(a)(2)),
all lifting appliances and all loose gear must have been tested (or
retested) with the results duly recorded in a cargo gear register in
accordance with ILO 152. At that time, vessels that do not have a cargo
gear register that is properly filled out and up to date will be
violating this regulation if the vessel's lifting appliances are used.
However, in such cases, properly certified shore-based equipment may be
used to load and unload the vessel.
A new paragraph, (a)(3), has been added to address these interim
periods (up to one year for thorough examinations and up to four years
for testing), vessels with cargo gear registers that are in accordance
with ILO 32 will continue to be acceptable during these interim
periods.
Several witnesses during the public hearings expressed concern that
the cargo gear register forms required by ILO 152 were not readily
available and that even if such forms were available, employers would
have difficulty in reading and understanding them (SEA Tr. 277-278, NO
Tr. pp. 651-655). In Appendix I of the proposed rule, OSHA provided a
sample cargo gear register that came from the International Labor
Organization's maritime office and conforms with ILO 152 requirements
(See also Ex. 58). The sample register is in English and includes
definitions and instructions on how to conduct the required inspections
and/or tests and how to fill out the forms. Non-mandatory Appendix I,
as proposed, is included in this final rule.
The International Cargo Gear Bureau, Inc. (Ex. 6-22), pointed out
that although ILO 152 requires that proof load testing be done ``at
least every five years,'' proof testing is often done and is required
by some countries to be done every four years or even more frequently.
The same commenter went on to say that this discrepancy should be
clarified because four-year proof load testing is required in current
Secs. 1917.50(c) and current 1918.61(h). In addition, this commenter
wrote:
If it is the intention of USDL/OSHA to adopt the five (5) year
proof load testing cycle for shipboard cargo handling gear within
the jurisdiction of USDL/OSHA, the justification for such relaxation
of proof load testing requirements should be explained by USDL/OSHA
considering the ``lost workdays'' statistics and statements on page
28595 of the June 2 Federal Register * * * (Ex. 6-22, p.4).
In the final rule, OSHA is not changing either the requirement at
[[Page 40154]]
current Sec. 1917.50(c), which mandates a quadrennial proof load
testing requirement for shore based material handling devices, or the
requirement at current Sec. 1918.61(h), which requires such testing for
special stevedore gear. Instead, by requiring foreign vessels using
ship's gear while working in the United States to comply with ILO 152,
OSHA is providing greater protection to employees than is currently
required, because compliance with ILO 152 requires inspection and
testing of all lifting appliances, not just cranes and derricks, and
requires retesting at least every five years. Thus, the final rule's
vessel cargo gear certification requirements substantially increase
employee protections.
One commenter wrote that OSHA should clarify in the rule what is
meant by ``vessel's cargo handling gear'' because of the expanded
requirements under ILO 152 (Ex. 6-22). OSHA modified the definition of
``vessel's cargo handling gear'' in the proposal to ``include all
stationary or mobile cargo handling appliances * * *. `` and the final
rule includes the same definition. OSHA has included a cross-reference
to that definition in Sec. 1918.11.
It should be noted that 29 CFR part 1919, provides procedures and
standards governing accreditation of persons by OSHA for the purpose of
certificating vessel's cargo gear and shore-based material handling
devices, and the manner in which such certification shall be performed.
Categories of competency have been established based on the equipment
that they have been accredited to inspect. For example, a ``full
function vessel'' accreditation would mean that the person or agency
has been recognized as competent to inspect and certify all of a
vessel's cargo handling equipment. Similarly, a ``loose gear and wire
rope'' accreditation requires the showing of a different inspection
competency. The inspection requirements of this subpart involve both of
these categories.
With regard to these inspection requirements, several commenters
wrote that paragraph Sec. 1918.11(c) should be clarified by adding the
term ``full function vessels'' to identify the type of accreditation
that persons competent to make entries in the registers and issue
certificates must have. (Exs. NMSA et al., 6-16a). OSHA agrees with
these commenters and has made the change in the final rule in both
paragraphs Sec. 1918.11(c) and (d). The words ``or loose gear and wire
rope testing'' have also been added to identify those accredited
agencies that can issue certificates for loose gear and wire rope that
are part of the cargo gear register.
One commenter (Ex. 6-5) noted that OSHA's ``proposed rules are
significantly more stringent than the existing Coast Guard
regulations.'' The U.S. Coast Guard has rules covering marine terminals
that handle bulk flammable liquids and gases. However, all employees
engaged in longshoring operations, whether on U.S. flag or foreign flag
vessels, are covered by OSHA's part 1918 regulations. These regulations
cover forklifts and other powered industrial equipment. During this
rulemaking, OSHA coordinated with, and received support from the
Commandant of the U.S. Coast Guard (Ex. 6-44). OSHA believes that its
final rule will provide longshoring and marine terminal employees with
effective protection from the hazards of marine cargo handling.
The preamble section titled ``International Aspects,'' which was in
the proposal, is repeated in this preamble to the final rule to explain
why OSHA is retaining the provision (at Sec. 1918.11(a)) that allows
foreign flag vessels to comply with ILO gear provisions instead of
requiring them to comply with U.S. standards. This issue was brought
out in written comments and during the hearings (Ex. 6-22, NO Tr. pp.
454-455, pp. 650-651).
International Aspects:
As with all Federal agencies whose regulations influence
international trade, OSHA has developed this final rule in light of
international considerations. Through both law and policy, the United
States has decided that standards-related activities should not, if
possible, be a barrier to trade. The Trade Agreements Act of 1979 (19
U.S.C. 2501 et seq.) addresses technical barriers to trade regarding
federal regulation. Section 2532 of this Act states the following:
Section 2532. Federal standards-related activities.
No Federal Agency may engage in any standards related activity
that creates unnecessary obstacles to the foreign commerce of the
United States, * * *.
(1) Nondiscriminatory treatment. * * *
(2) Use of international standards. (A) In general, * * * each
Federal agency, in developing standards, shall take into
consideration International standards and shall, if appropriate,
base the standards on International standards.
Additionally, and consonant with this country's position on
barriers to international trade, the United States is a signatory to
the Multilateral Convention on the Facilitation of International
Maritime Traffic (1965) (Ex. 1-3). As a contracting government, the
United States has agreed to:
* * * Undertake to cooperate in securing the highest practicable
degree of uniformity in formalities, documentary requirements and
procedures in all matters in which such uniformity will facilitate
and improve international maritime traffic and keep to a minimum any
alteration's informalities, documentary requirements and procedures
necessary to meet special requirements of a domestic nature.
(Article 3)
Mindful of these international aspects, OSHA sought to formulate an
acceptable approach to the vessel's cargo handling gear issue, and to
other issues. The Agency requested the Department of State (Ex. 1-7) to
present OSHA's approach to all foreign nations whose vessels may enter
U.S. ports. This exercise was conducted in the hope of identifying
acceptance. Reports back from responding foreign nations (Ex. 1-6)
indicated overwhelming support for the Agency's approach to these
issues. Most of the nations responding, although stipulating that they
had not yet ratified the more recent ILO Convention, suggested that
their national laws recently ratified were at least as strong, and
sometimes more stringent, than ILO 152. Thus, OSHA is confident that
the cargo gear certification requirements of the final rule are
consistent with those of ILO Convention 152 and national laws and
practices of most other countries.
Subpart C--Gangways and Other Means of Access
In final rule subpart C, OSHA has organized requirements by subject
matter and enhanced the uniformity of shoreside and shipboard
requirements.
Subpart C is titled ``Means of Access'' in the existing and
proposed Longshoring Standard. It contains requirements that employers
must meet before allowing employees to board a vessel. Several
commenters suggested that the title be changed to ``Gangways and Other
Means of Access'' to better describe the contents of this subpart (Ex.
6-16a, NMSA et al.). These same commenters also recommended that this
subpart be rearranged so that each section, such as Gangways, Jacob's
ladders, etc., contains only the specific requirements that apply to
the subject matter of that section. OSHA agrees with the recommended
changes to the title and grouping of subjects in this subpart and has
generally rearranged it accordingly.
The provisions of final Sec. 1918.21 ``General requirements,'' are
taken from the existing and proposed Longshoring Standards, with
editorial changes made for clarity. In final Sec. 1918.21(a), which
requires that the means of access to the vessel not be located under
suspended
[[Page 40155]]
loads to the extent possible, the words ``or others'' have been added
after the word ``employees''. OSHA believes that suspended loads should
not pass over a vessel's means of access, regardless of whose employees
would be exposed to the hazards of overhead loads. While OSHA
recognizes that the stevedoring employer may not have control over all
employees (or users of the gangway), employers do have control over the
movement of suspended loads and thus have the means to comply with this
provision.
Final rule Sec. 1918.21(b) stipulates that substantial steps and a
minimum of one handrail be provided between the bulwark and deck when
the upper end of the means of access rests or is flush with the top of
the bulwark. This provision is unchanged from the corresponding
provision of the proposal.
To eliminate the ambiguity of the current rule, which required that
means of access be ``adequately'' illuminated, final paragraph
1918.21(c) references Sec. 1918.92 which requires specific illumination
levels. In addition, the final rule has a footnote that gives the
candlepower requirement found in Sec. 1918.92, to make it readily
available in this section.
The title of Sec. 1918.22, currently ``Gangways and other means of
access,'' is being changed to ``Gangways'' in the final rule. The word
``gangways,'' as defined in Sec. 1918.2, includes accommodation
ladders, brows, etc. This section also joins two similar sections of
OSHA's current Longshoring rules (Sec. 1918.11--titled ``Gangways'' and
Sec. 1918.21--titled ``Gangways and other means of access''). The final
rule's Sec. 1918.22, therefore, eliminates the need for employers and
employees to look in different subparts for information on gangways.
Following the format of the current Longshoring Standard, gangway
dimensions and characteristics are set out in paragraphs (a) and (b).
Using a combination of specification language with performance-based
alternatives, the final rule provides the flexibility needed in
adapting to vessels built according to international guidelines. The
final rule allows rails to be made of materials other than those
specified in the current rule, if the material is at least equivalent
in strength to those listed. Paragraphs 1918.22 (a) and (b) are
essentially unchanged from the proposal.
Paragraph (c), which requires that the gangway be trimmed at all
times, carries over language from the current rule, plus the term
``trimmed,'' a word that is also found in the Joint Maritime Safety
Code of the New York Shipping Association/International Longshoremen's
Association (NYSA/ILA Safety Code) (Ex. 1-2). This paragraph is
designed to ensure, despite changing conditions caused by tides, cargo
operations, etc., that the gangway and its components are fully useable
at all times.
Final rule paragraphs (d), (f), (h), and (j) are essentially
identical to the corresponding provisions of the current and proposed
rules. They address fixed flat-tread accommodation ladders, handrails
on walkways, and prohibitions against obstructions (paragraphs (d),
(f), and (h), respectively), while paragraph (j) states that vessels
inspected and certified by the USCG are deemed to meet the requirements
of this section. Paragraphs (e), (g), and (i) have been editorially
modified for clarity to address problems of interpretation associated
with these provisions of the existing standard. Proposed paragraph (e)
of the final rule has been revised to require a safety net or suitable
protection when the gangway overhangs the water in a way that poses a
danger of employees falling between the ship and the dock. The purpose
of the net is to prevent an employee from falling to a lower level.
This is consistent with ILO's ``Safety and Health in Dock Work'' (Ex.
1-138). Final rule paragraph (g) requires gangways to be kept clear of
supporting bridles and other obstructions but allows that, in
situations where gangway supporting bridles cannot be moved because of
the design, the employer is to mark the hazard to alert employees using
such a gangway. Paragraph Sec. 1918.21(i) has been added to the final
rule to address the hazard associated with slippery handrails and
walking surfaces on gangways. Several commenters suggested the use of
more performance-oriented language (Exs. 6-31, 8-20, NMSA et al.) than
the proposal. OSHA agrees and has included the language suggested by
the commenters in the final rule, which has been renumbered as
Sec. 1918.22(i).
Final rule Sec. 1918.23, titled ``Jacob's ladders,'' carries over
language from the current rule. Paragraphs (a) and (b) of this section
contain criteria for rope ladders, also known as ``Jacob's ladders''.
In keeping with the previously mentioned public comments regarding
rearranging this subpart, two paragraphs, proposed as Sec. 1918.23 (e)
and (f), that address Jacob's ladders have been moved to become final
rule Sec. 1918.23 (c) and (d). Final paragraph (c) addresses the
potential for the lower rungs of a Jacob's ladder to be crushed between
the barge and another structure by requiring that a spacer or
equivalent means be used to prevent this from occurring. Final rule
paragraph 1918.23(d) requires that a net or equivalent protection be
provided if there is a space between the vessel, barge, or other
structure when using a Jacob's ladder; this provision is designed to
prevent an employee from falling into the water or from being crushed
between the barge and other structure. Such rope ladders are often
provided by the vessel when more traditional means of access cannot be
used. Nevertheless, the employer (who is often a contractor rendering a
service to the vessel) must comply with the provisions of this section
before employees are permitted to use Jacob's ladders.
Final rule Sec. 1918.24 is a new section titled ``Fixed and
portable ladders.'' This section was moved from proposed Sec. 1918.25
``Ladders,'' which included requirements for both fixed and portable
ladders. For streamlining purposes, the final rule combines the
requirements for portable ladders contained in the current Longshoring
Standard with similar requirements contained in Sec. 1917.119
``Portable ladders.''
Generally, final Sec. 1918.24 includes much of the current
Longshoring Standard's language for ladders. Paragraph 1918.24(a)
requires that a minimum of one ladder be provided for each gang working
in a hatch and that an effective means of gaining a handhold be
provided at or near the head of vertical fixed ladders. Paragraph (b)
requires employers to identify ladders that are visibly unsafe and
prohibit their use. Paragraph 1918.24(c) requires that portable
straight ladders be sufficiently long to extend a minimum of 3 feet
above the upper landing surface and be secured against slipping.
For fixed ladders, OSHA proposed to change the clearance required
behind the ladder rungs from four inches (.11 m) to six inches (.16 m)
on vessels built after December 5, 1981,\7\ in order to be consistent
with the recommendations of the ILO's Guide to Safety and Health in
Dock Work (Ex. 1-129). In addition, OSHA's existing Longshoring
Standard allows that where a fixed ladder has inadequate clearance, a
suitable portable ladder could be used in its place, and the final rule
continues to allow this practice. Two commenters addressed the issue of
clearance. One commenter suggested that OSHA did not give adequate
compliance time to vessel owners on this issue and stated that the
[[Page 40156]]
six-inch (.16 m) requirement should apply to vessels only after a
phase-in period or should apply only to vessels contracted for after
the effective date of the final regulations (Ex. 6-5). The New York
Shipping Association (NYSA) commented that using a permanent ladder
with a four-inch (.11 m) clearance would be safer than using portable
ladders (Ex. 6-16a). Although OSHA agrees with the NYSA comments
overall, the Agency believes that a six-inch (.16 m) clearance is
important to employee safety and OSHA also seeks to encourage
conformance with the international guidelines. To address these
commenters' concerns, however, OSHA is providing for a phase-in period
before the six inch (.16 m) clearance requirement becomes effective.
OSHA believes that this phase-in period will provide adequate time for
the international shipbuilding community to include this requirement in
its shipbuilding design criteria. On those vessels built on or after
four years after the date of the publication of the final rule, fixed
ladders must have six inches (.16 m) of clearance or more, or another
means of access must be used. In the interim period, four inches (.11
m) of clearance is acceptable.
---------------------------------------------------------------------------
\7\ This is the date when ILO Convention 152, Occupational
Safety and Health in Dock Work, was put into effect.
---------------------------------------------------------------------------
Provisions have been added to the final rule at paragraph (g) that
reference ANSI standards for manufactured portable ladders. New
provisions for ladder maintenance and usage similar to those found in
the current Marine Terminals Standard have been added to the final
Longshoring Standard in paragraph (i).
Final paragraphs (c) and (e) of Sec. 1918.24 recognize that, as an
alternative to securing the ladder, an employee(s) may hold a portable
ladder in place while another employee is climbing. The final phrase
reads ``positively secured or held against shifting or slipping while
in use'' and is consistent with the PMA-ILWU Safety Code, Rule 1506
(Ex. 1-145).
In addition, to clarify final paragraph (e), where the employer can
show that employees can safely use the cargo itself to climb in and out
of the hold (often called ``safe cargo steps''), a straight ladder is
not necessary.
Paragraph (f) of the final rule sets out the requirements for rung
strength, spacing, and positioning, and establishes the widths between
side rails required for ladders of various heights.
As mentioned above, paragraph (g) establishes standards for
manufactured portable ladders by cross-referencing the appropriate ANSI
requirements for portable wood ladders, portable metal ladders, and
portable reinforced plastic ladders.
In paragraph (h) of the final rule, minimum requirements are set
forth for job-made portable ladders. These requirements address
between-rung distances, strength requirements, and width between side
rail requirements.
The requirements in final rule paragraph (i) cover maintenance and
inspection requirements for portable ladders. They identify the kinds
of defects that require employers to take ladders out of service,
either by tagging the ladder or removing it from the vessel. In
addition, paragraph (i)(2) states that ladders must be inspected for
defects before each day's use and after any event that could damage the
ladder.
Paragraph (j), which includes provisions addressing ladder usage,
acknowledges that while some ladders may not have slip-resistant bases,
they can be positively secured against shifting or slipping while in
use (paragraph (j)(2)). The language of this paragraph allows
``holding'' as an alternative to ``lashing'' to be consistent with
paragraphs (c) and (e) of this section. Other provisions of paragraph
(j) prohibit the use of single-rail ladders, the use of ladders as
guys, braces, or skids, or as platforms, runways, or scaffolds. Other
safety procedures and prohibitions are also included in this paragraph.
Final Sec. 1918.25, which addresses bridge plates and ramps used to
span the gap between the vessel and another vessel or the dock,
combines the current language of the Longshoring Standard's provisions
with the terms that apply to similar shoreside equipment (see
Sec. 1917.124). In the proposal, OSHA would have required sideboards
that are at least six inches (.16 m) high. OSHA also proposed to
require the same six inch (.16 m) sideboards for dockboards and ramps
in the Marine Terminals Standard, Sec. 1917.124(c)(5) and (d)(1). The
six-inch height is the same as that for ``bull rails'' that were in
place on the effective date of the Marine Terminals Standard
(Sec. 1917.112). Bull rails, frequently railroad ties, are placed
around the edge of the dock of a marine terminal and are used to
prevent equipment from falling into the water. Based on the height
requirement for bull rails in the Marine Terminals Standard, OSHA
believed that six inch sideboards would prevent vehicles and equipment
from accidentally falling off the edge of a bridge plate or ramp.
Several commenters expressed reservations about the six-inch
sideboard requirement on the grounds that it was too high or was
unnecessary (Exs. 6-16a, 6-29a, 6-31a, 6-36, 80, SEA Tr. pp. 171-172,
242-243, 385-389, 422-423, NO Tr. pp. 158-160, 164, 384-386). These
commenters felt that six-inch sideboards on dockboards would create a
tripping hazard, would interfere with forklift operations, or would
fail to provide additional safety benefit. Other commenters (Exs. 6-
29a, 6-36) suggested OSHA use ANSI Standard MH14.1 as a guide; that
ANSI standard recommends a sideboard height of two and three-quarters
of an inch. Others stated their preference that performance language
and grandfathering of existing ramps would be appropriate (NO Tr. pp.
386, 432).
John Faulk of NMSA, at the public hearings in New Orleans, stated
that bridged distances rarely exceed several inches in the industry (NO
Tr. p.158). In addition, he said that there are thousands of ramps and
bridge plates in the industry that would not meet the 6-inch height
requirement and would thus require retrofitting with sideboards and
noted further that there are no accident data to justify such a
modification. In its post hearing comment, NMSA estimated that there
were 35,000 ramps and bridge plates that would require modification
under the proposal (Ex.80). NMSA estimated that it would cost $36
million to retrofit each of these ramps and bridge plates with
sideboards.
After a thorough review of the record, OSHA concludes that six
inches is an appropriate height for ``bull rails,'' but not for
sideboards. As commenters noted, sideboards of that height could cause
a tripping hazard and interfere with safe operations.
OSHA has reviewed the ANSI standard (MH14.1) and OSHA's proposed
standard on Walking/Working Surfaces and Protective Equipment (Fall
Protection Systems) (29 CFR 1910 subpart C) (55 FR 13360). In
accordance with the ANSI standard and OSHA's proposal, when the space
to be spanned is less than three feet (.91 m), no sideboard is
necessary, because the space is not large enough to allow machinery
such as a powered industrial truck to fall through. However, OSHA
believes that sideboards, or some alternative, are necessary on
dockboards and bridge plates spanning a gap greater than three feet.
OSHA believes that three feet (.91 m) is a large enough opening to
allow equipment to fall to a lower level, injuring the driver. In the
final rule, OSHA has decided to use performance language similar to
that in the proposed rule for Walking and Working Surfaces and
Protective Equipment (Fall Protection Systems) (29 CFR 1910 subpart C)
(55 FR 13360); thus, the final rule stipulates only that bridge and car
plates be designed to
[[Page 40157]]
prevent vehicles from running off the edge (paragraph 1918.25(a)(4))
and that portable ramps be similarly designed (paragraph
1918.25(b)(5)). In addition, footnotes provide specification and
compliance guidance on sideboard heights when the gap to be bridged is
greater than 36 inches.
Paragraph (b) addresses portable ramps used afloat. Except for the
requirement for sideboards, the final language remains the same as that
proposed.
Final rule Sec. 1918.26, Access to barges and river towboats, was
numbered Sec. 1918.23 in the proposal. This section has been treated
separately in the final regulation because some barge operations,
particularly those conducted in the Mississippi River system (see
definition at Sec. 1918.2), are unique.
Final rule paragraph (a) sets out criteria for ramps used to gain
vehicular access to or between barges. Of primary importance is that
such ramps be of sufficient strength for the intended load. Although
the railings required by Sec. 1918.25(b)(2) are not required on these
vehicular ramps, as stated in paragraph (a), the ramps must be equipped
with sideboards that will prevent vehicles from falling off the edge.
Except for the railing requirement, ramps used for vehicle access to or
between barges must meet all of the requirements of Sec. 1918.25.
Final rule paragraph 1918.26(b) remains the same as proposed; it
addresses employee passage to and from certain floating craft. Under
favorable conditions, it is sometimes possible to pass to and from such
vessels without the aid of any additional means of access. In
unfavorable conditions, however, this paragraph sets forth the
provisions required for safe passage. These range from a straight
ladder to a Jacob's ladder or other safe means of access. Of
significance is the exception that recognizes the practical
difficulties that may be encountered on the Mississippi River system in
providing traditional access. Historically (Ex. 1-98), this exception
is based on tidal and current conditions on the Mississippi system.
Final rule paragraph (c) addresses the situation where a barge or
raft is being worked alongside a larger vessel. Unless other safe means
of access is provided, paragraph (c) requires a maximum of two Jacob's
ladders for any single barge or raft being worked. This is consistent
with the requirement in Sec. 1918.24(a) that requires no more than two
access ladders in a hatch. In final paragraph (c), the term ``gang'' is
used to refer to a group of longshore workers assigned to a particular
hold, deck, etc. on a ship to load or discharge cargo. The use of this
term is consistent with its use elsewhere in this final rule.
Final rule paragraph (d) mandates that barges on which longshoring
operations are taking place must be secured to the vessel, wharf, or
dolphins. The purpose of this provision is to prevent workers from
falling into the water while handling cargo.
Subpart D--Working Surfaces
Subpart D, Working Surfaces, addresses the hazards associated with
slips, trips, and falls that are common causes of injuries in the
marine cargo handling industry.
OSHA clearly understands that many hazards addressed by this and
other subparts represent working environments and physical
characteristics that are encountered much less frequently now than when
the Longshoring Standards were last revised. This primarily is a result
of the evolution of handling cargo in intermodal containers rather than
as break bulk. However, OSHA believes those conventional break-bulk
cargo handling methods, together with the more traditional vessel
characteristics, such as a yard and stay cargo handling gear and
hatches covered by hatch boards, are still encountered at U.S. ports.
In the proposal, OSHA requested comment from the public on the issue of
obsolete regulations, primarily those that addressed methods of cargo
handling that are no longer used. OSHA also received testimony on this
issue (SEA Tr. pp. 133-134).
It has been pointed out to OSHA, particularly at the West Coast
public hearing, that ex-Soviet bloc vessels that were once not allowed
to enter some United States ports, due to security reasons, are now
allowed to enter. Some of these vessels have cargo handling gear and
hatch coverings that had virtually disappeared from ports in the United
States. In the final rule, OSHA is retaining many provisions that might
otherwise have been considered obsolete because they still have
application to these vessels. To illustrate, Sec. 1918.31(d) prohibits
the placing of poorly fitting hatch covers and hatch beams that would
constitute a work surface. As a practical matter, seeing vessels at
U.S. ports fitted out with hatch beams is rare. However, such
situations do still arise.
Section 1918.31, ``Hatch coverings,'' (paragraphs (a), (b), (c),
(d), and (e)) retains the same requirements as the current and proposed
regulation, except that some editorial changes have been made for
clarity.
Paragraph 1918.32, ``Stowed cargo and temporary landing surfaces,''
addresses surfaces used temporarily to load cargo, fall hazards posed
by the edges of hatch sections or by stowed cargo, and fall hazards
posed by gangs working on different levels of the hatch (paragraphs
(a), (b), and (c), respectively). Paragraph (a) specifies that
temporary surfaces used to land a load be of sufficient size and
strength to allow employees to work safely, that edges of hatch
sections or of stowed cargo be guarded by a safety net or equivalently
protective means, and that employees working in the same hatch but at
different levels be protected from falling by safety nets. The
requirements in this paragraph are essentially identical to those in
the existing rule and have only been modified minimally for clarity.
Final rule paragraph 1918.32(b) has been revised to address changes
that have occurred in technology and work practices since OSHA's
original Longshoring Standard was adopted. This paragraph does not
apply to employees working on top of intermodal containers, whether
above or below deck, because such work is now covered by Section
1918.85(j), ``Fall protection'' (for a more detailed discussion of this
issue, see the preamble to Sec. 1918.85(j), below). Instead, section
1918.32 applies when employees are working non-containerized cargo in
the hold and are exposed to falls of more than eight feet (2.4 m); it
requires that the edge of the working surface be guarded by a safety
net or that other means of fall protection (such as guardrails or fall
arrest systems) be used to prevent employee injury. This fall distance
of 8 feet comes from the original Longshoring safety rules promulgated
under the Longshoremen and Harborworker's Compensation Act (33 U.S.C.
901) in 1960 and is reflected in the existing rule. Rule 1016 of the
Pacific Coast Marine Safety Code (PCMSC) (Ex. 1-145) is very similar to
this paragraph, although the OSHA provision has been written to reflect
a more performance-oriented approach. In addition, instead of
specifying the precise fall distance, distance to the edge, and so
forth that triggers fall protection in individual provisions, OSHA has
defined the term ``fall hazard'' in the Definitions section
(Sec. 1918.2). A discussion of the definition of ``fall hazard'' can be
found in subpart A.
It is essential that employees satisfy the intent of this provision
and do not merely appear to comply with it. Many times, particularly
when safety nets have been rigged, they have been allowed to become
very slack, and have
[[Page 40158]]
even in some cases been secured only at their top ends. The improper
rigging of safety nets compromises or even removes the protection
provided to falling employees.
This paragraph has also been revised to distinguish between the
purpose and use of vertical safety nets, which rise at right angles at
the perimeter of a work surface to prevent employees from falling, and
trapeze nets, which are designed to be placed horizontally below a
raised work surface to prevent falling employees from striking the
surface below.
OSHA proposed to require that the safety nets specified in this
section meet the requirements of ANSI A10.11, ``Personnel and Debris
Nets.'' One commenter wrote:
Rigging and testing nets under ANSI regs in maritime conditions
may not be possible such as providing outriggers for horizontal
distance. This regulation was written for long-term construction
projects where nets can be rigged, tested and left in place. (Ex 6-
36).
Commenters also pointed out that ships often supply the safety nets
and that requiring a foreign vessel to provide a net that meets ANSI
specifications may be difficult. Other commenters also opposed
including the reference to the ANSI standard (Exs. 6-16a, 6-29a, 6-36,
8-8, 8-20). After considering the international implications of this
provision as proposed, OSHA agrees with these commenters and has
deleted the reference to ANSI A10.11 in the final rule. In its place,
OSHA has added performance language suggested by the National Maritime
Safety Association--``Safety nets shall be maintained in good condition
and be of adequate strength for the purpose intended'' (Ex. 8-20).
The language in Sec. 1918.32(c), which requires that gangs working
at different levels of the same hatch be protected by nets from falling
themselves or from being crushed by falling cargo, is unchanged from
the proposed provision. However, because this paragraph, like paragraph
(b), requires the use of safety nets, OSHA has included identical
performance language in this paragraph, i.e. that ``Safety nets shall
be maintained in good condition and be of adequate strength for the
purpose intended.''
Final Sec. 1918.33, titled ``Deck loads,'' addresses the safe
performance of work on or around deck loads; it has been carried over
from the current rule and the proposal and is unchanged in the final
rule. It requires that employees be prohibited from passing over or
around deck loads except where safe passage exists (paragraph (a)).
This requirement is designed to protect employees from falling or being
crushed by falling cargo. Paragraph (b) of the final rule requires
employees giving signals to crane operators to have safe passage if
they walk over deck loads from rail to coaming; absent such safe
passage, this provision prohibits these employees from walking over
deck loads. In situations where it is necessary for the employees
giving signals to stand or walk at the outboard or inboard edge of a
deck load having less than 24 inches (.61 m) of bulwark, rail, coaming,
or other protection, those employees must be provided with fall
protection equivalent to that provided by a safe passageway, i.e. with
a guardrail, personal fall protection system, or other equally
effective means.
Some commenters (Ex. NMSA et al.) recommended that OSHA not include
this section in the final rule because, in their opinion, it is
redundant with provisions in Sec. 1918.32 and Sec. 1918.91. However,
OSHA does not agree with these commenters, because Sec. 1918.32
addresses working below deck and section 1918.91 addresses
housekeeping. Mr. Douglas Getchell, a member of the Pacific Coast
Marine Safety Code Committee, International Longshoremen's and
Warehousemen's Union, agrees with OSHA on this point; at the hearing,
he testified that Sec. 1918.32 and Sec. 1918.91 only ``peripherally
apply'' to conditions found when working deck loads. He stated that,
since Sec. 1918.33 is more specific to the subject, it should not be
deleted (NO Tr. pp.246-250).
Final rule Sec. 1918.34, ``Other decks,'' includes requirements to
protect longshore workers from being injured while working on other
decks, e.g. skeleton decks, mechano decks. Paragraph (a) prohibits the
working of cargo on any deck that was not designed to support a load of
the weight being worked, and paragraph (b) requires that grated decks
be properly placed, supported, maintained, and designed to support
employees; grated decks that do not meet this requirement may not be
used to work cargo. OSHA proposed to change the title of this section
of the existing rule, which is ``Skeleton decks,'' to ``Other decks''
and received support from commenters to make this change (Ex. 8-20,
NMSA et al.). Accordingly, the final rule section is titled ``Other
decks.''
Final rule Secs. 1918.35 and 1918.36 address hazards longshore
workers face when conducting operations around open weather deck
hatchways or when weather deck rails are removed to conduct cargo
operations. Vessels calling at U.S. ports are of varied designs and
capabilities. Some vessels have coamings, which are the vertical
structures that surround the hatch opening on a ship, that are much
higher than the section 1918.35's minimum acceptable range (36 to 42
inches (.91 to 1.07 meters)), while other vessels may have no hatch
coamings but have flush decks or decks with a short sill. Decks of the
latter two types pose substantial fall hazards to longshore workers.
Sections 1918.35 and 1918.36 require that, when employees work around
the perimeter of open hatchways that are not protected to a height of
24 inches (.61 m) on vessels with low or no hatch coamings, appropriate
guarding, such as that provided by taut lines or barricades, must be
provided to a height of 36 to 42 inches (.91 to 1.07 m) on all but the
working side of the hatch (Sec. 1918.35). Weather deck rails must be
kept in place except when cargo is being worked, and they must be
replaced after cargo operations are finished (Sec. 1918.36). These
provisions were widely supported (Ex. NMSA et al.), and these sections
are unchanged from the proposal.
Final Sec. 1918.37, ``Barges,'' addresses the fall hazards
associated with working on the decks of lighters and barges. Final
paragraph (a) prohibits the use of marginal (less than three feet (.91
m) wide) deck space along the sides of covered lighters or barges on
all such vessels having coamings more than five feet (1.5 m) high but
allows an employer to provide, instead, a taut handline or a
serviceable grab rail. Two commenters (Exs. 6-18, 6-42) asked OSHA to
allow existing barges to be ``grandfathered'' from compliance with
Sec. 1918.37(a) on the grounds that ``Many barges currently in service
do not meet the three-foot standard [the width for walkways]. Rather
the walkways on these barges are only 18-24 inches in width'' (Ex. 6-
18). OSHA is not providing such an exemption in the final rule because
this requirement has been in place since the 1960's, and it allows
considerable compliance flexibility, e.g. the use of a taut handline or
a serviceable grab rail in lieu of a 3-foot wide walkway. This
requirement is essentially identical to that proposed.
Final rule paragraph (b) prohibits working or walking on barge
decks that have not been visually inspected to ensure that they are
structurally sound and have been maintained properly. The visual check
of such decks must be done before loading operations begin. If during
discharge operations an unsafe surface is discovered, work must be
stopped until protective measures are taken (such as bridging the
unsafe surface with steel plate or barricading a deck section deemed
unsafe). This provision is essentially unchanged from
[[Page 40159]]
the corresponding provision in the proposal.
Proposed Sec. 1918.38, titled ``Log rafts,'' which was a new
section in the proposal, has been moved to subpart H, ``Handling
Cargo'' in the final rule. It has been combined with Sec. 1918.88,
``Log operations,'' so that all requirements dealing with handling logs
from the water are in the same section, as suggested by several
commenters (Exs. 78, PMA et al., SEA Tr. p. 397, pp. 410-411). A
discussion of log rafts is found below in subpart H.
Subpart E--Opening and Closing Hatches
Final subpart E, titled ``Opening and Closing Hatches,'' remains
very similar to the corresponding subpart of OSHA's current Longshoring
Standard. This subpart addresses the hazards presented to employees by
the opening and closing of covers designed to protect cargo from the
elements. The principal hazards include employees falling into the hold
while removing or replacing hatch covers and hatch beams and employees
being struck by covers and beams as these articles are moved. The
proposed language received widespread support from commenters (Exs.
NMSA et al., PMA et al) and are thus essentially unchanged in the final
rule. OSHA is retaining sections in subpart E that address methods of
covering hatches, such as with hatch boards, even though these methods
have largely been replaced by more modern or automated methods or
equipment. In both written comments and testimony, participants stated
that vessels that require these older methods of covering hatches are
still worked in U.S. ports and thus that OSHA should retain these
requirements in the final rule (Ex. 8-20; SEA Tr. pp. 134-135).
Final rule Sec. 1918.41, ``Coaming clearances,'' addresses the fall
hazards associated with such clearances. Paragraph (a) addresses
weather deck clearances and requires that when a smooth-sided deck load
more than 5 feet high is stowed within three feet (.91 m) of the hatch
coaming, and the coaming height is less than 24 inches (.61 m), a taut
handline must be provided along the side of the deckload so that
employees are able safely to remove or replace hatch beams and covers.
This provision is essentially identical both to the corresponding
provision of the existing standard and the proposed rule; it is also
similar to requirements in the NYSA/ILA Joint Maritime Safety Code--
part C/Rule 38 (Ex. 1-2) and the PCMSC--Rule 1007 (Ex. 1-145).
Final rule paragraph (b) is titled ``Intermediate decks.''
Paragraph (b)(1) requires that a three-foot (.91 m) clear work area be
provided for intermediate deck hatchways before employees remove or
replace these hatch beams or covers when a fall hazard exists.
Paragraph (b)(1) also states an exception where the 3-foot clearance is
not required when no fall hazard exists; for example, such a clearance
is not necessary on the covered portion of a partially open hatch or
when the lower deck has been filled to hatch beam height with cargo
that itself provides a safe working surface. Paragraph (b)(2)
specifically recognizes that a fitted grating can be considered part of
the actual deck or working space if it is in good condition and is
properly spaced within the 3-foot area. In addition, OSHA has dropped
the reference to ``banana'' gratings found in the Agency's current
longshoring regulation because it is an obsolete term.
Final rule paragraph (c) addresses the hazard of falling where,
because of wing-space structures or spare parts storage, coaming
clearance is reduced below the required 3-foot clearance. It requires
employers to provide grab rails or taut hand lines in such cases.
Final paragraph (d) states that this section (Sec. 1918.41) does
not apply where the opening and closing of hatches is accomplished by
mechanical means that eliminate the need for employees to place or
remove individual sections manually. However, whenever a three-foot
clearance does not exist, means shall be taken to adequately secure
cargo that is stowed within three feet (.91 m) of the edge of the hatch
to prevent cargo from falling into the hold.
Final rule Sec. 1918.42, ``Hatch beam and pontoon bridles,'' is
carried over in its entirety from OSHA's current longshore rules,
although some editorial changes have been made for clarity. Provisions
in this section address the hazards of handling hatch beams and
pontoons, such as falling into the hatch or being struck by these
removable items. Equivalent rules can be found in section two of the
PCMSC (Ex. 1-145) and parts C and O of the NYSA/ILA Joint Maritime
Safety Code (Ex. 1-2).
Paragraph (a) of final rule Sec. 1918.42 requires that hatch beams
and pontoon bridles be long enough to fit their attachment points
easily, be strong enough to lift the load safely, and be properly
maintained. Paragraph (b) requires that bridles for lifting hatch beams
be equipped with attachment devices, such as toggles, that cannot
become accidentally dislodged. It also prohibits the use of hooks other
than those specified in paragraph (b) unless such hooks are hooked into
the standing part of the bridle.
Paragraph (c) requires that bridles used for lifting pontoons and
plugs have the number of legs required by the design of the pontoon or
plug and that all legs be used. Any legs that are not used must be hung
on the hook or ring to prevent them from swinging free.
Paragraph (d) requires that at least two legs be fitted with a
fiber rope lanyard that is a minimum of 8 feet long, is in good
condition, and has a bridle end that is made of chain or wire. The
purpose of all of the requirements in Sec. 1918.42 is to ensure proper
manual guidance of the lift.
Final Sec. 1918.43, ``Handling hatch beams and covers,'' has also
generally been carried over from OSHA's existing longshore rules, with
some editorial changes made for clarity. Provisions in this section
address the hazards associated with the handling and stowing of hatch
boards, hatch beams, and pontoons; examples include employees or hatch
covers falling into the hatch or employees being struck by improperly
stowed items. Similar requirements are found in Section X of the PCMSC
(Ex. 1-145), part O of the NYSA/ILA code (Ex. 1-2), and ILO Convention
152.
Paragraph (a)(1) requires that hatch covers or pontoons stowed on
the weather deck adjacent to hatches must be positioned in stable piles
that are a minimum of 3 feet from hatch coamings. An exception to this
requirement is permitted in the situation where hatch covers or
pontoons are spread one high between the coaming and bulwark on the
working side of the hatch and there is no space between them (providing
that the coaming is at least 24 inches high). Paragraph (a)(1) also
prohibits hatch covers and pontoons from being stacked higher than the
coaming or bulwark on the working side of the hatch.
Paragraph (a)(2) prohibits hatch boards or other covers that have
been removed from the hatch beams in a section of the hatch that has
been partially opened for the purpose of being worked, cleaned, or used
for other operations from being stowed on those covers or boards in the
hatch that have been left in place. This provision applies to seagoing
vessels only.
Final rule paragraph (b) stipulates that hatch beams be laid on
their sides or be stood on their edges and be lashed together except in
cases where the hatch beams have flanges: (1) Whose width is at least
50 percent of the height of the web and (2) that rest flat on the deck
when the hatch beam is stood upright.
[[Page 40160]]
Paragraph (c) addresses the potential dislodgement of strongbacks,
hatch covers, or pontoons. It requires that, when such items are placed
on the weather deck, they be placed so as not to obstruct clear fore-
and-aft and coaming-to-bulwark passage and be lashed or otherwise
secured. In addition, this paragraph requires that dunnage or other
suitable material be positioned under each tier of strongbacks or hatch
covers to prevent them from slipping; this provision applies only when
such items are stowed on steel decks.
In paragraph (d), the final rule requires employers to take
precautions designed to protect workers from falling hatch covers and
strongbacks. It stipulates that hatch covers and strongbacks unshipped
in an intermediate deck be placed a minimum of 3 feet from the coaming
or be removed to another deck altogether, except that strongbacks may
be placed a minimum of 6 inches from the coaming if they have been
secured so that they cannot tip over or be dragged into the lower
compartment.
To prevent accidental displacement, paragraph (e) requires that any
hatch beam or pontoon left next to an open hatch section being worked
must be locked or otherwise secured. In addition, unless portable,
manually handled hatch covers (including those that have been bound
together to form a single larger cover) have been securely lashed, they
must be removed from sections being worked and adjacent sections.
Paragraph (f)(1) of the final rule mandates that the roller hatch
beam at the edge of the open section of the hatch be lashed or pinned
back to prevent it from being dislodged and falling through the open
hatch. Similarly, paragraph (f)(2) requires that rolling, sectional, or
telescoping hatch covers on barges that open in the fore and aft
direction be secured against movement when they are in the open
position, and paragraph (g) requires similar precautions for hinged or
folding hatch covers when in the upright position (except in cases
where the design of the system precludes unintentional movement).
Paragraph (h) prohibits the opening or closing of hatches while
workers are in the square of the hatch below. This prohibition is
necessary to prevent hatch beams or covers from dislodging and falling
on the employees working on the lower level.
In the final rule, paragraph (i), which was a newly proposed
provision, addresses the hazards of unsecured materials. Lashing wires,
rods, and twist locks are often left on top of a hatch cover after the
cargo has been discharged. These items can fall from the covers when
the covers are being moved and injure employees, and this provision
thus requires that all such materials be removed from the hatch cover
or be secured before the hatch cover is removed. The words ``or secured
to prevent them from falling off the cover'' has been added to the
proposed language to recognize that, in addition to removing such
materials, employers can achieve the required protection by securing
these items to the hatch cover.
Final rule Sec. 1918.43(j) requires that hatch covers or night
tents be used to cover hatches, and that any covering that only
partially covers a hatch, such as alternating hatch covers or dunnage
strips, may not be covered by a tarpaulin. The reason for this
prohibition is that employees could fall through the tarpaulin and
partial covering. However, paragraph (i) allows an exception:
tarpaulins may be used to cover an open or only partially covered hatch
if they are used to reduce dust during bulk cargo loading and if
positive means, such as barricades with placards, have been taken to
ensure that employees do not walk on the tarpaulin. Verbal warnings,
instructions or placards alone will not satisfy this provision. The
exception has been added to the final rule, although the rest of this
provision is similar to a paragraph in OSHA's existing Longshore
Standard.
Subpart F--Vessel's Cargo Handling Gear
Subpart F applies to all gear and equipment used in cargo handling
that is the property of the vessel. Examples of such equipment include
cranes, derricks, specialized bridles, winches, wire rope, and
shackles. This subpart addresses the hazards associated with that gear,
such as using faulty gear, overloading or improperly rigging cargo
gear, or the improper operation of cargo gear, which can result in
serious injury or death (Ex. 1-103.).
Mr. Ronald Signorino, the Director of Health, Safety and Regulatory
Affairs for Universal Maritime Services, described the diminishing
amount of break-bulk cargo being handled with conventional cargo gear
since the advent of containerized cargo (Ex. 6-35). He stated that
traditional cargo handling expertise had become a ``lost art'' and
therefore recommended that language be included in the final rule
addressing the proper rigging and operating of conventional cargo gear.
He reasoned that, since some cargo is still handled by conventional
methods, including recommendations addressing the correct spotting of
cargo handling gear would provide employees unfamiliar with such gear
with guidance on its safe operation. Mr. Signorino noted that
improperly spotted conventional cargo handling gear can fail, which
causes the gear and cargo to fall and can lead to serious injury. OSHA
agrees and has added this information in non-mandatory Appendix III.
Section 1918.51 contains general requirements that apply to all
cargo handling equipment that is permanently attached to a vessel.
Final rule paragraph (a) remains essentially the same as proposed and
stipulates that the safe working load of the gear, whether marked on
the lifting appliance itself or specified in the required certificates/
gear register, may not be exceeded. It also specifies that any
limitations imposed by the authority responsible for certificating the
gear be followed.
Final rule paragraph (b) requires that each component of ship's
cargo handling gear be inspected by the employer (or his or her
designee) before every use and at appropriate intervals during use.
This paragraph clarifies the corresponding requirement in OSHA's
existing Longshore Standard by making clear that the employer has an
obligation to do a visual inspection. One commenter, the International
Cargo Gear Bureau, Inc. (ICGB), pointed out that the proposed paragraph
would have limited the designees to ``representatives of the
employer,'' which was not OSHA's intent (Ex. 6-22). OSHA has revised
the language of the final rule to say, ``designated person.''
Referring to the same paragraph, Sec. 1918.51(b), another
commenter, the National Maritime Safety Association (NMSA), suggested
that OSHA add the words ``and when necessary'' before the words ``at
intervals during use'' (Ex. NMSA et al.). However, OSHA disagrees with
this comment because the Agency believes that, during use, events could
occur or conditions arise that would suggest to a prudent operator that
an unscheduled visual inspection may be necessary. OSHA agrees with
NMSA that the inspection intervals required by the final rule should be
qualified but believes that the word ``appropriate'' captures the
desired meaning better than the suggested word ``necessary.'' The final
rule reflects this determination.
In final paragraph (c), employers are required to determine the
load ratings of all wire ropes and rope slings presented in the
vessel's wire rope certificate and to observe these ratings when using
this gear.
[[Page 40161]]
Final rule paragraph (d) provides criteria for splicing wire rope
and for wire rope configuration characteristics and is essentially
unchanged from the corresponding paragraph of the proposal. It
addresses eye splices, requirements for wire rope used in lifting,
natural and synthetic fiber rope slings, and chains. Additionally, this
paragraph brings the Longshore regulations for wire rope into
conformity with the same criteria as those in OSHA's rules for
shoreside marine cargo handling equipment (Sec. 1917.42) and thus
reflects OSHA's effort to maintain consistency between parts 1917 and
1918 and to enhance employee safety.
Final rule Secs. 1918.52, 1918.53, and 1918.54 all address the
subject of rigging and operating vessel's cargo handling gear. The
requirements of these sections are essentially the same as those
parallel provisions found in the existing and proposed rules, although
some language modifications have been made to enhance clarity.
Final rule Sec. 1918.52, ``Specific requirements,'' contains
provisions addressing preventers, stoppers, falls, heel blocks, coaming
rollers, and cargo hooks. Paragraphs (a)(1) and (a)(2) mandate that
preventers have sufficient strength to achieve their purpose and be
properly secured to the head of the boom (unless, for cast fittings,
the strength of the fitting exceeds the strength of all lines secured
to it (paragraph (a)(1)) and that wire rope clips and knots not be used
to form eyes in or join preventer guys (paragraph (a)(2)).
Paragraphs (b) (1), (2), and (3) contain requirements for the
condition, configuration, strength, and securing of chain topping lift
stoppers. These requirements are essentially unchanged from the
parallel provisions of the proposal. OSHA solicited comment in the
proposal regarding whether or not to delete Sec. 1918.52(b) as
obsolete. This paragraph addresses the use of chain topping lift
stoppers and clamp type stoppers that are used manually to lower and
raise the boom. This method of topping the boom is a potentially
dangerous operation and has been largely replaced by the use of
electric topping lift winches that do not require the use of stoppers.
As noted earlier, however, vessels continue to call on U.S. ports
equipped with this older equipment. Such vessels will need to be
addressed by Sec. 1918.52(b), as noted in the comments (Ex. NMSA et
al.). OSHA agrees and has accordingly left this requirement in the
final rule.
Paragraph (c) specifies requirements for the securing, conditions
of use, formation of, and winding of the fall on the drum. Again, no
comments were received on these provisions, which are essentially
unchanged from those proposed. These provisions are designed to ensure
that winch falls do not slip, break, or release while cargo is being
lifted.
Heel blocks are covered by the requirements of paragraph (d).
Paragraph (d)(1) requires that a preventer or equally effective means
be used to hold the block in the event of heel block attachment
failure. In paragraph (d)(2), OSHA requires that, in cases where the
heel block is not so rigged as to prevent its falling when not under
strain, the heel block must be secured, except where the heel block is
at least 10 feet above the deck at its lowest point.
Paragraph (e) of the final rule requires portable coaming rollers
to be secured by wire preventers, while paragraph (f) specifies that
cargo hooks be as close to the junctions of falls as the assembly
permits, but in all cases within 2 feet of the assembly. Paragraph (f)
applies only to vessels and operations where fall angles greater than
120 degrees occur.
Cargo winches are covered in Sec. 1918.53 of the final rule.
Paragraph (a) stipulates that the moving parts of winches or other deck
machinery be guarded to prevent employees from being caught in or
between moving parts. According to paragraph (b), winches may not be
used if control levers operate either with excessive play or friction;
paragraph (c) prohibits the use of double gear winches or other winches
equipped with a clutch unless a positive locking mechanism to lock the
gear shift is provided. When the gears on a two-gear winch are being
changed, paragraph (d) prohibits any load on the winch other than the
fall and cargo hook assembly.
Paragraph (e) requires that any defect or malfunction that has the
potential to affect safety be reported immediately to the officer in
charge and that the winch in question not be used until the defect or
malfunction has been corrected. The proposal added the following
language to this paragraph: ``* * * and the winch shall not be used
until the defect or malfunction is corrected.'' This addition was
supported by the International Longshoremen's and Warehousemen's Union
(Ex. 19). In addition, several comments were received regarding the
phrase ``Any defect or malfunction of winches that affects safety * *
*.'' These commenters stated that the language was too broad and that
the less specific language in OSHA's existing standard should be
retained instead (Exs. NMSA et al., PMA et al.). Other commenters
agreed with the proposed language, however (Ex. 19, NO Tr. pp. 250-
251). OSHA finds NMSA's and PMA's arguments unconvincing because the
Agency believes that employers will benefit from the more specific
requirement. However, the final language has been modified for clarity
to say ``Any defect or malfunction of winches that could endanger
employees * * *''.
Paragraph (f) requires that temporary seats or shelters for winch
drivers not be used if they create a hazard to the operator or other
employees (e.g. a ``plywood roof'' that obstructs the view of the
operator). In addition, paragraph (g) prohibits winch drivers from
using control extension levers that have not been provided by the
employer or the ship (except for short handles on wheel-type controls).
If used, such levers must be of adequate strength and be securely
fastened. Any extension lever that tends to fall under its own weight
must be counterbalanced, according to paragraph (h).
In paragraph (i) of the final rule, OSHA requires that winch brakes
be monitored during use, and that those that are not able to hold the
load be removed from service. As proposed, this requirement mandates
that winches be monitored during operation. One commenter suggested
that the phrase ``monitored for performance'' be more fully explained
in the final rule (Ex. 6-46). In response, OSHA notes that the
requirements in Sec. 1918.53 are directed to the employer of the
employees who operate the winches to load and unload cargo. If, during
operation, it is observed that the winch brakes do not prevent the
cargo gear from lowering or slipping while under a load, the winch must
be removed from service. To provide the specifics requested by this
commenter, the language of paragraph (i) now reads as follows: ``(i)
Winch brakes shall be monitored during use. If winch brakes are unable
to hold the load, the winch shall be removed from service.''
The requirement at paragraph (j) states that winches may not be
used if one or more control points are not operating properly, and
further specifies that employees are not permitted to tamper with or
adjust the winch controls. Both of these requirements are designed to
ensure the safety of hoisting and lowering operations performed with a
winch.
To ensure that unattended winch controls are not tampered with or
adjusted, paragraph (k) requires that the control levers of unattended
winches be placed in the neutral position and that the power be shut
off or the control lever be locked. As proposed, a
[[Page 40162]]
feasibility exception that is included in OSHA's existing Longshore
Standard has been deleted because it was based on a winch design
feature that is no longer in use today because of technological
improvements.
Section 1918.54, entitled ``Rigging gear,'' addresses the hazards
associated with the unsafe practice of rigging guys or preventers so
that they chafe against other guys, preventers, or stays. Such chafing
can cause the vessel's cargo gear to fail because the chafing can cause
the wires to separate, leading to possible serious injury or death as
the gear and cargo fall down on the deck or into the hold. Several
commenters supported the inclusion of this paragraph in the final rule
(Ex. NMSA et al.).
Paragraph (a) requires each guy or preventer to be placed in a
manner that prevents it from contacting any other guy, preventer, or
stay, and paragraph (b) requires that guys be placed to produce the
least amount of stress without allowing the boom to jackknife. Boom
placement is addressed in paragraph (c), which states that the head of
the midship boom must be spotted no further outboard of the coaming
than is required to control the load. Preventers are covered in
paragraph (d). Paragraph (d)(1) requires that these devices be secured
to suitable fittings (other than those to which the guys are secured)
and be as nearly parallel to the guys as the fittings permit. Except
when the cleat is also a chock and the hauling part is led through the
chock opening, the lead of preventers must be designed so that the
direction of the line pull of the preventer is as parallel as possible
to the surface on which the cleat is mounted (paragraph (d)(2)).
Paragraph (d)(3) requires that guys and associated preventers be
adjusted so that the load is shared as equally as possible when
burtoning operations are underway. An exception is allowed where guys
are designed and intended only for trimming purposes and the preventer
is used in lieu of the guy; in such cases, the guy may be left slack.
Cargo falls are covered by paragraph (e), which stipulates that
cargo falls under load are not permitted to chafe against any standing
or other running rigging. A Note to this requirement stresses that, for
the purposes of this paragraph, rigging is not to be construed to mean
hatch coamings or other parts of the vessel.
In paragraph (f)(1) of the final rule, employers are required to
secure the bull wire to the gypsy head by shackle or equivalent method
where the bull wire is taken to the gypsy head for lowering or topping
the boom. Fiber rope may not be used to comply with this provision.
Paragraph (f)(2) states that, when it is not possible to secure the
bull wire to the gypsy head or when the topping lift is taken to the
gypsy head, at least five turns of the wire must be used.
When deck loads are higher than the rail and the clearance between
the edge of the load and the inside of the bulwark or rail is less than
12 inches, paragraph (g) requires employers to provide a pendant or
other alternate device to permit trimming of the gear without its going
over the side. The provisions in section 1918.54 are essentially
unchanged from the parallel requirements in the proposal.
Final Sec. 1918.55, titled ``Cranes,'' covers deck cranes
permanently attached to a vessel. OSHA's existing rule only addresses
the hazards associated with the swing radius of the crane. The final
rule's requirements, on the other hand, provide more comprehensive
coverage of the hazards encountered in the use of ship's cranes. In
addition, these requirements closely parallel similar shoreside
requirements in part 1917 and in other OSHA crane standards.
In Sec. 1918.55(a), OSHA prohibits the use of cranes that develop a
visible or known defect affecting safe operation. In addition, proposed
paragraph (b)(1) required that the operator's station be well
maintained, with good visibility provided through the cab's glass.
Comments were received (Ex. NMSA et al., PMA et al.) recommending that
OSHA reword the language of this provision of the existing Longshore
Standard for the sake of clarity. Other commenters pointed out that the
proposed wording of this provision was similar to language found in the
Pacific Coast Marine Safety Code (although the code requires
replacement of cracked or broken glass) (Ex. 19). In response to the
comments received, OSHA has revised the language in this paragraph to
read as follows: ``Cranes with missing, broken, cracked, scratched, or
dirty glass (or equivalent) that impairs operator visibility shall not
be used.'' The same language has been used in Sec. 1917.45(f)(5),
addressing the same issue in relation to cranes used in marine
terminals.
Paragraph (b)(2) mandates that clothing, tools and equipment be
stored in a manner that does not restrict access to or operation of the
crane or interfere with the operator's view.
According to paragraph (c), areas that are within the swing radius
of the body of revolving cranes and are accessible to employees must be
guarded during cargo operations to prevent an employee from being
caught between the body of the crane and any fixed structure, or
between parts of the crane. In proposed paragraph Sec. 1918.55(c)(1),
OSHA addressed the danger of employees being caught between shipboard
gantry cranes and fixed structures on deck along the travel path of the
crane, such as would occur on a LASH (Lighter Aboard Ship) vessel or a
self-contained container ship. (Ex. 1-103, cases 26 and 27). OSHA
received both comment and testimony on this proposed language. The
commenters pointed out that there are means other than physical
guarding to protect employees in this situation, such as using a
proximity device to shut down crane travel if an employee is in danger
of being caught between the crane and a structure on the vessel (Ex.
NMSA et al., NO Tr. p. 396). OSHA agrees with these commenters and has
added the words ``or other effective means shall be taken'' to
paragraph (c)(1) of the final rule. Also, a note has been added for
clarification that says; ``Verbal warnings to employees to avoid the
dangerous area do not meet this requirement.''
An issue discussed at length during the public hearings was the
bypassing of limit switches during cargo operations. Most cranes, both
shore-based and shipboard, are equipped with limit switches. Limit
switches are designed to prevent the crane and boom from damage by
deactivating the crane when certain limits are exceeded. Limit switches
can prevent the crane from the following hazards: boom collapse,
unwanted contact with the vessel or other structure, exceeding the safe
working load, or dropping a container. Another example of a limit
switch is the anti-two-blocking device. The calibration of limit
switches always incorporates a specific margin of safety.
In the proposal, OSHA did not allow the bypassing of limit switches
during cargo operations. The National Maritime Safety Association, in
their written comments, asked that OSHA allow limit switches to be
bypassed, but only after an officer of the vessel has been notified,
and only where a designated person directs the operation (Ex. NMSA et
al.). During the public hearings in Seattle, members of the
International Longshoremen's and Warehousemen's Union (ILWU) Longshore
Coast Safety Committee testified that limit switches should not be
bypassed except in certain situations, such as an emergency. They
expressed concern that bypassing limit switches could put stresses on
cranes for which they were not designed, resulting in a dangerous
situation. The ILWU also stated that this issue had been considered by
the Joint Co-Safety Committee, which consists of
[[Page 40163]]
members from labor and management, and that Committee had determined
that cranes with a load should never be put in a bypass mode (SEA Tr.
pp. 106-113).
Further, a member of the Pacific Maritime Association (PMA)
testified at the Seattle hearings that because of the discussions
between the PMA and the ILWU, Rule 277 of the Pacific Coast Marine
Safety Code had been adopted:
Bypass keys where ships' cranes equipped with limit switches,
shall not be left in the override locks. That * * * [is], the keys
were not to be maintained in the override locking position.
That was the result of the discussion. There was never unanimous
agreement on if bypass switches could be turned on for special moves
or special types of operations (SEA Tr. p. 158).
During the Seattle hearings, further testimony on the issue of
bypassing limit switches was given by Don Lawson, principal surveyor
with Marine Surveyors and Consultants, Inc., a company accredited by
the Department of Labor under part 1919 to inspect and certify vessel
and shore-based cargo handling gear. Mr. Lawson stated:
The purpose of the limit switch is:
[First] to prevent stresses on the structure, particularly the
boom, when the maximum radius is reached, and if the safe working
load was on the hook at the time, to go below the safety switch, the
lower limit safety switch, would be an overstressed situation.
The second reason for a limit switch is preventing physical
damage, physical contact with structures around the crane, and this
is where there's been a lot of problems over the years.
A limit switch should never be bypassed for cargo operations. I
agree with the scenario of a life and limb situation or an emergency
situation where there might be property damage and that there should
be somebody technically-oriented to carry that out.
In the hundred or so incidents we've been involved with, most
the times the jib, when the limit switch is bypassed, is set down on
the crutch or the foundation for another crane on the vessel, which
is on the same platform, or it's the rail of the platform.
The operator's view of these areas is limited because the
structure of the jib is quite large and does obstruct the side view
* * *.
In all cases, if there's been contact with ship structure, the
limit switch had been bypassed.
Another statement that came out yesterday is there's a lack of
design or a problem with design of vessels and that you must bypass
the limit switch in order to get to certain reaches of a hatch.
That's not true.
The newer generation loggers have long midships hatches. Usually
the middle hatches, and the two and three or three and four hatches
are long, but they're served by cranes on both sides of the hatch.
If you look at a shadow plan of the radius of the cranes, you'll
see that they're concentric circles in the center of the hatch, but
in the trunks the forward crane will not reach the after trunk and
vice versa (SEA Tr. pp. 278-289).
Further testimony given by an ILWU container crane operator
addressed bypassing the limit switches on the container spreader bar.
These switches are designed to prevent the corner twist locks from
unlocking when handling a container. Citing snow as an example, he
stated:
* * * I don't believe that we should use a bypass because we have
snow jamming the sensors and the corners of the spreader. What we
should be doing, of course, and what we normally do is lower the
spreader and have somebody clean out the snow (SEA Tr. p. 111).
Another dock worker testified that the spreader corner locks can be
bypassed to speed up an operation. Instead of having to wait for the
limit switches to activate and release the locks, bypassing them allows
for a faster operation. However, this same witness testified that this
practice can also lead to a spreader releasing a container
inadvertently while in the air (SEA Tr. pp. 306-307).
One employer, Captain John McNeil, Vice-President of Operations,
Marine Terminals Corporation, testified that there are occasions where
the limit switches on a container crane can be an operations problem.
* * * The upper limit on container cranes is usually set by a limit
switch, to six feet under the boom to permit normal, safe
operations.
When we have an especially high vessel that comes into that
threshold one or two feet, it is a common practice, is it not, to
shut off the bypass or to raise the bypass limits to be able to work
that extra tier of containers? (SEA Tr. p. 285).
Additionally, Captain McNeil noted that limit switches are sometimes
bypassed, prior to cargo handling operations, when a vessel has two
cranes at the same hatch that can be operated together (married) or
separately (SEA Tr. pp. 286-288).
Post hearing comments submitted by the ILWU repeated their position
against bypassing limit switches and included suggested language for
the final rule. They also stated that similar language should be
included in the Marine Terminals Standard, as part of Sec. 1917.45,
Cranes and derricks (Ex. 78).
After a thorough review of all the comments and testimony, OSHA
remains unconvinced that limit switches can be safely bypassed during
cargo operations and continues this prohibition in the final rule.
However, OSHA recognizes that, in addition to emergencies, there are
certain non-cargo handling operations that occur that necessitate the
bypassing of limit switches but have no adverse impact on worker
safety. OSHA has identified three specific situations where such bypass
systems may be activated: during an emergency, while performing repairs
or when stowing cranes or derricks. To provide additional safeguards,
any time a bypass system is used, it must be done under the direction
of an officer of the vessel. Paragraph (c)(2) of the final rule has
been revised accordingly.
The provisions of paragraph (c)(2) are also being carried over to
shore-based cranes in the final rule on marine terminals. However, OSHA
recognizes, in one unique, shore-based situation, where the limit
switches of cranes can be readjusted without an adverse impact on
worker safety. Specifically, when a container ship with an unusually
high deck load causes the upper limit switches to activate before the
top tier of containers can be worked, then the limit switches can be
safely readjusted if the margin of safety provides enough extra height
to allow readjustment. While readjustment may be allowable under these
narrow circumstances, bypassing the limit switch is not. To provide
additional safeguards, readjusting limit switches may only be done
under the direction of a crane mechanic. Therefore, OSHA has also
included language regarding adjustments of limit switches in
Sec. 1917.45(g)(11).
Final rule Sec. 1918.55(c)(3) requires a minimum of three full
turns of wire rope to remain on ungrooved drums and at least two turns
on grooved drums under all operating conditions; this is a precaution
against slippage of the rope.
Paragraph (c)(4) requires that crane brakes must be monitored
during use. This requirement is essentially unchanged since the
proposal. (See discussion about brakes in Sec. 1918.53(i), above.)
Paragraphs (c)(5) and (c)(6) address crane control levers and
cranes with power down capability. Both of these provisions, which are
standard safe operating procedures for cranes, are unchanged since the
proposal.
Under paragraph (c)(7), when two or more cranes are used together
to hoist a load, a designated person must direct the operation and
instruct personnel in safe positioning and rigging. The designated
person must also direct the movement of the crane. No changes have been
made to this requirement since the proposal, and no comments on this
provision were received.
Paragraph (d), which applies to cranes that are unattended between
work periods, states that Sec. 1918.66(b)(4) (i) through (v) applies to
such cranes.
[[Page 40164]]
Subpart G--Cargo Handling Gear and Equipment Other Than Ship's Gear
Subpart G, Cargo Handling Gear and Equipment Other than Ship's
Gear, applies to all cargo handling gear used in cargo operations that
is not part of the vessel (i.e. ship's gear). Some examples of the type
of gear addressed in this subpart include: container handling lifting
frames and certain multi-point engagement bridles, gear room
constructed spreader bars for heavy lift cargo, special lifting devices
for unique pieces of cargo, and bar pallet bridles. Except as noted
below, commenters generally supported these provisions as proposed
(Exs. NMSA et al., PMA et al.).
Final rule Sec. 1918.61 covers a wide range of subjects relating to
gear inspection (examples: safe working loads, weight markings,
certification, special gear). Paragraph (a) requires that all gear and
equipment provided by the employer and brought aboard a vessel must be
inspected before and, when appropriate, during its use by a designated
person to assess its condition. If found to be unsafe, such gear cannot
be used until it has been made safe. This paragraph is similar to the
corresponding provision of the existing regulation, except that the
term ``designated person'' has replaced the term ``authorized
representative'' in the final rule. This change is consistent with the
decision discussed in subpart A, Scope and definitions, regarding the
use of the term ``designated person.''
Final rule paragraph (b)(1) is the same as the parallel requirement
in the current and proposed longshore rules and requires that the Safe
Working Load (SWL) of gear not be exceeded. Final rule paragraph (b)(2)
was a new provision in the proposal. This paragraph requires the
marking of the safe working load (SWL) on all cargo handling gear with
a SWL of more than five short tons (4.5 metric tons). This practice is
consistent with current recognized industry practice (Ex. 1-151). In
the proposal, OSHA stated that most gear in use is already marked with
the SWL, and no comments to the contrary were received.
Final rule paragraph (c) requires that any article of stevedoring
gear weighing more than 2,000 pounds (.91 metric tons) must have its
weight marked plainly on the article before being hoisted by the ship's
gear. It is important to consider the weight of such articles when
evaluating safe working loads of the vessel's cargo gear because the
weight of the gear must be added to the weight of the load being lifted
to figure out the actual load, which together cannot exceed the SWL of
the vessel's cargo gear.
Final paragraphs (d) and (e) address certification and
certification procedures. These provisions parallel those found in the
shoreside Marine Terminal rules (Sec. 1917.50(a) and (b)(1)). Paragraph
(d) requires certification of any special gear listed in paragraphs
(f)(1) or (g) of this section. Paragraph (e) requires that this
certification be done by a party accredited by OSHA under 29 CFR 1919.
Final rule paragraph (d) has been corrected to include a reference to
paragraph Sec. 1918.61(g), which addresses the initial proof-load
testing of intermodal container spreaders. The reference to paragraph
Sec. 1918.61(g) was mistakenly omitted in the proposal.
Paragraph (f), entitled ``Special gear,'' addresses special
stevedoring gear, which is material handling gear fabricated of
components that are not common, off-the-shelf items. Common, off-the-
shelf gear would include hooks, shackles, and other items that have
already been tested by the manufacturer. Examples of special
stevedoring gear include gear room-constructed spreader bars for heavy
lift cargo, special lifting devices for unique pieces of cargo, or bar
pallet bridles that have some components that are not marketed or
purchased with a specific cargo handling use in mind.
OSHA's existing Longshoring Standard requires initial testing for
new special stevedoring gear, but does not require the tests to be
conducted by an OSHA accredited agency (see Sec. 1918.61(b) of that
rule). The existing Marine Terminals Standard also requires initial
testing for new special stevedoring gear. These tests, however, must be
conducted by an OSHA accredited agency (see Sec. 1917.50(c)(5)).
In the proposal, OSHA distinguished between heavy lifting gear
(gear with a SWL over five short tons) and lighter gear. Heavy gear
tends to be more complex in design and fabrication, more difficult to
inspect and test, and presents a greater employee exposure hazard upon
failure. Lighter gear, which is far more extensive and commonly
associated with palletized/break bulk operations, is less complex in
design and fabrication, less difficult to inspect and test, and
presents a reduced employee exposure hazard upon failure. Based on
these distinctions, OSHA proposed testing by an accredited agency for
the heavy gear with proof load testing specifications ranging from 25%
to 10% in excess of the SWL. For the lighter gear, OSHA proposed that
testing be conducted by a qualified employee (in lieu of third party
certification) to a specification of 25% in excess of the SWL.
Final paragraph (f)(1) requires special gear provided by the
employer, the strength of which depends on special gear components and
that additionally has a Safe Working Load of more than five short tons
(4.5 metric tons) to be tested and inspected prior to initial use as a
unit. Paragraph (f)(2), which is a provision similar to the
corresponding provision of OSHA's existing Longshoring Standard,
requires that special stevedoring gear with a SWL of five short tons or
less continue to be inspected and tested prior to initial use as a unit
by either an accredited agency or by a designated person. All tests
required by this paragraph must be in accordance with Table A shown in
paragraph (f).
Paragraph Sec. 1918.61(g) of the final rule requires that all
intermodal container spreaders provided by the stevedore for hoisting
afloat (aboard a vessel) shall be similarly inspected, tested, and
certified. This provision also requires any spreader that is damaged in
a way that requires structural repair to be inspected and retested
after the repair is performed and before the spreader is returned to
service. It should be noted that intermodal container spreaders that
are part of ship's gear are required to be inspected and tested as part
of the vessel's cargo gear under ILO Convention 152 (see subpart B,
Gear certification).
Paragraph (h) requires that all cargo handling gear covered by this
section having a SWL greater than five short tons be proof-load tested
every four years according to Table A found in paragraph (f) or
paragraph (g) of this section, as applicable. This proof-load test may
be conducted by an agency accredited by the U.S. Department of Labor
under 29 CFR part 1919 or by a designated person.
Final paragraph (i) requires that certificates and inspection
records generated by the tests required by this section be made
available for inspection. These include the certificates issued by
accredited agencies as well as inspection and test records produced by
designated persons while testing the equipment. Additionally included
is any initial test records required by the existing standard for the
purposes of the periodic testing provisions of paragraph (h) of this
section.
Several issues related to Sec. 1918.61 arose during rulemaking;
these can be categorized as follows:
(1) There are no OSHA-accredited agencies in or near some ports,
some commenters said, especially small ports,
[[Page 40165]]
which would increase costs and burden, perhaps especially for some
small employers;
(2) Several commenters contended that requiring OSHA accredited
agencies to provide certification for fabricated equipment repeats the
current function of steel fabricators;
(3) Some break-bulk stevedores noted that a great deal of equipment
would have to be certified or inspected every four years.
In their view, the Agency has underestimated the costs of
certification and four-year equipment testing. In addition, they argued
that the Agency did not demonstrate how the proposed testing provisions
will significantly reduce the risk of using special gear and spreaders
and that the Agency has not shown that these requirements are
reasonable and necessary. Each of these points is addressed in turn.
In response to a comment questioning the availability of the OSHA
accredited agencies required to conduct the tests specified in this
section (SEA Tr. p. 484), OSHA notes that there are currently 130 OSHA
accredited agencies in the United States and that they are located in
all of the major port areas, including the Great Lakes and the Inland
Waterways. Mr. Donald Lawson, with Marine Surveyors and Consultants,
also testified that there were 5 to 10 companies that could do the
required testing in the Seattle and Portland, Oregon area alone (SEA
Tr. p. 278).
Several commenters questioned whether OSHA had provided information
or data that showed that the proposed revisions to these requirements
would reduce employee risk in this industry. The record clearly
demonstrates, on a national level, that gear failures frequently occur.
Data in the IMIS database indicate a record of injuries and fatalities
due to gear failures (Ex. 1-103, cases 108, 116, 124). OSHA thus
concludes that these requirements, which are designed to prevent gear
failure, are necessary to employee protection.
In addition, OSHA received several comments and testimony
suggesting that only a prototype or sample of special stevedoring gear
needed to be proof load tested, instead of testing every single piece
of gear, as proposed (Exs. 8-8, 8-20, SEA Tr. pp. 164-169, NO Tr. pp.
209-211). For example, Mr. Don Lawson, principal surveyor with Marine
Surveyors and Consultants, testified:
I agree with the fact that a prototype can be developed with
sufficient engineering and tested, but once production starts there
need to be controls in workmanship and quality control and quality
assurance and in the material * * * . They'll look for things, such
as traceability and materials, for production controls, and for
quality assurance * * *. Beyond that, the next step would be to make
periodic visits to spot check workmanship, and then to carry out
testing on 10 out of 100 or one out of 200 units (SEA Tr. pp 282-
283).
After careful consideration, OSHA agrees with Mr. Lawson's concern
for quality assurance and reproducibility of specifications in unique
shop-built stevedoring gear. Unlike the quality control mechanisms
built into a manufacturing process that mass-produces items, OSHA
believes that shop built items are more subject to variations in
fabrication. These items, therefore, shall be individually tested
according to this section.
Several commenters criticized the Agency's estimate of the costs
that employers must incur to meet the revised standards for gear
testing (SEA Tr. pp. 154, 236-250, 399, and 570). Some of these
commenters are representatives of stevedores who perform specialized
longshoring operations, such as logging and wood pulp, almost entirely
on vessels. Since these employers primarily use special gear located
aboard vessels, their gear has not previously been required to be
tested, as marine terminal equipment has. Those employers who are
involved primarily in container transport are not as affected by the
final standard as stevedores engaged in break-bulk operations. Although
some commenters expressed concern over the potential costs of these
provisions, others agreed with OSHA that they were economically
feasible for affected firms, as demonstrated by the comments of Mr.
John Faulk, testifying on behalf of NMSA:
NMSA agrees with the approach by OSHA for 1917.50(c) and
1918.61(d) concerning certification of special stevedoring gear is
practical, economically feasible and will provide adequate
safeguards* * *. Except for the recommendations submitted by NMSA in
their written comments * * * NMSA fully endorses OSHA's proposed
language on the other provisions found in this subpart (NO Tr. p.
153).
The Agency has revised its cost estimates and its estimation of the
impact on particular employers for this final rule (see SectionVI,
Summary of the Final Economic Analysis and Regulatory Flexibility
Analysis).
OSHA has included a table entitled ``Cargo Gear Testing
Requirements'' in a non-mandatory appendix (Appendix IV). A form of
this table was originally recommended by the National Maritime Safety
Association and the Pacific Maritime Association (Exs. 8-8, 8-20) for
inclusion in the standard as a compliance tool. Besides the performance
and frequency requirements, OSHA has added the proof load testing
specifications from Table A of Sec. 1918.61(f) to the table in Appendix
IV so that it summarizes all of the testing gear requirements of this
section. OSHA believes that this tabular information will enhance the
clarity of the provisions and thus promote compliance.
For consistency, these same changes are being made to the parallel
provisions of the Marine Terminals Standard (Sec. 1917.50 (c)).
Final rule Sec. 1918.62, titled ``Miscellaneous auxiliary gear,''
covers all miscellaneous gear provided by the stevedore that is not
part of ship's gear. The hazards addressed by this section are those
generally associated with an employee being struck by falling objects,
e.g. dunnage, gear or cargo, when the gear fails. These provisions of
the final rule parallel the same requirements for miscellaneous gear
found in the shoreside cargo handling standards at Sec. 1917.42.
Several modifications have been made to the existing rule to
reflect the changes that have occurred in modern marine cargo handling
methods. For example, the replacement criteria for wire rope are more
stringent than those in the current regulation (see Sec. 1918.62(a)(4)
of the final rule), and the prohibition against using new parts made of
wrought iron now accords with the prohibition in ILO Convention 152
(see Sec. 1918.62(a)(5)(ii) of the final rule). Additionally, the final
rule consolidates a number of closely related provisions formerly
scattered throughout the rules into this one section; again, this is
consistent with the format of the corresponding section in part 1917.
Several commenters supported these provisions as proposed (Ex. NMSA et
al.).
Paragraph (a)(1) mandates that, after the completion of each use,
loose gear be placed in a manner that will avoid damage to the gear. In
addition, this provision states that loose gear must be inspected after
each use and be repaired before reuse if found to be defective.
Section 1918.62(a)(2) prohibits the use of defective gear and
requires that distorted hooks, shackles or other similar gear be
discarded to prevent its reuse. Several commenters suggested that OSHA
clarify the meaning of the word ``defective'' (Exs. 19, 6-31a, 8-8, and
8-20), and the final rule now explains that those defects falling
within the definition of ``defective'' as used by the manufacturer of
the particular gear are addressed by this provision of the final rule.
In addition, when manufacturers' specifications are
[[Page 40166]]
not available to determine whether gear is defective, the employer must
use the appropriate paragraphs of this section to make these
determinations.
Paragraph (b) covers wire rope and slings that are not part of
ship's gear. Employers are required by paragraph (b)(1) to follow the
manufacturer's recommended ratings for wire rope and wire rope slings
and to have such ratings available for inspection. In cases where the
manufacturer is not able to supply the rating, employers must use the
wire rope and wire rope sling tables found in Appendix II of this rule.
OSHA, in the proposal and the final rule, has included a
comprehensive collection of tables, in Appendix II, that are to be used
when manufacturers' specifications or gear certificates are not
immediately available at the worksite for safe working load assessment.
These tables are primarily based on American Society of Mechanical
Engineers Standard (ASME) B30.9-1990 (Slings) (Ex. 1-148) and on
requirements applying to wire rope clips and shackles currently
contained in the Agency's rules for marine terminals.
Several commenters urged OSHA to make the use of these tables non-
mandatory (Exs. 8-8, 8-20); these commenters noted that the proposed
appendix containing these tables was non-mandatory and argued that the
terminology used in the provision of the regulatory text referring to
these tables should also be nonmandatory. In response, OSHA notes that
the corresponding tables in OSHA's existing Longshore rule are referred
to in mandatory language, and after careful consideration, has
concluded that reliance on these tables is mandatory when certificates
or manufacturers' use recommendations are not available. Consequently,
OSHA has decided to change the status of Appendix II from non-mandatory
to mandatory. This position was supported by several commenters (Exs.
19, 78, 6-49, 6-50,
6-51, 6-52, 6-53, 6-54, and 6-55 ). According to final rule paragraph
(b)(2), wire rope having a safety factor of less than 5 may be used
only in accordance with the limitations specified in paragraphs
(b)(2)(i) through (iii). Wire rope or wire rope slings having any of
the defects specified in paragraph (b)(3)(i) through (vi) may not be
used for fear of failure.
Paragraphs (b)(4) through (b)(9) address covering or blunting of
the ends of strands in splices, the use of wire rope clips to form
eyes, the securing of wire rope, and eye splices. These provisions are
essentially unchanged from the parallel provisions in the existing rule
and in the proposal and are considered standard industry practice.
Paragraph (c) of the final rule contains similar provisions that
apply to natural fiber rope and natural fiber rope slings used aboard
ship, and paragraph (d) addresses the same hazards as they apply to
synthetic rope and synthetic rope slings. The load ratings found in the
various tables in Appendix II are to be used for ropes and slings of
all types, as identified on the appropriate table.
In Sec. 1918.62(e), those defects that are sufficient to require
the removal from service of natural or synthetic ropes are identified;
these defects include abnormal or excessive wear, cut or broken fibers,
rotting, and other structural defects that could cause the rope to fail
under load. Paragraph (f) requires, where practicable, that properly
fitted thimbles be used in cases where the rope is secured permanently
to a ring, shackle, or other attachment. These provisions are also
essentially unchanged both from the corresponding provisions of the
existing rule and the proposed rule.
Paragraph (g) of the final rule, titled ``Synthetic web slings,''
prescribes the conditions of use, causes for removal from service, and
other requirements governing synthetic sling use. Paragraph (g)(1)
prohibits the use of slings and nets composed of more than one piece of
synthetic webbing and used as a single unit to hoist loads greater than
the loaded capacity of the sling itself. In paragraph (g)(2), those
defects that require the sling to be removed from service are
specified; examples of such defects are acid or caustic burns, snags or
punctures, and signs of excessive wear or damage. Paragraph (g)(3)
prohibits the return to service of defective synthetic slings unless
they have been repaired by a sling manufacturer or an entity with
equivalent competence and additionally pass two proof tests.
Manufacturers' use recommendations are required to be followed by
paragraph (g)(4), and paragraph (g)(5) of the final rule mandates that
fittings have a breaking strength that is at least equal to that of the
sling to which the fittings are attached. These requirements, which
were not specifically addressed by commenters, are essentially
unchanged from the parallel requirements of the proposed rule and the
Agency's Marine Terminals Standard. Their inclusion in the final rule
thus achieves consistency in synthetic sling requirements in OSHA's
marine cargo handling rules.
Paragraph (h) is titled ``Chains and chain slings used for
hoisting.'' Employers are required by paragraph (h)(1) to observe
manufacturers' ratings for safe working loads when wrought iron or
alloy steel chains and slings are used and additionally must have such
ratings available. When such ratings are not available, Table 4A of
Appendix II must be relied on for this information (for alloy steel
chains and chain slings only). Paragraph (h)(2) specifically prohibits
the use of coil steel chain or of other types of chain not recommended
for slinging or hoisting by the manufacturer. The provisions of
paragraph (h)(3) address the inspection of sling chains, specify the
conditions that require removal of the chain from service, and
stipulate that the inspection of chains used for slinging and hoisting
may be performed only by designated persons.
Stringent requirements governing the repair of chains used for
hoisting are included in paragraph (h)(4), and paragraph (h)(5)
requires any wrought iron chains continually used for hoisting to be
annealed or normalized at intervals not to exceed every 6 months.
Following ILO recommendation 160 (Ex. 1-8), OSHA proposed to add
language to this section to prohibit the use of wrought iron (which is
considerably less elastic than steel and thus is more prone to fail) in
new parts of lifting appliances or loose gear (Sec. 1918.62(h)(5)(ii)).
Although wrought iron is rarely seen on vessels that are trading today,
such gear may still be in use on some vessels, and OSHA has therefore
included this provision in the final rule.
Paragraphs (h) (6), (7), and (8) prohibit the use of kinked or
knotted chains, require hooks, rings, links, and other attachments to
have rated capacities at least equal to those of the chains to which
they are affixed, and mandate that chain slings be marked with their
size, grade, and rated capacity, respectively. Shackles are covered in
paragraph (i)(1), which requires that the manufacturers' safe working
load, if known, not be exceeded; where this information is not
available, employers are required to follow Table 5 of Appendix II.
Paragraph (i)(2) mandates that all screw pin shackles provided by the
employer and used aloft (except in cargo hook assemblies) have pins
that are positively secured.
Hooks other than hand hooks are required by paragraph (j)(1) to be
used in conformance with the manufacturers' safe working load and to be
tested in accordance with paragraphs (a), (c), and (d) of Sec. 1919.31
unless manufacturers' test certificates are available for such hooks.
Paragraphs (j) (2), (3), (4) and (5) specify the conditions of use
pertaining to hooks (other than hand hooks). These
[[Page 40167]]
requirements are essentially unchanged from those proposed.
Pallets are covered by the requirements of paragraph (k). Paragraph
(k)(1) specifies that pallets be made and maintained so that they will
support the loads being handled and requires that the fastenings of
reusable pallets that are used to hoist loads consist of bolts and
nuts, drive screws, threaded nails, or equivalently strong fastenings.
Provisions addressing the hoisting of reusable pallets, bridles for
handling flush end or box-type pallets, and the stacking of pallets, as
well as a prohibition against the reuse of single-use pallets, are
found in paragraphs (k) (2), (3), (4), (5), and (6).
Section 1918.63, titled ``Chutes, gravity conveyors, and rollers,''
and Sec. 1918.64, titled ``Powered conveyors,'' contain requirements
for the safe use of chutes, rollers and both gravity and mechanically
powered conveyors. These sections are unchanged from the corresponding
provisions of the proposal; in addition, these rules parallel the
requirements covering similar equipment in the Marine Terminals
Standard (see Secs. 1917.48 and 1917.49). After this final rule is
effective, there will thus be no regulatory inconsistencies with such
equipment, which often physically originates on shore and extends onto
the ship.
The principal hazards associated with the use of chutes, rollers,
and gravity and mechanically powered conveyors are caught in, struck
by, and crushing injuries and engulfment (e.g. by moving grain).
Accordingly, the provisions in Secs. 1918.63 and 1918.64 require, among
other things, that this equipment be strong enough to handle the loads
imposed, be equipped when necessary with sideboards, be free of
splinters and sharp edges, have emergency stop controls (powered
conveyors), have their pinch points guarded, be equipped with
mechanisms to warn of conveyor startup, and be equipped with overload
devices, guards, and other safety devices when necessary. For clarity,
the lockout/tagout language has been amended to limit the conditions
when power may be restored during the servicing of equipment.
Final rule Sec. 1918.65 covers the use of all mechanically powered
vehicles brought aboard vessels. Included in this category of equipment
are all industrial trucks and all bulk cargo moving vehicles. These
vehicles are also used in the shoreside aspect of marine cargo
handling, and the hazards are essentially the same in both ``sides'' of
cargo handling operations. The changes to this section of the final
Longshoring Standard parallel those requirements found in Sec. 1917.43,
the corresponding section of the Marine Terminals Standard.
The requirements in final rule Sec. 1918.65, ``Mechanically powered
vehicles aboard vessels,'' are essentially unchanged from those
proposed. Paragraph (a) states that this section applies to all types
of powered vehicles used aboard ship to hand equipment or material.
Paragraph (b)(1) requires any modification that could affect the
capacity or safe operation of a vehicle to be done only with the
manufacturers' prior written approval and/or that of a registered
professional engineer experienced with the equipment. This requirement
is necessary to ensure that operators of these vehicles, and other
workers in the vicinity, are not injured in an accident involving an
overloaded, poorly balanced, or otherwise unsafe vehicle.
Paragraphs (b) (2) and (3) require that vehicles be used within
their rated capacities, and that the total weight of the lift made by
two or more trucks working in unison not exceed the combined safe
lifting capacity of the trucks used, respectively.
Final rule paragraph (c) addresses guards for fork lift trucks. The
first provision requires all such trucks to be fitted with securely
attached overhead guards that are designed to protect the operator from
falling loads. Paragraph (c)(2) prohibits the use of overhead guards
that obstruct the operator's view and stipulates that any opening in
the top of the guard not exceed 6 inches in width or length (or be
sized to prevent the smallest unit of cargo being handled from falling
through the guard). Paragraphs (c) (3), (4), and (5) require overhead
guards to be built so that: failure of the mast tilt mechanism will not
displace the guard; the guard is large enough to extend over the
operator during all operations; and that guards not be removed except
when the presence of the guard would prevent entry into the work space
(and then only if the operator is not exposed to overhead obstructions
in the space). Paragraph (c)(6) requires fork lifts to be fitted with
vertical backrest extensions if necessary to prevent the load from
hitting the mast; the extension must provide such protection even if
the mast is at maximum backward tilt.
Guards applicable to crawler-type, rider-operated cargo moving
vehicles are covered by paragraph (d); at paragraph (d)(1), the final
rule requires such vehicles to be equipped with an operator's guard
that is built to protect the seated operator from contact with an
overhead projection. Paragraph (d)(2) mandates that guards and their
attachment points be sufficiently strong to withstand a load that is
equal to the drawbar pull of the machine and that is applied
horizontally at the operator's shoulder level; and paragraph (d)(3)
states that guards are not required when the vehicle is used in
situations that pose no threat to the seated operator of being hit by
an overhead projection.
Final rule Sec. 1918.65(d)(4) contains a requirement for rollover
protection on bulk cargo moving vehicles (such as the type used to trim
and position bulk cargo in underdeck spaces). Such protection is
required on similar pieces of equipment used in construction industry
settings, where the hazard posed by turnover also exists. Comments
received supported this requirement for both shoreside and shipside
equipment; however, these same commenters requested a phase-in period
of two years because of the large number of machines that would need to
be retrofitted (Exs. 19, 6-29, 6-31a, 8-8, NMSA et al.). In addition,
testimony indicated that OSHA provided a similar phase-in period to the
construction industry for rollover protection. (SEA Tr. p. 175) To
provide sufficient time to retrofit the large number of vehicles in the
industry and to be consistent with past OSHA policy, the final rule
provides for a two-year phase-in period in this paragraph.
In addition, OSHA sought comment in the proposal on the need for
rollover protection on bulk cargo moving vehicles used shoreside, i.e.
in the marine terminal environment. As noted above, several commenters
supported the addition of this protective measure to the Marine
Terminals Standard (Exs. NMSA et al., 19). To achieve consistency
between the rollover protection requirements in the Marine Terminals
and Longshoring rules, OSHA has provided for a similar two year phase-
in period in Sec. 1917.43(f).
Paragraph (e) of the final rule covers approved trucks. Several
commenters pointed out that parts 1917 and 1918 use different
terminology to refer to the same type of equipment (Ex. 8-8, NMSA et
al.). In part 1917, the term ``approved power-operated industrial
truck'' is used, while the longshoring rules uses the term ``approved
power-operated vehicle'' (see Sec. 1918.65(e)). Accordingly, OSHA has
changed the term used in the final Longshoring Standard to ``approved
power-operated industrial truck'' to be consistent with the language in
part 1917 as well as OSHA's proposed ``Powered Industrial Truck
Operator Training'' (61 FR 3092). As defined in paragraph (e)(1) of the
final rule, an approved power-operated
[[Page 40168]]
industrial truck is one listed as approved by a nationally recognized
testing laboratory. Paragraph (e)(2) requires such trucks to bear a
label or other indication that the truck is so approved. Paragraph
(e)(3) states that, in hazardous atmospheres, only approved trucks may
be used.
Maintenance requirements for mechanically powered vehicles are
addressed in paragraph (f), which requires, at paragraph (f)(1), that
such vehicles be maintained in safe working order, not have their
safety devices removed, and not be operated with any defect, e.g. a
fuel system leak, that could affect safe operation. Requirements
pertaining to braking systems, replacement parts, and repairs to the
fuel and ignition system are covered in paragraphs (f) (2), (3), and
(4). Batteries must be disconnected and/or stored energy discharged
before repairs can be made to the primary electrical system of
mechanically powered vehicles (see paragraph (f)(5)). Paragraph (f)(6)
stipulates that only designated persons may perform maintenance and
repair on these vehicles.
Final rule Sec. 1918.65(g) remains as proposed. This paragraph
requires that vehicles purchased after the effective date of the final
rule be equipped with parking brakes. This provision received support,
since nearly all pieces of newly manufactured equipment today have
parking brakes and the value of such brakes in preventing accidents is
widely recognized (NMSA et al.).
Paragraph (h) covers the operation of mechanically powered
vehicles. Paragraph (h)(1) states that only stable and properly
positioned loads that are within the rated capacity of the vehicle may
be handled, and paragraphs (h) (2) and (3) require the drivers of these
vehicles to ascend and descend grades slowly and to travel with the
load trailing in those cases where the load obstructs the operator's
forward view. Steering knobs are prohibited by paragraph (h)(4) except
where the vehicle has power steering, and paragraph (h)(5) requires
that a mechanism to alert the operator that the load has been engaged
be provided if the vehicle is one that has a cargo lifting device with
a means of engagement that is hidden from the operator's view.
Paragraph (h)(6) prohibits any load on a mechanically powered vehicle
from being suspended or swung over any employee; this provision is
necessary to ensure that employees are protected from cargo falling
from overhead loads. Paragraphs (h) (7), (8), (9), and (10) cover safe
working surfaces, load engaging means, guarding of the edges of open
deck barges and covered lighters, and precautions to be taken when
employees ride on mechanically powered vehicles. Paragraph (h)(11) sets
out the conditions under which employees may be elevated by fork lift
trucks and includes specifications that must be met by platforms used
for this purpose.
With the few exceptions noted above, OSHA received no comments on
the proposed requirements in Sec. 1918.65. These requirements, which
pertain to mechanically powered vehicles used aboard ship, are
essentially unchanged since the proposal.
Section 1918.66 of the final rule covers all cranes and derricks
that are not part of a vessel's permanent cargo handling gear but are
placed aboard a vessel temporarily to conduct cargo operations, as
stipulated in paragraph (a). Examples of such equipment are mobile and
crawler type cranes that are positioned on barges and used to load and
discharge cargo. In developing this section of the final Longshoring
Standard, OSHA relied on the corresponding provisions for cranes and
derricks found in Sec. 1917.45 of the Marine Terminals Standard. Once
this final rule is effective, these provisions will thus be consistent
for both aspects of the marine cargo handling industry.
Paragraph (a)(1) requires all such cranes and derricks to be
certificated in accordance with OSHA's gear certification requirements
(29 CFR part 1919), and paragraph (a)(2) requires the weight of any
crane hoisted aboard a vessel to be posted on the crane. Requirements
for rating charts, rated loads, exceptions to designated working loads,
radius indicators, and operators' stations for cranes and derricks
brought aboard vessels are shown in paragraphs (a) (3) through (7) of
the final rule. Paragraphs (a) (8) through (12) contain provisions
addressing counterweights or ballast, outriggers, exhaust gases,
electrical equipment, and fire extinguishers associated with these
cranes and derricks. Requirements specifying the amount of rope that
must remain on the drum, how wire rope must be secured, and a
prohibition against the use of fiber rope fastenings in hoisting
operations involving these cranes and derricks are contained in
paragraph (a)(13), while paragraph (a)(14) addresses brakes. Crane and
derrick operating controls are required to be clearly marked by
paragraph (a)(15), and paragraphs (a) (16) through (18) cover boom
stops, foot pedals, and access to footwalks, cab platforms, the cab,
and any portion of the superstructure of cranes and derricks brought on
board for cargo handling purposes.
Operating precautions and requirements for cranes and derricks of
this type are detailed in paragraph (b) of the final rule, entitled,
``Operations.'' The provisions in this paragraph cover the use of two
or more cranes together, the guarding of the crane's swing radius,
prohibitions against the use of equipment that could exert side loading
stresses on the crane or derrick boom or the use of a crane or derrick
that has a visible or known defect that could affect safety, and steps
to be taken if a crane or derrick is to be left unattended (see
paragraphs (b) (1) through (4)).
Paragraph (c) sets out a number of protections for employees being
hoisted (including the use of anti-two-blocking devices on all cranes
and derricks used to hoist personnel). For example, paragraph (c)(1)
states that no employee may be hoisted by the load hoisting apparatus
of a crane or derrick unless a platform having the characteristics
specified in paragraphs (c)(1) (i) through (vii) is used. Final rule
paragraph (c)(2) requires that the hoisting mechanism of cranes and
derricks being used to hoist personnel operate in the power up and
power down mode. This requirement is being brought into the Longshoring
Standard from the Marine Terminals Standard (Sec. 1917.45(j)(2)) to
provide parallel safeguards in both aspects of marine cargo handling
operations.
Proposed paragraph (c)(3) required that cranes used to lift
personnel be equipped with an anti-two-blocking device, a device which
prevents the hoist block from coming into contact with the head block
of the boom. Such ``two-blocking''' can occur when the operator is not
paying attention to how high the hoist block is in relation to the head
of the boom. After contact, continued hoisting of the block can cause
the block to separate or break from the load line, causing the hoist
block and load to fall. OSHA has determined that this requirement is
necessary to prevent serious injury or death to employees being lifted
by a crane; in 1988, the Agency adopted such a requirement for cranes
used to hoist personnel in the construction industry
(Sec. 1926.550(g)(3)(ii)(C), 53 FR 29139). Although OSHA's 1983 Marine
Terminals Standard did not contain such a requirement, and
inadvertently omitted this requirement in the proposal, the Agency has
rectified this oversight in the final rule (see Sec. 1917.45(j)(9)).
There were many issues related to anti-two-blocking devices that
were raised by participants in the rulemaking, including whether OSHA
has any data on risk or accidents relating to these devices; whether it
is technologically
[[Page 40169]]
feasible to retrofit all maritime cranes with anti-two-blocking
devices; and whether this requirement is truly necessary for safety in
the marine cargo handling operations.
In response, OSHA notes the following. First, this issue primarily
concerns mobile cranes, because most, if not all, container gantry
cranes and portal gantry cranes are already equipped with anti-two-
blocking devices. Mobile cranes are common on the Gulf Coast, but some
are used at smaller ports on the East and West Coasts as well. In Gulf
ports, very few ships that have containers that are stacked more than
one or two high visit non-gantry crane facilities. Containers stacked
only to this height are easily accessed with ladders, and this is the
usual method of working them instead of using cranes to hoist the
employees.
Several commenters noted that employees are rarely hoisted in this
industry by non-container gantry cranes (e.g. mobile and crawler
cranes) and that cranes used in longshoring have very long booms,
unlike those in the construction industry, which greatly reduces the
potential for two-block accidents in longshoring (NO Tr. pp. 165, 171,
172). The hoisting of employees by container gantry cranes is allowed
when the spreader platform meets the requirements of Sec. 1917.45(j)
and the crane is not hoisting a load. Commenters also said that some
stevedores employ rented cranes that may not have anti-two-blocking
devices on them and that it may be impossible to retrofit some existing
cranes with anti-two-blocking devices (NO Tr. pp. 17, 398). Also,
ship's gear is often relied on for some specialized longshoring
operations, and in this situation the stevedore has no control over
whether or not the ship's gear has this safety device. One commenter
stated that very few ships had anti-two-blocking devices on their
cranes (NO Tr. p. 399).
Industry commenters who opposed the requirement for anti-two-
blocking devices did not do so primarily on economic grounds, although
they noted that installing an anti-two-blocking device was a
significant expense. Anti-two-blocking devices were estimated to cost
from $3,000 to $13,000 each (NO Tr. pp. 368, 708).
One commenter, who had purchased a new crane with an anti-two-
blocking device, reported that it was necessary to disconnect the
safety device because it was not possible to perform ``duty-cycle''
work of transporting lengths of steel. The company reported that it
virtually never lifted personnel by crane (NO Tr. p. 708). Another
commenter also testified that ANSI requires all cranes purchased after
January 1, 1991, to be equipped with anti-two-blocking devices (NO Tr.
p. 710). Several commenters questioned whether the anti-two-blocking
requirement was necessary because there was a lack of accident data and
its intended use would be so infrequent (Ex. 6-29a, NO Tr. pp. 164,
171).
Mr. James Pritchett, owner of Crane Inspection Services, an OSHA
accredited agency, testified in New Orleans:
One of the main reasons I came to the meeting that deals with
regulations on cranes, I was delighted to read into the regulations
that OSHA was considering anti-two-blocking on maritime cranes.
Generally speaking, that is the rule for general . . . industry.
I think a man is a man regardless of what location he's working
in. I think he's important in construction, general industry,
longshoring, or maritime the anti-two-blocking device is a safety
device; it's not intended for an operational device.
Also, it can be deactivated for duty cycle work. Its real intent
is to be used for, or I should say, it really comes into play very
importantly in a man lift situation (NO Tr. pp. 733-735).
As noted by several commenters, the purchase and installation of
anti-two-blocking devices can be avoided through work practices and
administrative approaches-- cranes other than container gantry cranes
are presently rarely used for lifting personnel (NO Tr. p. 171). On the
other hand, where the need or frequency for lifting personnel is great,
anti-two-blocking devices will offer greater protection for employees.
In addition, OSHA is aware that mobile cranes equipped with anti-two-
blocking devices are frequently rented to stevedore companies at East
Coast marine terminals. The Agency concludes that the use of anti-two-
blocking devices is necessary and feasible in marine cargo handling
operations and requires their use in final Sec. 1917.45(j)(9) and
Sec. 1918.66(c)(3).
In consideration of the above and consistent with past OSHA
policies, the Agency believes the hoisting of employees by a crane to
be an inherently dangerous practice that should only be conducted under
very controlled circumstances. The common use of personnel platforms to
transport employees by container gantry cranes, however, effectively
controls these hazards. Nonetheless, in the case of cranes other than
container gantry cranes, this practice should be avoided when other
methods are feasible and present less of a hazard. OSHA therefore
requires that all the provisions of Sec. 1918.66(c) be met before
employees may be hoisted by the load or hoisting apparatus of a crane
or derrick, including the use of an anti-two-blocking device.
Final rule Sec. 1918.66(d) addresses routine inspections of cranes
and derricks that are not part of vessel's gear. Paragraphs (d)(1) and
(d)(2) require that designated persons inspect each crane and derrick
before each day of use and that such persons thoroughly inspect all
functional components and accessible features of each crane or derrick
at monthly intervals. Paragraph (d)(3) stipulates that defects found
during such inspections that could potentially pose a safety hazard to
employees be corrected before the equipment is used. In addition, this
provision states that such repairs may only be performed by designated
persons. Employees are required by paragraph (d)(4) to maintain records
of monthly inspections for 6 months, either in or on the crane or
derrick or at the terminal.
Protective devices are addressed by paragraph 1918.66(e). Paragraph
(e)(1) states that moving parts, such as chains, gears, and sprockets,
that could pose a hazard to employees during operations must be
guarded, and paragraph (e)(2) requires that crane hooks be secured to
prevent inadvertent disengagement of the load.
Paragraph 1918.66(f) addresses load indicating devices (LID's). To
help prevent the overloading of cranes, LID's are currently required in
both Sec. 1918.74(a)(9) and Sec. 1917.46. OSHA, however, had proposed
not to carry over the requirements for LID's for vessel mounted cranes.
Usually such devices rely upon boom radiuses (outreach) as an important
factor in arriving at a load indication. When a crane is used aboard a
ship, however, the LID's do not produce the same level of accuracy as
for land-based cranes due to the motion of the vessel when a load is
imposed. OSHA sought comment on alternative means to prevent the
overloading of cranes used afloat. No comment was received. However,
OSHA did receive comment supporting the continued requirement for LID's
on cranes aboard a barge or vessel (Ex.6-2). OSHA is aware of the
current practice of derating the capacity of the crane to account for
waterborne conditions. This practice remains an acceptable method of
preventing the overloading of waterborne cranes. Considering this and
since the record supports the existing requirements, OSHA has decided
to retain the language (as corrected) found in the current
Sec. 1918.74(a)(9) and has codified this at Sec. 1918.66(f). Parallel
[[Page 40170]]
language has been included in final Sec. 1917.46(a)(1)(ii).
Final Sec. 1918.67 remains as proposed and carries over the
requirements found in the current Sec. 1918.75. These provisions
require communication between the stevedore (i.e. the employer) and the
officer in charge of the vessel whenever internal combustion or
electrically powered tools, equipment or vehicles are brought aboard,
and whenever the ship's power is needed for operating the employer's
electrical tools or equipment.
Final Sec. 1918.68 remains as proposed and provides for the
effective grounding of all portable electrical equipment, such as saws,
drills, grinders, etc., through a separate equipment conductor that
either runs with or encloses both circuit conductors. This represents a
clarification of the current rule. Double-insulated tools and battery-
operated tools are excluded from the requirements.
OSHA proposed to delete the regulations under the current section
titled ``Tools,'' (Sec. 1918.72), in the belief that the current OSHA
General Industry Standards, subpart P, titled ``Hand and Portable
Powered Tools and Other Hand-Held Equipment'' comprehensively addressed
the subject of portable tools. Comments and testimony were received
that supported the existing requirements for tools and in the final,
OSHA has kept the existing Longshoring Standard's requirements. (See
discussion regarding tools in the preamble of subpart A.)
Subpart H--Handling Cargo
Subpart H of the final rule is titled ``Handling cargo.'' This
subpart specifically covers the actual shipboard cargo handling
process. The sections that comprise this subpart (Secs. 1918.81-89)
address the hazards encountered by longshore workers while loading and
unloading cargo. The primary hazard is being struck by the cargo,
whether it is palletized, containerized, roll-on/roll-off (Ro-Ro), or
otherwise packed or packaged. OSHA is retaining in this final rule
those provisions found within subpart H of the Agency's current
Longshoring Standard; carrying over applicable regulatory language from
the Agency's rules for the shoreside segment of marine cargo handling
(part 1917, the Marine Terminals Standard); and adding new requirements
to address the hazards associated with the newer methods of handling
cargo. For the most part, OSHA received widespread support for the
changes that have been made to this subpart of the final rule (Exs.
NMSA et al., PMA et al.).
Final Secs. 1918.81 through 1918.84 address those hazards common to
the handling of break bulk (or general) cargo. Paragraph (a) of section
1918.81, ``Slinging,'' requires drafts to be safely slung before
hoisting and any loose dunnage or debris to be removed to protect
employees handling the draft. Other provisions in this section address
cargo handling bridles, methods of slinging to prevent sliders, the
safe use of case hooks, the hoisting of bales, the safe handling of
unitized loads, manual guidance of loads, observation of the draft
during hoisting, and provisions prohibiting the lifting of loads over
employees or employees riding the hook or load. Proper slinging,
building, bulling and stowing of drafts of cargo are essential to
prevent cargo from coming loose from the draft and falling on or
tipping over onto employees. These requirements are essentially
unchanged since the proposal, and OSHA received no comments
specifically addressing these provisions.
Section 1918.82, ``Building drafts,'' contains a requirement (in
paragraph (a)) that drafts be built in a manner that prevents cargo
from falling from the draft, or that means be taken to ensure the same
result. In addition, paragraph (b) stipulates that buckets and tubs
used to handle bulk or frozen cargo not be loaded above the height of
their rims; this provision is necessary to ensure that pieces do not
fall on employees below.
The tiering and breaking down of stowed cargo is covered in
Sec. 1918.83. Paragraph (a) requires the securing of cargo in ship's
hold if such cargo could present a hazard to employees working in the
hold. Precautions must be taken, as required by paragraph (b), in
breaking stowed cargo; this provision is intended to prevent such cargo
from falling on employees. Paragraph (c) of the final rule requires
employers to check employees trimming bulk cargo into and out of the
hold. This provision also requires employees working alone in a tank or
compartment to be checked at frequent intervals to ensure that the
employee is safe.
The bulling (dragging) of cargo is addressed in Sec. 1918.84 of the
final rule. Provisions in this section cover precautions to be taken
during bulling, the safe use of snatch blocks, the securing of beam
frame clamps, and a prohibition against the use of falls led from cargo
booms of vessels to move scows, lighters, or railcars.
The final regulatory text of Secs. 1918.81 through 1918.84 remains
the same as the proposed text of these sections. In addition, OSHA
received no comments specifically related to these requirements.
Section 1918.85, titled ``Containerized cargo operations,''
contains requirements addressing this modern method of cargo handling.
This section applies to containerized cargo operations of any form (see
definition of ``intermodal container'' at Sec. 1918.2). These
paragraphs track OSHA's current Longshoring Standard (part 1918), and
the shoreside requirements found in OSHA's current Marine Terminals
Standard (part 1917).
Section 1918.85(a) requires that each intermodal container must be
marked with its gross, net, and tare (empty) weights. This paragraph of
the final rule remains the same as the corresponding proposed
paragraph.
Final rule Sec. 1918.85(b) (1) through (5) address the
determination of the weight of intermodal containers to be hoisted. The
proposed provisions largely reflect the current rules in both the
Longshoring and Marine Terminals Standards.
Paragraph Sec. 1918.85(b)(6), allows closed dry van containers
loaded with vehicles to be brought aboard vessels under certain
conditions without first being weighed on a scale. The proposal added
paragraph (b)(6) to this section to be consistent with OSHA Instruction
STD 2.2, dated July 3, 1989 (Ex. 1-114). Those employers who choose not
to comply with these conditions must weigh the container before
loading. The same language is found in the Marine Terminals Standard at
29 CFR 1917.71(b)(6).
Paragraph (c) provides that no container(s) shall be hoisted if
their gross weight exceeds either the weight marked in accordance with
paragraph (a)(3) of this section or the capacity of the crane or other
lifting appliance being used. Paragraphs (d) and (e) cover container
inspection and precautions to be followed when containers are
suspended. The requirements in paragraphs (a) through (e) are
essentially unchanged from those in the proposal.
Paragraph 1918.85(f) addresses the lifting of intermodal
containers. It requires that containers be handled using lifting
fittings or other arrangements specified in paragraphs (f) (1) through
(3) of this section unless the container is so damaged as to make
special handling necessary. Paragraph (f)(1)(i) specifies that the
hoisting of loaded containers 20 or more feet in length be done as
follows: When hoisted by the top fittings, the lifting forces are
applied vertically from a minimum of four fittings. Lifts that are less
than vertical are permitted only when the container is an International
Standards
[[Page 40171]]
Organization (ISO) \8\ ``closed box container,'' the condition of the
box is sound, the speed of hoisting and lowering is moderated, the lift
angle is 80 to 90 degrees, the distance between lifting beam and load
is at least 8 feet 2.4 inches (2.5 meters), and the length of the
spreader beam is at least 16.3 feet (5 meters) for a 20-ft container
and 36.4 feet (11 meters) for a 40-ft container. If these
specifications are met, the final rule thus allows non-vertical lifts
in limited situations. In contrast, proposed paragraph (f)(1)(i) would
have required that loaded containers, when lifted from the container's
top corner fittings, only be performed with a purely vertical force.
The proposed language is identical to the practice spelled out in the
ISO guidelines for handling containers as well as with several other
standards or recommendations (Exs. 1-13, 1-115, 1-116, 1-117).
---------------------------------------------------------------------------
\8\ The ISO is a worldwide federation of national standards
bodies whose mission is to promote the development of international
standards to reduce technical barriers to trade. The ISO standards
are consensus documents and represent voluntary guidelines.
---------------------------------------------------------------------------
Currently, OSHA's Marine Terminals Standard's requirement for
lifting containers allows non-vertical lifts under specified
circumstances, i.e. it states that ``when hoisting by the top fittings,
the lifting forces shall be applied vertically from at least four (4)
such fittings or by means which will safely do so without damage to the
container, and using the lifting fittings provided''
(Sec. 1917.71(f)(1)(i)). The Agency's current Longshoring Standard also
allows non-vertical lifts, i.e. it states: ``All hoisting of containers
shall be by means which will safely do so without probable damage to
the container, and using the lifting fittings provided''
(1917.71(f)(1)(i)). A commenter noted that a decision of an
Administrative Law Judge of the Occupational Safety and Health Review
Commission (OSHRC) has held that these current OSHA rules allow any
lift that has an angle greater than 60 degrees. (Continental
Stevedoring and Terminals, Inc., 15 BNA OSHC 1966 (ALJ, No. 91-475,
1992) at CH Tr. p.157).
Ports or facilities that rely mainly on container gantry cranes
generally do not perform non-vertical lifting of containers. Non-
vertical lifting of containers is generally performed by mobile cranes,
portal gantry cranes or by vessel's gear. A non-vertical lift is made
by connecting four wires (or chain legs) either directly to the crane's
hook or to a spreader bar hung from the crane. A spreader bar is a
simple steel beam with two lengths of chain or cable on either end and
a hook or other fitting on the chain legs to attach to the corner
fittings of a container. Spreader bars are made shorter than the
container, both for ease of maneuvering in tight lifts and to avoid
snagging containers and ship parts or rigging. The longer the spreader
bar, the more nearly vertical the lift on the container.
A box spreader can also be used to lift a container vertically
using a single wire crane. A box spreader is essentially the same
device that a container gantry crane uses to lift containers. However,
a box spreader is both heavier and costlier than a simple spreader bar.
In addition, box spreaders may introduce additional safety risks for
longshoremen working on container tops. For example, the use of box
spreaders requires additional maneuvering to position and secure the
spreader to the container thus increasing employee exposure to falls
(See, for example Montz at NO Tr. p. 101).
Mr. Vincent Grey appeared as an expert witness for OSHA in this
proceeding. Mr. Grey has served as chair of the ISO Technical Committee
3874, Freight Containers, and is a recognized international expert on
this mode of cargo handling. In addition to testifying on container
lifting at the public hearings he also submitted written comments to
the docket (Exs. 1-31,
6-28, 49, and 50). Mr. Grey supported the Agency's proposed requirement
permitting only vertical lifting of containers (NO Tr. p. 70).
According to Grey, containers are designed and have been tested only
for purely vertical lifts. In addition, he explained that no one,
including the ISO technical standards committee, has ever conducted a
study or evaluation on the impact that non-vertical lifting would have
on the containers (NO Tr. p. 70). He noted that any deviation from
verticality adds compressive forces along the top rail and tension
across the bottom of the container and that such forces could cause a
container to fail, either crumpling across the top or ripping open
along the bottom, with contents and container possibly falling on
employees underneath (NO Tr. p. 74). Mr. Grey concluded that since
containers were designed only for vertical lifts, non-vertical lifts
reach beyond the margin of safety built into the containers (NO Tr. p.
72).
At the hearings during questioning, however, Grey admitted that he
had never witnessed a container failure due to non-vertical lifting
(Id. p. 79). He also admitted that non-vertical lifts are common around
the world in smaller ports and less advanced countries that do not use
container gantry cranes and that spreader bars of less than container
length have been used for lifting containers around the world for more
than 30 years (Id. pp. 83-84). When lifting is done without gantry
cranes, Grey said, it is quicker and more efficient to employ spreader
beams and perform non-vertical lifts.
A number of commenters opposed the proposed requirement. For
example, John Faulk, representing NMSA, stated that there are no data
on container failures caused by non-vertical lifts (NO Tr. p. 157).
Instead, container failures are caused by overloading, improper
packing, shifting loads, and defects in container construction,
according to Mr. Faulk's testimony.
Hal Draper of the West Gulf Maritime Association agreed with Mr.
Faulk's comments and noted that OSHA had not produced data indicating
that accidents were occurring as a result of non-vertical lifts (NO Tr.
p. 223). He also pointed out that the stevedore has no control over
stowage, and that containers are frequently stowed in such a way that a
non-vertical lift is required to unload a container or move it to gain
access to other break bulk cargo. Mr. Draper also listed several
situations in which it is not feasible to move a container with a
vertical lift, such as: In midstream cargo operations; when
inexperienced crane operators cannot handle the gear well; when the
weight of a box spreader beam for a vertical lift is 7,500 pounds and
may make the lift exceed the crane's capacity; when a container on a
box spreader beam with cones would damage other cargo or containers
when lowered; and when the gear necessary for a vertical lift increases
the fall hazard for longshore employees because of the additional
exposure to falls by employees needed to position the spreader. He also
stated that simple bar spreaders work well for non-vertical lifts
because they are light--a 36-foot long bar for lifting a 40-foot
container weighs 3,000 pounds and provides 8 to 10 feet of head
clearance for employees atop the container. Mr. Draper recommended that
OSHA allow non-vertical lifts to be made between 80 and 90 degrees to
the horizontal.
Other members of industry supported these comments. For example,
Jim Heikkinen of Transocean Terminal Operators, Inc. stated that his
firm had used spreader bars for many years without incident and that
changing to a box spreader bar would increase both the weight of the
gear and the risk posed to employees working containers (NO Tr. p.
679). Leo Naekel of Jore Marine Services reported that there were some
lifts on barges that could not feasibly be made with a purely vertical
lift (SEA Tr.
[[Page 40172]]
pp. 273-276), and Doug Stearns of Jones Washington Stevedoring Company
stated that his firm sometimes had to use the ship's gear to move break
bulk cargo (SEA Tr. p. 390). He also noted that the stevedore cannot
require ships to carry a box spreader bar to make a pure vertical lift
and that the weight of a box spreader beam can also be a problem. In
addition, Mr. Stearns reported that he had never seen a container fail
with a spreader beam but had seen many drop from box spreader beams.
Mr. Stearn also questioned the Agency's estimates of the cost involved
in changing to gear capable of vertical lifting.
Two commenters, however, supported the proposed prohibition of non-
vertical lifts. For example, Douglas Getchell of the ILWU stated that
non-vertical lifts should only be allowed when vertical lifts are
technically infeasible; in his opinion, the alleged economic
infeasibility of making vertical lifts in some situations should not be
sufficient reason to allow such lifts (SEA Tr. p. 90). Arguing along
the same lines, Albert Cernadas of the International Longshoremen's
Association urged OSHA only to permit vertical lifts, with non-vertical
lifts allowed only when there is no alternative (NO Tr. pp. 470-472).
These same unions in the post hearing comment period, however,
supported studying the risk consequences of a limited non-vertical
lift. They agreed that there was a need to examine and scientifically
to identify any conditions where a less than vertical lift could be
permitted that would not place excessive stress on the containers and
therefore not place workers at increased risk.
Several commenters pointed out that there are times when containers
are stowed in the wings of the hold of a break bulk vessel, which makes
a true vertical lift impossible (Exs. NMSA et al., PMA et al., 6-10, 6-
16a, 6-28a, 6-29a). In such cases, the container must first be moved
below the hatch and must sometimes be dragged by attaching cables or
chains to the corners of one end of the container to pull it along the
deck. The cumulative effect of these ``dragging'' movements is to
increase the potential for container failure, and the increased wear
and tear on the container presents a greater hazard of container
failure than would a non-vertical lift.
After the public hearings, NMSA asked Mr. Grey to conduct an
engineering study to determine whether OSHA should permit a minor
departure from the 90 degree lift or prohibit non-vertical lifts in all
circumstances. NMSA was joined in supporting the need for this study,
in order to help resolve this controversy, by the ILA and ILWU. The
study was designed to determine, through the use of mathematical
models, the transverse and longitudinal stresses placed upon a
container being hoisted from the four corner castings at the extreme of
a minus 10 deg. tolerance to verticality. The analysis of these
compressive forces on these ``containers'' were then compared to the
safe limits found in the ISO specifications.
In the introduction to the study, Grey explains the 1961 origin of
the ISO vertical lift specification from his perspective as an active
member of the technical committee. He indicated that the committee
``ordained that containers over 10 feet be lifted vertically when being
picked up by their top corner fittings'' for several reasons (Ex. 80,
p.2). The world was about to experience the explosion of the growth of
containerization on the major trade routes. There was no industrial
experience in handling containers, which were modified trailers from
the highway trailer manufacturing industry. Partially out of concern
for the uncertainties of the durability of the containers over their
life cycles and partially as a matter of engineering convenience, the
committee never considered the impact of the absolute verticality
requirement on those facilities that only occasionally had to handle
containers. Grey expressed ISO's main concern as follows:
The ISO was essentially aimed at instituting an efficient way to
move the world's international foreign trade tonnage and at the same
time minimize labor cost and freight claims. Hence, the ISO
committee's highest priority was to concentrate on handling the
boxes in a fully automated system. (Id.)
As indicated above, no study has ever been conducted by the ISO or
anyone else to establish criteria for acceptable tolerances to absolute
verticality until Grey's study.
Based on the results of his study, Mr. Grey recommended that, under
certain controlled conditions, lifts that were nearly but not totally
vertical would be a practical and acceptable safety practice (Ex. 80,
p.12). His analysis indicated that lifts that were no more than a ten
degree deflection from vertical would not subject a container to undue
stress that could compromise the structural integrity of the container
(Id.). The ILA, ILWU, and NMSA, who collectively represent the
principal interested parties in this rulemaking, supported Mr. Grey's
findings, and this group stated its support in a joint post-hearing
submission (Ex. 85). Mr. Grey's study thus corroborated earlier
testimony presented by Hal Draper of the West Gulf Maritime Association
that showed that 80-degree lifts added little additional force across
either the top or bottom of containers (Ex. 6-29).
A prohibition on non-vertical lifts would primarily affect smaller
ports, smaller employers, and ports that handle a mixture of break bulk
cargo and containers, such as the Gulf Coast. Simple spreader bars have
been widely used for 30 years to lift containers. Spreader bars are
relatively light, simply constructed, and allow faster (less costly)
container lifting than would box spreader beams. Box spreader beams,
which would be required to provide a true vertical lift at each corner
fitting, are heavier, costlier, and are infeasible to use in some
situations.
After careful consideration of the Grey study and the relevant
record evidence, and in light of the unanimous support of the major
cargo handling stakeholders, the Agency has concluded that worker
safety is not compromised, indeed, is not even affected, by accepting
any lift that is 10 degrees within vertical to be a vertical lift for
the purposes of paragraph (f). In addition, OSHA believes that this
revision will also enhance enforcement efforts as well as voluntary
compliance by eliminating the confusion and ambiguity that currently
exists. The final standard thus allows containers to be lifted at an
angle of 80 to 90 degrees providing the following conditions are also
met: the container being lifted is an ISO ``closed box container''
(other types of containers such as flat racks and open top containers
must be picked up vertically); the condition of the box is sound, and
the speed of hoisting and lowering is moderated when heavily laden
containers are involved. OSHA considers a heavily laden container to be
one that is loaded to within 20 percent of its rated capacity. To lift
at an 80 degree angle, the distance between the lifting beam and the
load must be at least 8 feet and 2.4 inches (2.5 m), the length of the
spreader beam must be at least 16.3 feet (5 m) for a 20-foot container
and at least 36.4 feet (11 m) for a 40-foot container. This final
language has been codified at Sec. 1918.85(f)(1)(i) and is also being
included in Sec. 1917.71(f).
Paragraphs (f)(1) (ii), (iii), and (iv) contain requirements for
hoisting from the bottom fittings, lifting containers by fork lift
truck, and using other means of hoisting. Paragraphs (f)(2) (i) and
(ii) establish requirements for intermodal container spreaders that
employ lanyards and for the design and use of spreader twist lock
systems.
[[Page 40173]]
In final rule paragraph (g), the Agency requires that a safe means
of access and egress be provided to each employee who, due to the
nature of the work, must work on the top of stowed containers--both
above and below the deck. In practice, most employees gain such access
by riding aboard safety platforms installed on container crane lifting
frames. Such means are permissible when the lift is conducted in a
manner consistent with design requirements found in the shoreside rules
(Sec. 1917.45(j)). This provision remains unchanged from the proposal.
Paragraph (h) applies on vessels using any loaded intermodal
container spreader. It prohibits employees from riding a spreader with
a load attached. This provision is also unchanged from the proposal. A
similar prohibition for the shoreside aspect of marine cargo handling
(marine terminals) is included in this rulemaking (see
Sec. 1917.45(j)(9)).
When safer methods are available, such as safety platforms
installed on the container crane lifting frame, OSHA requires in
paragraph (i) that portable ladders not be used to gain access to the
tops of containers that are stowed more than two high. This paragraph
of the final rule is unchanged from the corresponding provision of the
proposal.
Final rule Sec. 1918.85(j) covers the hazard of falls from the tops
of intermodal containers. In the proposed standard, the Agency would
have required, to the extent feasible, the use of ``positive container
securing devices'' after June 2, 1997, to eliminate work on top of
containers. Employees who worked at facilities without container gantry
cranes would have been required to wear personal fall protection
equipment when working on top of containers except where this was not
feasible. When fall protection systems were not feasible, employers
would have had to alert employees to the hazard and instruct employees
in minimizing the hazard. In a footnote to this provision in the
proposed standard, a fall hazard was defined to exist when employees
worked within three feet of the edge of a container that was 10 feet or
more above the adjoining (lower) or next lower surface. In addition, an
opening of 12 or more inches between containers constituted a fall
hazard when there was a drop of 10 feet or more.
OSHA's current Longshoring and Marine Terminals Standards do not
contain a specific container-top safety provision. However, the Agency
has been concerned about falls from the tops of containers for many
years and has cited employers for such hazards under the General Duty
Clause (Section 5(a)(1)) of the Act and under Sec. 1918.32(b) of OSHA's
Longshoring rules (Ex. 1-139). This provision states, in the context of
stowed cargo and temporary landing platforms:
When the edge of a hatch section or stowed cargo more than 8
feet high is so exposed that it presents a danger of an employee
falling, the edge shall be guarded by a safety net of adequate
strength to prevent injury to a falling employee, or by other equal
means of protection under the existing circumstances.
Although some employers questioned the applicability of
Sec. 1918.32(b) to container operations, a ruling by an administrative
law judge established that that provision did indeed have application
to container top on-deck exposures. The Agency's policy on this issue
was spelled out in an instruction to its field staff (C.P.L. 2-1.17),
issued in 1982 (Ex. 1-49). In that instruction, OSHA determined that
Sec. 1918.32(b) applied to containers but stated that there were
situations where it would not be feasible to abate the container fall
hazard. The directive instructed OSHA compliance officers to address
the infeasibility issues in the following manner:
A violation [of Sec. 1918.32(b)] shall not be issued; however,
OSHA should recommend and encourage the employer to work toward a
solution and assist the employer in every way possible to effect a
means of protection by advice, consultation and dissemination of
information obtained during other inspections.
The Agency has issued few citations for the lack of fall protection
on container tops. The marine cargo handling industry has sought a
specific fall protection standard in this rulemaking, one that will be
uniformly enforced to provide employees with needed protection against
falls.
Falls from the tops of containers have resulted in a number of
serious occupational injuries and fatalities (Exs. 1-18, 1-19, 1-20, 1-
21, 1-22, 1-23,
1-24, 1-43, 1-67, 1-68, 1-100, and 1-108). Before the Longshoring and
Marine Terminals proposal was published, the Agency contracted for and
received a report on container top safety from Dr. A. J. Scardino (Ex.
139). Dr. Scardino is a registered professional engineer who is a
nationally recognized expert in risk management and hazard
identification. He has prepared several technical documents for OSHA,
and has served as an expert witness in OSHA rulemaking and enforcement
proceedings.
OSHA hired Dr. Scardino to conduct a representative study of the
conditions, practices, procedures and hazards associated with
containerized cargo handling. In his study, Dr. Scardino concluded,
``Work which requires employees to go aloft on container tops should be
eliminated (to the extent feasible) through the use of engineering
controls and work practices.'' (Id. p. 7). The proposed requirements
for container top fall protection reflected many of Mr. Scardino's
recommendations.
Fall Protection
Background. Fall hazards from containers have long been recognized
by the stevedoring industry as both extremely dangerous and difficult
to prevent. As early as 1968, U.S. terminal operators recognized the
need to improve container top safety. That year Matson Terminals, Inc.
developed the first system of container top fall protection (Ex. 1-53).
In that system, Matson provided a D-ring fixture to be installed in the
roof of its containers. Employees working aloft were provided with a
safety belt and lanyard to secure to the D-ring. For a number of
reasons, use of the system proved difficult, and it is not used today.
Since then, numerous systems of fall protection have been developed,
usually employing an anchorage point located either on a basket lowered
by a crane, or on cables anchored to containers. In 1970, the Coast
Labor Relations Committee of the ILWU raised the issue of working on
containers with OSHA's predecessor agency, the Bureau of Labor
Standards. In their letter of August 24, 1970 (Ex. 1-50), the Coast
Committee asserted:
Consider if you will the dangers attendant to working atop
containers. They are not equipped with skidproof surfaces, there are
no protective railings, and there are no requirements that safety
belts be provided. In dry warm weather such work is dangerous
enough, but the dangers are critically compounded when workers must
labor atop these during windy and wet weather. At the very least,
BLS regulations ought to provide that * * * safety belts be
[required] for men working aloft.
As the containerized transport revolution progressed during the
1970's and into the 1980's, exposure to fall hazards on containers
increased proportionately. Container use multiplied rapidly and ships
were designed and built exclusively for the transport of containers.
These ships eventually would carry several thousand containers,
stacking them below decks and higher and higher on top of the deck. It
became necessary to secure containers to each other to prevent
unintentional movement during transit. To achieve this stability,
stacking cones were developed that
[[Page 40174]]
workers placed in the corner castings of the container (an operation
called ``coning'') while the containers were being loaded on the ship.
This often required employees to work on top of the containers. The
containers were further secured by installing bridging connectors
across the corners of the top row of containers and lashing them
diagonally to the deck with wire cables. Bridging and lashing
operations also required working on top of containers. When the
containers were unloaded from the ship, workers removed stacking cones
from the corner castings of the container (called ``deconing'') while
working on top of containers.
Virtually all of the original stacking cones were replaced in the
early 1970's by twist locks, which eliminated the need for some lashing
but still required workers to climb on top of the containers to place
or remove the twist locks. Today twist locks are the most commonly used
fitting for securing freight containers onboard vessels (Ex. 1-140).
Newer semi-automatic twist locks (SATLs) were developed in the mid
1980's. The use of SATLs is now currently employed by most of the large
shipping lines throughout the world and the United States. In fact,
OSHA estimates that over 50 percent of ships calling in U.S. ports are
already utilizing SATLs. (Ex. 2).
The use of SATLs avoids accidents and saves money. Unlike
conventional twist locks, which must be inserted by workers on top of
the container and manually locked, semi-automatic twist locks are
inserted into the bottom of the container by workers standing on the
dock; these devices lock automatically when placed on another
container. Both SATLs and conventional twist locks can be unlocked by
workers standing on the deck of the ship using an actuator pole,
although on some container ships the stacks are so high that the pole
is unable to reach the top container's corner from the deck.
When unloading using conventional twist locks, the upper container
is first removed, leaving the twist locks on the top of the lower
container. Workers must remove conventional twist locks from the top of
that container before the spreader can attach to the corner castings.
In contrast to conventional twist locks, SATLs are designed to remain
attached to the bottom of the container being unloaded. SATLs are then
removed by workers standing on the dock. Because workers do not need to
be on top of the containers, the use of SATLs, therefore, eliminates
worker exposure to fall hazards during this operation.
The use of SATLs also enhances productivity and reduces lashing
costs (Ex. 1-140, p. 76; Ex. 1-141). A time-and-motion study that
compares the performance of conventional twist locks to that of SATLs
indicates an increase in productivity in the range of 25 to 29 percent.
This translates to a 11.1 percent overall reduction in stevedoring
costs (Ex. 1-141, pp. 4, 5; Ex. 2).
Another advance in securing containers in transit that eliminates
the need for workers to go on top of containers is the development of
above deck cell guides aboard vessels. Cell guides are rigid,
structural members that form cells where containers are stowed. These
cell guides allow for the ready placement of containers in a manner
that prevents movement in transit. Although cell guides in the hold are
common in container ships, above deck cell guides are far less common,
constituting only 2 percent (Ex. 2, pp. 2-19) of container ships
calling at U.S. ports.
In addition, OSHA is aware of the existence of positive container
securing devices other than those discussed above, such as the SeaLand
framing system (Ex. 1-57). The final rule uses the term ``positive
container securing devices'' in the regulatory text. OSHA believes that
this term is broad enough to allow for the SeaLand framing system and
other innovative technological improvement.
While the use of SATLs is the most widespread method of positively
securing containers that eliminates the fall hazard, OSHA is aware of
certain problems, such as removing jammed SATLs and non-standardized
locking systems on SATLs, that have been encountered with their
application, use and design (Exs. 1-140, 1-142, 1-143,
1-144).
While container securing devices were undergoing rapid development,
ports and shippers on the East and West Coasts were replacing older
derricks and cranes that lifted cargo with a single wire with container
gantry cranes that vertically lift from four points--one at each
corner. In a container gantry crane, the crane operator is positioned
directly above the load and moves with it--offering a much better view
of the work. Today's container gantry cranes move along the pier on
rails and employ automated box spreaders that automatically grip the
container's four top corner fittings to lift it. The container is then
raised vertically, carried horizontally to the dock (if unloading), and
then set on a flat-bed truck trailer or similar vehicle. SATLs can then
be removed before the container is finally lowered onto the truck's
bed. The entire cycle for a container may take as little as a minute.
In the container industry, cycle time for loading and unloading
containers is critical.
For smaller ports, and especially ports on the Gulf Coast, that
still must handle cargo in the more traditional ``break bulk'' mode,
SATLs have not eliminated the need to go aloft (i.e. for employees to
work on top of the containers). When containers are raised and lowered
with a traditional single-wire crane typical of this part of the
industry, the cargo sways and, in addition, the operator is in a cab on
the dock and has a poor view of the loading process on deck. Without
workers on the top of containers to steady and guide a container with
cones in its bottom corners, the cones may damage lower containers, and
such damage was reported by many commenters to the record. Having
workers on the top of containers to guide the container also speeds the
moving operations when using these types of cranes. Typically, when
single-wire cranes are used to move containers, the crane will have a
spreader bar almost as long as the container with two cables with hooks
at either end that are manually inserted into containers' corner
fittings. This typically brings a worker near the edge of the
container. In this part of the industry, SATLs cannot eliminate the
need for workers to go on the top of containers.
Negotiations between marine cargo employers and unions have in some
instances resulted in added safety practices for container top work.
For example, the Longshore Division members of the International
Longshoremen's and Warehousemen's Union (ILWU) and the Pacific Maritime
Association (PMA), agreed upon a package of 25 work rules that were
specifically designed to enhance safety at container terminals,
including container top safety.
Internationally, a number of national and multi-national
organizations have acted on the problem of container top safety. The
International Labor Organization, in its Code of Practice for Safety
and Health in Dockwork (Ex. 1-130), specifically requires that:
A person gaining access to the top of a container should be
adequately protected against the danger of falling where appropriate
by wearing a suitable safety harness properly tethered, or by other
effective means, whilst on the container.
In its Directions for Safety in Dockwork, the National Swedish Board of
Occupational Safety and Health (Ex. 1-131) provides, in part, that
``Work on top of a container is only permissible if
[[Page 40175]]
measures have been taken to prevent falling down.'' In the port of
Hamburg, Germany, a ``lash basket'' designed by a dockworker (Ex. 1-45)
rides underneath the container spreader and moves between container
stows. Here, the dockworker remains in this one person basket while
performing his work, thus minimizing container top exposures. In the
port of Bremerhaven, a specially designed ``rigger box,'' which is
similar in configuration to some U.S. container cage designs, provides
an anchorage for fall protection systems for dockworkers who work on
top of containers (Ex. 1-52).
Several significant issues on container top fall protection arose
during the rulemaking:
1. At what height, when working on top of containers, was there
significant risk to employees? At or below 8 feet? At 10 feet? And what
accident or injury data were available that supported a determination
of a fall hazard?
2. When was fall protection technologically or economically
feasible, whether from container gantry cranes or single-wire cranes?
3. Was fall protection economically feasible on containers? Was
fall protection only economically feasible above 10 feet (for two-high
stacks and higher)?
Determining the appropriate fall height was the most important
issue in the rulemaking and received the most attention from
stakeholders.
Comments by the National Maritime Safety Association (NMSA) and the
Pacific Maritime Association (PMA) were representative of employer
positions. Both PMA and NMSA supported the Agency's proposed
requirement to engineer out employees' work on top of containers
whenever feasible. Industry also supported the proposed requirement for
fall protection only above the first level of containers (PMA et al.
and NMSA et al.). Several smaller longshoring employers who use non-
gantry cranes for lifting--where the proposed standard would have
required personal fall protection--noted that in some cases the fall
protection systems would themselves introduce additional tripping or
snagging hazards for employees atop containers (CH Tr. pp. 22, 84, SEA
Tr. p. 71, NO Tr. p. 223).
Although industry commenters asserted that relatively few
fatalities had been caused by falls from containers, OSHA presented
numerous instances of fatalities and injuries resulting from such falls
over the past 20 years (Exs. 1-18, 1-19, 1-20, 1-21, 1-22, 1-23, 1-24,
1-43, 1-67, 1-68, 1-100, and 1-108). Labor unions consistently
advocated the necessity of fall protection while working atop any
container (Exs. 19, 78, 1-150, NO Tr. pp. 467-470).
In its comments and public testimony NIOSH (Ex 81, NO Tr. pp. 499-
503) concluded that falls from a one-high container (8 feet or more)
posed a significant risk of injury or death to an employee. NIOSH
introduced a study of falls that showed injuries and deaths occurring
from heights as low as 6 or even 4 feet, although none of these
incidents were caused by falls from containers. NIOSH representatives
recommended that fall protection be provided on one-high containers
(Ex. 81, NO Tr. p. 500).
Subsequent to the hearing, the major marine cargo handling
stakeholders (NMSA, ILA and ILWU) participated in joint discussions in
an attempt to resolve their divergent positions as articulated during
the hearings. These exercises proved successful as evidenced by a post-
hearing submission (Ex. 85). The stakeholders resolved a number of
issues, particularly with regard to container top safety. They agreed
that fall protection is necessary when employees work on any container
top of 8 feet or higher. In addition, they recognized the existence of
situations when the use of fall protection presents a greater hazard
than not using fall protection; they concurred on the definition of
``Fall hazard''; and they pointed out the need for flexibility in twist
lock design.
In the final rule, OSHA is requiring that workers who must work
atop containers be protected by fall protection in accordance with
paragraph (k) when they are exposed to a fall hazard. NIOSH data
demonstrating the risk of death or serious injury from falls as low as
six feet are convincing and consistent with the injury and fatality
reports from the Agency's IMIS data and concern for employee risk
voiced by union presentations. Accordingly, the Agency has concluded
that working even on the first level of containers poses a significant
risk to employees.
Proposed paragraph (j)(1) contained a definition for ``fall
hazard'' in a footnote. However, because ``fall hazard'' has
application in other sections of the final longshore rule
(Secs. 1918.32(b) and 1918.85 (j), (k), and (l)), the definition of
fall hazard is now included in Sec. 1918.2, the ``Definitions'' section
of the final rule. According to this definition, fall hazards (absent
weather considerations) exist only within 3 feet (.92 m) of the
container's edge (i.e., whenever the container top constitutes the
employees work surface). As described in Dr. Scardino's findings, under
no circumstances should the employee's center of gravity (the hips) be
within 3 feet (.92m) of the unprotected edge of the container without
fall protection (Ex. 1-139, p.3). This definition makes it clear that
it is the unprotected edge where the hazard exists, and not necessarily
the entire work surface. Additionally, any gap of 12 inches (.31 m) or
more on a horizontal surface formed by containers is considered an
unprotected edge, and a fall hazard would thus exist under this
definition. (For further discussion of the gap issue see 51 FR 42685
and 53 FR 48186).
With regard to the feasibility of fall protection in cargo handling
operations, many commenters supported the Agency's preference for
engineering controls, such as SATLs, that would eliminate fall hazards,
over the use of fall protection systems. Engineering controls cannot,
however, completely remove the need to work on top of containers;
operations such as lashing and installing bridging still require
personnel to work on top of containers. However, for routine loading
and unloading, SATLs remove employees from working on top of containers
when gantry cranes are in use. Although SATLs and cell guides have
imposed significant costs on the shipping and/or longshoring industry,
the record clearly indicates that productivity gains have considerably
offset the cost (see Section VI, Summary of the Final Economic Analysis
and Regulatory Flexibility Analysis).
Where containers are lifted with cranes other than gantry cranes,
SATLs have not eliminated the need for employees to routinely work on
top of containers. The industry presented examples of container top
loading and unloading operations from non-gantry crane ports for which
fall protection was not possible or potentially more hazardous. In New
Orleans, Mr. John Faulk, representing NMSA testified,
This leads to the * * * issue of container top fall protection
feasibility. On page 28614 of the Preamble, OSHA recognizes the fact
that there may be particular instances when fall protection may not
be feasible. Examples of situations where the use of fall protection
systems may prove infeasible are found in Appendix 3 of the 1918
proposal, but only two examples are listed.
NMSA recommends that the words ``stair step stows'' and ``valley
stows'', as well as ``barges,'' as a type of vessel, be added to
Example 2. A third example stating: ``When hoisting containers with
single point suspension container handling gear''; and, a fourth
example, stating: ``While attaching and detaching fall protection
systems'' should also be added (No Tr. p. 167).
Dr. Scardino, in response to a question about providing fall
protection during break bulk operations said:
[[Page 40176]]
* * * there are some circumstances, again, in order to have fall
protection, you have to have some place to tie off * * * . When they
have a single attachment for a boom crane, a truck crane, working
shore side, the top of the container, all four corner castings, are
occupied with the pendant lines, and they have to be physically
removed. There is no place for the individual to tie off. And for
the system to be effective * * * [it must] be attached to something.
So in some break bulk situations, unfortunately, there's no
place to tie the individual off to, other than not to do the
operation at all (SEA Tr. p. 81).
The Agency agrees with these findings and the final rule recognizes
that fall protection may not be feasible in all cases where work atop
containers is performed.
The phase-in period. In view of the recent technological
improvements in positive container securing devices indicated above,
OSHA finds that many work operations, notably coning and deconing, that
expose workers to container top fall hazards can now be eliminated. As
noted above, SATLs have proven to be particularly effective when
container gantry cranes are utilized (Ex. 1-140). In fact, the use of
these devices (e.g., SATLs) in these circumstances can, in most
instances, eliminate the need for workers to go on top of containers.
In light of this, two years after the date of publication of this rule,
Sec. 1918.85(j)(1) will prohibit the performance of coning and deconing
on top of containers being worked by a container gantry crane. OSHA has
estimated that more than 50 percent of ships calling at U.S. ports
already utilize SATLs (Ex. 2). Since it is OSHA's policy to allow a
reasonable time to come into compliance with engineering controls in
the final standard, the Agency is allowing two years for the
implementation of positive container securing devices.
OSHA recognizes that positive container securing devices will not
entirely eliminate the need for workers to go on the top of containers.
Certain container placement or securing tasks, in addition to coning or
deconing, must still be performed. In these situations (e.g., securing
bridge clamps or releasing jammed twist locks), a comprehensive fall
protection program must be implemented.
Where cranes other than container gantry cranes are used to handle
containers, OSHA recognizes that the use of SATLs may not be feasible.
The precise placement capabilities of a container gantry crane are far
superior to other lifting devices, thus facilitating the use of SATLs.
This enhanced capability is due to the four point suspension system of
the container gantry crane, which provides greater stability and
control of the container being handled, enabling the crane operator to
place the container without assistance. Container operations where the
spreader is suspended from a single point, on the other hand, have far
less stability and control and typically require the assistance of
other employees in the placement of containers. Such employees may be
exposed to fall hazards. Further, as discussed above, even if SATLs are
feasible when other than gantry cranes are being utilized, their use
may not substantially reduce the need for employees to work on
container tops in the handling of containers. (This is unlike the
situation with container gantry cranes, where the use of positive
container securing devices, e.g., SATLs, virtually eliminates the need
to work on top of the containers.) Therefore, OSHA is not requiring the
use of positive container securing devices when containers are being
handled by other than container gantry cranes.
With regard to the feasibility of fall protection, OSHA recognizes
that, in this industry, there may be particular instances when fall
protection may not be feasible. An example of a circumstance where fall
protection may not be feasible is the placement of an overheight
container on a chimney stow using gear that requires the manual release
of hooks. In these types of situations, the standard requires the
employer to:
1. Make a determination that an employee will be exposed to a fall
hazard but that the use of fall protection is not feasible or would
create a greater hazard;
2. Alert the exposed employee about the hazards involved; and
3. Instruct the exposed employee how to best minimize the hazard.
OSHA emphasizes that such situations are not common and that when
they do occur, the burden is on the employer to fully comply with these
requirements before the employee performs the work. In fact, the
Scardino study indicated that a ``specific set of circumstances could
not be framed'' where fall protection might not be feasible (Ex. 1-139,
p. 1). Claims of infeasibility of fall protection will be closely
scrutinized by the Agency in its enforcement of the final rule.
As was proposed, the final standard in Sec. 1918.85(k) establishes
the technical requirements for container top fall protection systems
(See Sec. 1918.2). Most of the requirements in this paragraph are basic
to any occupationally related fall protection system. They address the
design, selection, care and proper use of personal fall protection
equipment. These elements include an anchorage, connectors, a body
harness, lanyards, and deceleration devices. For further information
regarding fall protection systems see Sec. 1910.66 and Sec. 1926.502.
In addition, Sec. 1918.85(k)(7) and (10) have been specially
crafted for the container top situation. Paragraph (k)(7) addresses the
situation where a container gantry crane, or its extension, is being
used as the anchorage point for the fall protection system in use.
Under these circumstances, the crane must be placed in the slow speed
mode and equipped with a remote shut-off switch that is in the control
of the tied off employee. In addition, an indicator must be within
sight to inform the employee when the remote shut-off switch is
operational (CH Tr. p. 28, SEA Tr. pp. 289-290). As proposed, this
paragraph included language requiring that all crane functions be
stopped by a remote shut-off switch. It was pointed out during the
hearings that this could lead to an unsafe condition (e.g. rendering
the crane inoperable when it was needed for an emergency rescue) (SEA
Tr. p. 113). OSHA agrees with this position and the final language has
been amended to limit the operation of the remote shut-off switch
effects to the trolley, gantry, and hoist functions (i.e. those
functions that directly affect the employee on top of the container) of
the crane.
OSHA has used the term ``designated person'' throughout this
rulemaking (see definitions--Sec. 1918.2) to identify a person who has
a special skill in a particular area to do safety-related functions.
Regarding container top fall protection systems, a ``designated
person'' could do the daily inspections required in Secs. 1918.85(k)(2)
and (11). In the proposed rule, however, OSHA believed that the
complexity of systems design decisions as required by
Secs. 1918.85(k)(6) and (8) should be made by a registered professional
engineer. While one commenter contended that, based on his experience,
engineering certification in this area was not readily available (NO
Tr. p. 574), the record also contains a post hearing submission that
includes a list of such engineers (Ex. 84). OSHA now recognizes that
these specialized engineering skills may not be readily available in
some locations. Consistent with other OSHA standards, the final rule
provides flexibility by allowing the certification of equipment by a
``qualified person.'' A footnote in paragraph (k)(6) defines what is
meant by the term ``qualified person'' for the purpose of this
paragraph. To be considered qualified, a person must have a recognized
degree or professional
[[Page 40177]]
certificate and extensive knowledge and experience in the subject
field, and must be capable of design, analysis, evaluation and
specifications in the subject work, project, or product.
OSHA also recognizes that manufactured fall protection components
are extensively tested and certified by qualified persons working for
the manufacturer (probably registered professional engineers). In
complying with paragraph (k)(8), the employer may rely on these
manufacturers' certifications with respect to unmodified equipment that
is being used according to manufacturers' recommendations. Job-made
components, on the other hand, must be tested and certified by a
qualified person.
As noted above, the other fall protection requirement unique to
longshoring operations in the final rule is paragraph (k)(10). This
paragraph addresses the situation where the employee is transported by
a device, such as a safety cage, attached to a container gantry crane
spreader. Such a device is required to have a secondary means of
attachment to the spreader besides the primary attachment mechanism
(usually a hydraulic twist lock mechanism) to prevent accidental
disengagement (See NMSA et al.). However, OSHA is aware of a system
used by the Massachusetts Port Authority which employs a mechanical
device that does not allow the automated box spreader to release the
safety cage unless deliberate action is taken by employees using the
cage. The device mechanically prevents two of the spreader's twist
locks that are on opposite corners from disengaging the cage. In order
for the crane operator to release the cage from the spreader, the
personnel in the cage must first lift a lever that allows the two twist
locks to disengage. The crane operator can not override this back-up
system, and the spreader's hydraulic system also can not override it.
The only way to override the system would be to disassemble it. This
device, although not technically a secondary means of attachment, meets
the intent of the proposed regulation. Therefore, the final regulation
has been modified to allow this device by changing the wording from the
proposed ``secondary means of attachment engaged'' to read a
``secondary means to prevent accidental disengagement and the secondary
means shall be engaged''.
Final Sec. 1918.85(k)(13), which requires the employer to establish
a procedure that addresses the safe retrieval of an employee in the
event of a fall, is carried over from the proposal. This provision
received wide support from commenters (Ex. NMSA et al).
Final Sec. 1918.85(l) provides for fall protection in container
operations that require employees to work along unguarded edges (other
than on container tops). In these situations, fall protection meeting
the requirements of paragraph (k) of this section must be provided
where the fall distance is greater than eight feet (2.4 m). This
primarily addresses work operations such as lashing, locking and
unlocking twist locks from surfaces other than container tops, or
signaling to direct the placement of containers. This is consistent
with OSHA's approach in this rulemaking to fall distances in
Secs. 1918.32(b), 1918.85(j), (k), and (l). (See definition of ``fall
hazard'' at Sec. 1918.2.)
Final Sec. 1918.86, titled ``Roll-on roll-off (Ro-Ro) operations,''
which was a new section in the proposal, addresses operations aboard
Ro-Ro vessels. The emergence of Ro-Ro vessels is a recent development
and is not addressed in the current rules. Along with container
operations, this new section has provisions that address advances in
modern technology in the marine cargo handling industry. The cargo
generally can be driven on or off the vessel by way of ramps and moved
within the vessel by way of ramps and/or elevators. Traffic patterns
can vary greatly in these vessels. Some Ro-Ro vessels carry intermodal
containers both on deck and below. Examples of such vessels are car
carriers, which simplify the import and export automobile trades, and
stern or side port combination carriers, which provide water carriage
for wheel mounted and containerized cargo. Commonly such vessels are
fitted with ramps that extend to the dock or wharf, and are fitted with
internal ramps and/or cargo elevators (lifts). In this manner, cargo is
either driven through the vessel from deck to deck until reaching its
final stowage location, or hoisted by cargo elevator to its proper deck
and then driven to its final stowage location. Once positioned in its
stowage location, the wheeled cargo is lashed to securing fittings
provided on the deck. In such operations, lashing personnel are exposed
to being struck by vehicular traffic. In addition, other employees
involved with loading or unloading wheeled cargo, both drivers and
pedestrians, are exposed to traffic hazards. This section addresses the
hazards attributable to this process, in which employees and vehicles
are in closely confined and marginally illuminated space.
In Sec. 1918.86(a), OSHA proposed that an organized system of
traffic control be established and maintained at each entrance and exit
ramp. The highest concentration of vehicular and pedestrian traffic in
Ro-Ro operations, and thus the area where substantial accident
potential is most pronounced, is the area on and around ship-to-shore
access ramps. Ramps inside the vessel, although generally not as
congested as ship-to-shore access lanes, must also be addressed by the
traffic control system if they experience a periodic traffic flow that
warrants such control. These provisions, as proposed, received wide
support and remain identical in the final (Exs. 6-19, NMSA et al., PMA
et al., SEA Tr. pp. 455-458).
Final paragraph (b), which remains as proposed, addresses the
hazard of exceeding the capacity of the ramp used to transfer cargo.
Ramps must be plainly marked with their load capacity and these
capacities must not be exceeded (Ex. 1-5).
Paragraph (c) provides protection for employees that use the ship's
ramp for access. OSHA proposed that a physical separation be provided
to separate the lanes of travel for pedestrians and vehicles. When the
design of the ramp prevents physical separation of pedestrians from
vehicles, OSHA proposed that a signaler direct traffic and not allow
concurrent use. Much of the comment and testimony on this paragraph
addressed the issue of the requirement of a signaler and the
prohibition of concurrent use (Exs. 6-16a, 71, NMSA et al., PMA et al.,
SEA Tr. pp. 207, 244). One view presented at the hearings asserted
that, if there were no physical separation on the ramp, simultaneous
use of the ramp by vehicles and pedestrians (longshore workers
returning to the ship to unload vehicles) can only be achieved by
posting a signaler at each stern and side port ramp (Ex. 19). Others
maintained that this end can be achieved in many different ways and
suggested that performance language would be more appropriate (NMSA et
al., PMA et al.). OSHA, in the final regulation, requires a physical
separation when pedestrians and vehicles are using the ramps
simultaneously. Examples of physical separation are railings,
stanchions with wire, rope, or other material separating vehicle and
pedestrian traffic. Lines painted on the ramp or plastic cones do not
meet the intent of the regulation. When physical separation is not
possible, a positive means shall be established to prevent simultaneous
use of the ramp by vehicles and pedestrians. Examples of positive means
include a person controlling the use of the ramp or a signal system.
Verbal instructions and training alone are not sufficient.
[[Page 40178]]
The proposed regulation has been modified in the final rule to reflect
these changes.
Final paragraphs (d), (e), and (f), addressing ramp maintenance,
hazardous routes and air brake connections, respectively, received
support and remain the same as the proposal (Exs. NMSA et al., PMA et
al.). These provisions recognize the unique features of modern Ro-Ro
vessel ramp design that allow for multiple access destinations.
Final paragraph (g) requires that flat bed and low boy trailers be
marked with their cargo capacity and not be overloaded. Comment and
testimony was received that addressed the problems with marking the
cargo capacity on equipment that may be old, retrofitted, or modified:
The point being that there's a lot of old equipment out there
that has been patched up. Various features of the chassis has [sic]
been changed so that there's no manufacturer out there that would
come in and say yes, that's my vehicle or my chassis and I sold it
to you 10 years ago and it was rated at this capacity, and yes, it's
this capacity now.
So you're not going to get a manufacturer to do it because they
have no idea what you've done to that chassis, so it's kind of left
up to the employer by the owner of that chassis. (SEA Tr. p. 414.)
Similar arguments were received in both testimony and comment
recommending that OSHA exempt existing equipment from this requirement,
having it only apply to new equipment purchased after the effective
date of the final rule (Exs. 78, NMSA et al.). On the other hand, Doug
Getchell of the ILWU recommended that OSHA require these markings on
existing equipment as well.
There's some very durable equipment out there you're talking
about that could be in play for a long, long time to come.
I believe that our position is that all of the equipment should
be adequately proof-load tested before it's put back into use again.
(SEA Tr. p. 105.)
After careful consideration, OSHA believes that ``grandfathering''
of this requirement is inappropriate. In the absence of such a marking,
the capacity of the flat bed or low boy trailer would not be known.
These trailers are used to transport break-bulk cargo into the holds of
RO-RO ships, often down steep ramps. Overloaded trailers would
constitute a serious hazard to employees. However, since the record
indicates that much unmarked equipment is presently in use, the final
rule allows the period of one year from the publication date of this
standard for compliance with this provision. The similar provision in
Sec. 1917.71(f)(4) will also have a delayed effective date.
Paragraphs (h), (i), (j), (k) and (l), addressing cargo weights,
tractors, safe speeds, ventilation, and securing cargo, respectively,
received general support and remain in the final as proposed (Exs. NMSA
et al., PMA et al.). In addition, ventilation issues regarding Carbon
Monoxide (CO) are discussed at length in subpart I, below.
Proposed paragraph (m) required high visibility vests or equivalent
protection for authorized personnel working in Roll-on roll-off
operations. This is similar to an existing requirement in the Marine
Terminals Standard, Sec. 1917.71(e), which specifies that employees
working in the immediate area of container handling equipment or in the
terminal's traffic lanes must wear high visibility vests, decals,
reflectors or equivalent protection.
Several issues arose in the rulemaking in regard to the requirement
for wearing high visibility vests: (1) Whether the Agency had any data
or analysis that indicated that there was significant risk in wearing
only reflective decals on hard hats; (2) whether replacing hard hat
decals with high visibility vests will substantially reduce that risk;
and (3) whether the Agency had largely underestimated the cost of
providing high visibility vests. They argued that since the true cost
was much higher than Agency estimates, and the attendant risk reduction
had not been demonstrated, the Agency had failed to show that the vests
are reasonably necessary for worker protection.
Regarding the lack of data issue, OSHA believes that the record
clearly indicates several fatalities that may have been prevented if
the employee had been wearing high visibility vests (Ex. 1-78, 1-89,
and 1-103).
Regarding the second issue, some commenters argued that a
reflective decal or decals placed on the employee's hard hat would be
equivalent to the protection afforded by a vest (Exs. 6-29a, NMSA et
al., NO Tr. pp. 154-156, 459.) Several other industry representatives
reported difficulty in getting workers to wear vests without discarding
them each day (NO Tr. p. 211). Employers from the Gulf and West Coasts
reported that for much of the year vests added to the discomfort of
working in the heat which was an additional reason why employees did
not wear them (NO Tr. pp. 155, 212). Other commenters noted that vests
in cold climes often disappeared under coats. For example, a
representative from NMSA gave this testimony:
If the vest was visible, of course. The more visibility the
better it is * * * but in some cases the vest is covered up by an
outer garment, in cold weather conditions or foul weather, and it's
not visible anyway. The hard hats are still being worn by the man
with the reflective devices. The more high visibility you could
provide, of course, the better it is for everybody. We don't want to
be limited to just the vest (NO Tr. P. 356).
In addition, commenters reported that for some operations, such as
lashing containers, the vests themselves had snagged on ladders or gear
thus causing accidents (NO Tr. pp. 683 and 690). As a consequence,
several stevedores who currently supply vests do not require employees
to wear them while performing container lashing work. OSHA notes that
these paragraphs do not require the wearing of high visibility vests
during the lashing of containers.
NIOSH supported a requirement that employees wear reflective
material on both their vests and hard hats:
The portion of the body that's covered by a hard hat that is
visible from a distance is considerably smaller than the portion of
the body covered by some sort of an outer garment, be it a vest or a
coat or what not * * *. I would strongly encourage that reflective
material on hard hats be in addition to some of the material on the
trunk of the body. (NO Tr. p. 500.)
Further testimony on the issue came from a representative from the
ILWU:
We've submitted comments, or support the notion, that
particularly during daylight hours, the vest is far more visible
than the hard hat. In terms of the amount of square inches, if you
will, [the vest] is significantly greater than that provided by a
hard hat * * *. Would you agree that the visibility of an individual
with a vest and a hard hat during daylight hours is greater than
with an individual with just a hard hat? (NO Tr. p. 355.)
In addition, although there are no existing U.S. Government or
national consensus standards specific to longshoring on the amount of
high visibility material required on safety clothing, international
standards do exist. The British/European standard (BS EN 471:1994)
prescribes minimum amounts of fluorescent and retro reflective material
for high-visibility clothing (Ex. 71).
With regard to the equivalent protection issue, OSHA's current
position was discussed in the preamble to the proposed standard. The
Agency indicated that the reflective area of a decal on a hard hat is
substantially smaller than that of a vest, and has no protective value
if the worker is not wearing the hard hat. In fact, hard hats are not
required for all work areas in marine terminals and vessels unless
there is an overhead hazard (NO Tr. pp.
[[Page 40179]]
353-354). Furthermore, the reflective value of decals on hard hats is
lost when the employee bends over which occurs during the lashing or
unlashing of automobiles. In contrast, the reflective value of a high
visibility vest is not only far greater but is not lost even during
lashing or unlashing operations. Based on its enforcement experience,
the Agency is aware that high visibility vests are available in various
sizes (and many types are adjustable) including ones that are large
enough to wear over cold weather apparel. OSHA's position regarding
decals remains unchanged from the proposal.
With regard to the final issue, numerous employers and their
representatives said that the Agency had grossly underestimated the
costs of supplying vests in the preliminary regulatory impact analysis.
They argued that reflective vests would have to be replaced every time
they were required and that the costs would be excessive (Exs. NMSA et
al., 80, NO Tr. p. 557). For example, Paul Robinson of Crowley American
Transport said that his company, which requires all employees to wear
vests, had spent $57,000 in the past year for vests. OSHA acknowledges
that some employers have a significant problem controlling the issuance
of vests. However, the Agency sees little difference between this
equipment and other personal protective equipment, such as hard hats,
which the industry has been able to control. In the preamble to the
proposed standard the Agency had estimated that 75 percent of the
employees in the industry would require a new vest only once a year.
The Agency has revised its estimate for supplying high visibility vests
to the industry (see Section VI, Summary of the Final Economic Analysis
and Regulatory Flexibility Analysis later in this preamble).
The Agency has concluded that wearing high visibility vests
significantly reduces the probability of injury when working on RO/RO
vessels or container handling ashore because it makes the worker much
more visible in a busy, congested operation that involves working
around fast-moving vehicles. Final paragraph (m), therefore, requires
that only authorized persons be permitted on any deck while loading or
discharging operations are being conducted and such persons shall be
equipped with high visibility vests or equivalent protection. In
addition, a footnote has been added indicating that decals on hard hats
will not be considered equivalent protection for the purposes of this
paragraph. However, OSHA will accept high visibility equipment meeting
the European standards as providing protection that is equivalent to
that required by paragraph (m). A note has been added with the minimum
requirements of high visibility and retroreflective material in square
inches and square meters. The parallel provision in the Marine
Terminals Standard will be revised accordingly in final
Sec. 1917.71(e).
Proposed paragraph (n) provided signaling requirements when
vehicles were being maneuvered into stowage positions when other
personnel are in the adjacent vicinity. OSHA received several comments
on this issue suggesting that a performance-based requirement, one
stating the goals to be achieved, would be more appropriate than the
specifications contained in the proposed provision (NMSA et al. and PMA
et al.). Since the objective of this provision is to prevent vehicles
being driven into stowage positions from striking employees who are
lashing these vehicles into place, and since the proposed requirement
allowed employees only one way to achieve this goal, i.e. under the
direction of a signaller, OSHA has developed a more performance
oriented requirement for the final rule to provide both protection and
enhanced flexibility. In the final standard, this provision reads as
follows:
Vehicle stowage positioning. Drivers shall not drive vehicles,
either forward or backward, while any personnel are in positions
where they could be struck.
Section 1918.87, ``Ship's cargo elevators,'' sets out requirements
for the use of shipboard elevators (lifts) that are most common on many
different Ro-Ro and combination carrier vessel designs. In approaching
the issue of elevator usage, OSHA remained mindful of foreign vessel
prerogatives. The provisions of the final rule are protective of U.S.
longshore workers, but are not expected to have an impact on any other
nation's vessel designs.
Final paragraphs (a), (b) and (d), addressing safe working load,
load distribution, and open deck barricades respectively, received
support and they remain essentially the same as the proposal (NMSA et
al., PMA et al.).
Proposed paragraph (c), however, would have allowed the vehicle
driver to ride the cargo elevator when that driver's vehicle was being
lifted on the elevator. Several commenters wanted the language to be
changed to allow persons other than the driver to ride the elevator
with the load (NMSA et al., PMA et al.). The driver is allowed on the
elevator to make sure the brakes are applied to prevent the cargo from
rolling. However, allowing other personnel to ride the elevator
presents an unnecessary danger if a fall hazard, as defined in
Sec. 1918.2, is present. If riding the elevator does not present a fall
hazard, however, the record does not support the proposed restriction.
Therefore, OSHA has modified this paragraph to prohibit personnel from
traveling on the elevator if fall hazards are present.
Section 1918.88, ``Log operations,'' is also an entirely new
section addressing the hazards associated with loading logs from the
water into a vessel. This is a particularly hazardous operation both
because of the location where it occurs (on the water) and the nature
of the cargo. Logs loaded from the water have usually been in the water
for a long time, causing them to absorb water. The extra water adds to
their weight and loosens the bark, making the log surface very unsure
and slippery. In response to comments, the provisions in proposed
Sec. 1918.38, ``Log rafts,'' which was proposed in subpart D (Walking/
Working Surfaces), are being moved to this subpart and renumbered
Sec. 1918.88(h) (Exs. NMSA et al., PMA et al.).
Commenters argued that proposed paragraph (a), ``Working in
holds,'' could be incorrectly interpreted to mean that employees would
be required to leave the hold of the vessel whenever and wherever logs
are being loaded. This language has been clarified to require that
employees need to remain clear of areas where they may be struck by
logs. This suggested language received widespread support (Exs. 35, 78,
NMSA et al., PMA et al.).
Final paragraph (b) requires that employees working on log booms
wear personal flotation devices in accordance with Sec. 1918.105(b)(2).
This requirement is in the current regulation, but was not in the
proposal. During the hearings, testimony was given supporting the
retention of language of the current standard which requires the
wearing of personal flotation devices when working on log booms and
such language is in the final regulation (NO Tr. pp. 447-449).
Final paragraph (c) requires the employer to ensure that each
employee wears appropriate footwear to climb or walk on logs. Such
footwear typically is spiked, also known as ``caulked'' shoes. Such
specialized footwear may be styled like a sandal that attaches to
existing footwear, and is specifically designed for working logs.
Comment was received suggesting that OSHA should not determine who
would provide this item of personal protective equipment (PPE) (Exs.
NMSA et al.). OSHA has a standing policy regarding the provision
[[Page 40180]]
of PPE. See subpart J for a discussion on this issue. OSHA has
interpreted its general PPE standards to require employers to provide
and to pay for specialized PPE required by the company for the worker
to do his or her job safely and in compliance with OSHA standards. OSHA
considers special footwear needed for walking on logs to be such
equipment. The final remains essentially the same as the proposal, with
the term ``caulked sandals'' added as an example of such special
footwear.
Paragraphs (d), (e), and (f), addressing lifelines, Jacob's ladders
and life-rings, received support and remain the same in the final as
proposed.
Final paragraph (g) requires that a rescue boat be available when
employees are working on log rafts or booms. Commenters presented two
positions on this issue. One commenter urged OSHA to require that the
rescue boat be powered, citing the hazard of employees falling into the
water while loading logs from the water and being carried away by the
river current. Requiring that the rescue boat be powered would allow an
employee who falls into the water to be rescued quickly, in the opinion
of this commenter (Ex. 19). An opposing view was expressed by other
commenters, who argued that the fact that other lifesaving equipment,
such as the life-ring required to be available by paragraph (f), was
already required and the fact that a non-powered boat was often all
that was necessary, made any requirement for a powered rescue boat to
stand by while employees were loading logs excessive (Ex. 37, SEA Tr.
pp. 412-413).
The final rule adopts a performance approach and requires that
rescue boats that are ``capable of effecting immediate rescue'' be
available during logging operations. The employer must thus decide,
based on local conditions, what type of rescue boat is appropriate to
the immediate circumstances. For example, when currents are fast enough
to carry an employee away, the final rule would require employers to
make a powered rescue boat available. It should be noted that OSHA's
enforcement policy regarding drowning hazards incorporates guidelines
developed by the U.S. Army Corps of Engineers (Exs. 1-159 and 1-160).
These guidelines require a powered rescue boat to be available whenever
the waters are rough or swift or where manually-operated boats are not
practicable. In addition, OSHA requires that anti-drowning measures be
taken in scuba diving at a trigger current of one knot
(Sec. 1910.424(b)(3)). In light of these discussions and to assist
employers in complying with these rescue provisions, the final rule
specifies in a note that powered rescue boats are required when the
current exceeds one knot.
As discussed in the beginning of this section, proposed
Sec. 1918.38 has been moved to this subpart and has been renumbered
Sec. 1918.88(h) (1), (2) and (3). Although paragraph (2) in the
proposal required walking sticks on the ``off-shore side of the
vessel,'' commenters pointed out that logs can be worked on both sides
of the vessel. (Exs. 36, 78). OSHA has amended the proposal
accordingly, requiring in the final that walking sticks ``* * * extend
along the entire length of all rafts on the sides of the vessel being
worked * * *''
Proposed Sec. 1918.89, addressing the handling of hazardous cargo,
was carried over from the existing Longshore Standard (Sec. 1918.86).
OSHA requested comment from the public asking if the requirements in
proposed paragraphs (a) and (c) were unduly repetitious. Commenters
indicated that these requirements were, indeed, redundant and, were
therefore unnecessary (Exs. NMSA et al., PMA et al.). OSHA agrees that
these requirements are already addressed in the Hazard Communication
and the Emergency Response requirements found in subpart A and subpart
I, respectively, and has removed these provisions from Sec. 1918.89 in
the final rule. The text of proposed paragraph (b), which required that
hazardous cargo be secured to prevent spillage, now becomes the
entirety of the text of final Sec. 1918.89. For consistency, these
changes are reflected in part 1917 (Sec. 1917.22).
Subpart I--General Working Conditions
Subpart I, General Working Conditions, contains provisions that
address: dangerous atmospheres; lifesaving equipment such as first aid
kits and life rings; hazard communication; sanitation; qualifications
of machinery operators and training of supervisors; illumination; and
housekeeping. These provisions, as proposed, received widespread
support from commenters (Exs. NMSA et al., PMA et al.) and are
essentially unchanged in the final rule, except as discussed below.
Section 1918.90 ``Hazard communication'' is a cross reference to
the Scope and Application section of the final rule. It requires, by
reference, compliance with OSHA's general industry hazard communication
standard, Sec. 1910.1200. Consistent with the President's Initiative to
reduce the size of the Code of Federal Regulations (CFR), OSHA has
decided simply to cross-reference the Hazard Communication Standard in
the Scope section as one of the part 1910 provisions applicable to
longshoring, instead of incorporating that entire standard into this
rule. OSHA is using this same incorporation by reference approach in
the Marine Terminals Standard (part 1917). This strategy results in a
net savings of approximately 50 pages in the CFR.
Final rule Sec. 1918.91 addresses housekeeping requirements, e.g.
slippery surfaces, protruding nails, and so on, and remains essentially
the same as the proposed section, with one exception. As stated in the
proposal, OSHA considers lashing gear used with containers, roll-on/
roll-off cargo, and, in particular, automobiles, to be ``equipment,''
and, in the final rule, lashing gear is specifically referred to in
paragraph (a). These housekeeping provisions are necessary to maintain
a safe work area and reduce accidents to employees handling cargo.
Final rule Sec. 1918.92 provides illumination requirements for
cargo handling work aboard vessels and remains the same as the
corresponding section of the proposal. These illumination requirements
are consistent with those in the current Marine Terminals rule (see
Sec. 1917.123). They specify illumination levels in walking, working,
and climbing areas; methods of measurement; arrangement of light
sources; requirements for portable lights; and prohibition of the use
of matches of open flame lights. Both part 1917 and part 1918 require a
minimum of five foot-candles (54 lux) of illumination during cargo
operations.
Final Sec. 1918.93 requires protection from atmospheric hazards
that are not addressed specifically in other sections of part 1918. A
list of those sections is included in paragraph (a) for ease of
reference. This section establishes requirements for the determination
of the hazard, testing for the hazard when ventilation is being
applied, and procedures for entry into hazardous atmospheres. In
addition, the hazards associated with emergency entry and asbestos
spills are also addressed. This section remains essentially the same as
the parallel section of the proposal. The types of atmospheric hazards
likely to be encountered by shipboard employees are much the same as
those found in shoreside operations. Consequently, this section of the
final rule contains provisions that are essentially identical to those
found in the Marine Terminals Standard (see Sec. 1917.23). This
approach will provide consistent requirements that appropriately
address both aspects of marine cargo transport operations.
[[Page 40181]]
Section 1918.94 of the final rule, ``Ventilation and atmospheric
conditions,'' provides ventilation and other requirements for specific
atmospheric workplace conditions that are found in longshoring
operations, such as excessive concentrations of carbon monoxide (CO),
atmospheric contamination by fumigated grains, tobacco, and other
fumigated cargoes, and toxic atmospheres generated by menhaden and
similar species of fish.
Paragraph (a) addresses the hazards associated with shipboard
exposures to carbon monoxide. The buildup of unhealthy levels of carbon
monoxide is of particular concern in breakbulk and Ro-Ro vessel
operations. In the former, forklifts are used in the hold; in the
latter, almost any type of vehicle can be operated either to perform
material handling or because the vehicle itself is the cargo (i.e.
vehicles being transported on Ro-Ro ships).
Carbon monoxide is a flammable, colorless, practically odorless
gas. Most occupational exposures to this ubiquitous substance are the
result of the incomplete combustion of organic material (HSDB 1990;
Gosselin, Smith, and Hodge 1984, p. III-94).
OSHA's current limits for carbon monoxide in marine terminals and
longshoring are 50 ppm as an 8-hour TWA and, in enclosed spaces, a 100
ppm ceiling, i.e. the maximum allowable exposure at any given point in
time. The ACGIH has a TLV -TWA (8-hour) of 25 ppm for carbon
monoxide, and NIOSH (1973d/Ex. 1-237) recommends an 8-hour TWA limit of
35 ppm and a 200-ppm ceiling for CO. OSHA proposed to establish
permissible exposure limits (PELs) of 35 ppm (8-hour TWA) and 200 ppm
(5 min STEL) in outdoor, non-enclosed spaces in the marine cargo
handling environment, and to retain the 100 ppm ceiling for CO in
enclosed spaces in marine terminals and longshoring operations.
In addition to the 50 ppm TWA in Subpart Z of part 1910, OSHA's
Longshoring and Marine Terminals Standards have long had a 100 ppm
ceiling for CO in enclosed spaces. OSHA received several comments and
considerable testimony concerning the proposed 100 ppm ceiling (Exs.
PMA et al., 71, 77, 80). The Pacific Maritime Association also
recommended a short-term exposure limit of 200 ppm measured during a
five minute period for Ro-Ro and automobile-carrying ships (enclosed
spaces). This recommended STEL paralleled OSHA's proposed requirement
for a CO limit for outdoor, non-enclosed spaces (SEA Tr. pp. 189-190.)
Mr. Rob Dieda, Safety Director for Stevedoring Services of
America's California operations, supported the PMA position and added
that:
Preliminary inquiries indicate that drivers will not exceed the
8-hour time weight average, however, foremen, superintendents and
clerks may be overexposed, depending on the ventilation of the ship
being worked.
SSA's other jobs rarely last more than one shift, with 6-hour
shifts being normal. Most operations utilize unit breaks for
approximately 20 minutes, once or twice a shift, depending on the
shift length, where all employees exit the vessel.
We average 12 vessels per month, so employees are not exposed
daily. (SEA Tr. p. 300.)
Mr. John Fling, Safety Specialist for Red Shield Service Company
testified:
During our testing, the measurements were taken in the breathing
zone of the individuals and in the proximity of the foremen and
clerks. We received periodically what I call spikes because of their
duration. We would get spikes well over 100. I got one spike even
over 200.
Now I call these spikes, because * * * of the duration * * *
they would quickly go up, peak out, and then immediately start
falling off. Things influencing these spikes was [sic] the
ventilation on the ship, the type of car being discharged, the
number of cars being discharged.
Each time that meter went over 100 parts per million we were
technically in violation; we were supposed to evacuate the ship at
that point, according to the rule. However, because of the way the
level falls off, before we could even start the evacuation, we were
back below 100.
The time weighted averages on all of these vessels has never
exceeded 50 parts per million over the eight hour period. As a
matter of fact, we're still well within the 35 parts per million
within an eight hour period.
So our recommendation, from a standpoint of compliance, would be
to adopt the 35 parts per million TWA and use the 200 parts per
million either as an STEL or even as a ceiling. (SEA Tr. pp. 508-
509.)
Mr. Fling also submitted written testimony that included actual
carbon monoxide readings from several Ro-Ro vessels that showed a few
readings above 200 ppm. It also showed that the reading taken
immediately (within one minute) after these high peak readings was
below 100 ppm and that subsequent readings well below 100 ppm. Eight-
hour exposure levels were all well below 35 ppm (Ex. 72).
The National Institute for Occupational Safety and Health (NIOSH)
testified at the hearings in New Orleans on the health effects of
carbon monoxide. Mr. Larry Reed, Assistant Director for Policy
Development, Division of Standards Development and Technology Transfer,
said that, although NIOSH supported a 100 ppm ceiling as being more
protective, the NIOSH recommended exposure limit (REL) for carbon
monoxide is 35 ppm as an eight-hour time weighted average, with a
ceiling limit of 200 ppm. The OSHA panel asked if NIOSH had data on
CO's health effects that could support a five-minute short-term
exposure limit (STEL) of 100 ppm for carbon monoxide (NO Tr. p. 619).
NIOSH replied in post hearing comments that it could not support a
five-minute STEL of 100 ppm because such a limit would allow peak
concentrations of CO to exceed the ceiling of 200 ppm and that the
adverse health effects of exposure at that ceiling have clearly been
demonstrated in research. NIOSH reiterated its support for a ceiling of
200 ppm (Ex. 81).
Occupational fatalities and disabling illnesses still appear on the
waterfront due to high levels of (CO) accumulating in cargo spaces. In
1980, 11 longshoremen working a vessel in Miami, Florida, were
hospitalized after being overcome by carbon monoxide fumes (Ex. 1-76).
Another incident involving carbon monoxide occurred in 1985, in Puerto
Rico, where 12 longshoremen were overcome while working in the hold of
a vessel where a propane-powered fork lift was being used (Ex. 1-77).
In another incident in Miami, which occurred in 1988, 2 crewmembers
were killed and 14 others hospitalized due to carbon monoxide poisoning
that was caused by a gas-powered water pump that was being used to
remove water from the hold of a vessel (Ex.1-81).
In 1989, OSHA promulgated a new air contaminant standard for
general industry, updating the permissible exposure limits (PELs) found
in subpart Z of part 1910. (OSHA later proposed a similar air
contaminants standard for maritime and construction employment, but
withdrew it after the court decision on the part 1910 PELs.) Included
in the list of updated exposure limits in subpart Z were carbon
monoxide (CO) and hydrogen sulfide (H2S). When the general
industry standard was vacated and remanded by the U. S. Court of
Appeals in the PELs decision (AFL-CIO v. OSHA, 965 F.2d 962 (11th Cir.
1992), the previous PELs continued in effect, and they still apply to
general industry and maritime, including longshoring and marine
terminals. The current PEL for CO is 50 ppm as an 8-hour time-weighted
average (50 ppm TWA), and the ceiling for H2S is 20 ppm TWA.
(On H2S, see discussion of Sec. 1917.94(f) below.)
In issuing this final rule on cargo-handling operations, OSHA has
reviewed the record and has decided to retain the current 50 ppm TWA
for CO for both marine terminals and
[[Page 40182]]
longshoring, which is consistent with the TWA for general industry in
subpart Z of part 1910. The Agency believes that it is unnecessary at
this time to lower the TWA below the general industry level because the
unique aspects of exposure to CO in marine cargo handling operations
are addressed by the ceiling for CO exposure in enclosed spaces, as is
discussed more fully below. In future rulemakings, OSHA intends to
review many of the PELs in subpart Z and determine whether there is a
need to lower them. Any rulemaking action to reduce the TWA for CO or
H2S will address exposures to those substances in all
workplaces covered by subpart Z, including longshoring and marine
terminal operations.
In addition to continuing the 50 ppm TWA, the record of this
rulemaking strongly supports the continued need for a 100 ppm ceiling
for CO in enclosed spaces, with the limited exception of a 200 ppm
ceiling for Ro/Ro operations. In longshoring and marine terminals,
employees regularly enter and work in enclosed spaces. Exposure can
rise much more quickly to IDLH levels in enclosed spaces, and escape
from these spaces can be difficult. In these sectors, there is thus a
higher potential for concentrations to rise to IDLH levels of CO. The
100 ppm ceiling for enclosed spaces in the final rule is intended to
serve as a trigger level, to enable employees to exit the enclosed
spaces before CO concentrations reach hazardous levels. This is
particularly important because of two factors that are closely
interrelated: First, employees working in enclosed spaces may need more
time to exit those spaces because of their location and configuration
aboard a vessel; and second, CO generated into an enclosed space can
rapidly accumulate to unsafe levels. Thus, by requiring employees to
exit enclosed spaces when the CO level reaches 100 ppm, the standard
takes these factors into account to assure that the employees will not
be exposed to hazardous concentrations of CO in the spaces.
With regard to the 200 ppm exception, uncontroverted testimony in
the record indicated that a 100-ppm ceiling level was not feasible for
Ro-Ro operations even though Ro-Ro vessels are designed with extensive
ventilation capabilities. As indicated above, these commenters pointed
out that, although levels of CO do spike to 100 ppm, they almost
immediately fall below this level, with subsequent levels well below.
In addition, from an operational standpoint spikes may occur upon
starting the vehicles for unloading. Typically, employees are within
the vehicles and are in the process of exiting the vessel. If a CO
alarm were to go off under these circumstances, it appears unreasonable
to require the employees to stop the vehicles and evacuate the vessel
on foot, thereby increasing their exposure (See also PMA et al.). This
type of exposure contrasts sharply with non-Ro-Ro operations, such as
working in the hold of a vessel using gasoline powered industrial
trucks. Here the CO build up is gradual, does not dissipate rapidly and
the evacuation is usually by vertical ladder and more physically
demanding. Based on this evidence, OSHA is setting a 200 ppm ceiling
limit for occupational exposure during work on those vessels. The
Agency notes that although this exception is based on feasibility
considerations, it does meet the NIOSH recommendations for a ceiling
based on health considerations.
In the near future, OSHA intends to review and revise many of the
permissible exposure limits currently in subpart Z of Part 1910, most
of which are applicable to both general industry and longshoring
employment. If the health evidence supports lower limits for CO than
are contained in either the current General Industry Standard or the
Longshoring Standard, the Agency will propose the necessary changes for
both standards.
Traditionally, in the marine cargo handling industry, carbon
monoxide (CO) is the most common hazardous atmosphere that is tested
for because of the use of cargo handling equipment that is powered by
gasoline, diesel fuel, and propane, in spaces on a vessel that have a
tendency to accumulate CO (tween decks, holds, lockers). Testing for
carbon monoxide is generally done by a foreman, superintendent, or
safety person. Most testing is done using hand-held instruments that
give an almost immediate reading of CO in parts per million (ppm).
Several persons testified at the hearings in Seattle about current
industry practice with regard to carbon monoxide testing. Mr. John
Fling, Safety Specialist, Red Shield Service Company, said:
Jones Oregon Stevedoring Company does a large number of auto
ships each year. We use a carbon monoxide dosey [dosimeter] tube to
measure the amount of carbon monoxide that the foremen are exposed
to. This gives us an average reading for the shift.
To get a better picture of what was happening on a time period,
we ran concurrently tests using a digital readout carbon monoxide
meter. The meter was calibrated both before and after the tests.
During our testing, the measurements were taken in the breathing
zone of the individuals and in the proximity of the foremen and
clerks * * * (SEA Tr. pp. 508-509.)
The current OSHA regulation uses the term TWA, time weighted
average, and requires that the TWA for CO not exceed 50 ppm averaged
over an eight hour period. In marine cargo handling, however, a TWA
usually will not accurately reflect an employee's exposure to air
contaminants such as CO. Marine cargo handling exposes employees to
workplace conditions that can change dramatically from minute to
minute. Longshore workers work on many different vessels from day to
day. The vessels are often under a foreign flag and not under the
control of the employer, and the employee's work locations and weather
conditions are always changing. For example, work can take place in a
hold, which is an enclosed space, and then change to a frozen cargo
locker, which is a confined space, within a short time. Changing
weather conditions can cause carbon monoxide either to dissipate
quickly (in windy conditions) or settle and build up (during the summer
when the air is stagnant). These work conditions contrast sharply with
those in manufacturing, for example, where the workplace is in the same
location day after day, the employer has control over the physical
worksite, and weather is not a factor. For these reasons, the cargo
handling industry uses direct reading instruments, which provide
immediate feedback on CO levels. The measurements are area rather than
personal measurements. When the peak level is reached, workers must be
removed from the work area. To ensure that CO levels remain safe over
the course of the work shift, the rule requires ``that tests of the
carbon monoxide content of the atmosphere are made with such frequency
as to ensure that concentrations do not exceed allowable limits.''
Since the requirement for the retention of logs is addressed in subpart
Z (Access to employee exposure and medical records, Sec. 1910.1020),
the proposed requirement for maintaining the logs under
Sec. 1918.94(a)(2) has been deleted from the final rule to avoid
duplication (See Sec. 1918.1). In final Sec. 1917.24(a) and
Sec. 1918.94(a)(ii), OSHA uses the term ``eight hour average area
level.''
The remainder of the paragraph on carbon monoxide addresses the
vessel's mechanical ventilation and the use of portable blowers. These
requirements are essentially unchanged from the proposal, except that
the formula for calculating an eight hour time weighted average has
been removed from the final regulation because it is appropriate for
[[Page 40183]]
personal monitoring and not for area monitoring
(Sec. 1918.94(a)(1)(i)(B)).
In final Sec. 1918.94(b), OSHA addresses the hazards associated
with handling grain treated with fumigants. This section requires,
before handling bulk grain in any vessel compartment in which employees
are or may be present, that the employer determine whether grain to be
loaded or discharged aboard a vessel has been fumigated. If such
treatment has been carried out, the employer must determine, by means
of tests, that the atmosphere in the compartment is not hazardous to
the health or safety of employees. These tests must be conducted by a
designated person with the knowledge and experience to measure such
atmospheres and prescribe the appropriate protective equipment, if
necessary. In many cases, such a person will be a certified industrial
hygienist or a Marine Chemist (certified by the National Fire
Protection Association). This section also requires that, if the
atmosphere in a compartment reaches the level specified as hazardous
either by the fumigant manufacturer (as indicated by the Material
Safety Data Sheet (MSDS) required by 29 CFR 1910.1200) or by Subpart Z
of 29 CFR 1910.1000, all employees must be removed from the compartment
and may not re-enter until tests demonstrate that it is safe to do so.
The requirements in final Sec. 1918.94(b) remain essentially unchanged
from the parallel requirements of the proposal.
Final Sec. 1918.94(c) includes OSHA's requirements for handling
cargoes of fumigated tobacco. Tobacco cargoes, both imported and
exported, are shipped most typically in bales, in hogsheads, and in
intermodal containers. The requirements in Sec. 1918.94(c) apply when
cargoes are break-bulk, i.e. are being transported in piece lots of
bales or in hogsheads. When such cargoes are containerized, employee
exposure is addressed in the Marine Terminals Standard,
Sec. 1917.25(g). Comment was received requesting that OSHA clarify
whether this section applied exclusively to break-bulk cargo (Ex. NMSA
et al.). In response to this comment, OSHA has added the word ``break-
bulk'' to this provision of the final rule. Paragraph (c) prohibits the
employer from loading tobacco until the carrier has provided a written
certification stating whether or not the tobacco has been fumigated.
This requirement is necessary because tobacco is often fumigated with
toxic substances, in which case the cargo must be aerated for a
specified number of hours before it is safe to handle.
Final Sec. 1918.94(d) addresses other fumigated cargoes. It
requires employers to determine that the concentration of fumigants are
below those specified either by the fumigant manufacturer (as indicated
by the Material Safety Data Sheet (MSDS) required by Sec. 29 CFR
1910.1200) or by subpart Z of 29 CFR 1910.1000 as hazardous before such
cargo was either loaded or discharged. The proposed provision would
only have applied to the loading of such cargo. OSHA received the
following comment on this provision:
In recent years the ILWU has been receiving and discharging
cargo that has been fumigated in foreign ports (e.g. the discharge
of logs from New Zealand and Chile that have been fumigated with
methyl bromide). (Ex. 78.)
This commenter requested that the word ``discharge'' be added to
Sec. 1918.94(d) to address the fact that some cargo continues to be
hazardous even at the time of discharge from the vessel. Testimony
provided during the public hearings (NO Tr. p. 381) supported this
change. OSHA agrees that the added language will provide additional
protection and has accordingly amended the language of this provision
in the final rule.
Final paragraph Sec. 1918.94(e) addresses the use of personal
protective equipment (PPE) to protect against exposures to
concentrations of grain dust. It requires the use of such PPE when
employees are exposed to grain dust concentrations that are above those
allowed by subpart Z of 29 CFR 1910.1000. This provision is essentially
unchanged from that proposed.
Final Sec. 1918.94(f) addresses longshoring operations aboard
vessels engaged in the menhaden trade (or trade in similar species of
fish). Menhaden is a term that refers to several species of trash fish.
Menhaden is used to produce, among other products, fertilizer, pet food
and fish oil (See 46 FR 4213.) In the form of cargo handled at
specialized menhaden marine terminals, menhaden presents a health
hazard to longshore workers because it decomposes, generating hydrogen
sulfide (H2S). As recently as 1987, a hydrogen sulfide
incident aboard a menhaden vessel led to serious injury and a fatality
(Ex. 1-80). This section of the final rule does not apply to vessels
that are using refrigerated holds for the storage of all cargo, because
refrigeration prevents the menhaden from decomposing.
This section requires that, before employees enter a hold that
contains menhaden, the hold be tested for hydrogen sulfide and oxygen
deficiency. These tests must be performed by designated supervisory
personnel. The maximum allowable atmospheric concentrations of hydrogen
sulfide, as measured by direct reading instruments is a 20 ppm ceiling.
The oxygen level must not be less than 19.5%. Unless these atmospheric
levels are met, employees are not permitted to enter the hold. The
corresponding provisions of the Marine Terminals Standard appear at
Sec. 1917.73(a)(2).
OSHA's current limit for hydrogen sulfide in Marine Terminals is a
20 ppm ceiling; this limit applies, along with other provisions, in
menhaden tanks (Sec. 1917.73); the Agency's current Longshoring
Standard is silent with regard to both H2S and menhaden. The
General Industry Standard (which applies to marine terminals and
longshoring through subpart Z of Part 1910) is a 20 ppm ceiling.
OSHA proposed an 8-hour TWA of 10 ppm in Longshoring and Marine
Terminals and a STEL of 15 ppm for menhaden operations. It should be
noted that this rulemaking only addresses the appropriate level of
H2S in compartments, holds, and enclosed spaces and does not
apply to other circumstances in longshoring operations and marine
terminals.
As discussed earlier, OSHA intends to review and revise many of the
permissible exposure limits currently in subpart Z of Part 1910, most
of which are applicable to both general industry and longshoring
employment. As a result, OSHA has decided not to change the permissible
exposure limits for H2S in longshoring or marine terminal
operations at this time. The 20 ppm ceiling currently in the part 1910
subpart Z standards will continue to apply; for consistency between
shipboard and shoreside cargo handling operations, OSHA is retaining
the existing 20 ppm ceiling contained in the Marine Terminals Standard
(Sec. 1917.73(a)(2)) and making it applicable to longshoring as well
(Sec. 1918.94(f)). If the health evidence ultimately supports lower
limits for H2S than are contained in either the current
general industry standard or the longshoring standard, the Agency will
propose the necessary changes for both standards.
Final Sec. 1918.94(f) requires that atmospheric testing be
conducted prior to entry, and during work operations to ensure safe
levels of both H2S and oxygen, that the tests must be
conducted by designated personnel, and that employees may not enter a
hold unless safe atmospheric levels of both H2S and oxygen
are present.
[[Page 40184]]
Final Sec. 1918.95, titled ``Sanitation,'' contains requirements
necessary to maintain sanitary conditions. These provisions, for the
most part, are consistent with the current regulations for shoreside
cargo handling (Sec. 1917.127). They address washing and toilet
facilities, drinking water, eating areas, and garbage and overboard
discharges.
OSHA received considerable comment and testimony objecting to the
inclusion of tables in the proposal specifying the number of required
toilet facilities (Exs. NMSA et al., PMA et al., 6-31a, SEA Tr. p. 107,
NO Tr. pp. 160-161, 361-365, 387, 559-562). The Agency does not believe
that the tables are necessary, and has decided, instead, to use the
more performance-oriented language of the current Marine Terminal
Standards. This change also has the added benefit of achieving
uniformity between the two aspects of marine cargo handling operations.
Longshoring work is normally done next to a marine terminal. If the
marine terminal's sanitation facilities are available for longshore
employees, this would constitute compliance with Sec. 1918.95. Section
1917.127, which covers sanitation at marine terminals, is essentially
identical to Sec. 1918.95. The remainder of Sec. 1918.95 is essentially
unchanged from the corresponding provisions of the proposal.
Final Sec. 1918.96, titled ``Maintenance and repair work in the
vicinity of longshoring operations,'' addresses work (such as ship's
maintenance and repair) performed while marine cargo handling
operations are being done. In such circumstances, employees may be
exposed to hazards not found in longshore operations (such as excessive
light or heat from hot work or over spray from abrasive blasting or
spray painting). In OSHA's current Longshoring Standard, the parallel
provisions (Sec. 1918.95) contain requirements to account for the
hazards that can be anticipated when maintenance and repair work are
undertaken concurrently with cargo handling. These requirements were
proposed as Sec. 1918.95, and only minor changes have been made to
improve clarity.
Sections 1918.96(a) through (d) remain the same as proposed. These
requirements prohibit the conduct of longshoring operations in
situations where the noise associated with maintenance or repair work
is such as to interfere with the ability to communicate warnings or
instructions (paragraph (a)); prohibit longshoring operations in the
hold or on deck if work is being performed overhead that could expose
longshore employees to falling objects (paragraph (b)); prohibit
longshoring operations in conditions that could expose longshoring
employees to damaging light rays, hot metal, or sparks from hot work
operations being conducted in the vicinity (paragraph (c)); and
prohibit longshoring operations in the immediate vicinity of abrasive
blasting or spray painting operations to protect longshore workers from
exposure to the hazards associated with these operations (paragraph
(d)).
OSHA also proposed in Sec. 1918.96(e) to prohibit cargo handling
operations where employees are exposed to electromagnetic (nonionizing)
radiation emitted from the radio and radar equipment on the vessel or
from radio and television towers that are close to marine cargo
handling facilities. OSHA issued a Hazard Information Bulletin on
September 5, 1990, concerning a nonionizing radiation incident caused
by radio transmitting towers that were near a cargo handling facility.
The radio frequency emissions were aimed in the direction of the cargo
handling operation and the radiation caused longshore workers touching
the crane wires and hooks to be burned. This situation was corrected by
having the transmissions directed away from the cargo handling area.
Two commenters asked OSHA to delete this paragraph from the final rule,
contending that nonionizing radiation has not been a problem in the
longshoring industry (Exs. 6-1, 6-16a). Other commenters agreed that
this paragraph should be deleted because it is duplicated by
regulations found in Sec. 1918.1(b)(7) (Exs. NMSA et al., PMA et al.),
which incorporates by reference OSHA's General Industry Standard for
nonionizing radiation, Sec. 1910.97. In addition, comment and testimony
brought to OSHA's attention two articles, one by the United Kingdom's
Health and Safety Executive and the other from the Canadian Coast
Guard, that specifically addressed nonionizing radiation emitted by
vessel radar (Exs. 22 and 77, SEA Tr. pp. 235-236, NO Tr. pp. 660-662).
In summary, these studies suggested that nonionizing emissions from
vessel radar are not harmful, even in a worst case scenario, where the
radar is transmitting and the scanner is stationary at a distance of 19
feet (6 m). If the scanner is transmitting while rotating, the safe
distance is 5 feet (1.8 m). OSHA agrees that proposed Sec. 1918.96(e)
is somewhat duplicative because of the incorporation by reference of
Sec. 1910.97 in the ``Scope'' of this standard. However, the proposed
provisions were also not as protective as the General Industry
provisions. The proposed provision has therefore not been included in
the final rule. Nevertheless, although OSHA believes that nonionizing
radiation is not generally a hazard during marine cargo operations, the
OSHA Hazard Information Bulletin, discussed above, illustrates that
problems can occur. Accordingly, OSHA has added a ``Note'' to
Sec. 1918.1(b)(7) that addresses the proximity hazards of vessel radar
emissions.
OSHA is adding a new paragraph, Sec. 1918.96(e), to the final rule
that addresses machine guarding (including the control of hazardous
energy sources -lockout/tagout). It requires guarding of danger zones
on machines and equipment used by employees and further stipulates that
the power supply to machines be turned off, locked out, and tagged out
during repair, adjustment, or servicing work on such machines. This
provision is written in performance-oriented language and is similar to
Sec. 1917.151. In addition, this provision of the final rule relies on
the ``danger zone'' concept used in part 1917 and carried forward in
final part 1918 (Sec. 1918.2). For additional discussion of the danger
zone concept, see the ``Other Issues'' and ``Scope and application''
sections of this preamble.
Final Sec. 1918.97 sets out requirements for first aid and
lifesaving facilities, and parallels closely the same provisions of
OSHA's rule for the shoreside aspect of marine cargo handling
(Sec. 1917.26). Paragraph (a) states that employers must direct their
employees to report work-related injuries to the employer, regardless
of the severity of the injury. This requirement is essential to ensure
that hazards causing injury to employees are identified and controlled.
Paragraph (b) requires that a first aid kit be available on or near
each vessel being worked and that at least one person trained in first
aid be available to provide first aid during cargo handling operations.
This requirement is designed to ensure that first aid can be provided
quickly if needed. For the benefit of small employers, OSHA is
including a non-mandatory Appendix V, which contains a list of the
basic elements of a first aid training program that incorporates
generally accepted guidelines for, among other aspects of a first aid
program, the handling of potentially infectious body fluids (i.e.
``universal precautions''). Providing such compliance assistance
materials is consistent with the intent of recently enacted small
business legislation (e.g. the Small Business Regulatory Enforcement
Fairness Act of 1996).
[[Page 40185]]
In final paragraph (c), the requirements for first aid kits are
specified. OSHA proposed to require that the contents of the first aid
kit(s) be chosen by a physician who, in consultation with the employer,
would customize the first aid kit to fit the hazards to be encountered.
OSHA received considerable comment suggesting that the requirement that
a physician customize the first aid kit was unnecessary and burdensome
(Exs. NMSA et al., PMA et al., 6-1, 6-16a, 6-29a, 6-30, 6-31a, 6-36, CH
Tr. p.160). After careful consideration of the comments received, OSHA
has modified the final rule's approach to the use and selection of
first aid kits to recognize that a person who is certified in first aid
and familiar with the hazards found in marine cargo handling operations
is qualified to select and restock a first aid kit. Accordingly, OSHA
has revised Sec. 1918.97(c) so that it reads:
* * * The contents of each kit shall be determined by a person
certified in first aid and cognizant of the hazards found in marine
cargo handling operations. The contents shall be checked at
intervals that allow prompt replacement of expended items.
OSHA believes that allowing first-aid trained individuals rather
than requiring physicians to stock the kit will provide employers with
greater flexibility while maintaining employee protections unchanged.
OSHA notes that small employers may seek guidance from ANSI guidelines
on this issue--ANSI Z308.1-1978, ``minimum requirements for industrial
unit-type first aid kits''. These guidelines are currently being
updated.
Final Sec. 1918.97(d) addresses specific requirements for the
strength, design characteristics, and positioning of emergency
stretchers (Stokes baskets). Two commenters stated that the provision
of Stokes baskets is the responsibility of the vessel and should not be
required in part 1918 (Exs. 6-16, 6-31). In response to these
commenters, OSHA notes that these provisions have always been a part of
the Agency's longshoring requirements and are also a part of the marine
terminal requirements. Generally, the Stokes basket(s) is attached to
the shoreside crane in a marine terminal. However, since longshoring
operations can also take place in the middle of a river or at a
facility that is considered a production facility rather than a marine
terminal, Stokes baskets are also required in the final Longshoring
Standard. Another commenter stated that only trained and qualified
personnel should move an injured person (Ex. 6-30). OSHA strongly
agrees with that position, but notes that Stokes baskets are
specifically designed to lift an injured person securely, vertically if
necessary. This may be needed if the injured person has fallen into a
narrow space, such as between a column of containers and the hold of a
ship. OSHA believes that a Stokes basket is necessary equipment that
should be available for trained personnel to use. As with first aid
kits and sanitation requirements, if a Stokes basket is available to
longshore workers shoreside in accordance with part 1917, this will
satisfy the parallel requirement in part 1918. Sections 1917.26 (c) and
(d) of OSHA's marine terminal regulations are being revised in the
present rulemaking to mirror the final Longshoring Standard's
requirements for first aid kits and emergency stretchers.
Final paragraph (e) addresses life-rings and requires that a
sufficient number of Coast Guard-approved rings be available to rescue
personnel who have fallen into the water. Means of communication are
required by paragraph (f) of the final rule to be readily available to
obtain emergency and other sources of aid when necessary.
Final Sec. 1918.98 sets out requirements for the qualifications of
machinery operators (i.e. crane or winch operators, industrial truck
drivers, conveyor operators, etc.) and training requirements for
supervisory personnel (i.e. gang supervisors, stevedore
superintendents, etc.) in accident prevention. These same provisions
can be found in the Marine Terminals Standard (Sec. 1917.27). Paragraph
(a) only permits workers to operate a crane, winch, or other power-
operated cargo handling apparatus or any power-operated vehicle or give
signals to the operator of any hoisting apparatus if the employer has
determined that they are competent, through training or experience;
that they know the signs, notices, and operating instructions of the
equipment; and that they are familiar with the signal code being used.
The only exception to this rule is that employees who are being trained
and supervised by a designated person may operate such machinery or
give signals to operators during their training.
At paragraph (a)(2), the final rule provides that employees with
defective eyesight or hearing that has not been corrected are not
permitted to operate certain equipment (i.e., cranes, winches, other
power-operated cargo handling apparatus, or power-operated vehicles).
In addition, employees suffering medical ailments that may suddenly
incapacitate them are not permitted to operate such equipment. This
provision includes heart disease and epilepsy as examples of medical
ailments that could, in some cases, be suddenly incapacitating. OSHA
stresses, however, that nothing in this provision requires employers to
exclude from operating machinery all employees who have heart disease
or epilepsy or a history of such conditions. Rather, OSHA intends that
employees with medical ailments, such as heart disease and epilepsy,
should be excluded from operating the specified machine only if their
particular medical condition poses a high probability that they could
become suddenly incapacitated and only if there is no reasonable
accommodation that would eliminate or reduce the risk of direct threat
of harm to the employee or others.
For purposes of this standard, OSHA defines ``suddenly
incapacitating'' medical ailments as those that pose a direct threat of
substantial harm to the health or safety of the employee or others that
cannot be eliminated or reduced by some form of reasonable
accommodation. Direct threat refers to those risks that are
significant, specific, and imminent or current. In addition, direct
threat is limited to those situations in which there is a high
probability that substantial harm might occur. This provision does not
apply to medical ailments, including heart disease and epilepsy, that
pose a speculative or remote risk of harm. Likewise, this provision is
not intended to include medical ailments that pose only a slightly
increased risk of harm.
In determining whether there is a direct threat to the health or
safety of the employee or others, the employer should identify the
specific risk posed by the employee as well as the particular aspect of
the ailment that would pose a direct threat. There are certain factors
the employer should consider when determining whether the employee
poses the type of direct threat anticipated by this provision:
1. The duration of the risk;
2. The nature and severity of the potential harm;
3. The likelihood that the potential harm will occur; and
4. The imminence of the potential harm.
The determination of the seriousness and imminence of the potential
harm must also be based on the employee's current medical condition and
the employee's current ability to perform the job. The determination is
not to be based on mere speculation or predictions of the employee's
future medical condition or ability to perform the job at some future
date.
[[Page 40186]]
Determinations of whether an employee poses a direct threat of
substantial harm must be made on a case-by-case basis. The
determination must be based on the best available objective data or
other factual evidence and/or medical analyses regarding the particular
employee. The determination must be based upon reasonable medical
judgment that relies on current medical knowledge and not generalized
or out-of-date assumptions about the risks that are assumed to be
associated with certain disabilities. It is not proper to base
determinations on mere speculation, subjective perceptions, irrational
fear, patronizing attitudes, or stereotypes. Relevant evidence, for
example, may include input from the employee; the employee's experience
in previous similar positions; and opinions of physician,
rehabilitation counselors, or physical therapists who have expertise in
the medical ailment in question and/or direct knowledge of the
employee.
Where the employer does determine that the employee's medical
ailment poses a significant risk of substantial harm, the employer must
also consider whether reasonable accommodations are available that
would eliminate or reduce the risk so that it is below the level of
direct threat.
OSHA has noted in the standard in both Sec. 1917.27(a)(2) (marine
terminals) and Sec. 1918.98(a)(2) (longshoring) that it has defined
OSHA suddenly incapacitating medical ailments consistent with the
Americans with Disabilities Act (ADA), 42 U.S.C. 12101 (1990).
Therefore, employers who act in accordance with the employment
provisions (Title I) of the ADA (42 U.S.C. 12111-12117), the
regulations implementing Title I (29 CFR part 1630), and the Technical
Assistance Manual for Title I issued by the Equal Employment
Opportunity Commission (Publication number: EEOC--M1A), will be
considered as being in compliance with this paragraph.
Paragraph 1918.98(b) addresses supervisory accident prevention
proficiency and requires immediate supervisors of cargo handling
operations that involve more than 5 persons to complete a course in
accident prevention within 2 years after the publication of this
standard. Employees who are newly assigned to supervisory duties after
that date must receive such training within 90 days of being assigned
to those duties. The content of the accident prevention course must be
relevant to the particular work operations being supervised by the
supervisor. The final rule's criteria for the content of the accident
prevention course are performance-based and allow for the instruction
to be tailored to the particular operation(s). The recommended topics
included as a footnote are considered rudimentary to most shipboard
cargo handling operations. Throughout the public hearings, testimony
was presented concerning the training done in the marine cargo handling
industry and its effectiveness. The supervisory training phase-in
periods in the final Longshoring Standard are the same as those in the
Marine Terminals Standard (two years after the promulgation of the
final rule and after that date 90 days after supervisory assignment.
The provisions in Sec. 1918.98(b) received widespread support (NMSA et
al.).
Section 1918.99 of the final rule is entitled, ``Retention of DOT
markings, placards and labels.'' This section concerns the removal of
Department of Transportation-required labels and placards on packages,
freight containers, rail freight cars, motor vehicles, or transport
vehicles of hazardous materials (see 49 CFR parts 171 through 180).
Paragraphs (a) and (b) requires employers who receive packages,
containers, or vehicles labeled in accordance with these DOT
requirements to retain those markings, labels, and placards until the
package, container, or vehicle has been cleaned or purged so that it
presents no hazard to employees. Paragraph (c) requires employers to
maintain markings, placards, and labels in a manner that ensures that
they will remain visible, and paragraph (d) states that non-bulk
packages that will not be re-shipped will be considered to satisfy
these provisions if the label or other acceptable marking is attached
to the package as required by OSHA's Hazard Communication Standard (29
CFR 1910.1200). The provisions in this section of the final rule that
are required by DOT's Hazardous Materials Regulations, were published
by OSHA in the Federal Register (59 FR 36700, July 19, 1994). Similar
language has been included in the Marine Terminals Standard (see
Sec. 1917.29).
The regulatory text of final Sec. 1918.100, ``Emergency action
plans,'' which was discussed in the Summary and Explanation for subpart
A, is included here. It stipulates that this section applies to all
action plans required by a particular OSHA standard, and contains
requirements covering the elements of the action plan, alarm systems,
the evacuation of employees in emergencies, and the training of persons
to assist in evacuation of employees. These requirements parallel those
for emergency action plans in OSHA's general industry standards.
Subpart J--Personal Protective Equipment
This subpart is based upon the requirements for personal protective
equipment (PPE) found in the shoreside requirements for marine cargo
handling (Secs. 1917.91 through 1917.95). The hazards addressed by this
subpart are those that can cause physical injury to the eyes,
respiratory system, head, feet, or other body parts of employees. The
subpart also addresses protection from the hazard of drowning
associated with working around or above water. The use of the personal
protective equipment required in this subpart can reduce or eliminate
physical injury to employees caused by exposure to certain maritime
workplace hazards. This subpart received widespread support, as
evidenced by a number of comments (Exs. NMSA et al., PMA et al.).
OSHA has updated references to the American National Standards
Institute (ANSI) standards incorporated by reference in this subpart.
The ANSI standards for eye protection, head protection and foot
protection referenced were the most current editions of those standards
available at the time this subpart was published. OSHA believes that
the more current editions of the ANSI standards can be adopted by
reference in the final rule for both the Marine Terminals Standards and
the Longshoring Standard without substantively changing the OSHA
regulations.
With this rulemaking, OSHA is consistently applying previous
guidelines for determining when employers would be expected to pay for
PPE and when employees would be expected to pay.
On October 18, 1994, OSHA issued a memorandum to its field offices
which stated as follows:
OSHA has interpreted its general PPE standard, as well as
specific standards, to require employers to provide and to pay for
personal protective equipment required by the company for the worker
to do his or her job safely and in compliance with OSHA standards.
Where equipment is very personal in nature and is usable by workers
off the job, the matter of payment may be left to labor-management
negotiations. Examples of PPE that would not normally be used away
from the worksite include, but are not limited to: welding glasses,
wire mesh gloves, respirators, hard hats, specialty glasses and
goggles (designed for laser or ultraviolet radiation protection),
specialty foot protection (such as metatarsal shoes and linemen's
shoes with built in gaffs), face shields and rubber gloves, blankets
and cover-ups and hot sticks and other live-line
[[Page 40187]]
tools used by power generation workers. Examples of PPE that is
personal in nature and often used away from the worksite include
non-specialty safety glasses, safety shoes, and cold-weather outer
wear of the type worn by construction workers. However, shoes or
outer wear subject to contamination by carcinogens or other toxic or
hazardous substances which cannot be safely worn off-site must be
paid for by the employer. Failure of the employer to pay for PPE
that is not personal and not used away from the job is a violation
and shall be cited. (Ex. 1-157.)
Although the equipment used in marine cargo handling operations
often differs from that mentioned in the October 18 memorandum, the
same policy considerations apply in the Longshore and Marine Terminals
Standard PPE context. Therefore, OSHA will apply the above-stated
policy when determining whether the employer is required to pay for a
particular kind of PPE.
In Sec. 1918.101, Eye protection, OSHA maintains the language from
the proposal. This section requires that employers provide employees
with eye protection that meets the requirements of the American
National Standards Institute, ANSI Z-87.1-1989, ``Practice for
Occupational and Educational Eye and Face Protection.'' The section
also requires that employees use the equipment and that it be cleaned
and disinfected before issuance to another employee. In addition, for
employees wearing corrective spectacles, paragraph (a)(2) states that
the required eye protection equipment must be capable of being worn
over the spectacles, unless prescription-ground safety lenses that
provide equivalent protection are substituted.
In Sec. 1918.102, Respiratory protection, OSHA incorporates by
reference the OSHA General Industry Standard for respiratory protection
found in 29 CFR 1910.134 by referencing Sec. 1918.1(b)(12) of the
Longshoring Standard. Section 1918.1(b)(12) refers to 29 CFR 1910.134.
On November 11, 1994, OSHA published a proposed rule that would revise
the respiratory protection rules (59 FR 58884). When this standard is
published as a final rule, it will apply, by reference, to both the
Marine Terminals and Longshoring Standards (Sec. 1917.1(a)(2)(x) and
Sec. 1918.1(b)(8)).
Final Sec. 1918.103, Head protection, is unchanged from the
proposal. This section provides that employers require employees who
are exposed to hazards associated with direct head impact or electric
shock or burns to the head wear head protection. Such head protection
must meet the requirements of the American National Standards
Institute, ANSI Z-89.1-1986, ``Personnel Protection-Protective Headwear
for Industrial Workers-Requirements.'' The section also requires that
employees use the equipment and that it be cleaned and disinfected
before issuance to another employee.
Final Sec. 1918.104, foot protection, is also unchanged from the
proposal. This section requires that employers provide employees
exposed to puncture or impact hazards associated with the foot with
safety footwear meeting the requirements of the American National
Standards Institute, ANSI Z-41-1991, ``American National Standard for
Personal Protection-Protective Footwear.'' The section also requires
that employees use the equipment provided.
In final Sec. 1918.105, other protective measures, OSHA is
mandating a general approach that requires the employer to provide and
ensure the proper use of any additional personal protective equipment
that may be necessary to protect other parts of an employee's body.
Paragraphs (a)(1) and (a)(2) are unchanged from the proposal. These
paragraphs require the employer to provide and require the wearing of
any additional special personal protective equipment that may be
necessary to protect employees from recognized hazards in the
workplace. It also requires that such equipment be cleaned and
disinfected before reissuance to other employees.
Paragraph (b) of Sec. 1918.105 addresses the use of personal
flotation devices (PFDs). The employer is required to provide for and
ensure the wearing of PFDs by all employees whose work may expose them
to falls into water. This paragraph received several comments. For
example, one witness at the Seattle hearing stated:
We question paragraph * * * [1918.105(b)(1)], which requires
personal flotation equipment to be worn when working on the deck of
a barge. Almost all of our barges are outfitted with a safety fence
consisting of stanchions and two courses of wire rope; that the
vessel is alongside the dock and there is not a chance for a person
to fall between the barge and the dock, and have proper means of
access through a ladder or a gangway with handrails is provided and
there is a safety fence on the barge, this proposed safety
regulation appears to be superfluous * * * My concern was * * * that
* * * it would be viewed as a rule that if you're working on the
deck of a barge, you must wear an PFD regardless of if there is a
proper safety fence. (SEA Tr. pp. 622-623.)
Another commenter argued that the current regulation, which
requires the wearing of PFD's when working on log booms and barges on
the Mississippi River, was sufficient and should be retained (Ex. 6-
16a). Other commenters argued that OSHA should modify these
requirements by deleting proposed paragraphs (b)(1)(i) through
(b)(1)(iv) of Sec. 1918.105, which specified situations where PFDs had
to be worn (Exs. 8-8, NMSA, et al.). These commenters believed that the
performance language of Sec. 1918.105(b)(1) adequately addressed
employee safety and allowed flexibility in the means of compliance.
OSHA agrees that paragraph (b)(1) adequately addresses safety concerns
and has modified the language of the final rule accordingly. OSHA
believes that the specification language contained in the proposal
would limit worker protection by not including non-specified situations
where PFDs are needed.
An area of concern that was not addressed directly in the proposal
relates to the wearing of PFDs while working on log rafts. During
questioning by OSHA at the Seattle hearing, one witness agreed that
PFDs should be specifically required for employees engaged in logging
operations (SEA Trans. pp. 447-449). OSHA believes that the wearing of
PFDs is essential in logging operations because of the continuous
exposure to water when working on rafts, and has added this requirement
in Sec. 1918.88, ``Log operations''.
As discussed above, paragraph (b) sets requirements for PFDs. Some
of the language in the final rule has been editorially revised to
reflect the language used in the U.S. Coast Guard's standard for
approved lifesaving equipment (46 CFR part 160). OSHA's existing
Sec. 1915.154(a) specifies that the above-cited U.S. Coast Guard
requirements for this equipment shall be followed. The OSHA final rule
provides clarification on what constitutes an acceptable PFD and uses
terminology that is consistent with current U.S. Coast Guard
requirements.
Final paragraph (b)(3) addresses the inspection of PFDs for dry
rot, chemical damage, or other defects (such as tears, punctures,
missing or nonfunctioning components) that affect their strength and
buoyancy. Final paragraph (b)(3) also includes the proposed language to
the effect that all personal flotation devices must be maintained in a
safe and serviceable condition.
Appendices
There are five appendices that follow the regulatory text of this
rulemaking. Appendix I, which is non-mandatory, titled ``Cargo Gear
Register and Certificates,'' is a sample cargo gear register and
certificates that are in the international standard form that complies
with ILO Convention number 152, as required by subpart B.
[[Page 40188]]
Appendix II, which is mandatory, titled ``Tables for Selected
Miscellaneous Auxiliary Gear,'' contains tables that are to be used
when manufacturers' specifications or gear certificates are not
immediately available at the worksite for determining the Safe Working
Load for various synthetic and wire ropes slings, chain slings, and
shackles; allowable chain link wear; and the minimum number and spacing
of wire rope clips.
Appendix III, which is non-mandatory, titled ``Conventional Cargo
Gear,'' provides guidance to employers and employees on how to
correctly rig conventional ship's gear (two cargo derricks with married
falls).
Appendix IV, which is non-mandatory, titled ``Summary Chart for
Testing Special Stevedoring Gear,'' provides all the requirements found
in Sec. 1917.50(c)(5) and Sec. 1918.61 for testing special cargo gear
and container spreaders in one chart.
Appendix V, which is non-mandatory, titled ``Basic Elements of a
First Aid Training Program,'' outlines the basic elements of a first
aid program, including universal precautions to prevent the spread of
bloodborne diseases.
V. Other Issues
1. OSHA raised as an issue the possible harmful effects of diesel
exhaust on marine cargo handling employees, especially those employees
who work Ro-Ro vessels where exposure to such exhaust is probably the
greatest. In response to questions raised during the hearings, NIOSH
provided the following data in a post hearing submission:
Recent animal studies in rats and mice confirm an association
between the induction of cancer and exposure to whole diesel
exhaust. The lung is the primary site identified with carcinogenic
or tumorigenic responses following inhalation exposures. Limited
epidemiologic evidence suggests an association between occupational
exposure to diesel engine emissions and lung cancer. The consistency
of these toxicologic and epidemiologic findings suggests that a
potential occupational carcinogenic hazard exists in human exposure
to diesel exhaust. (Ex. 81.)
Although studies have been conducted concerning the effects of
diesel exhaust by the Mine Safety and Health Administration (MSHA) in
the mining industry, no specific studies relating to the longshoring
industry had been completed when OSHA published this final rule. Diesel
exhaust particulates, which have been identified by OSHA as a priority
for further study by the Priority Planning Process, may be the subject
of a future rulemaking, during which OSHA anticipates the availability
of more conclusive scientific data. Consequently, OSHA has decided to
defer any regulatory action on this issue in this rulemaking.
2. Prior to the proposal, OSHA learned of accidents reported in
West Coast ports that were associated with picking up the chassis and
fifth wheel \9\ along with the container (due to the failure of the
container and chassis to separate during a loading operation). However,
OSHA did not have information regarding: (1) the frequency of
occurrence of such accidents, (2) the availability, effectiveness, and
feasibility of devices which would shut the crane down once the device
detects the fifth wheel being raised off the ground, and (3) the
existence of other ways to eliminate the problem (such as better
``monitoring'' of the chassis twist locks under the hook through
training and work practices, or requiring the driver to get out of the
cab until the container is lifted clear of the chassis). Due to this
lack of information, OSHA raised this issue in the proposal.
---------------------------------------------------------------------------
\9\ A fifth wheel is a unique power unit designed primarily for
moving and spotting trailers in truck, rail, and marine terminals.
Other names for a fifth wheel are: yard hustler; jockey truck; yard
goat; and UTR (utility tractor). Most fifth wheels are not designed
or equipped for public highway or street use.
---------------------------------------------------------------------------
In response, OSHA received one comment from a manufacturer of
safety devices that prevent the inadvertent lifting of the fifth wheel
with the container. These devices shut down the container gantry crane
when they detect the uneven balance to the load that occurs when a
fifth wheel is lifted. The experience of this commenter suggests that
administrative work practices are not fully effective (Ex. 6-3).
This issue received very little attention during the hearings and
public comment period. However, OSHA believes that the wider use of
SATLs will help to prevent accidents caused by the inadvertent lifting
of the chassis and container together. When SATLs are being used, as
explained earlier, the longshore workers remain on the quay to place
the SATLs on the bottom of the container after it is lifted only a foot
or two off the chassis. In contrast, when manual twist locks are in
use, they are inserted on the ship; lifts of the container from the
chassis in this situation are usually much quicker and much higher,
since the crane operator does not have to stop after a foot or two to
allow the SATLs to be inserted. Although a lift of this magnitude is
enough to allow the fifth wheel to disengage and depart, the lift would
not be a substantial lift of twenty to fifty feet, but a limited lift
of only a few feet. With a two foot lift, even if the chassis does not
disengage from the container, the injury potential would be greatly
reduced. Because this rulemaking will increase the use of SATLs in this
industry, OSHA has decided not to take any further regulatory action on
the fifth wheel hoisting issue at this time. It is OSHA's intention to
monitor the frequency of this operation further and engage in joint
studies with the assistance of the Maritime Advisory Committee for
Occupational Safety and Health (MACOSH) to assess the need to address
such accidents in the future.
3. Specific questions were raised in the proposal to elicit
information OSHA believed would be helpful in determining appropriate
elements for comprehensive occupational safety and health (COSH)
programs in the marine cargo handling industry. Although this is an
industry that, historically, has been in the forefront in the
development of safety and health programs (particularly safety training
programs), several commenters argued that OSHA should not promulgate
rules governing COSH programs (Ex. NMSA et al.). The employee
participation element of such programs was also discussed at length at
the Seattle hearing (SEA Tr. pp. 435-436). Several responders (Exs. 6-
5, 6-20, 6-23, and 6-25) opted not to comment at this time but stated
that they would reserve comment until a future rulemaking specifically
on this subject. OSHA will continue to review all available information
in determining the need for and contents of the proposed requirements
for safety and health programs in this industry.
4. In the proposal, OSHA sought information on hazards related to
the increased usage of newly developed Flexible Intermediate Bulk
Containers (FIBC's) used to handle bulk chemicals. Although several
commenters (Ex. NMSA et al.) acknowledged the increased use of FIBCs,
their experience with this type of container did not uncover any unique
hazards that had not already been addressed in the Longshoring
Standard. In addition, Mr. Signorino of Universal Maritime Service
Corporation, pointed out that the Department of Transportation,
Research and Special Programs Administration (RSPA) already has
regulations (59 FR 38040) that address the safe transport of hazardous
materials in such containers (Ex. 6-35). OSHA has thus concluded that
the Agency does not need to pursue regulatory action at this time.
5. OSHA issued a standard for the control of hazardous energy
sources (lockout/tagout) that applies to general
[[Page 40189]]
industry employment (29 CFR 1910.147 (54 FR 36645)). This standard
addresses practices and procedures that are necessary to disable
machinery or equipment and to prevent the release of potentially
hazardous energy while maintenance and servicing activities are being
done. The standard requires that lockout be used for equipment designed
with a lockout capacity, and allows tags to be used to ``tag out''
equipment that was not designed to be locked out. Marine terminal
activities involve work operations (e.g. container repair shops and
warehouses) where lockout/tagout hazards are present and are similar in
nature to those posed by General Industry repair shop and warehouse
operations. Many commenters (Exs. 6-35, 6-16c) contended that the
current Marine Terminals Standard contains requirements (most broadly
applied in Sec. 1917.151(b)(7)) for lockout/tagout that are more
protective than those in the General Industry Standard, and that these
requirements should be applied to longshoring operations.
For the most part, repairs to shipboard equipment are normally
accomplished by the crew of the vessel and are only infrequently
performed by longshore workers. However, to provide protection in those
instances where longshore workers may do repairs that would require the
locking out of equipment, and to assure regulatory consistency with
marine cargo handling operations, OSHA is including the same lockout/
tagout provisions of Sec. 1917.151(b)(7) in the Longshoring Standards
(codified at Sec. 1918.96(e)).
6. As indicated earlier, OSHA contracted with a safety expert, A.J.
Scardino, to conduct a study of the fall hazards associated with the
cargo handling of intermodal containers. In his study, he recommended:
* * * that the location of the fixed anchorage point in relation
to the working surface shall be located ``above'' the head of the
employee. Every effort should be made to assure that the attachment
point for the system is located no lower than the vertical height
position of the harness ``D'' ring. According to ``Humanscale 7a'',
for the 50th percentile male, this would be 1.4 meters (55.4
inches). (Ex. 1-139.)
He further recommended that:
The use of systems that are at foot level, thereby creating a
tripping hazard, should be discouraged. If these systems are to be
used, then, the components that make up the system should be of a high
visibility color. (Ex. 1-139.)
The final container top fall protection provisions are crafted in
performance-oriented language to promote innovation and flexibility in
providing fall protection. The key performance tests that a fall
protection system must meet are that it (1) be rigged to reduce free-
fall distance so that the employee will not contact any lower level
stowage or vessel structure; and (2) be designed so that the fall will
not produce an arresting force on an employee that exceeds 1800 pounds
(8kN) ( See Sec. 1918.85(k) (3) and (4)).
Although elevated anchorage points are important considerations in
the design of fall protection systems, these provisions of the final
rule focus on the performance criteria for such systems rather than
their specific design aspects. Consequently, OSHA has determined that
it would not be appropriate to include this single design consideration
in the final rule.
VI. Summary of the Final Economic Analysis and Regulatory
Flexibility Analysis
As required by Executive Order 12866, OSHA has prepared an economic
analysis of the final standards for longshoring and marine terminals.
Neither standard is a ``significant'' rule under that Executive Order
nor a ``major'' rule under the Small Business Regulatory Enforcement
Fairness Act. In addition, as required by the Regulatory Flexibility
Act of 1980 (as amended in 1996), the Agency has assessed the potential
impacts of these two marine cargo-handling rules on small entities and
has determined that they will not have a significant economic impact on
a substantial number of small entities. Because this standard does not
impose annual costs of $100 million or more, will not significantly
affect small governments, and is not a significant federal
intergovernmental mandate, the Agency has no obligations to conduct
analyses of these rules under the Unfunded Mandates Reform Act.
This section of the Preamble presents a summary of the Economic
Analysis and the screening analysis for small-business impacts. The
entire analysis has been placed in the rulemaking docket for the two
final standards.
The purpose of this Final Economic Analysis is to:
Describe the need for a revision of the existing standards
for longshoring and marine terminals;
Identify the establishments, industries, and employees
potentially affected by the standard;
Estimate the costs, benefits, economic impacts and small
business impacts of the standard on affected firms;
Assess the technological and economic feasibility of the
standard for affected establishments, industries, and small businesses;
Evaluate potential non-regulatory approaches to control
the pertinent risks to workers in the affected industries; and
Describe alternatives adopted in the final standard that
are designed to reduce the impact of the standard on small firms while
meeting the objectives of the OH Act
These standards affect employers and employees in many industries.
The Marine Cargo Handling industry, classified as SIC 4491 in the
Standard Industrial Classification Manual, is the industry most
directly affected. SIC 4491 is composed of both stevedores and marine
terminal operators, both businesses that are exclusively engaged in
marine cargo handling. Marine cargo handling activities in other
industries are also impacted: for example, manufacturers who load or
unload raw materials or finished products from vessels and electric
utilities than unload coal from barges also fall within the scope of
the revised final standards.
A. Evaluation of Risks and Estimation of Benefits
The transport of marine cargo has changed significantly since
OSHA's Longshoring Standard was adopted in the early 1970s and even
since the Marine Terminals Standard was revised in the early 1980s.
Low-cost transport of cargo by standardized intermodal containers
(referred to simply as containers hereafter) has become the dominant
mode of shipping manufactured goods. To transport vehicles, specialized
``roll on/roll off'' vessels have been developed. Freighters have
therefore been designed with efficient container transfer and ease of
intermodal movement as the dominant criteria. Shipment by intermodal
container has replaced shipment of ``break bulk'' cargo which came in
many sizes and modes. As a result, cargo handling has become a more
capital intensive and mechanized industry in the past 20 years. For
example, although the weight of transported cargo (U.S. exports and
imports) has remained roughly constant between 1980 and 1990, the
amount shipped via intermodal containers has more than doubled. Over
the same period, employment in SIC 4491 has declined from about 88,000
to 55,000.
The change in the technology of cargo transport has altered the
risks that employees face on the docks and aboard ships. Although
mechanization has reduced injuries due to overexertion and lifting, new
risks have arisen, such as falls from containers stacked as high
[[Page 40190]]
as 60 feet and being struck by forklifts or ``fifth wheeler'' tractor
trailers moving containers.
Because the final standard requires longshore employers to load and
unload containers secured to each other with positive container
securing devices, e.g., semi-automatic twist locks, where feasible, the
shipping industry is also potentially affected, since ship owners must
purchase these container connectors. The standards' effect on the U.S.
shipping industry and international trade (and foreign shippers) is
discussed below.
The Bureau of Labor Statistics 1992 injury rate for SIC 449
(Service Incidental to Water Transportation) was 14.0 for every 100 FTE
workers, based on a 2000 hour work-year, compared with 8.9 for all of
private industry (''Occupational Injuries and Illnesses: Counts, Rates,
and Characteristics, 1992,'' published May 1995). The lost workday and
non-lost workday injury rates per 100 FTE workers in SIC 449 were each
7.0. The median number of lost workdays due to injury in SIC 449 was 15
per case as compared to 6 for all of the manufacturing sector. For SIC
4491, the average number of lost workdays was 38.9 lost workdays per
lost workday injury. These statistics clearly indicate that marine
cargo handling continues to be a highly hazardous industry.
An estimated 7,593 injuries and 18 fatalities occur annually during
all marine cargo handling activities. The final Longshoring and Marine
Terminals Standards are expected to result in the prevention of 1,262
injuries and 3 fatalities, annually. Many additional fatalities and
injuries would be prevented if employers were in full compliance with
requirements that have been in place in the Agency's Longshoring and
Marine Terminals standards for years and that have been retained in
these final standards. In particular, the Agency believes that an
additional one to three fatalities may be avoided each year when all
affected establishments comply with OSHA's requirements for engineering
controls and fall protection on intermodal containers. However, because
the Agency's existing Longshoring standard has been interpreted as
requiring fall protection at heights over eight feet (see Preamble of
the proposed rule, 59 FR 28611, June 2, 1994), the Agency did not claim
the benefits or estimate the costs potentially associated with the
final rules' clarified requirements for fall protection on containers
in this final economic analysis. In the affected industries, confusion
over OSHA's existing container top fall protection requirements and
their interpretation and non-uniform enforcement have resulted in
currently low compliance levels for fall protection on containers.
The deaths and injuries estimated to be prevented by this revised
standard are in addition to those that would be prevented by full
compliance with OSHA's existing marine-cargo handling rules. OSHA
estimates that, of the injuries potentially averted by the revised
standards under the revised rules, about 800 are lost workday cases.
Since a lost workday injury results in almost 40 missed days of work,
on average, in SIC 4491, the 800 lost workday cases amount to a savings
of more than 30,000 lost workdays annually. The potential economic
savings of these avoided injuries alone is approximately $7 million
annually. Thus the final standards for Longshoring and Marine Terminals
are clearly needed to reduce the continuing significant risk of falls
and other hazards posed to marine cargo handling workers employed in
these industries.
B. Affected Industries, Establishments, and Employees
The requirements of the final standards apply to all establishments
that perform marine cargo handling. Affected industries include the
marine cargo handling industry itself (classified in the 1987 Standard
Industrial Classification manual as SIC 4491), which includes both
marine terminal operators and stevedores, as well as any other
industries and establishments that handle marine cargoes, such as
electric utilities that unload coal from barges or grain elevators that
load grain onto barges. The Agency estimates that there are 3,700
establishments affected by both the Longshoring Standard and the Marine
Terminals Standard. Table 1 shows how these establishments are
distributed across affected industries for both standards. Based on
employment data from the Table 1 Bureau of the Census and OSHA
inspection data, 93,427 workers are estimated to be affected by the
Longshoring and Marine Terminals standards, about 73,000 of whom are
employed in establishments classified in SIC 4491.
Table 1.--Number of Establishments Affected by the Final Longshoring and
Marine Terminals Standards, by Industry
------------------------------------------------------------------------
Number of
Industry establishments
------------------------------------------------------------------------
SIC 4491--Marine Cargo Handling......................... 746
Manufacturing........................................... 1,660
Transportation, Communications, and Electric, Gas and
Sanitary Services...................................... 662
Wholesale Trade......................................... 273
Other SICs \1\.......................................... 359
---------------
Total................................................... 3,700
------------------------------------------------------------------------
Source: U.S. Department of Labor, OSHA, Office of Regulatory Analysis,
based on Centaur [I, Chapter 2].
\1\ Other SICs include SIC 13 (Oil and Gas Extraction), SIC 15 (Building
Construction sectors under SIC 44 (Water Transportation) other than
SIC 4491.
C. The Final Standards and Their Estimated Costs
The Preliminary Regulatory Impact Analysis identified 21 provisions
of the proposed rules that were likely to generate costs of compliance
for employers. In response to comments and public testimony by
stakeholders during the rulemaking, the Agency revised several
provisions in the final standards that will affect estimated costs.
Better information acquired from the industry during the rulemaking has
also resulted in revisions of the costs estimated for particular
provisions.
The most significant change to the final rule since the proposed
standard for longshoring was issued has been made in the requirement
for fall protection when working on top of any intermodal container.
The proposed standard would have required fall protection when the fall
height was 10 feet or more (containers are usually less than 10 feet
tall); the final rule, however, requires such protection when a fall
hazard exists at a height of 8 feet. Because the Agency has required
fall protection for workers on containers for years (see paragraph
1918.32(b) of the existing Longshoring Standard) this provision of the
final rule does not impose new costs on the regulated community.
Changes to three provisions that were proposed have resulted in the
elimination of the costs that were projected to be associated with
these provisions. In the final standard, the Agency has substituted
performance language for the specification language proposed for the
selection and maintenance of first aid kits and for the provision of
the proper number of
[[Page 40191]]
sanitary facilities. Comments in the record indicated that the industry
was currently providing adequate facilities in these two areas, and
thus that detailed specifications were not necessary. The final
standard also does not require that fall protection systems be
certified by a registered professional engineer; employers may rely on
the guarantee/certification generally provided by manufacturers of this
personal protective equipment instead. These three provisions in the
final standard are estimated to impose no new costs for employers, and
the Agency believes that the changes made to the final rule have not
reduced employee protections.
The proposal would have permitted containers to be lifted only by a
purely vertical lift from at least four top fittings. In the final
standard, non-vertical lifts are allowed as long as the lift angle is
at least 80 degrees and other protective conditions are met. This
change will allow employers with non-gantry container cranes to avoid
the purchase of box spreader beams and maintain greater productivity
with the simpler spreader bars generally in use. Again, OSHA believes,
and the record supports, that this change will not diminish employee
protection.
In the final standard, regulations for special stevedoring gear
remain similar to those in the proposal. The Agency has revised its
estimate of the cost imposed on the regulated community to test gear
every four years, based on comments in the record.
Anti-two-blocking devices are required by the final rule on all
cranes used to lift personnel. This provision is unchanged from the
proposal; however, the Agency inadvertently overlooked the costs
potentially associated with this provision at the time of the proposal.
Lifting personnel by cranes other than container-handling gantry cranes
is reported to be infrequent in the cargo handling industry, and the
impact of these provisions is likely to be felt only by employers in
the South Florida and Gulf areas. The cost estimate for anti-two-
blocking devices is included in Table 2 below, which provides the
estimated annual cost of provisions in the proposed and final standard.
Table 2.--Estimated Annual Costs of FInal Longshoring Standard, by
Provision (1993 Dollars)
------------------------------------------------------------------------
Annualized
costs* Annualized
projected by costs*
Source the estimated by
preliminary the final
regulatory economic
analysis analysis ($)
------------------------------------------------------------------------
Workplace Analysis...................... 68,959 183,890
General Training:
Supervisor Time..................... 67,370 67,370
Instruction......................... 95,779 95,779
Subpart C:
6'' sideboards: dockboards/ramps.... 151,940 139,955
2-3/4 inch sideboards (final stnd)..
Subpart G:
4-yr. testing of special gear....... 37,583 704,300
Lockout/tagout: powered conveyors... 2,684 2,684
Anti-two blocks..................... 0 21,300
Subpart H:
Vertical lifts...................... 156,412 11,360
Certification: fall protection...... 95,565 0
Secondary safety cage attachments... 2,249 2,249
Marking RO-RO ramps................. 1,911 1,911
Marking flat bed/low boy trailers... 2,811 2,811
High visibility vests............... 266,260 1,275,799
Separation of vehicles/pedestrians
on RO-RO ramps..................... 87,801 87,801
Logging: rescue boats............... 0 3,550
Training:
Supervisor Time................. 14,768 14,768
Instructor...................... 3,815 3,815
Rescue boats........................ 0 3,557
Subpart I:
Sanitation.......................... 1,560 0
First aid kits...................... 646,143 0
Accident prevention training........ 107,710 107,710
Stretchers.......................... 52,240 52,540
Subpart J:
Personal flotation devices.......... 151,405 151,405
-------------------------------
Total............................. $2,014,965 $2,934,554
------------------------------------------------------------------------
Source: U.S. Department of Labor OSHA, based on Kearney/Centaur
[1.Chapter 4].
*Annualized over 10 years using a 7% interest rate.
In logging operations, powered rescue boats are required by the
final standard when the situation warrants it. The proposed standard
only required that rescue boats be ``immediately available'' rather
than capable of ``immediate rescue.'' This provision of the final rule
will therefore impose higher costs on the regulated community than the
simpler provision proposed, and the Final Economic Analysis takes
account of this new cost.
The Agency has revised its cost estimates for some provisions since
the PRIA. Based on comments received from stakeholders on the estimated
costs of providing high-visibility vests for employees engaged in
container and roll
[[Page 40192]]
on/roll off operations, the Agency has substantially revised the costs
estimated for this provision. In addition, the Agency has increased its
estimate of the amount of time necessary for establishments to analyze
and adjust to the impact of the new standards on their workplaces.
Finally, the proposed standard would have required six-inch sideboards
for bridge plates and ramps; in the final standard, sideboards must be
at least 2\3/4\ inches when the distance spanned is 3 feet or greater.
Because the final provision is consistent with current industry
practice, the Agency has revised the estimated costs for this provision
downward.
The final Longshoring Standard is estimated to impose costs on
employers of $2.9 million annually, in 1993 dollars, to comply with all
of the final rule's provisions, and the Marine Terminals Standard is
estimated to cost about $0.2 million annually. Table 2 provides a
comparison of the estimated costs of the proposed and the final
Longshoring Standard. The estimated costs to marine terminals, which
are little changed since the proposal, are presented in Table 3. The
total costs of the final standards are estimated at about $3.1 million
annually. Nearly all of these costs are due to the Longshoring standard
and are associated with compliance efforts by establishments in SIC
4491, which includes marine terminal operators and stevedores.
Table 3.--Estimated Annual Costs of Final Marine Terminals Standard
(1993 Dollars)
------------------------------------------------------------------------
Annualized
cost*
------------------------------------------------------------------------
Workplace Analysis.......................................... 91,945
General Training:
Supervisor Time......................................... 25,288
Instructor.............................................. 23,955
Seatbelts................................................... 17,537
-----------
Total................................................. $158,725
------------------------------------------------------------------------
Source: U.S. Department of Labor OSHA, based on Kearney/Centaur Report
to ORA, Reference 1 in Economic Analysis, Chapter 4.
*Annualized over 10 years using a 7% interest rate.
D. Technological Feasibility, Economic Impacts, and Economic
Feasibility
All of the requirements of the final standards can be met using
currently available equipment, facilities, tests, inspections,
supplies, and work practices. OSHA's analysis of the technological
requirements of each provision indicates that none of the final
provisions will create any problem of supply or availability of
equipment, facilities, or personnel. Thus the Agency concludes that the
standards are technologically feasible for employers in these
industries.
In the rulemaking, questions were raised about the technological
feasibility of providing fall protection on top of intermodal
containers.\10\ However, the final standard exempts employers from
providing fall protection when it is impossible to do so or when doing
so would create a greater hazard. Some commenters questioned whether it
was technologically feasible to install anti-two-blocking devices on
shore-based cranes. However, industry experts testified that it was
possible to do so and further that, when cranes are not lifting
personnel, the anti-two-blocking device can be turned off or by-passed
for duty cycle work. For one type of shore-based crane, those with two
hoist blocks, the addition of anti-two-blocking devices were said to
make the crane more difficult to operate. The Agency has concluded that
the anti-two-blocking devices can be turned off when these cranes are
doing duty-cycle work (the devices must only work when hoisting
personnel). In any event, there are alternative means for personnel to
reach elevated work areas. Other commenters noted that when positioning
containers in some vessels, it was not possible to perform absolutely
vertical lifts in some situations. The Agency agreed with this view,
and the final rule allows non-vertical lifts of containers under
certain circumstances.
---------------------------------------------------------------------------
\10\For an analysis of comments received and Agency responses,
see the Summary and Explanation, above.
---------------------------------------------------------------------------
The total annual revenues and profits of longshoring operations are
estimated to be approximately $7.8 billion and $388.9 million,
respectively. The estimated costs of compliance with the final
Longshoring and Marine Terminals Standards are $3.1 million annually.
Since these costs will mainly be generated by compliance efforts by
stevedores and marine terminal operators, and since the compliance
costs of marine terminals will be passed on to stevedores, the Agency
has concluded that the best measure of the standards' economic impact
is to compare costs of compliance with the revenues and profits of
longshoring operations. Thus, the annual costs of compliance with the
final rule represent less than 0.04 percent of the revenues and 0.8
percent of the profits of establishments in the longshoring industry.
Costs of this magnitude are unlikely to threaten the viability even of
marginal firms.
Current practices in the marine cargo handling industry (SIC 4491)
indicate that the requirements of the final standards can be met
without significant hardship. Many employers already comply with the
final rule's requirements, as the record indicates.
Compliance with the requirements of the final Longshoring and
Marine Terminals Standards is not expected to produce any significant
adverse economic impacts. The costs of these rules are expected to
impose only a minimal burden on affected establishments and will be
more than offset by the economic benefits of avoided deaths and
injuries. Taken alone, the estimated compliance costs would represent
an average increase in the cost of shipping a loaded container in or
out of U.S. ports of less than 50 cents; the current cost of shipping
such a container from the U.S. to Europe now averages about $3000
(about $150 for stevedoring services). On the whole, the costs of
marine cargo handling operations for society would decrease as a result
of the final rules, because fewer accidents mean less lost time and
wages and fewer medical and legal resources spent on cargo shipping and
handling. The estimated benefits anticipated from the final standards
include unquantified reductions in pain and suffering, plus estimated
economic savings of more than $7 million annually from reducing lost
workdays due to injuries. The Agency therefore has determined that the
final Longshoring and Marine Terminal Standards are economically
feasible for establishments in the affected industries.
E. Screening Analysis to Identify Small-Business Impacts and
Certification of No Significant Impact
Pursuant to the Regulatory Flexibility Act of 1980, as amended in
1996, OSHA has assessed the impact of the revised standards on small
entities in the marine cargo handling industry, using the Small
Business Administration (SBA) size standard for SIC 4491. SBA has
defined a small business in SIC 4491 as one with annual revenues of
$18.5 million or less (61 FR 3291). OSHA estimates that this
corresponds to 90% of all establishments in SIC 4491. As noted earlier,
the costs of compliance amount to less than 0.04 percent of sales in
the marine cargo handling industry. Because the magnitude of these
compliance costs is so small, and because the final rules reflect
practices that are currently being followed by many employers
throughout the marine cargo handling industry, the Agency certifies
that these final rules will not have a significant impact on a
substantial number of small entities.
[[Page 40193]]
Several provisions in the final standards have been written or
revised in order to avoid imposing unnecessary burden on small
businesses while still remaining consistent with OSHA's mandate to
protect employee safety. For example, when establishments do not have
container gantry cranes, as is the case for many smaller establishments
that service freighters with mixed cargoes, the final Longshoring
standard does not require the use of positive container securing
devices, although doing so was considered by the Agency. In addition,
establishments that use shore-based, single wire cranes for handling
containers are allowed under the final rule to lift containers with
non-vertical lifts, provided that they conform to other handling
conditions designed to protect marine cargo handling employees. These
firms also will not have to purchase box spreader beams and can
continue to use their simpler spreader beams, a change to the standard
that will enhance container top safety as well as productivity. In
addition, in the final standard all existing special stevedoring gear
with a capacity greater than 5 short tons will only have to be tested
every four years and an employer's designated person will be allowed to
perform the testing (rather than an OSHA accredited agency). Finally,
employers will not be required by the final rules to have a
professional engineer certify the adequacy of fall protection systems
but can instead rely on a qualified person. All of the above provisions
provide regulatory relief to smaller as well as larger employers, and
all are consistent with the mandate of the OSH Act.
F. Non-Regulatory Alternatives
The Agency considered relying on the incentives created by workers'
compensation programs and the threat of private tort suits to reduce
the number of fatalities and injuries to workers in the affected
industries. The Agency determined, however, that government regulation
is needed because of the significant risk of job-related injury or
death that continues to exist in these industries. Private markets fail
to provide sufficient safety and health resources due to the
externalization of part of the social cost of worker injuries and
deaths. The longshore workers' compensation system does not offer an
adequate remedy because premiums to employers do not reflect specific
workplace risk, and liability claims are restricted by statutes that
prevent employees from suing their employers. The Agency is also aware
that in some cases union and employer agreements include many of the
provisions that are contained in the final standards. However, a large
fraction of the affected employees are not subject to these agreements.
Further, these agreements are neither consistent nor comprehensive, and
they do not provide an enforceable framework for workplace safety.
Accordingly, bargaining between employers and employees cannot be
relied on to achieve an adequately protective solution.
G. Impact Upon International Trade
OSHA has determined that compliance with the final Longshoring and
Marine Terminals Standards will not have a significant impact upon
international trade. The compliance costs of the standards are minimal
and are not expected to affect prices of exports or imports or
international competitiveness. To the extent that compliance with the
final rules increases cargo handling efficiency and reduces the number
of injuries and fatalities associated with these operations, shipping
costs may be reduced and international trade encouraged.
The requirement for engineering controls where feasible for ships
to load or discharge containers ( e.g. semi-automatic twist locks or
cell guides) will not affect shippers' costs or, therefore,
international trade. Wherever possible most shippers have already
converted to the use of these engineering controls since there are
clear cost advantages to doing so. Approximately 75 percent of foreign-
owned vessels that call at U.S. ports use these engineering controls
already. Not all ships will convert to using these engineering controls
since these are only required where container lifting is done with
container gantry cranes and some marine terminals and longshoring work
is still performed with single-wire cranes or forklifts.
VII. Environmental Impact
The final Longshoring and Marine Terminals Standards have been
reviewed in accordance with the requirements of the National
Environmental Policy Act (NEPA) of 1969 (42 U.S.C. 4321 et seq.), the
regulations of the Council on Environmental Quality (CEQ) (40 CFR Part
1500), and DOL NEPA Procedures (29 CFR Part 11). No significant
negative impact is foreseen on air, water or soil quality, plant or
animal life, the use of land or sea, or other aspects of the
environment as a result of these standards.
VIII. Recordkeeping and Paperwork Requirements
The Agency has estimated the paperwork burden of the Longshoring
and Marine Terminal Standards under the guidelines of the Paperwork
Reduction Act of 1995. Under that Act, burden is defined as the total
time, effort, or financial resources expended by persons to generate,
maintain, retain, or disclose or provide information to or for a
Federal Agency. The Agency has concluded that the following elements of
these two standards potentially could create a paperwork burden for the
affected industries:
1917.25(g) warranty of fumigated tobacco 1917.26(d)(7) labelling of
stretcher closets 1917.50(i)(2) labelling of cargo handling gear
1917.71(f)(4) marking of trailers 1918.22(g) labelling gangway
hazards 1918.74(i)(1) tagging ladders 1918.61(b)(2) labelling gear
1918.86(g) labelling trailers
Collections of Information: Request for Comments
The Department of Labor, as part of its continuing effort to reduce
paperwork and respondent burden, conducts a preclearance consultation
program to provide the general public and Federal agencies with an
opportunity to comment on proposed and/or continuing collections of
information in accordance with the Paperwork Reduction Act of 1995
(PRA95)(44 U.S.C. 3506(c)(2)(A)). This program helps to ensure that
requested data can be provided in the desired format, reporting burden
(time and financial resources) is minimized, collection instruments are
clearly understood, and the impact of collection requirements on
respondents can be properly assessed. Therefore, OSHA is soliciting
comments concerning the proposed approval for the paperwork
requirements of the final Longshoring and Marine Terminal Standards.
Written comments should:
Evaluate whether the proposed collection of information is
necessary for the proper performance of the functions of the agency,
including whether the information will have practical utility;
Evaluate the accuracy of the agency's estimate of the
burden of the proposed collection of information, including the
validity of the methodology and assumptions used;
Enhance the quality, utility, and clarity of the
information to be collected; and
Minimize the burden of the collection of information on
those who are to respond, including through the use of appropriate
automated, electronic, mechanical, or other technological collection
techniques or
[[Page 40194]]
other forms of information technology, e.g. permitting electronic
submissions of responses.
OSHA must obtain Office of Management and Budget (OMB) approval of
the paperwork requirements of this final rule. As part of that approval
process OSHA will be submitting a Paperwork Reduction Act Submission
(OMB 83-1) along with a supporting statement responding to specific
questions from OMB. After a review of OSHA's submission, OMB will
either approve, reject, or request revision of the identified paperwork
requirements. A full copy of OSHA's submission to OMB is included in
the docket for this rulemaking and is available in the docket for
public inspection and copying. The public is asked to review and offer
comments on OSHA's paperwork package. Comments may be submitted to the
rulemaking docket, S-025. The following information is provided as a
summary of the information contained in OSHA's submission to OMB:
Type of review: Revision of a currently approved collection.
Agency: Occupational Safety and Health Administration (OSHA).
Title: Longshoring and Marine Terminals.
OMB Control No.: 1218-0196.
Agency Docket No.: S-025.
Frequency: On occasion.Affected Public: Business or other for
profit, Federal government, State and local governments.
Number of respondents: 3,700.
Estimated time per respondent: Varies.
Total estimated annual recurring costs: $12,750.00.
Total estimated first year, one-time costs: $1,573,350.00.
Total estimated annual recurring burden hours: 250 hours annually.
Total estimated first year, one-time burden hours: 30,850 hours.
Comments submitted in response to this request will be summarized
and included in OSHA's request for Office of Management and Budget
approval of the paperwork burden. The comments will also become a
matter of public record.
IX. State Plan Requirements
This Federal Register document issues new rules addressing
longshoring and marine terminal operations regulated in 29 CFR parts
1910, 1917, and 1918. The new rules promulgated today will be codified
into the applicable section of the Code of Federal Regulations.
The 25 States or U.S. Territories with their own OSHA approved
occupational safety and health plans must develop a comparable standard
applicable to both the private and public (state and local government
employees) sectors within six months of the publication date of a
permanent final Federal rule or show OSHA why there is no need for
action, e.g. because an existing state standard covering this area is
already ``at least as effective as'' the new Federal standard.
Currently five states (California, Minnesota, Oregon, Vermont and
Washington) with their own state plans cover private sector onshore
maritime activities. Federal OSHA enforces maritime standards offshore
in all states and provides onshore coverage of maritime activities in
Federal OSHA states and in the following State Plan states: Alaska,
Arizona, Connecticut (plan covers only state and local government
employees), Hawaii, Indiana, Iowa, Kentucky, Maryland, Michigan,
Nevada, New Mexico, New York (plan covers only state and local
government employees), North Carolina, Puerto Rico, South Carolina,
Tennessee, Utah, Virginia, Virgin Islands, and Wyoming.
X. Federalism
This standard has been reviewed in accordance with Executive Order
12612, 52 FR 41685 (October 30, 1987), regarding Federalism. This Order
requires that agencies, to the extent possible, refrain from limiting
State policy options, consult with States prior to taking any actions
that would restrict State policy options, and take such actions only
when there is a clear constitutional authority and the presence of a
problem of national scope. The Order provides for preemption of State
law only if there is a clear Congressional intent for the Agency to do
so. Any such preemption is to be limited to the extent possible.
Section 18 of the Occupational Safety and Health Act (OSH Act),
expresses Congress' clear intent to preempt State laws with respect to
which Federal OSHA has promulgated occupational safety or health
standards. Under the OSH Act, a State can avoid preemption only if it
submits, and obtains Federal approval of, a plan for the development of
such standards and their enforcement. Occupational safety and health
standards developed by such State Plan-States must, among other things,
be at least as effective in providing safe and healthful employment and
places of employment as the Federal standards. Where such standards are
applicable to products distributed or used in interstate commerce, they
may not unduly burden commerce and must be justified by compelling
local conditions (See section 18(c)(2)).
The final Longshoring and Marine Terminals Standards are drafted so
that employees in every State will be protected by general,
performance-oriented standards, except in those cases in which employee
safety would be enhanced by more specific requirements. States with
occupational safety and health plans approved under section 18 of the
OSH Act will be able to develop their own State standards to deal with
any special problems which might be encountered in a particular state.
Moreover, the performance nature of this standard, of and by itself,
allows for flexibility by States and employers to provide as much
leeway as possible using alternative means of compliance.
These final Longshoring and Marine Terminals Standards address
safety and health problems related to the hazards found in the marine
cargo handling industry which is national in scope.
Those States which have elected to participate under section 18 of
the OSH Act would not be preempted by this regulation and will be able
to deal with special, local conditions within the framework provided by
this standard while ensuring that their standards are at least as
effective as the Federal Standard.
XI. Unfunded Mandates
For the purposes of the Unfunded Mandates Reform Act of 1995, as
well as Executive Order 12875, this rule does not include any federal
mandate that may result in increased expenditures by State, local, and
tribal governments, or increased expenditures by the private sector of
more that $100 million.
List of Subjects in 29 CFR Parts 1910, 1917, and 1918
Cargo, Cargo gear certification, Intermodal container, Hazardous
materials, Incorporation by reference, Longshoring, Maritime, Marine
cargo handling, Marine terminal, Labeling, Occupational safety and
health, Protective equipment, Respiratory protection, Signs and
symbols.
Authority: This document has been prepared under the direction
of Greg R. Watchman, Acting Assistant Secretary of Labor for
Occupational Safety and Health, U.S. Department of Labor, 200
Constitution Avenue, NW, Washington, D.C. 20210. Pursuant to
sections 4, 6 and 8 of the Occupational Safety and Health Act of
1970 (29 U.S.C. 653, 655, 657), section 41 of the Longshore and
Harbor Workers' Compensation Act (33 U.S.C. 941), Secretary of
Labor's Order No. 6-96 (62 FR 111); and 29 CFR part 1911, parts
1910, 1917 and 1918 of Title 29 of the Code of Federal Regulations
are amended as set forth below.
[[Page 40195]]
Signed at Washington, D.C. this 18th day of July, 1997.
Greg R. Watchman,
Acting Assistant Secretary of Labor.
Alexis M. Herman,
Secretary of Labor.
PART 1910--GENERAL INDUSTRY SAFETY AND HEALTH REGULATIONS [AMENDED]
1. The authority citation for subpart B of part 1910 is revised to
read as follows:
Authority: Secs. 4, 6, and 8 of the Occupational Safety and
Health Act, 29 U.S.C. 653, 655, 657; Walsh-Healey Act, 41 U.S.C. 35
et seq.; Service Contract Act of 1965, 41 U.S.C. 351 et seq.;
Sec.107, Contract Work Hours and Safety Standards Act (Construction
Safety Act), 40 U.S.C. 333; Sec. 41, Longshore and Harbor Workers'
Compensation Act, 33 U.S.C. 941; National Foundation of Arts and
Humanities Act, 20 U.S.C. 951 et seq.; Secretary of Labor's Order
No. 12-71 (36 FR 8754), 8-76 (41 FR 1911), 9-83 (48 FR 35736), 1-90
(55 FR 9033), or 6-96 (62 FR 111), as applicable.
2. Paragraphs (a), (b), and (c)(4) of Sec. 1910.16 are revised to
read as follows:
Sec. 1910.16 Longshoring and marine terminals.
(a) Safety and health standards for longshoring. (1) Part 1918 of
this chapter shall apply exclusively, according to the provisions
thereof, to all employment of every employee engaged in longshoring
operations or related employment aboard any vessel. All cargo transfer
accomplished with the use of shore-based material handling devices
shall be governed by part 1917 of this chapter.
(2) Part 1910 does not apply to longshoring operations except for
the following provisions:
(i) Access to employee exposure and medical records. Subpart Z,
Sec. 1910.1020;
(ii) Commercial diving operations. Subpart T;
(iii) Electrical. Subpart S when shore-based electrical
installations provide power for use aboard vessels;
(iv) Hazard communication. Subpart Z, Sec. 1910.1200;
(v) Ionizing radiation. Subpart Z, Sec. 1910.1096;
(vi) Noise. Subpart G, Sec. 1910.95;
(vii) Nonionizing radiation. Subpart G, Sec. 1910.97;
Note to paragraph (a)(2)(vii): Exposures to nonionizing
radiation emissions from commercial vessel transmitters are
considered hazardous under the following conditions: (1) where the
radar is transmitting, the scanner is stationary, and the exposure
distance is 18.7 feet (6 m.) or less; or (2) where the radar is
transmitting, the scanner is rotating, and the exposure distance is
5.2 feet (1.8 m.) or less,
(viii) Respiratory protection. Subpart I, Sec. 1910.134;
(ix) Toxic and hazardous substances. Subpart Z applies to marine
cargo handling activities except for the following:
(A) When a substance or cargo is contained within a sealed, intact
means of packaging or containment complying with Department of
Transportation or International Maritime Organization requirements;\1\
---------------------------------------------------------------------------
\1\ The International Maritime Organization publishes the
International Maritime Dangerous Goods Code to aid compliance with
the international legal requirements of the International Convention
for the Safety of Life at Sea, 1960.
---------------------------------------------------------------------------
(B) Bloodborne pathogens, Sec. 1910.1030;
(C) Carbon monoxide, Sec. 1910.1000 (See Sec. 1918.94 (a)); and
(D) Hydrogen sulfide, Sec. 1910.1000 (See Sec. 1918.94 (f)).
(b) Safety and health standards for marine terminals. Part 1917 of
this chapter shall apply exclusively, according to the provisions
thereof, to employment within a marine terminal, except as follows:
(1) The provisions of part 1917 of this chapter do not apply to the
following:
(i) Facilities used solely for the bulk storage, handling, and
transfer of flammable and combustible liquids and gases.
(ii) Facilities subject to the regulations of the Office of
Pipeline Safety of the Research and Special Programs Administration,
Department of Transportation (49 CFR chapter I, subchapter D), to the
extent such regulations apply to specific working conditions.
(iii) Fully automated bulk coal handling facilities contiguous to
electrical power generating plants.
(2) Part 1910 does not apply to marine terminals except for the
following:
(i) Abrasive blasting. Subpart G, Sec. 1910.94(a);
(ii) Access to employee exposure and medical records. Subpart Z,
Sec. 1910.1020;
(iii) Commercial diving operations. Subpart T;
(iv) Electrical. Subpart S;
(v) Grain handling facilities. Subpart R, Sec. 1910.272;
(vi) Hazard communication. Subpart Z, Sec. 1910.1200;
(vii) Ionizing radiation. Subpart Z, Sec. 1910.1096;
(viii) Noise. Subpart G, Sec. 1910.95;
(ix) Nonionizing radiation. Subpart G, Sec. 1910.97.
(x) Respiratory protection. Subpart I, Sec. 1910.134.
(xi) Safety requirements for scaffolding. Subpart D, Sec. 1910.28;
(xii) Servicing multi-piece and single piece rim wheels. Subpart N,
Sec. 1910.177; and
(xiii) Toxic and hazardous substances. Subpart Z applies to marine
cargo handling activities except for the following:
(A) When a substance or cargo is contained within a sealed, intact
means of packaging or containment complying with Department of
Transportation or International Maritime Organization requirements; \2\
---------------------------------------------------------------------------
\2\ The International Maritime Organization publishes the
International Maritime Dangerous Goods Code to aid compliance with
the international legal requirements of the International Convention
for the Safety of Life at Sea, 1960.
---------------------------------------------------------------------------
(B) Bloodborne pathogens, Sec. 1910.1030;
(C) Carbon monoxide, Sec. 1910.1000 (See Sec. 1917.24(a)); and
(D) Hydrogen sulfide, Sec. 1910.1000 (See Sec. 1917.73(a)(2)).
(c) * * *
(4) Marine terminal means wharves, bulkheads, quays, piers, docks
and other berthing locations and adjacent storage or adjacent areas and
structures associated with the primary movement of cargo or materials
from vessel to shore or shore to vessel including structures which are
devoted to receiving, handling, holding, consolidation and loading or
delivery of waterborne shipments or passengers, including areas devoted
to the maintenance of the terminal or equipment. The term does not
include production or manufacturing areas having their own docking
facilities and located at a marine terminal nor does the term include
storage facilities directly associated with those production or
manufacturing areas.
PART 1917--MARINE TERMINALS
1. The authority citation for part 1917 is revised to read as
follows:
Authority: Sec. 41, Longshore and Harbor Workers' Compensation
Act (33 U.S.C. 941); Secs. 4, 6, 8, Occupational Safety and Health
Act of 1970 (29 U.S.C. 653, 655, 657); Secretary of Labor's Order
No. 12-71 (36 FR 8754), 8-76 (41 FR 25059), 9-83 (48 FR 35736), or
6-96 (62 FR 111), as applicable; 29 CFR part 1911.
Section 1917.28 also issued under 5 U.S.C. 553.
Subpart A--Scope and Definitions
2. Section 1917.1 is amended by revising the introductory text of
paragraph (a), paragraphs (a)(2)(i) through (a)(2)(x) and by adding
paragraphs (a)(2)(xi) through (a)(2)(xiii) and (b) to read as follows:
[[Page 40196]]
Sec. 1917.1 Scope and applicability.
(a) The regulations of this part apply to employment within a
marine terminal as defined in Sec. 1917.2(u), including the loading,
unloading, movement or other handling of cargo, ship's stores or gear
within the terminal or into or out of any land carrier, holding or
consolidation area, any other activity within and associated with the
overall operation and functions of the terminal, such as the use and
routine maintenance of facilities and equipment. All cargo transfer
accomplished with the use of shore-based material handling devices
shall be regulated by this part.
(1) * * *
(2) * * *
(i) Abrasive blasting. Subpart G, Sec. 1910.94(a);
(ii) Access to employee exposure and medical records. Subpart Z,
Sec. 1910.1020;
(iii) Commercial diving operations. Subpart T of part 1910;
(iv) Electrical. Subpart S of part 1910;
(v) Grain handling facilities. Subpart R, Sec. 1910.272;
(vi) Hazard communication. Subpart Z, Sec. 1910.1200;
(vii) Ionizing radiation. Subpart Z, Sec. 1910.1096;
(viii) Noise. Subpart G, Sec. 1910.95;
(ix) Nonionizing radiation. Subpart G, Sec. 1910.97;
(x) Respiratory protection. Subpart I, Sec. 1910.134;
(xi) Safety requirements for scaffolding. Subpart D, Sec. 1910.28;
(xii) Servicing multi-piece and single piece rim wheels. Subpart N,
Sec. 1910.177; and
(xiii) Toxic and hazardous substances. Subpart Z applies to marine
cargo handling activities except for the following:
(A) When a substance or cargo is contained within a sealed, intact
means of packaging or containment complying with Department of
Transportation or International Maritime Organization requirements; \1\
---------------------------------------------------------------------------
\1\ The International Maritime Organization publishes the
International Maritime Dangerous Goods Code to aid compliance with
the international legal requirements of the International Convention
for the Safety of Life at Sea, 1960.
---------------------------------------------------------------------------
(B) Bloodborne pathogens, Sec. 1910.1030;
(C) Carbon monoxide, Sec. 1910.1000 (See Sec. 1917.24(a)); and
(D) Hydrogen sulfide, Sec. 1910.1000 (See Sec. 1917.73(a)(2)).
(b) [Reserved]
3. In Sec. 1917.2, the letter designations to each definition are
removed and the definitions are placed in alphabetical order and the
definitions for the terms intermodal container and marine terminal are
revised to read as follows:
Sec. 1917.2 Definitions.
* * * * *
Intermodal container means a reusable cargo container of a rigid
construction and rectangular configuration; fitted with devices
permitting its ready handling, particularly its transfer from one mode
of transport to another; so designed to be readily filled and emptied;
intended to contain one or more articles of cargo or bulk commodities
for transportation by water and one or more other transport modes. The
term includes completely enclosed units, open top units, fractional
height units, units incorporating liquid or gas tanks and other
variations fitting into the container system. It does not include
cylinders, drums, crates, cases, cartons, packages, sacks, unitized
loads or any other form of packaging.
* * * * *
Marine terminal means wharves, bulkheads, quays, piers, docks and
other berthing locations and adjacent storage or adjacent areas and
structures associated with the primary movement of cargo or materials
from vessel to shore or shore to vessel including structures which are
devoted to receiving, handling, holding, consolidating and loading or
delivery of waterborne shipments or passengers, including areas devoted
to the maintenance of the terminal or equipment. The term does not
include production or manufacturing areas nor does the term include
storage facilities directly associated with those production or
manufacturing areas.
* * * * *
4. A new Sec. 1917.3 is added to subpart A to read as follows:
Sec. 1917.3 Incorporation by reference.
(a) (1) The standards of agencies of the U.S. Government, and
organizations which are not agencies of the U.S. Government which are
incorporated by reference in this part, have the same force and effect
as other standards in this part. Only the mandatory provisions (i.e.
provisions containing the word ``shall'' or other mandatory language)
of standards incorporated by reference are adopted as standards under
the Occupational Safety and Health Act.
(2) Any changes in the standards incorporated by reference in this
part and an official historic file of such changes are available for
inspection at the national office of the Occupational Safety and Health
Administration, U.S. Department of Labor, Washington, DC 20210.
(3) The materials listed in paragraph (b) of this section are
incorporated by reference in the corresponding sections noted as they
exist on the date of the approval, and a notice of any change in these
materials will be published in the Federal Register. These
incorporations by reference (IBRs) were approved by the Director of the
Federal Register in accordance with 5 U.S.C. 552(a) and 1 CFR part 51.
(4) Copies of the following standards that are issued by the
respective private standards organizations may be obtained from the
issuing organizations. The materials are available for purchase at the
corresponding addresses of the private standards organizations noted in
paragraph (b) of this section. In addition, all are available for
inspection at the Office of the Federal Register, 800 North Capitol
Street, NW., suite 700, Washington DC, and through the OSHA Docket
Office, room N2625, U.S. Department of Labor, 200 Constitution Ave.,
Washington, DC 20210, or any of OSHA's regional offices.
(b) The following material is available for purchase from the
American National Standards Institute (ANSI), 11 West 42nd St., New
York, NY 10036:
(1) ANSI A14.1-1990, Safety Requirements for Portable Wood Ladders;
BR approved for Sec. 1917.119(c).
(2) ANSI A14.2-1990, Safety Requirements for Portable Metal
Ladders; BR approved for Sec. 1917.119(c).
(3) ANSI A14.5-1992, Safety Requirements for Portable Reinforced
Plastic Ladders; IBR approved for Sec. 1917.119(c).
(4) ANSI Z-87.1-1989, Practice for Occupational and Educational Eye
and Face Protection; IBR approved for Sec. 1917.91(a)(1).
(5) ANSI Z-89.1-1986, Personnel Protection-Protective Headwear for
Industrial Workers-Requirements; IBR approved for Sec. 1917.93(b).
(6) ANSI Z-41-1991, American National Standard for Personal
Protection-Protective Footwear; IBR approved for Sec. 1917.94(b).
Subpart B--Marine Terminal Operations
5. Section 1917.11 is amended by adding a new paragraph (d) to read
as follows:
Sec. 1917.11 Housekeeping.
* * * * *
(d) Dunnage, lumber, or shoring material in which there are visibly
protruding nails shall be removed from the immediate work area or if
left in the
[[Page 40197]]
area, the nails shall be rendered harmless.
6. Section 1917.13 is amended by revising paragraph (g) and by
adding new paragraphs (h) and (i) to read as follows:
Sec. 1917.13 Slinging.
* * * * *
(g) Intermodal containers shall be handled in accordance with
Sec. 1917.71(f).
(h) The employer shall require employees to stay clear of the area
beneath overhead drafts or descending lifting gear.
(i) Employees shall not be permitted to ride the hook or the load.
7. Section 1917.17 is amended by revising paragraphs (i), (j), and
(k) to read as follows:
Sec. 1917.17 Railroad facilities.
* * * * *
(i) If powered industrial trucks are used to open railcar doors,
the trucks or the railcar doors shall be equipped with door opening
attachments. Employees shall stand clear of the railcar doors while
they are being opened and closed.
(j) Only railcar door openers or powered industrial trucks equipped
with door opening attachments shall be used to open jammed doors.
(k) Employees shall not remain in or on gondolas or flat cars when
drafts that create overhead, caught-in, caught-between or struck-by
hazards are being landed in or on the railcar; end gates, if raised,
shall be secured.
* * * * *
8. Section 1917.20 is revised to read as follows:
Sec. 1917.20 Interference with communications.
Cargo handling operations shall not be carried on when noise-
producing, maintenance, construction or repair work interferes with the
communication of warnings or instructions.
9. Section 1917.23 is amended by revising the heading and
paragraphs (b)(1) and (d) introductory text to read as follows:
Sec. 1917.23 Hazardous atmospheres and substances (See also
Sec. 1917.2(r)).
* * * * *
(b) Determination of hazard. (1) When the employer is aware that a
room, building, vehicle, railcar, or other space contains or has
contained a hazardous atmosphere, a designated and appropriately
equipped person shall test the atmosphere before employee entry to
determine whether a hazardous atmosphere exists.
* * * * *
(d) Entry into hazardous atmospheres. Only designated persons shall
enter hazardous atmospheres, in which case the following shall apply:
* * * * *
10. Section 1917.24, is amended by revising paragraph (a) to read
as follows:
Sec. 1917.24 Carbon monoxide.
(a) Exposure limits. The carbon monoxide content of the atmosphere
in a room, building, vehicle, railcar, or any enclosed space shall be
maintained at not more than 50 parts per million (ppm) (0.005%) as an
eight hour average area level and employees shall be removed from the
enclosed space if the carbon monoxide concentration exceeds a ceiling
of 100 ppm (0.01%).
* * * * *
11. Section 1917.25 is amended by revising paragraphs (a) and (c)
and adding a new paragraph (g) to read as follows:
Sec. 1917.25 Fumigants, pesticides, insecticides and hazardous
preservatives (See also Sec. 1917.2(p)).
(a) At any time that the concentration in any space reaches the
level specified as hazardous by the fumigant manufacturer or by Table
Z-1 of 29 CFR 1910.1000, whichever is lower, all employees shall be
removed from the space and shall not be permitted to re-enter until
such time as tests demonstrate that the atmosphere is safe.
* * * * *
(c) Results of any tests shall be available for at least 30 days.
Such records may be entered on any retrievable medium, and shall be
available for inspection.
* * * * *
(g) In the case of containerized shipments of fumigated tobacco,
the contents of the container shall be aerated by opening the container
doors for a period of 48 hours after the completion of fumigation and
prior to loading. When tobacco is within shipping cases having
polyethylene or similar bag liners, the aeration period shall be 72
hours. The employer shall obtain a written warranty from the fumigation
facility stating that the appropriate aeration period has been met.
12. Section 1917.26 is amended by revising paragraphs (c) and (d)
to read as follows:
Sec. 1917.26 First aid and lifesaving facilities.
* * * * *
(c) First aid kit. First aid kits shall be weatherproof and shall
contain individual sealed packages for each item that must be kept
sterile. The contents of each kit shall be determined by a person
certified in first aid and cognizant of the hazards found in marine
cargo handling operations. The contents shall be checked at intervals
that allow prompt replacement of expended items.
(d) Stretchers. (1) There shall be available for each vessel being
worked one Stokes basket stretcher, or its equivalent, permanently
equipped with bridles for attaching to the hoisting gear.
(2) Stretchers shall be kept close to vessels and shall be
positioned to avoid damage to the stretcher.
(3) A blanket or other suitable covering shall be available.
(4) Stretchers shall have at least four sets of effective patient
restraints in operable condition.
(5) Lifting bridles shall be of adequate strength, capable of
lifting 1,000 pounds (454 kg) with a safety factor of five, and shall
be maintained in operable condition. Lifting bridles shall be provided
for making vertical patient lifts at container berths. Stretchers for
vertical lifts shall have foot plates.
(6) Stretchers shall be maintained in operable condition. Struts
and braces shall be inspected for damage. Wire mesh shall be secured
and have no burrs. Damaged stretchers shall not be used until repaired.
(7) Stretchers in permanent locations shall be mounted to prevent
damage and shall be protected from the elements if located out-of-
doors. If concealed from view, closures shall be marked to indicate the
location of the life saving equipment.
* * * * *
13. Section 1917.27 is amended by revising paragraph (a)(2) and
adding a note to read as follows:
Sec. 1917.27 Personnel.
(a) * * *
(2) No employee known to have defective uncorrected eyesight or
hearing, or to be suffering from heart disease, epilepsy, or similar
ailments that may suddenly incapacitate the employee, shall be
permitted to operate a crane, winch or other power-operated cargo
handling apparatus or a power-operated vehicle.
Note to paragraph (a)(2): OSHA is defining suddenly
incapacitating medical ailments consistent with the Americans with
Disabilities Act (ADA), 42 U.S.C. 12101 (1990). Therefore, employers
who act in accordance with the employment provisions (Title I) of
the ADA (42 U.S.C. 12111-12117), the regulations implementing Title
I (29 CFR part 1630), and the Technical Assistance Manual for Title
I issued by the Equal Employment Opportunity Commission (Publication
number: EEOC--M1A), will be
[[Page 40198]]
considered as being in compliance with this paragraph.
* * * * *
14. Section 1917.28 is amended by removing the regulatory text and
revising the section heading to read as follows:
Sec. 1917.28 Hazard communication (See also Sec. 1917.1(a)(2)(vi)).
15. A new section 1917.30, Emergency action plans, is added to
subpart B to read as follows:
Sec. 1917.30 Emergency action plans.
(a) Emergency action plans. (1) Scope and application. This
paragraph (a) requires all employers to develop and implement an
emergency action plan. The emergency action plan shall be in writing
(except as provided in the last sentence of paragraph (a)(5)(iii) of
this section) and shall cover those designated actions employers and
employees must take to ensure employee safety from fire and other
emergencies.
(2) Elements. The following elements, at a minimum, shall be
included in the plan:
(i) Emergency escape procedures and emergency escape route
assignments;
(ii) Procedures to be followed by employees who remain to operate
critical plant operations before they evacuate;
(iii) Procedures to account for all employees after emergency
evacuation has been completed;
(iv) Rescue and medical duties for those employees who are to
perform them;
(v) The preferred means of reporting fires and other emergencies;
and
(vi) Names or regular job titles of persons or departments that can
be contacted for further information or explanation of duties under the
plan.
(3) Alarm system. The employer shall establish an employee alarm
system that provides warning for necessary emergency action and for
reaction time for safe escape of employees from the workplace or the
immediate work area.
(4) Evacuation. The employer shall establish the types of
evacuation to be used in emergency circumstances.
(5) Training. (i) Before implementing the emergency action plan,
the employer shall designate and train a sufficient number of persons
to assist in the safe and orderly emergency evacuation of employees.
(ii) The employer shall review the plan with each employee covered
by the plan at the following times:
(A) Initially when the plan is developed;
(B) Whenever the employee's responsibilities or designated actions
under the plan change; and
(C) Whenever the plan is changed.
(iii) The employer shall review with each employee upon initial
assignment those parts of the plan that the employee must know to
protect the employee in the event of an emergency. The written plan
shall be kept at the workplace and be made available for employee
review.
(iv) Employers with 10 or fewer employees may communicate the plan
orally to employees and need not maintain a written plan
(b) [Reserved]
Subpart C--Cargo Handling Gear and Equipment
16. Section 1917.42 is amended by revising paragraphs (b)(4),
(Table C-1 remains unchanged), (c)(1) and (d), adding (g)(2)(vi), and
revising (h)(4), (h)(5), and (j)(1) to read as follows:
Sec. 1917.42 Miscellaneous auxiliary gear.
* * * * *
(b) * * *
(4) Where wire rope clips are used to form eyes, the employer shall
adhere to the manufacturers' recommendations, which shall be made
available for inspection. If ``U'' bolt clips are used and the
manufacturers' recommendations are not available, Table C-1 shall be
used to determine the number and spacing of the clips. ``U'' bolts
shall be applied with the ``U'' section in contact with the dead end of
the rope.
* * * * *
(c) * * *
(1) The employer shall ascertain the manufacturers' ratings for the
specific natural fiber rope used and have such ratings available for
inspection. The manufacturers' ratings shall be adhered to and a
minimum design safety factor of five maintained.
* * * * *
(d) Synthetic rope. (1) The employer shall adhere to the
manufacturers' ratings and use recommendations for the specific
synthetic fiber rope used and shall make such ratings available for
inspection.
(2) Unless otherwise recommended by the manufacturer, when
synthetic fiber ropes are substituted for fiber ropes of less than
three inches (7.62 cm) in circumference, the substitute shall be of
equal size. Where substituted for fiber rope of three inches or more in
circumference, the size of the synthetic rope shall be determined from
the formula:
C=0.6Cs\2\+0.4Cm\2\
Where C= the required circumference of the synthetic rope in inches,
Cs= the circumference to the nearest one-quarter inch of a synthetic
rope having a breaking strength not less than that of the size fiber
rope that is required by paragraph (c) of this section and Cm= the
circumference of the fiber rope in inches that is required by paragraph
(c) of this section. In making such substitution, it shall be
ascertained that the inherent characteristics of the synthetic fiber
are suitable for hoisting.
* * * * *
(g) * * *
(2) * * *
(vi) Display of visible warning threads or markers designed to
indicate excessive wear or damage.
* * * * *
(h) * * *
(4) Chains shall be repaired only under qualified supervision.
Links or portions of chain defective under any of the criteria of
paragraph (h)(3)(iii) of this section shall be replaced with properly
dimensioned links or connections of material similar to those of the
original chain. Before repaired chains are returned to service, they
shall be tested to the proof load recommended by the manufacturer of
the original chain. Tests shall be performed by the manufacturer or
shall be certified by an agency accredited for the purpose under part
1919 of this chapter. Test certificates shall be available for
inspection.
(5) Wrought iron chains in constant use shall be annealed or
normalized at intervals not exceeding six months. Heat treatment
certificates shall be available for inspection. Alloy chains shall not
be annealed.
* * * * *
(j) Hooks other than hand hooks. (1) The manufacturers' recommended
safe working loads for hooks shall not be exceeded. Hooks other than
hand hooks shall be tested in accordance with Sec. 1917.50(c)(6).
* * * * *
17. Section 1917.43 is amended by revising paragraphs (e)(1)(i),
(e)(6)(iii), and by adding a new paragraph (f)(3) to read as follows:
Sec. 1917.43 Powered industrial trucks.
* * * * *
(e) Fork lift trucks. (1) Overhead guards. (i) When operators are
exposed to overhead falling hazards, fork lift trucks shall be equipped
with securely attached overhead guards. Guards shall be constructed to
protect the operator
[[Page 40199]]
from falling boxes, cartons, packages, or similar objects.
* * * * *
(6) Lifting of employees. * * *
(iii) An employee shall be at the truck's controls whenever
employees are elevated.
* * * * *
(f) * * *
(3) After July 26, 1999 bulk cargo-moving vehicles shall be
equipped with rollover protection of such design and construction as to
prevent the possibility of the operator being crushed because of a
rollover or upset.
* * * * *
18. Section 1917.44 is amended by revising paragraphs (a), (i),
(o)(3)(i), (o)(3)(ii) introductory text, and (o)(4) introductory text
to read as follows:
Sec. 1917.44 General rules applicable to vehicles.\4\
(a) The requirements of this section apply to general vehicle use
within marine terminals. Exception: The provisions of paragraphs (c)
and (l) of this section do not apply when preempted by applicable
regulations of the Department of Transportation.\5\
---------------------------------------------------------------------------
\4\ The United States Coast Guard at 33 CFR 126.15(d) and (e)
has additional regulations applicable to vehicles in terminals.
\5\ Department of Transportation regulations in 49 CFR part 393,
Subpart C-Brakes, address the immobilization of trailer road wheels
prior to disconnection of the trailer and until braking is again
provided. Section 49 CFR 393.84 addresses the condition of flooring.
These DOT rules apply when the motor carrier is engaged in
interstate commerce or in the transport of certain hazardous items
wholly within a municipality or the commercial zone thereof.
---------------------------------------------------------------------------
* * * * *
(i) A distance of not less than 20 feet (6.1 m) shall be maintained
between the first two vehicles in a check-in, check-out, roadability,
or vessel loading/discharging line. This distance shall be maintained
between any subsequent vehicles behind which employees are required to
work.
* * * * *
(o) * * *
(3) * * *
(i) Only employees trained in the procedures required in paragraph
(o)(4) of this section and who have demonstrated their ability to
service multi-piece rim wheels shall be assigned such duties.
(ii) Employees assigned such duties shall have demonstrated their
ability by the safe performance of the following tasks: * * *
(4) Servicing procedures. The following procedures shall be
followed:
* * * * *
19. Section 1917.45 is amended by revising the section heading,
paragraphs (f)(4)(iii), (f)(5), (f)(7), (f)(13)(ii), (f)(13)(iii)(A),
(i)(5)(i) introductory text, (j)(1)(iii)(D), and (j)(2), and by adding
new paragraphs (g)(11), (j)(9) and (j)(10), to read as follows:
Sec. 1917.45 Cranes and derricks (See also Sec. 1917.50).
* * * * *
(f) * * *
(4) * * *
(iii) Stairways on cranes shall be equipped with rigid handrails
meeting the requirements of Sec. 1917.112(e).
* * * * *
(5) Operator's station. (i) The cab, controls and mechanism of the
equipment shall be so arranged that the operator has a clear view of
the load or signalman, when one is used. Cab glass, when used, shall be
safety plate glass or equivalent. Cranes with missing, broken, cracked,
scratched, or dirty glass (or equivalent) that impairs operator
visibility shall not be used. Clothing, tools and equipment shall be
stored so as not to interfere with access, operation, and the
operator's view.
(ii) A seat (lap) belt, meeting the requirements of 49 CFR 571.208-
210 for a Type 1 seat belt assembly, shall be installed on the
operator's seat of high speed container gantry cranes where the seat
trolleys.
* * * * *
(7) Outriggers. Outriggers shall be used according to the
manufacturers' specifications or design data, which shall be available.
Floats, when used, shall be securely attached to the outriggers. Wood
blocks or other support shall be of sufficient size to support the
outrigger, free of defects that may affect safety and of sufficient
width and length to prevent the crane from shifting or toppling under
load.
* * * * *
(13) * * *
(ii) Each independent hoisting unit of a crane, except worm geared
hoists, the angle of whose worm is such as to prevent the load from
accelerating in the lowering direction, shall, in addition to a holding
brake, be equipped with a controlled braking means to control lowering
speeds.
(iii) * * *
(A) 125 percent when used with an other than mechanically
controlled braking means; or
* * * * *
(g) * * *
(11) Limit switch bypass systems shall be secured during all cargo
operations. Such bypass systems shall not be used except in an
emergency or during non-cargo handling operations such as stowing
cranes or derricks or performing repairs. When a situation requiring
the use of a bypass system or the readjustment of a limit switch
arises, it shall be done only under the direction of a crane mechanic.
* * * * *
(i) * * *
(5) Operating near electric power lines. (i) Clearance. Unless
electrical distribution and transmission lines are de-energized and
visibly grounded at the point of work, or unless insulating barriers
not a part of or attached to the crane have been erected to prevent
physical contact with lines, cranes may be operated near power lines
only in accordance with the following:
* * * * *
(j) * * *
(1) * * *
(iii) * * *
(D) Equipped with a device to prevent access doors, when used, from
opening accidentally;
* * * * *
(2) Except in an emergency, the hoisting mechanism of all cranes or
derricks used to hoist personnel shall operate only in power up and
power down, with automatic brake application when not hoisting or
lowering.
* * * * *
(9) Employees shall not be hoisted on intermodal container
spreaders while a load is engaged.
(10) All cranes and derricks used to hoist personnel shall be
equipped with an anti-two-blocking device.
* * * * *
20. Section 1917.46 is amended by revising the heading and
paragraphs (a)(1)(ii) and (a)(1)(viii)(A) to read as follows:
Sec. 1917.46 Load indicating devices.
(a) * * *
(1) * * *
(ii) The accuracy of the load indicating device, weight-moment
device, or overload protection device shall be such that any indicated
load (or limit), including the sum of actual weight hoisted and
additional equipment or ``add ons'' such as slings, sensors, blocks,
etc., is within the range between 95 percent (5 percent underload) and
110 percent (10 percent overload) of the actual true total load. Such
accuracy shall be required over the range of daily operating variables
reasonably anticipated under the conditions of use.
* * * * *
(viii) * * *
(A) Of trolley equipped bridge type or overhead type while handling
intermodal containers known to be identified as empty, or loaded, and
in
[[Page 40200]]
either case in compliance with the provisions of Sec. 1917.71, or while
hoisting other lifts by means of a lifting beam supplied by the crane
manufacturer for the purpose, and in all cases within the crane rating;
* * * * *
21. Section 1917.48 is amended by revising paragraph (d)(2) to read
as follows:
Sec. 1917.48 Conveyors.
* * * * *
(d) * * *
(2) Conveyors using electrically released brakes shall be
constructed so that the brakes cannot be released until power is
applied, and so that the brakes are automatically engaged if the power
fails or the operating control is returned to the ``stop'' position.
* * * * *
22. Section 1917.50 is amended by revising the heading and
paragraph (c)(5), by redesignating paragraph (i) as new paragraph (j),
and revising it, and by adding a new paragraph (i) to read as follows:
Sec. 1917.50 Certification of marine terminal material handling
devices (See also mandatory Appendix IV, part 1918 of this chapter).
* * * * *
(c) * * *
(5) Special gear. (i) Special stevedoring gear provided by the
employer, the strength of which depends upon components other than
commonly used stock items such as shackles, ropes, or chains, and that
has a Safe Working Load (SWL) greater than five short tons (10,000 lbs
or 4.5 metric tons) shall be inspected and tested as a unit before
initial use (see Table A of this section).
(ii) Special stevedoring gear provided by the employer that has a
SWL of five short tons (10,000 or 4.5 metric tons) or less shall be
inspected and tested as a unit before initial use according to
paragraphs (d) and (e) of this section or by a designated person (see
Table A).
Table A
------------------------------------------------------------------------
Safe working load Proof load
------------------------------------------------------------------------
Up to 20 short tons (18.1 metric tons).... 25 percent in excess.
From 20 through 50 short tons (18.1 to 5 short tons in excess.
45.3 metric tons).
Over 50 short tons (45.3 metric tons)..... 10 percent in excess.
------------------------------------------------------------------------
(iii) Every spreader that is not a part of ship's gear and is used
for handling intermodal containers shall be inspected and tested before
initial use to a proof load equal to 25 percent greater than its rated
capacity. In addition, any spreader that suffers damage necessitating
structural repair shall be inspected and retested after repair and
before being returned to service.
(iv) All cargo handling gear covered by this section with a SWL
greater than five short tons (10,000 lbs. or 4.5 metric tons) shall be
proof load tested according to table A of this section every 4 years in
accordance with paragraph (b) of this section or by a designated
person.
(v) Certificates and inspection and test records attesting to the
tests required by this section shall be available for inspection.
* * * * *
(i) Safe working load. (1) The safe working load of gear as
specified in this section shall not be exceeded.
(2) All cargo handling gear provided by the employer with a safe
working load greater than five short tons (10,000 lbs. or 4.5 metric
tons) shall have its safe working load plainly marked on it.
(j) Exceptions: The certification requirements of this section do
not apply to the following equipment:
(1) Small industrial crane trucks as described and illustrated in
ANSI B56.1, 1959, ``Safety Code for Powered Industrial Trucks'', and
powered industrial trucks; and
(2) Any straddle truck not capable of straddling two or more
intermodal containers 16 feet (4.8 m) in width.
* * * * *
23. Section 1917.71 is amended by revising paragraphs (b)(6),
(b)(7), (c), (e), and (f)(1)(i) and adding new paragraphs (b)(8),
(f)(4) and (f)(5) to read as follows:
Sec. 1917.71 Terminals handling intermodal containers or roll-on roll-
off operations.
* * * * *
(b) * * *
(6) Closed dry van containers carrying vehicles are exempted from
paragraph (b)(4) of this section provided that:
(i) The container carries only completely assembled vehicles and no
other cargo;
(ii) The container is marked on the outside in such a manner that
an employee can readily discern that the container is carrying
vehicles; and
(iii) The vehicles were loaded into the container at the marine
terminal.
(7) The weight of loaded inbound containers from foreign ports
shall be determined by weighing or by the method of calculation
described in paragraph (b)(4)(ii) of this section or by shipping
documents.
(8) Any scale used within the United States to weigh containers for
the purpose of the requirements of this section shall meet the accuracy
standards of the state or local public authority in which the scale is
located.
(c) No container or containers shall be hoisted if their actual
gross weight exceeds the weight marked as required in paragraph (a)(2)
of this section, or if it exceeds the capacity of the crane or other
hoisting device intended to be used.
* * * * *
(e) Each employee working in the immediate area of container
handling equipment or in the terminal's traffic lanes shall wear a high
visibility vest (or equivalent protection).\7\
---------------------------------------------------------------------------
\7\ Decals on hard hats will not be considered equivalent
protection for the purposes of this paragraph.
Note to paragraph (3e): High visibility vests or equivalent
protection means high visibility/retroreflective materials which are
intended to provide conspicuity of the user by day through the use
of high visibility (fluorescent) material and in the dark by vehicle
headlights through the use of retroreflective material. The minimum
area of material for a vest or equivalent protection is .5 m\2\ (760
in.\2\) for fluorescent (background) material and .13m\2\ (197
---------------------------------------------------------------------------
in.\2\) for retroreflective material.
(f) * * *
(1) * * *
(i) When hoisting containers by the top fittings, the lifting
forces shall be applied vertically from at least four such fittings. A
less than vertical lift is permitted only under the following
conditions:
(A) The container being lifted is an ISO closed box container;
(B) The condition of the box is sound;
(C) The speed of hoisting and lowering is moderated when heavily
ladened containers \8\ are encountered;
---------------------------------------------------------------------------
\8\ A heavily laden container is one that is loaded to within 20
percent of its rated capacity.
---------------------------------------------------------------------------
(D) The lift angle is at 80 to 90 degrees;
(E) The distance between the lifting beam and the load is at least
8 feet and 2.4 inches (2.5 m); and
(F) The length of the spreader beam is at least 16.3 feet (5 m) for
a 20-foot container, and at least 36.4 feet (11 m) for a 40-foot
container.
* * * * *
(4) After July 27, 1998, flat bed, low boy trailers (mafis) and
other similar equipment used to transport containers shall be marked
with their cargo capacities and shall not be overloaded.
(5) Each tractor shall have all brake air lines connected when
pulling trailers equipped with air brakes and shall have the brakes
tested before commencing operations.
* * * * *
[[Page 40201]]
24. Section 1917.73 is amended by revising the section heading as
follows:
Sec. 1917.73 Terminal facilities handling menhaden and similar species
of fish (See also Sec. 1917.2, definition of hazardous cargo,
materials, substance, or atmosphere).
* * * * *
25. Section 1917.91 is amended by revising paragraph (a)(1) and
revising the section heading to read as follows:
Sec. 1917.91 Eye and face protection.
(a)(1) The employer shall ensure that each affected employee uses
appropriate eye and/or face protection where there are exposures to eye
and/or face hazards. Such equipment shall comply with American National
Standards Institute, ANSI Z-87.1-1989, ``Practice for Occupational and
Educational Eye and Face Protection.''
* * * * *
26. Section 1917.93 is amended by revising paragraphs (a) and (b)
to read as follows:
Sec. 1917.93 Head protection.
(a) The employer shall ensure that each affected employee wears a
protective helmet when working in areas where there is a potential for
injury to the head from falling objects.
(b) Such equipment shall comply with American National Standards
Institute, ANSI Z-89.1-1986, ``Personnel Protection-Protective Headwear
for Industrial Workers-Requirements.'' * * *
27. Section 1917.94 is revised to read as follows:
Sec. 1917.94 Foot protection.
(a) The employer shall ensure that each affected employee wears
protective footwear when working in areas where there is a danger of
foot injuries due to falling or rolling objects or objects piercing the
sole.
(b) Such equipment shall comply with American National Standards
Institute, ANSI Z-41-1991, ``American National Standard for
Personal Protection-Protective Footwear.''
28. Section 1917.95 is amended by revising paragraph (b)(2) to read
as follows:
Sec. 1917.95 Other protective measures.
* * * * *
(b) * * *
(2) Personal flotation devices (PFD) (life preservers, life
jackets, and work vests) worn by each affected employee shall be any
United States Coast Guard (USCG) approved and marked Type I PFD, Type
II PFD or Type III PFD; or shall be a USCG approved Type V PFD that is
marked for use as a work vest, for commercial use, or for use on
vessels. USCG approval is pursuant to 46 CFR part 160, Coast Guard
Lifesaving Equipment Specifications.
* * * * *
29. Section 1917.112 is amended by revising paragraph (a)(1) to
read as follows:
Sec. 1917.112 Guarding of edges.
(a) * * *
(1) Vehicle curbs, bull rails, or other effective barriers at least
six inches (15.24 cm) in height shall be provided at the waterside
edges of aprons and bulkheads, except where vehicles are prohibited.
Curbs or bull rails installed after October 3, 1983, shall be at least
10 inches (25.4 cm) in height.
* * * * *
30. Section 1917.118 is amended by revising paragraphs (d)(2)(i)
and (f)(2) to read as follows:
Sec. 1917.118 Fixed ladders.
* * * * *
(d) * * *
(2)(i) Ladders installed before October 3, 1983, shall have rungs
evenly spaced from nine to 16\1/2\ inches (22.9 to 41.9 cm) apart,
center to center.
* * * * *
(f) * * *
(2) Form a continuous ladder, uniformly spaced vertically from 12
inches to 16 inches (30.5 to 41 cm) apart, with a minimum width of 10
inches (25.4 cm) and projecting at least 4\1/2\ inches (11.43 cm) from
the wall;
* * * * *
31. Section 1917.119 is amended by revising paragraphs (b)(1), (c),
(d)(2), and (f)(4) to read as follows:
Sec. 1917.119 Portable ladders.
* * * * *
(b) * * *
(1) Rungs of manufactured portable ladders obtained before October
3, 1983, shall be capable of supporting a 200-pound (890 N) load
without deformation.
* * * * *
(c) Standards for manufactured portable ladders. Portable
manufactured ladders obtained after January 21, 1998 shall bear
identification indicating that they meet the appropriate ladder
construction requirements of the following standards:
ANSI A14.1-1990, Safety Requirements for Portable Wood Ladders
ANSI A14.2-1990, Safety Requirements for Portable Metal Ladders
ANSI A14.5-1992, Safety Requirements for Portable Reinforced Plastic
Ladders
(d) * * *
(2) Are capable of supporting a 250-pound (1120 N) load without
deformation; and
* * * * *
(f) * * *
(4) Individual sections from different multi-sectional ladders or
two or more single straight ladders shall not be tied or fastened
together to achieve additional length.
* * * * *
32. Section 1917.121 is amended by revising paragraph (b)(3) to
read as follows:
Sec. 1917.121 Spiral stairways.
* * * * *
(b) * * *
(3) Minimum loading capability shall be 100 pounds per square foot
(4.79 kN), and minimum tread center concentrated loading shall be 300
pounds (1334 N);
* * * * *
32a. Section 1917.123 is amended by redesignating footnote 7 as
footnote 9.
33. Section 1917.124 is amended by adding new paragraphs (c)(5),
(c)(6), and (d)(5) and revising the section heading and paragraph
(d)(1) to read as follows:
Sec. 1917.124 Dockboards (car and bridge plates).
* * * * *
(c) * * *
(5) Be designed, constructed, and maintained to prevent vehicles
from running off the edge.\10\
---------------------------------------------------------------------------
\10\ When the gap to be bridged to greater than 36 inches (.91
m), an acceptable means of preventing vehicles from running off the
edge is a minimum side board height of two and three-quarter inches.
---------------------------------------------------------------------------
(6) Dockboards shall be well maintained.
* * * * *
(d) Ramps. (1) Ramps shall be strong enough to support the loads
imposed on them and be designed, constructed, and maintained to prevent
vehicles from running off the edge.\11\
---------------------------------------------------------------------------
\11\ When the gap to be bridged is greater than 36 inches (.91
m), an acceptable means of preventing vehicles from running off the
edge is a minumum side board height of two and three-quarter inches.
---------------------------------------------------------------------------
* * * * *
(5) Ramps shall be well maintained.
34. Section 1917.126 is amended by revising paragraph (b) to read
as follows:
Sec. 1917.126 River banks.
* * * * *
(b) Where working surfaces at river banks slope so steeply that an
employee could slip or fall into the water, the outer perimeter of the
working surface shall be protected by posting or other portable
protection such as roping off. In these situations, employees must wear
a personal flotation device meeting the requirements of
Sec. 1917.95(b).
[[Page 40202]]
35. Section 1917.152 is amended by revising the section heading and
redesignating footnote 8 as footnote 12 to read as follows:
Sec. 1917.152 Welding, cutting and heating (hot work) \12\ (See also
Sec. 1917.2, definition of Hazardous cargo, materials, substance, or
atmosphere).
---------------------------------------------------------------------------
\12\ The U.S. Coast Guard, at 33 CFR 126.15(c), requires prior
permission of the Captain of the Port if welding or other hot work
is to be carried out at a facility where dangerous cargoes as
defined by 33 CFR 126.07 are located or being handled.
---------------------------------------------------------------------------
* * * * *
36. Section 1917.153 is amended by revising the section heading to
read as follows:
Sec. 1917.153 Spray painting (See also Sec. 1917.2, definition of
Hazardous cargo, materials, substance, or atmosphere).
* * * * *
37. Section 1917.156 is amended by revising paragraph
(b)(3)(iii)(D) to read as follows:
Sec. 1917.156 Fuel handling and storage.
* * * * *
(b) * * *
(3) * * *
(iii) * * *
(D) Leakage at valves or connections; and
* * * * *
38. Section 1917.157 is amended by revising paragraph (n) to read
as follows:
Sec. 1917.157 Battery charging and changing.
* * * * *
(n) Chargers shall be turned off when leads are being connected or
disconnected.
* * * * *
PART 1918--[REVISED]
Part 1918 is revised to read as follows:
PART 1918--SAFETY AND HEALTH REGULATIONS FOR LONGSHORING
Subpart A--Scope and Definitions
Sec.
1918.1 Scope and application.
1918.2 Definitions.
1918.3 Incorporation by reference
Subpart B--Gear Certification
1918.11 Gear certification (See also Secs. 1918.2 and 1918.51).
Subpart C--Gangways and Other Means of Access
1918.21 General requirements.
1918.22 Gangways.
1918.23 Jacob's ladders.
1918.24 Fixed and portable ladders.
1918.25 Bridge plates and ramps (See also Sec. 1918.86).
1918.26 Access to barges and river towboats.
Subpart D--Working Surfaces 1918.31 Hatch coverings.
1918.32 Stowed cargo and temporary landing surfaces.
1918.33 Deck loads.
1918.34 Other decks.
1918.35 Open hatches.
1918.36 Weather deck rails.
1918.37 Barges.
Subpart E--Opening and Closing Hatches
1918.41 Coaming clearances.
1918.42 Hatch beam and pontoon bridles.
1918.43 Handling hatch beams and covers.
Subpart F--Vessel's Cargo Handling Gear
1918.51 General requirements (See also Sec. 1918.11 and Appendix
III of this part).
1918.52 Specific requirements.
1918.53 Cargo winches.
1918.54 Rigging gear.
1981.55 Cranes (See also Sec. 1918.11).
Subpart G--Cargo Handling Gear and Equipment Other Than Ship's Gear
1918.61 General (See also Appendix IV of this part).
1918.62 Miscellaneous auxiliary gear.
1918.63 Chutes, gravity conveyors and rollers.
1918.64 Powered conveyors.
1918.65 Mechanically-powered vehicles used aboard vessels.
1918.66 Cranes and derricks other than vessel's gear.
1918.67 Notifying ship's officers before using certain equipment.
1918.68 Grounding.
1918.69 Tools.
1918.70-.80 [Reserved]
Subpart H--Handling Cargo
1918.81 Slinging.
1918.82 Building drafts.
1918.83 Stowed cargo; tiering and breaking down.
1918.84 Bulling cargo.
1918.85 Containerized cargo operations.
1918.86 Roll-on roll-off (Ro-Ro) operations (See also
Sec. 1918.25).
1918.87 Ship's cargo elevators.
1918.88 Log operations.
1918.89 Handling hazardous cargo (See also Sec. 1918.2 and
Sec. 1918.99).
Subpart I--General Working Conditions
1918.90 Hazard communication (See also Sec. 1918.1(b)(4)).
1918.91 Housekeeping.
1918.92 Illumination.
1918.93 Hazardous atmospheres and substances (See also
Sec. 1918.2(j)).
1918.94 Ventilation and atmospheric conditions (See also
Sec. 1918.2).
1918.95 Sanitation.
1918.96 Maintenance and repair work in the vicinity of longshoring
operations.
1918.97 First aid and lifesaving facilities. (See Appendix V of
this part).
1918.98 Qualifications of machinery operators and supervisory
training.
1918.99 Retention of DOT markings, placards, and labels.
1918.100 Emergency action plans.
Subpart J--Personal Protective Equipment
1918.101 Eye and face protection.
1918.102 Respiratory protection.
1918.103 Head protection.
1918.104 Foot protection.
1918.105 Other protective measures.
Appendix I--Cargo Gear Register and Certificates (Non-mandatory)
Appendix II--Tables for Selected Miscellaneous Auxiliary Gear
(Mandatory)
Appendix III--The Mechanics of Conventional Cargo Gear (Non-
mandatory)
Appendix IV--Special Cargo Gear (Mandatory)
Appendix V--Basic Elements of a First Aid Training Program (Non-
Mandatory)
Authority: Secs. 4, 6, and 8 of the Occupational Safety and
Health Act, 29 U.S.C. 653, 655, 657; Walsh-Healey Act, 41 U.S.C. 35
et seq.; Service Contract Act of 1965, 41 U.S.C. 351 et seq.; Sec.
107, Contract Work Hours and Safety Standards Act (Construction
Safety Act), 40 U.S.C. 333; Sec. 41, Longshore and Harbor Workers'
Compensation Act, 33 U.S.C. 941; National Foundation of Arts and
Humanities Act, 20 U.S.C. 951 et seq.; Secretary of Labor's Order
No. 6-96 (62 FR 111).
Subpart A--Scope and Definitions
Sec. 1918.1 Scope and application.
(a) The regulations of this part apply to longshoring operations
and related employments aboard vessels. All cargo transfer accomplished
with the use of shore-based material handling devices is covered by
part 1917 of this chapter.
(b) Part 1910 of this chapter does not apply to longshoring except
for the following provisions:
(1) Access to employee exposure and medical records. Subpart Z,
Sec. 1910.1020;
(2) Commercial diving operations. Subpart T;
(3) Electrical. Subpart S when shore-based electrical installations
provide power for use aboard vessels;
(4) Hazard communication. Subpart Z, Sec. 1910.1200;
(5) Ionizing radiation. Subpart Z, Sec. 1910.1096;
(6) Noise. Subpart G, Sec. 1910.95;
(7) Nonionizing radiation. Subpart G, Sec. 1910.97;
Note to paragraph (b)(7): Exposures to nonionizing radiation
emissions from commercial vessel radar transmitters are considered
hazardous under the following situations: (a) where the radar is
transmitting, the scanner is stationary, and the exposure distance
is 19 feet (6 m) or less; or (b) where the radar is transmitting,
the scanner is rotating, and the exposure distance is 5 feet (1.8
m.) or less.
(8) Respiratory protection. Subpart I, Sec. 1910.134; and
(9) Toxic and hazardous substances. Subpart Z applies to marine
cargo
[[Page 40203]]
handling activities except for the following:
(i) When a substance or cargo is contained within a sealed, intact
means of packaging or containment complying with Department of
Transportation or International Maritime Organization requirements;\1\
---------------------------------------------------------------------------
\1\ The International Maritime Organization publishes the
International Maritime Dangerous Goods Code to aid compliance with
the international legal requirements of the International Convention
for the Safety of Life at Sea, 1960.
---------------------------------------------------------------------------
(ii) Bloodborne pathogens, Sec. 1910.1030;
(iii) Carbon monoxide, Sec. 1910.1000 (See Sec. 1918.94(a)); and
(iv) Hydrogen sulfide, Sec. 1910.1000 (See Sec. 1918.94(f)).
Sec. 1918.2 Definitions.
Barge means an unpowered, flatbottomed, shallow draft vessel
including river barges, scows, carfloats, and lighters. It does not
include ship shaped or deep draft barges.
Bulling means the horizontal dragging of cargo across a surface
with none of the weight of the cargo supported by the fall.
Danger zone means any place in or about a machine or piece of
equipment where an employee may be struck by or caught between moving
parts, caught between moving and stationary objects or parts of the
machine, caught between the material and a moving part of the machine,
burned by hot surfaces or exposed to electric shock. Examples of danger
zones are nip and shear points, shear lines, drive mechanisms, and
areas underneath counterweights.
Designated person means a person who possesses specialized
abilities in a specific area and is assigned by the employer to do a
specific task in that area.
Dockboards (car and bridge plates) mean devices for spanning short
distances between, for example, two barges, that is not higher than
four feet (1.2 m) above the water or next lower level.
Employee means any longshore worker or other person engaged in
longshoring operations or related employments other than the master,
ship's officers, crew of the vessel, or any person engaged by the
master to load or unload any vessel of less than 18 net tons.
Employer means a person that employs employees in longshoring
operations or related employments, as defined in this section.
Enclosed space means an interior space in or on a vessel that may
contain or accumulate a hazardous atmosphere due to inadequate natural
ventilation. Examples of enclosed spaces are holds, deep tanks and
refrigerated compartments.
Fall hazard means the following situations:
(1) Whenever employees are working within three feet (.9 m) of the
unprotected edge of a work surface that is 8 feet or more (2.4 m) above
the adjoining surface and twelve inches (.3 m) or more, horizontally,
from the adjacent surface; or
(2) Whenever weather conditions may impair the vision or sound
footing of employees working on top of containers.
Fumigant is a substance or mixture of substances, used to kill
pests or prevent infestation, that is a gas or is rapidly or
progressively transformed to the gaseous state, although some
nongaseous or particulate matter may remain and be dispersed in the
treatment space.
Gangway means any ramp-like or stair-like means of access provided
to enable personnel to board or leave a vessel, including accommodation
ladders, gangplanks and brows.
Hatch beam or strongback mean a portable transverse or longitudinal
beam placed across a hatchway that acts as a bearer to support the
hatch covers.
Hazardous cargo, materials, substance or atmosphere means:
(1) Any substance listed in 29 CFR part 1910, subpart Z;
(2) Any material in the Hazardous Materials Table and Hazardous
Materials Communications Regulations of the Department of
Transportation, 49 CFR part 172;
(3) Any article not properly described by a name in the Hazardous
Materials Table and Hazardous Materials Communication Regulations of
the Department of Transportation, 49 CFR part 172, but which is
properly classified under the definitions of those categories of
dangerous articles given in 49 CFR part 173; or
(4) Any atmosphere with an oxygen content of less than 19.5 percent
or greater than 23 percent.
Intermodal container means a reusable cargo container of a rigid
construction and rectangular configuration; fitted with devices
permitting its ready handling, particularly its transfer from one mode
of transport to another; so designed to be readily filled and emptied;
intended to contain one or more articles of cargo or bulk commodities
for transportation by water and one or more other transport modes. The
term includes completely enclosed units, open top units, fractional
height units, units incorporating liquid or gas tanks and other
variations fitting into the container system. It does not include
cylinders, drums, crates, cases, cartons, packages, sacks, unitized
loads or any other form of packaging.
Longshoring operations means the loading, unloading, moving or
handling of cargo, ship's stores, gear, or any other materials, into,
in, on, or out of any vessel.
Mississippi River System includes the Mississippi River from the
head of navigation to its mouth, and navigable tributaries including
the Illinois Waterway, Missouri River, Ohio River, Tennessee River,
Allegheny River, Cumberland River, Green River, Kanawha River,
Monongahela River, and such others to which barge operations extend.
Public vessel means a vessel owned and operated by a government and
not regularly employed in merchant service.
Ramp means other flat surface devices for passage between levels
and across openings not covered under the term dockboards.
Related employments means any employments performed incidental to
or in conjunction with longshoring operations, including, but not
restricted to, securing cargo, rigging, and employment as a porter,
clerk, checker, or security officer.
River towboat means a shallow draft, low freeboard, self-propelled
vessel designed to tow river barges by pushing ahead. It does not
include other towing vessels.
Small trimming hatch means a small hatch or opening, pierced in the
between deck or other intermediate deck of a vessel, and intended for
the trimming of dry bulk cargoes. It does not refer to the large
hatchways through which cargo is normally handled.
Vessel includes every description of watercraft or other artificial
contrivance used or capable of being used for transportation on water,
including special purpose floating structures not primarily designed
for or used for transportation on water.
Vessel's cargo handling gear includes that gear that is a permanent
part of the vessel's equipment and used for the handling of cargo other
than bulk liquids. The term covers all stationary or mobile cargo
handling appliances used on board ship for suspending, raising or
lowering loads or moving them from one position to another while
suspended or supported. This includes, but is not limited to, cargo
elevators, forklifts, and other powered industrial equipment. It does
not include gear used only for handling or holding hoses, handling
ship's stores or handling the gangway, or boom conveyor belt systems
for the self-unloading of bulk cargo vessels.
[[Page 40204]]
Sec. 1918.3 Incorporation by reference.
(a) (1) The standards of agencies of the U.S. Government, and
organizations which are not agencies of the U.S. Government which are
incorporated by reference in this part, have the same force and effect
as other standards in this part. Only the mandatory provisions (i.e.
provisions containing the word ``shall'' or other mandatory language)
of standards incorporated by reference are adopted as standards under
the Occupational Safety and Health Act.
(2) Any changes in the standards incorporated by reference in this
part and an official historic file of such changes are available for
inspection at the national office of the Occupational Safety and Health
Administration, U.S. Department of Labor, Washington, DC 20210.
(3) The materials listed in paragraph (b) of this section are
incorporated by reference in the corresponding sections noted as they
exist on the date of the approval, and a notice of any change in these
materials will be published in the Federal Register. These
incorporations by reference (IBRs) were approved by the Director of the
Federal Register in accordance with 5 U.S.C. 552(a) and 1 CFR part 51.
(4) Copies of the following standards that are issued by the
respective private standards organizations may be obtained from the
issuing organizations. The materials are available for purchase at the
corresponding addresses of the private standards organizations noted in
paragraph (b) of this section. In addition, all are available for
inspection at the Office of the Federal Register, 800 North Capitol
Street, NW., suite 700, Washington DC, and through the OSHA Docket
Office, room N2625, U.S. Department of Labor, 200 Constitution Ave.,
Washington, DC 20210, or any of OSHA's regional offices.
(b) The following material is available for purchase from the
American National Standards Institute (ANSI), 11 West 42nd St., New
York, NY 10036:
(1) ANSI A14.1-1990, Safety Requirements for Portable Wood Ladders;
IBR approved for Sec. 1918.24(g)(1).
(2) ANSI A14.2-1990, Safety Requirements for Portable Metal
Ladders; IBR approved for Sec. 1918.24(g)(2).
(3) ANSI A14.5-1992, Safety Requirements for Portable Reinforced
Plastic Ladders; IBR approved for Sec. 1918.24(g)(3).
(4) ANSI Z-87.1-1989, Practice for Occupational and Educational Eye
and Face Protection; IBR approved for Sec. 1918.101(a)(1).
(5) ANSI Z-89.1-1986, Personnel Protection-Protective Headwear for
Industrial Workers-Requirements; IBR approved for Sec. 1918.103(b).
(6) ANSI Z-41-1991, American National Standard for Personal
Protection-Protective Footwear; IBR approved for Sec. 1918.104(b).
Subpart B--Gear Certification
Sec. 1918.11 Gear certification (See also Secs. 1918.2, definition of
``Vessel's cargo handling gear'' and 1918.51).
(a) The employer shall not use the vessel's cargo handling gear
until it has been ascertained that the vessel has a current and valid
cargo gear register and certificates that in form and content are in
accordance with the recommendations of the International Labor Office,
as set forth in Appendix I of this part, and as provided by
International Labor Organization Convention No. 152, and that shows
that the cargo gear has been tested, examined and heat treated by or
under the supervision of persons or organizations defined as competent
to make register entries and issue certificates pursuant to paragraphs
(b) and (c) of this section.
(1) Annual thorough examinations under ILO 152 are required after
July 27, 1998.
(2) Testing under ILO 152 is required after July 16, 2001.
(3) In the interim period(s), prior to the effective dates noted in
paragraph (a) (1) and (2), vessels with cargo gear and a cargo gear
register according to ILO 32 are deemed to meet the requirements of
this paragraph (a).
(b) Public vessels and vessels holding a valid Certificate of
Inspection issued by the U.S. Coast Guard pursuant to 46 CFR part 91
are deemed to meet the requirements of paragraph (a) of this section.
(c) With respect to U.S. vessels not holding a valid Certificate of
Inspection issued by the U.S. Coast Guard, entries in the registers and
the issuance of certificates required by paragraph (a) of this section
shall be made only by competent persons currently accredited by the
U.S. Department of Labor (OSHA) for full function vessels or loose gear
and wire rope testing, as appropriate, as provided in part 1919 of this
chapter.
(d) With respect to vessels under foreign registries, persons or
organizations competent to make entries in the registers and issue the
certificates required by paragraph (a) of this section shall be:
(1) Those acceptable as such to any foreign nation;
(2) Those acceptable to the Commandant of the U.S. Coast Guard; or
(3) Those currently accredited by the U.S. Department of Labor
(OSHA), for full function vessels or loose gear and wire rope testing,
as appropriate and as provided in part 1919 of this chapter.
Subpart C--Gangways and Other Means of Access
Sec. 1918.21 General requirements.
The employer shall not permit employees to board or leave any
vessel, except a barge or river towboat, until all of the applicable
requirements of this subpart have been met.
(a) If possible, the vessel's means of access shall be located so
that suspended loads do not pass over it. In any event, suspended loads
shall not be passed over the means of access while employees or others
are on it.
(b) When the upper end of the means of access rests on or is flush
with the top of the bulwark, substantial steps, properly secured,
trimmed and equipped with at least one substantial handrail, 33 inches
(.84 m) in height, shall be provided between the top of the bulwark and
the deck.
(c) The means of access shall be illuminated for its full length in
accordance with Sec. 1918.92.\2\
---------------------------------------------------------------------------
\2\ Sec. 1918.92 requires, along with other requirements, an
average light intensity of five foot-candles (54 lux).
---------------------------------------------------------------------------
Sec. 1918.22 Gangways.
(a) Whenever practicable, a gangway of not less than 20 inches (.51
m) in width, of adequate strength, maintained in safe repair and safely
secured shall be used. If a gangway is not practicable, a straight
ladder meeting the requirements of Sec. 1918.24 that extends at least
36 inches (.91 m) above the upper landing surface and is secured
against shifting or slipping shall be provided. When conditions are
such that neither a gangway nor straight ladder can be used, a Jacob's
ladder meeting the requirements of Sec. 1918.23 may be used.
(b) Each side of the gangway, and the turntable, if used, shall
have a hand rail with a minimum height of 33 inches (.84 m) measured
perpendicularly from rail to walking surfaces at the stanchion, with a
midrail. Rails shall be of wood, pipe, chain, wire, rope or materials
of equivalent strength and shall be kept taut always. Portable
stanchions supporting railings shall be supported or secured to prevent
accidental dislodgement.
(c) The gangway shall be kept properly trimmed.
(d) When a fixed flat tread accommodation ladder is used, and the
angle is low enough to require employees to walk on the edge of the
[[Page 40205]]
treads, cleated duckboards shall be laid over and secured to the
ladder.
(e) When the gangway overhangs the water so that there is danger of
employees falling between the ship and the dock, a net or suitable
protection shall be provided to prevent employees from receiving
serious injury from falls to a lower level.
(f) If the foot of a gangway is more than one foot (.30 m) away
from the edge of the apron, the space between them shall be bridged by
a firm walkway equipped with a hand rail with a minimum height of
approximately 33 inches (.84 m) with midrails on both sides.
(g) Gangways shall be kept clear of supporting bridles and other
obstructions, to provide unobstructed passage. If, because of design,
the gangway bridle cannot be moved to provide unobstructed passage,
then the hazard shall be properly marked to alert employees of the
danger.
(h) Obstructions shall not be laid on or across the gangway.
(i) Handrails and walking surfaces of gangways shall be maintained
in a safe condition to prevent employees from slipping or falling.
(j) Gangways on vessels inspected and certificated by the U.S.
Coast Guard are deemed to meet the requirements of this section.
Sec. 1918.23 Jacob's ladders.
(a) Jacob's ladders shall be of the double rung or flat tread type.
They shall be well maintained and properly secured.
(b) A Jacob's ladder shall either hang without slack from its
lashings or be pulled up entirely.
(c) When a Jacob's ladder is used as the means of access to a barge
being worked, spacers (bumpers) shall be hung between the vessel,
barge, or other structure to which the barge is tied alongside, or
other equally effective means shall be provided to prevent damage to
the bottom rungs of the ladder.
(d) When a Jacob's ladder is being used so that there is a danger
of an employee falling or being crushed between the vessel, barge, or
other structure (pier), suitable protection shall be provided.
Sec. 1918.24 Fixed and portable ladders.
(a) There shall be at least one safe and accessible ladder for each
gang working in a single hatch. An effective means of gaining a
handhold shall be provided at or near the head of each vertical fixed
ladder. No more than two ladders are required in any hatch regardless
of the number of gangs present.
(b) When any fixed ladder is visibly unsafe (or known to be
unsafe), the employer shall identify such ladder and prohibit its use
by employees.
(c) Where portable straight ladders are used, they shall be of
sufficient length to extend three feet (.91 m) above the upper landing
surface, and be positively secured or held against shifting or
slipping. When conditions are such that a straight ladder cannot be
used, Jacob's ladders meeting the requirements of Sec. 1918.23 may be
used.
(d) For vessels built after July 16, 2001, when six inches (15.2
cm) or more clearance does not exist behind the rungs of a fixed
ladder, the ladder shall be deemed ``unsafe'' for the purposes of this
section. Alternate means of access (for example, a portable ladder)
must be used.
(e)(1) Where access to or from a stowed deckload or other cargo is
needed and no other safe means is available, ladders or steps of
adequate strength shall be furnished and positively secured or held
against shifting or slipping while in use. Steps formed by the cargo
itself are acceptable when the employer demonstrates that the nature of
the cargo and the type of stowage provides equivalent safe access.
(2) Where portable straight ladders are used they shall be of
sufficient length to extend at least three feet (.91 m) above the upper
landing surface.
(f) The following standards for existing manufactured portable
ladders must be met:
(1) Rungs of manufactured portable ladders obtained before January
21, 1998 shall be capable of supporting a 200-pound (890 N) load
without deformation.
(2) Rungs shall be evenly spaced from nine to sixteen and one-half
inches (22.9 to 41.9 cm), center to center.
(3) Rungs shall be continuous members between rails. Each rung of a
double-rung ladder (two side rails and a center rail) shall extend the
full width of the ladder.
(4) Width between side rails at the base of the ladder shall be at
least 12 inches (30 cm) for ladders 10 feet (3.05 m) or less in overall
length, and shall increase at least one-fourth inch (0.6 cm) for each
additional two feet (0.61 m) of ladder length.
(g) Portable manufactured ladders obtained after January 21, 1998
shall bear identification showing that they meet the appropriate ladder
construction requirements of the following standards:
(1) ANSI A14.1-1990, Safety Requirements for Portable Wood Ladders;
(2) ANSI A14.2-1990, Safety Requirements for Portable Metal
Ladders;
(3) ANSI A14.5-1992, Safety Requirements for Portable Reinforced
Plastic Ladders.
(h) Job-made ladders shall:
(1) Have a uniform distance between rungs of at least 12 inches (30
cm) center to center;
(2) Be capable of supporting a 250-pound (1100 N) load without
deformation; and
(3) Have a minimum width between side rails of 12 inches (30 cm)
for ladders 10 feet (3.05 m) or less in height. Width between rails
shall increase at least one-fourth inch (0.6 cm) for each additional
two feet (0.61 m) of ladder length.
(i) The employer shall:
(1) Maintain portable ladders in safe condition. Ladders with the
following defects shall not be used, and shall either be tagged as
unusable if kept on board, or shall be removed from the vessel:
(i) Broken, split or missing rungs, cleats or steps;
(ii) Broken or split side rails;
(iii) Missing or loose bolts, rivets or fastenings;
(iv) Defective ropes; or
(v) Any other structural defect.
(2) Ladders shall be inspected for defects before each day's use,
and after any occurrence, such as a fall, which could damage the
ladder.
(j) Ladders shall be used in the following manner:
(1) Ladders shall be securely positioned on a level and firm base.
(2) Ladders shall be fitted with slip-resistant bases and/or be
positively secured or held in place to prevent slipping or shifting
while in use.
(3) Except for combination ladders, self-supporting ladders shall
not be used as single straight ladders.
(4) Unless intended for cantilever operation, non-self-supporting
ladders shall not be used to climb above the top support point.
(5) Ladders shall not be used:
(i) As guys, braces or skids; or
(ii) As platforms, runways or scaffolds.
(6) Metal and wire-reinforced ladders (even with wooden side rails)
shall not be used when employees on the ladder might contact energized
electrical conductors.
(7) Individual sections from different multi-sectional ladders or
two or more single straight ladders shall not be tied or fastened
together to achieve additional length.
(8) Single rail ladders (i.e. made by fastening rungs or devices
across a single rail) shall not be used.
[[Page 40206]]
Sec. 1918.25 Bridge plates and ramps (See also Sec. 1918.86).
(a) Bridge and car plates (dockboards). Bridge and car plates used
afloat shall be well maintained and shall:
(1) Be strong enough to support the loads imposed on them;
(2) Be secured or equipped with devices to prevent their
dislodgement;
(3) Be equipped with hand holds or other effective means to permit
safe handling; and
(4) Be designed, constructed, and maintained to prevent vehicles
from running off the edge.\3\
---------------------------------------------------------------------------
\3\ When the gap to be bridged is greater than 36 inches (.91m),
an acceptalbe means of preventing vehicles from running off the edge
is a minimum side board height of two and three-quarter inches.
---------------------------------------------------------------------------
(b) Portable ramps. Portable ramps used afloat shall be well
maintained and shall:
(1) Be strong enough to support the loads imposed on them;
(2) Be equipped with a railing meeting the requirements of
Sec. 1918.21(b), if the slope is more than 20 degrees to the horizontal
or if employees could fall more than four feet (1.2 m);
(3) Be equipped with a slip resistant surface;
(4) Be properly secured; and
(5) Be designed, constructed, and maintained to prevent vehicles
from running off the edge.\4\
---------------------------------------------------------------------------
\4\ When the gap to be bridged is greater than 36 inches (.91m),
an acceptable means of preventing vehicles from running off the edge
is a minimum side board height of two and three-quarter inches.
---------------------------------------------------------------------------
Sec. 1918.26 Access to barges and river towboats.
(a) With the exception of Sec. 1918.25(b)(2), ramps used solely for
vehicle access to or between barges shall meet the requirements of
Sec. 1918.25.
(b) When employees cannot step safely to or from the wharf and a
float, barge, or river towboat, either a ramp meeting the requirements
of paragraph (a) of this section or a safe walkway meeting the
requirements of Sec. 1918.22(f) shall be provided. When a ramp or
walkway cannot be used, a straight ladder meeting the requirements of
Sec. 1918.24 and extending at least three feet (.91 m) above the upper
landing surface and adequately secured or held against shifting or
slipping shall be provided. When neither a walkway nor a straight
ladder can be used, a Jacob's ladder meeting the requirements of
Sec. 1918.23 shall be provided. Exception: For barges operating on the
Mississippi River System, where the employer shows that these
requirements cannot reasonably be met due to local conditions, other
safe means of access shall be provided.
(c) When a barge or raft is being worked alongside a larger vessel,
a Jacob's ladder meeting the requirements of Sec. 1918.23 shall be
provided for each gang working alongside unless other safe means of
access is provided. However, no more than two Jacob's ladders are
required for any single barge or raft being worked.
(d) When longshoring operations are in progress on barges, the
barges shall be securely made fast to the vessel, wharf, or dolphins.
Subpart D--Working Surfaces
Sec. 1918.31 Hatch coverings.
(a) No cargo, dunnage, or other material shall be loaded or
unloaded by means requiring the services of employees at any partially
opened intermediate deck unless either the hatch at that deck is
sufficiently covered or an adequate landing area suitable for the
prevailing conditions exists. In no event shall such work be done
unless the working area available for such employees extends for a
distance of 10 feet (3.05 m) or more fore and aft and athwartships.
(b) Cargo shall not be landed on or handled over a covered hatch or
`tween-decks unless all hatch beams are in place under the hatch
covers.
(c) Missing, broken, or poorly fitting hatch covers that would not
protect employees shall be reported at once to the officer in charge of
the vessel. Pending replacement or repairs by the vessel, work shall
not be performed in the section containing the unsafe covers or in
adjacent sections unless the flooring is made safe.
(d) Hatch covers and hatch beams not of uniform size shall be
placed only in the hatch, deck, and section in which they fit properly.
(e) Small trimming hatches in intermediate decks shall be securely
covered or guarded while work is going on in the hatch in which they
are found, unless they are actually in use.
Sec. 1918.32 Stowed cargo and temporary landing surfaces.
(a) Temporary surfaces on which loads are to be landed shall be of
sufficient size and strength to permit employees to work safely.
(b) When the edge of a hatch section or of stowed cargo may
constitute a fall hazard to an employee, the edge shall be guarded by a
vertical safety net, or other means providing equal protection, to
prevent an employee from falling. When the employer can demonstrate
that vertical nets or other equally effective means of guarding cannot
be used due to the type of cargo, cargo stowage, or other
circumstances, a trapeze net shall be rigged at the top edge of the
elevation or other means shall be taken to prevent injury if an
employee falls. Safety nets shall be maintained in good condition and
be of adequate strength for the purpose intended.
(c) When two gangs are working in the same hatch on different
levels, a vertical safety net shall be rigged and securely fastened to
prevent employees or cargo from falling. Safety nets shall be
maintained in good condition and be of adequate strength for the
purpose intended.
Sec. 1918.33 Deck loads.
(a) Employees shall not be permitted to pass over or around deck
loads unless there is a safe route of passage.
(b) Employees giving signals to crane operators shall not be
permitted to walk over deck loads from rail to coaming unless there is
a safe route of passage. If it is necessary to stand or walk at the
outboard or inboard edge of the deck load having less than 24 inches
(.61 m) of bulwark, rail, coaming, or other protection, those employees
shall be provided with protection against falling from the deck load.
Sec. 1918.34 Other decks.
(a) Cargo shall not be worked on decks that were not designed to
support the load being worked.
(b) Grated decks shall be properly placed, supported, maintained
and designed to support employees.
Sec. 1918.35 Open hatches.
Open weather deck hatches around which employees must work that are
not protected to a height of 24 inches (.61 m) by coamings shall be
guarded by taut lines or barricades at a height of 36 to 42 inches (.91
to 1.07 m) above the deck, except on the side on which cargo is being
worked. Any portable stanchions or uprights used shall be supported or
secured to prevent accidental dislodgement.
Sec. 1918.36 Weather deck rails.
Removable weather deck rails shall be kept in place except when
cargo operations require them to be removed, in which case they shall
be replaced as soon as such cargo operations are completed.
Sec. 1918.37 Barges.
(a) Walking shall be prohibited along the sides of covered lighters
or barges with coamings or cargo more than five feet (1.5 m) high
unless a three-foot (.91 m) clear walkway or a grab rail or taut
handline is provided.
(b) Walking or working shall be prohibited on the decks of barges
to be
[[Page 40207]]
loaded unless the walking or working surfaces have been determined by
visual inspection to be structurally sound and maintained properly. If,
while discharging a barge, an unsound deck surface is discovered, work
shall be discontinued and shall not be resumed until means have been
taken to ensure a safe work surface.
Subpart E--Opening and Closing Hatches
Sec. 1918.41 Coaming clearances.
(a) Weather decks. If a deck load (such as lumber or other smooth
sided deck cargo) more than five feet (1.5 m) high is stowed within
three feet (.91 m) of the hatch coaming and employees handling hatch
beams and hatch covers are not protected by a coaming at least 24-inch
(.61 m) high, a taut handline shall be provided along the side of the
deckload. The requirements of Sec. 1918.35 are not intended to apply in
this situation.
(b) Intermediate decks. (1) There shall be a three-foot (.91 m)
working space between the stowed cargo and the coaming at both sides
and at one end of the hatches with athwartship hatch beams, and at both
ends of those hatches with fore and aft hatch beams, before
intermediate deck hatch covers and hatch beams are removed or replaced.
Exception: The three-foot (.91 m) clearance is not required on the
covered portion of a partially open hatch, nor is it required when
lower decks have been filled to hatch beam height with cargo of such a
nature as to provide a safe surface upon which employees may work.
(2) For purposes of paragraph (b)(1) of this section, fitted
gratings that are in good condition shall be considered a part of the
decking when properly placed within the three-foot (.91 m) area.
(c) Grab rails or taut handlines shall be provided for the
protection of employees handling hatch beams and hatch covers, when
bulkheads, lockers, reefer compartments or large spare parts are within
three feet (.91 m) of the coaming.
(d) The clearances in this section do not apply to hatches opened
or closed solely by hydraulic or other mechanical means; except that,
in all cases in which the three-foot (.91 m) clearance does not exist,
cargo that is stowed within three feet (.91 m) of the edge of the hatch
shall be adequately secured to prevent cargo from falling into the
hold.
Sec. 1918.42 Hatch beam and pontoon bridles.
(a) Hatch beam and pontoon bridles shall be:
(1) Long enough to reach the holes, rings, or other lifting
attachments on the hatch beams and pontoons easily;
(2) Of adequate strength to lift the load safely; and
(3) Properly maintained, including covering or blunting of
protruding ends in wire rope splices.
(b) Bridles for lifting hatch beams shall be equipped with toggles,
shackles, or hooks, or other devices of such design that they cannot
become accidentally dislodged from the hatch beams with which they are
used. Hooks other than those described in this section may be used only
when they are hooked into the standing part of the bridle. Toggles,
when used, shall be at least one inch (2.5 cm) longer than twice the
largest diameter of the holes into which they are placed.
(c) Bridles used for lifting pontoons and plugs shall have the
number of legs required by the design of the pontoon or plug, and all
of which shall be used. Where any use of a bridle requires fewer than
the number of legs provided, idle legs shall be hung on the hook or
ring, or otherwise prevented from swinging free.
(d) At least two legs of all strongback and pontoon bridles shall
be equipped with a lanyard at least eight feet (2.4 m) long and in good
condition. The bridle end of the lanyard shall be of chain or wire.
Sec. 1918.43 Handling hatch beams and covers.
Paragraphs (f)(2), (g), and (h) of this section apply only to
folding, sliding, or hinged metal hatch covers or to those hatch covers
handled by cranes.
(a) (1) When hatch covers or pontoons are stowed on the weather
deck abreast of hatches, they shall be arranged in stable piles not
closer to the hatch coaming than three feet (.91 m). Exception: On the
working side of the hatch, hatch covers or pontoons may be spread one
high between the coaming and bulwark with no space between them,
provided the height of the hatch coaming is no less than 24 inches (.61
m). Under no circumstances shall hatch covers or pontoons be stacked
higher than the hatch coaming or bulwark on the working side of the
hatch.
(2) On seagoing vessels, hatch boards or similar covers removed
from the hatch beams in a section of partially opened hatch during
cargo handling, cleaning or other operations shall not be stowed on the
boards or covers left in place within that section.
(b) Hatch beams shall be laid on their sides, or stood on an edge
close together and lashed. Exception: This paragraph (b) shall not
apply in cases where hatch beams are of such design that:
(1) The width of the flange is 50 percent or more of the height of
the web; and
(2) The flange rests flat on the deck when the hatch beam is stood
upright.
(c) Strongbacks, hatch covers, and pontoons removed from hatch
openings and placed on the weather deck shall not obstruct clear fore-
and-aft or coaming-to-bulwark passageways and shall be lashed or
otherwise secured to prevent accidental dislodgement. Dunnage or other
suitable material shall be used under and between tiers of strongbacks
and pontoons to prevent them from sliding when stowed on steel decks.
(d) Hatch covers unshipped in an intermediate deck shall be placed
at least three feet (.91 m) from the coaming or they shall be removed
to another deck. Strongbacks unshipped in an intermediate deck shall
not be placed closer than six inches (15.2 cm) from the coaming and, if
placed closer than three feet (.91 m), shall be secured so that they
cannot be tipped or dragged into a lower compartment. If such placement
or securement is not possible, strongbacks shall be removed to another
deck.
(e) Any hatch beam or pontoon left in place next to an open hatch
section being worked shall be locked or otherwise secured, so that it
cannot be accidentally displaced. All portable, manually handled hatch
covers, including those bound together to make a larger cover, shall be
removed from any working section, and adjacent sections, unless
securely lashed.
(f)(1) The roller hatch beam at the edge of the open section of the
hatch shall be lashed or pinned back so that it cannot be moved toward
the open section.
(2) Rolling, sectional or telescopic hatch covers of barges that
open in a fore and aft direction shall be secured against unintentional
movement while in the open position.
(g) Hinged or folding hatch covers normally stowed in an
approximately vertical position shall be positively secured when in the
upright position, unless the design of the system otherwise prevents
unintentional movement.
(h) Hatches shall not be opened or closed while employees are in
the square of the hatch below.
(i) All materials such as dunnage, lashings, twist locks, or
stacking cones shall be removed from the hatch cover or be secured to
prevent them from falling off the cover before the hatch cover is
moved.
[[Page 40208]]
(j) When a hatch is to be covered, hatch covers or night tents
shall be used. Any covering that only partially covers the hatch, such
as alternate hatch covers or strips of dunnage, shall not be covered by
a tarpaulin. Exception: A tarpaulin may be used to cover an open or
partially open hatch to reduce dust emissions during bulk cargo loading
operations, if positive means are taken to prevent employees from
walking on the tarpaulin.
Subpart F--Vessel's Cargo Handling Gear
Sec. 1918.51 General requirements (See also Sec. 1918.11 and Appendix
III of this part).
(a) The safe working load specified in the cargo gear certification
papers or marked on the booms shall not be exceeded. Any limitations
imposed by the certificating authority shall be followed.
(b) All components of cargo handling gear, including tent gantlines
and associated rigging, shall be inspected by the employer or a
designated person before each use and at appropriate intervals during
use. Any gear that is found unsafe shall not be used until it is made
safe.
(c) The employer shall determine the load ratings shown on the
vessel's wire rope certificates for all wire rope and wire rope slings
comprising part of ship's gear and shall observe these load ratings.
(d) The following limitations shall apply to the use of wire rope
as a part of the ship's cargo handling gear:
(1) Eye splices in wire ropes shall have at least three tucks with
a whole strand of the rope and two tucks with one-half of the wire cut
from each strand. Other forms of splices or connections that the
employer demonstrates will provide the same level of safety may be
used;
(2) Except for eye splices in the ends of wires, each wire rope
used in hoisting or lowering, in guying derricks, or as a topping lift,
preventer, segment of a multi-part preventer, or pendant, shall consist
of one continuous piece without knot or splice; and
(3) Wire rope or wire rope slings exhibiting any of the defects or
conditions specified in Sec. 1918.62(b)(4) (i) through (vi) shall not
be used.
(e) Natural and synthetic fiber rope slings exhibiting any of the
defects or conditions specified in Sec. 1918.62(e) (1) through (7)
shall not be used.
(f) Synthetic web slings exhibiting any of the defects or
conditions specified in Sec. 1918.62(g)(2) (i) through (v) shall not be
used.
(g) Chains, including slings, exhibiting any of the defects or
conditions specified in Sec. 1918.62 (h)(3) (iii), (iv), or (h)(6)
shall not be used.
Sec. 1918.52 Specific requirements.
(a) Preventers. (1) When preventers are used they shall be of
sufficient strength for the intended purpose. They shall be secured to
the head of the boom independent of working guys unless, for cast
fittings, the strength of the fitting exceeds the total strength of all
lines secured to it. Any tails, fittings, or other means of making the
preventers fast on the deck shall provide strength equal to that of the
preventer itself.
(2) Wire rope clips or knots shall not be used to form eyes in, nor
to join sections of, preventer guys.
(b) Stoppers. (1) Chain topping lift stoppers shall be in good
condition, equipped with fiber tails, and long enough to allow not
fewer than three half-hitches in the chain.
(2) Chain stoppers shall be shackled or otherwise secured so that
their links are not bent by being passed around fittings. The point of
attachment shall be of sufficient strength and so placed that the
stoppers are in line with the normal topping lift lead at the time the
stopper is applied.
(3) Patent stoppers of the clamp type shall be appropriate for the
size of the rope used. Clamps shall be in good condition and free of
any substance that would prevent their being drawn tight.
(c) Falls. (1) The end of the winch fall shall be secured to the
drum by clamps, U-bolts, shackles, or other equally strong methods.
Fiber rope fastenings shall not be used.
(2) Winch falls shall not be used with fewer than three turns on
the winch drum.
(3) Eyes in the ends of wire rope cargo falls shall not be formed
by knots and, in single part falls, shall not be formed by wire rope
clips.
(4) When the design of the winch permits, the fall shall be wound
on the drum so that the cargo hook rises when the winch control lever
is pulled back and lowers when the lever is pushed forward.
(d) Heel blocks. (1) When an employee works in the bight formed by
the heel block, a preventer at least three-quarters of an inch (1.9 cm)
diameter wire rope shall be securely rigged, or equally effective means
shall be taken, to hold the block and fall if the heel block
attachments fail. Where physical limitations prohibit the fitting of a
wire rope preventer of the required size, two turns of a one-half inch
(1.3 cm) diameter wire rope shall be sufficient.
(2) If the heel block is not so rigged as to prevent its falling
when not under strain, it shall be secured to prevent alternate raising
and dropping of the block. This requirement shall not apply when the
heel block is at least 10 feet (3.0 m) above the deck when at its
lowest point.
(e) Coaming rollers. Portable coaming rollers shall be secured by
wire preventers in addition to the regular coaming clamps.
(f) Cargo hooks. Cargo hooks shall be as close to the junction of
the falls as the assembly permits, but never farther than two feet (.61
m) from it. Exception: This provision shall not apply when the
construction of the vessel and the operation in progress are such that
fall angles are greater than 120 degrees. Overhaul chains shall not be
shortened by bolting or knotting.
Sec. 1918.53 Cargo winches.
(a) Moving parts of winches and other deck machinery shall be
guarded.
(b) Winches shall not be used if control levers operate with
excessive friction or excessive play.
(c) Double gear winches or other winches equipped with a clutch
shall not be used unless a positive means of locking the gear shift is
provided.
(d) There shall be no load other than the fall and cargo hook
assembly on the winch when changing gears on a two-gear winch.
(e) Any defect or malfunction of winches that could endanger
employees shall be reported immediately to the officer in charge of the
vessel, and the winch shall not be used until the defect or malfunction
is corrected.
(f) Temporary seats and shelters for winch drivers that create a
hazard to the winch operator or other employees shall not be used.
(g) Except for short handles on wheel type controls, winch drivers
shall not be permitted to use winch control extension levers unless
they are provided by either the ship or the employer. Such levers shall
be of adequate strength and securely fastened with metal connections at
the fulcrum and at the permanent control lever.
(h) Extension control levers that tend to fall due to their own
weight shall be counterbalanced.
(i) Winch brakes shall be monitored during use. If winch brakes are
unable to hold the load, the winch shall be removed from service.
(j) Winches shall not be used when one or more control points,
either hoisting or lowering, are not operating properly. Only
authorized personnel shall adjust control systems.
(k) When winches are left unattended, control levers shall be
placed in the neutral position and the power shall be shut off or
control levers shall be locked at the winch or the operating controls.
[[Page 40209]]
Sec. 1918.54 Rigging gear.
(a) Guy and preventer placement. Each guy or preventer shall be
placed to prevent it from making contact with any other guy, preventer,
or stay.
(b) Guys. When alternate positions for securing guys are provided,
the guys shall be so placed as to produce a minimum stress and not
permit the boom to jackknife.
(c) Boom placement. The head of the midship boom shall be spotted
no farther outboard of the coaming than is necessary for control of the
load.
(d) Preventers. (1) Preventers shall be properly secured to
suitable fittings other than those to which the guys are secured, and
shall be as nearly parallel to the guys as the fittings will permit.
(2) Unless the cleat is also a chock and the hauling part is led
through the chock opening, the leads of preventers to cleats shall be
such that the direction of the line pull of the preventer is as
parallel as possible to the plane of the surface on which the cleat is
mounted.
(3) Guys and associated preventers shall be adjusted to share the
load as equally as possible where cargo operations are being conducted
by burtoning. Exception: Where guys are designed and intended for
trimming purposes only, and the preventer is intended to do the
function of the guy, the guy may be left slack.
(e) Cargo falls. Cargo falls under load shall not be permitted to
chafe on any standing or other running rigging. Exception: Rigging
shall not be construed to mean hatch coamings or other similar
structural parts of the vessel.
(f) Bull wire. (1) Where a bull wire is taken to a gypsy head for
lowering or topping a boom, the bull wire shall be secured to the gypsy
head by shackle or other equally strong method. Securing by fiber rope
fastening does not meet this requirement.
(2) When, in lowering or topping a boom, it is not possible to
secure the bull wire to the gypsy head, or when the topping lift itself
is taken to the gypsy head, at least five turns of wire shall be used.
(g) Trimming and deckloads. When deck loads extend above the rail
and there is less than 12 inches (30.48 cm) horizontal clearance
between the edge of the deck load and the inside of the bulwark or
rail, a pendant or other alternate device shall be provided to allow
trimming of the gear and to prevent employees from going over the side.
Sec. 1918.55 Cranes (See also Sec. 1918.11).
The following requirements shall apply to the use of cranes forming
part of a vessel's permanent equipment.
(a) Defects. Cranes with a visible or known defect that affects
safe operation shall not be used. Defects shall be reported immediately
to the officer in charge of the vessel.
(b) Operator's station. (1) Cranes with missing, broken, cracked,
scratched, or dirty glass (or equivalent) that impairs operator
visibility shall not be used.
(2) Clothing, tools and equipment shall be stored so as not to
interfere with access, operation or the operator's view.
(c) Cargo operations. (1) Accessible areas within the swing radius
of the body of a revolving crane or within the travel of a shipboard
gantry crane shall be physically guarded or other equally effective
means shall be taken during operations to prevent an employee from
being caught between the body of the crane and any fixed structure, or
between parts of the crane. Verbal warnings to employees to avoid the
dangerous area do not meet this requirement.
(2) Limit switch bypass systems shall be secured during all cargo
operations. Such bypass systems shall not be used except in an
emergency or during non-cargo handling operations such as stowing
cranes or derricks or performing repairs. Any time a bypass system is
used, it shall be done only under the direction of an officer of the
vessel.
(3) Under all operating conditions, at least three full turns of
rope shall remain on ungrooved drums, and two full turns on grooved
drums.
(4) Crane brakes shall be monitored during use. If crane brakes are
unable to hold the load, the crane shall not be used.
(5) Cranes shall not be used if control levers operate with
excessive friction or excessive play.
(6) When cranes are equipped with power down capability, there
shall be no free fall of the gear when a load is attached.
(7) When two or more cranes hoist a load in unison, a designated
person shall direct the operation and instruct personnel in
positioning, rigging of the gear and movements to be made.
(d) Unattended cranes. When cranes are left unattended between work
periods, Sec. 1918.66(b) (4)(i) through (v) shall apply.
Subpart G--Cargo Handling Gear and Equipment Other Than Ship's Gear
Sec. 1918.61 General (See also Appendix IV of this part).
(a) Employer provided gear inspection. All gear and equipment
provided by the employer shall be inspected by the employer or
designated person before each use and, when appropriate, at intervals
during its use, to ensure that it is safe. Any gear that is found upon
such inspection to be unsafe shall not be used until it is made safe.
(b) Safe working load. (1) The safe working load of gear as
specified in Secs. 1918.61 through 1918.66 shall not be exceeded.
(2) All cargo handling gear provided by the employer with a safe
working load greater than five short tons (10,000 lbs. or 4.5 metric
tons) shall have its safe working load plainly marked on it.
(c) Gear weight markings. The weight shall be plainly marked on any
article of stevedoring gear hoisted by ship's gear and weighing more
than 2,000 lbs. (.91 metric tons).
(d) Certification. The employer shall not use any material handling
device listed in paragraphs (f) and (g) of this section until the
device has been certificated, as evidenced by current and valid
documents attesting to compliance with the requirements of paragraph
(e) of this section.
(e) Certification procedures. Each certification required by this
section shall be performed in accordance with part 1919 of this
chapter, by a person then currently accredited by OSHA as provided in
that part.
(f) Special gear. (1) Special stevedoring gear provided by the
employer, the strength of which depends upon components other than
commonly used stock items such as shackles, ropes, or chains, and that
has a Safe Working Load (SWL) greater than five short tons (10,000 lbs
or 4.5 metric tons) shall be inspected and tested as a unit before
initial use (see Table A).
(2) Special stevedoring gear provided by the employer that has a
SWL of five short tons (10,000 or 4.5 metric tons) or less shall be
inspected and tested as a unit before initial use according to
paragraphs (d) and (e) of this section or by a designated person (see
Table A).
Table A
------------------------------------------------------------------------
Safe working load Proof load
------------------------------------------------------------------------
Up to 20 short tons (18.1 metric 25 percent in excess.
tons).
[[Page 40210]]
From 20 through 50 short tons 5 short tons in excess.
(18.1 to 45.3 metric tons).
Over 50 short tons (45.3 metric 10 percent in excess.
tons).
------------------------------------------------------------------------
(g) Every spreader that is not a part of ship's gear and is used
for handling intermodal containers shall be inspected and tested before
initial use to a proof load equal to 25 percent greater than its rated
capacity. In addition, any spreader that suffers damage necessitating
structural repair shall be inspected and retested after repair and
before being returned to service.
(h) All cargo handling gear covered by this section with a SWL
greater than five short tons (10,000 lbs. or 4.5 metric tons) shall be
proof load tested according to Table A in paragraph (f) or paragraph
(g), as applicable, of this section every four years and in accordance
with paragraphs (d) and (e) of this section or by a designated person.
(i) Certificates and inspection and test records attesting to the
tests required by this section shall be available for inspection.
Sec. 1918.62 Miscellaneous auxiliary gear.
(a) Routine inspection. (1) At the completion of each use, loose
gear such as slings, chains, bridles, blocks and hooks shall be so
placed as to avoid damage to the gear. Loose gear shall be inspected
and any defects corrected before reuse.
(2) Defective gear, as defined by the manufacturers' specifications
(when available), shall not be used. Distorted hooks, shackles or
similar gear shall be discarded.
Note to paragraph (a): When manufacturers' specifications are
not available to determine whether gear is defective, the employer
shall use the appropriate paragraphs of this section to make these
determinations.
(b) Wire rope and wire rope slings. (1) The employer shall follow
the manufacturers' recommended ratings for wire rope and wire rope
slings provided for use aboard ship, and shall have such ratings
available for inspection. When the manufacturer is unable to supply
such ratings, the employer shall use the tables for wire rope and wire
rope slings found in Appendix II to this part. A design safety factor
of at least five shall be maintained for the common sizes of running
wire used as falls in purchases, or in such uses as light load slings.
(2) Wire rope with a safety factor of less than five may be used
only as follows:
(i) In specialized equipment, such as cranes, designed to be used
with lesser wire rope safety factors;
(ii) According to design factors in standing rigging applications;
or
(iii) For heavy lifts or other purposes for which a safety factor
of five is not feasible and for which the employer can show that
equivalent safety is ensured.
(3) Wire rope or wire rope slings provided by the employer and
having any of the following conditions shall not be used:
(i) Ten randomly distributed broken wires in one rope lay or three
or more broken wires in one strand in one rope lay;
(ii) Kinking, crushing, bird caging or other damage resulting in
distortion of the wire rope structure;
(iii) Evidence of heat damage;
(iv) Excessive wear or corrosion, deformation or other defect in
the wire or attachments, including cracks in attachments;
(v) Any indication of strand or wire slippage in end attachments;
or
(vi) More than one broken wire close to a socket or swaged fitting.
(4) Protruding ends of strands in splices on slings and bridles
shall be covered or blunted. Coverings shall be removable so that
splices can be examined. Means used to cover or blunt ends shall not
damage the wire.
(5) Where wire rope clips are used to form eyes, the employer shall
follow the manufacturers' recommendations, which shall be available for
inspection. If ``U'' bolt clips are used and the manufacturers'
recommendations are not available, Table 1 of Appendix II to this part
shall be used to determine the number and spacing of clips. ``U'' bolts
shall be applied with the ``U'' section in contact with the dead end of
the rope.
(6) Wire rope shall not be secured by knotting.
(7) Eyes in wire rope bridles, slings, bull wires, or in single
parts used for hoisting shall not be formed by wire rope clips or
knots.
(8) Eye splices in wire ropes shall have at least three tucks with
a whole strand of the rope, and two tucks with one-half of the wire cut
from each strand. Other forms of splices or connections that the
employer demonstrates to be equivalently safe may be used.
(9) Except for eye splices in the ends of wires and endless rope
slings, each wire rope used in hoisting or lowering, or bulling cargo,
shall consist of one continuous piece without knot or splice.
(c) Natural fiber rope. (1) The employer shall follow the
manufacturers' recommended ratings for natural fiber rope and natural
fiber rope slings provided for use aboard ship, and shall have such
ratings available for inspection.
(2) If the manufacturers' recommended ratings and use
recommendations are unavailable, the employer shall use Table 2 of
Appendix II to this part to determine safe working loads of natural
fiber rope slings comprising part of pre-slung drafts.
(3) Eye splices shall consist of at least three full tucks. Short
splices shall consist of at least six tucks, three on each side of the
centerline.
(d) Synthetic rope. (1) The employer shall follow the
manufacturers' ratings and use recommendations for the specific
synthetic fiber rope and synthetic fiber rope slings provided for use
aboard ship, and shall have such ratings available for inspection.
(2) If the manufacturers' recommended ratings and use
recommendations are unavailable, Tables 3A and B of Appendix II to this
part shall be used to determine the safe working load of synthetic
fiber rope and of synthetic rope slings that comprise this part of pre-
slung drafts.
(3) Unless otherwise recommended by the manufacturer, when
synthetic fiber ropes are substituted for natural fiber ropes of less
than three inches (7.62 cm) in circumference, the substitute shall be
of equal size. Where substituted for natural fiber rope of three inches
(7.62 cm) or more in circumference, the size of the synthetic rope
shall be determined from the formula:
C=0.6Cs2 +0.4Cm2
Where C=the required circumference of the synthetic rope in inches
(centimeters); Cs=the circumference to the nearest one-
quarter inch (.6 cm) of a synthetic rope having a breaking strength no
less than that of the natural rope that is required by paragraph (c) of
this section; and Cm=the circumference of the natural rope
in inches (centimeters) that is required by paragraph (c) of this
[[Page 40211]]
section. In making each substitution, the employer shall ascertain that
the inherent characteristics of the synthetic fiber are suitable for
hoisting.
(e) Removal of natural and synthetic rope from service. Natural and
synthetic rope having any of the following defects shall be removed
from service:
(1) Abnormal or excessive wear including heat and chemical damage;
(2) Powdered fiber between strands;
(3) Sufficient cut or broken fibers to affect the capability of the
rope;
(4) Variations in the size or roundness of strands;
(5) Discolorations other than stains not associated with rope
damage;
(6) Rotting; or
(7) Distortion or other damage to attached hardware.
(f) Thimbles. Properly fitting thimbles shall be used when any rope
is secured permanently to a ring, shackle or attachment, where
practicable.
(g) Synthetic web slings. (1) Slings and nets or other combinations
of more than one piece of synthetic webbing assembled and used as a
single unit (synthetic web slings) shall not be used to hoist loads
greater than the sling's rated capacity.
(2) Synthetic web slings shall be removed from service if they
exhibit any of the following defects:
(i) Acid or caustic burns;
(ii) Melting or charring of any part of the sling surface;
(iii) Snags, punctures, tears or cuts;
(iv) Broken or worn stitches;
(v) Distortion or damage to fittings; or
(vi) Display of visible warning threads or markers designed to
indicate excessive wear or damage.
(3) Defective synthetic web slings removed from service shall not
be returned to service unless repaired by a sling manufacturer or an
entity of similar competence. Each repaired sling shall be proof tested
by the repairer to twice the sling's rated capacity before its return
to service. The employer shall retain a certificate of the proof test
and make it available for inspection.
(4) Synthetic web slings provided by the employer shall only be
used according to the manufacturers' use recommendations, which shall
be available.
(5) Fittings shall have a breaking strength at least equal to that
of the sling to which they are attached and shall be free of sharp
edges.
(h) Chains and chain slings used for hoisting. (1) The employer
shall follow the manufacturers' recommended ratings for safe working
loads for the size of wrought iron and alloy steel chains and chain
slings and shall have such ratings available for inspection. When the
manufacturer does not provide such ratings, the employer shall use
Table 4A of Appendix II to this part to determine safe working loads
for alloy steel chains and chain slings only.
(2) Proof coil steel chain, also known as common or hardware chain,
and other chain not recommended by the manufacturer for slinging or
hoisting shall not be used for slinging or hoisting.
(3)(i) Sling chains, including end fastenings, shall be inspected
for visible defects before each day's use and as often as necessary
during use to ensure integrity of the sling.
(ii) Thorough inspections of chains in use shall be made quarterly
to detect wear, defective welds, deformation or increase in length or
stretch. The month of inspection shall be shown on each chain by color
of paint on a link or by other equally effective means.
(iii) Chains shall be removed from service when maximum allowable
wear, as indicated in Table 4B of Appendix II to this part, is reached
at any point of a link.
(iv) Chain slings shall be removed from service when stretch has
increased the length of a measured section by more than 5 percent; when
a link is bent, twisted or otherwise damaged; or when a link has a
raised scarf or defective weld.
(v) Only designated persons shall inspect chains used for slinging
and hoisting.
(4) Chains shall only be repaired by a designated person. Links or
portions of a chain defective under any of the criteria of paragraph
(h)(3)(iv) of this section shall be replaced with properly dimensioned
links or connections of material similar to that of the original chain.
Before repaired chains are returned to service, they shall be tested to
the proof test load recommended by the manufacturer for the original
chain. Tests shall be done by the manufacturer or shall be certified by
an agency accredited for the purpose under part 1919 of this chapter.
Test certificates shall be available for inspection.
(5)(i) Wrought iron chains in constant use shall be annealed or
normalized at intervals not exceeding six months. Heat treatment
certificates shall be available for inspection. Alloy chains shall not
be annealed.
(ii) Any part of a lifting appliance or item of loose gear
installed after January 21, 1998 shall not be manufactured of wrought
iron.
(6) Kinked or knotted chains shall not be used for lifting. Chains
shall not be shortened by bolting, wiring or knotting. Makeshift links
or fasteners such as wire, bolts or rods shall not be used.
(7) Hooks, rings, links and attachments affixed to sling chains
shall have rated capacities at least equal to those of the chains to
which they are attached.
(8) Chain slings shall bear identification of size, grade and rated
capacity.
(i) Shackles. (1) If the manufacturers' recommended safe working
loads for shackles are available, they shall not be exceeded. If the
manufacturers' recommendations are not available, Table 5 of Appendix
II to this part shall apply.
(2) Screw pin shackles provided by the employer and used aloft
shall have their pins positively secured.
(j) Hooks other than hand hooks. (1) The manufacturers' recommended
safe working loads for hooks shall not be exceeded. Hooks other than
hand hooks shall be tested according to the provisions of paragraphs
(a), (c) and (d) of Sec. 1919.31 of this chapter.
(2) Bent or sprung hooks shall be discarded.
(3) Teeth of case hooks shall be maintained in safe condition.
(4) Jaws of patent clamp-type plate hooks shall be maintained in
condition to grip plates securely.
(5) Loads shall be applied to the throat of the hook only.
(k) Pallets. (1) Pallets shall be made and maintained to support
and carry loads being handled safely. Fastenings of reusable pallets
used for hoisting shall be bolts and nuts, drive screws (helically
threaded nails), annular threaded nails or fastenings of equivalent
holding strength.
(2) Reusable wing or lip-type pallets shall be hoisted by bar
bridles or other suitable gear and shall have an overhanging wing or
lip of at least three inches (7.6 cm). They shall not be hoisted by
wire slings alone.
(3) Loaded pallets that do not meet the requirements of this
paragraph shall be hoisted only after being placed on pallets meeting
such requirements, or shall be handled by other means providing
equivalent safety.
(4) Bridles for handling flush end or box-type pallets shall be
designed to prevent disengagement from the pallet under load.
(5) Pallets shall be stacked or placed to prevent falling,
collapsing or otherwise causing a hazard under standard operating
conditions.
(6) Disposable pallets intended only for one use shall not be
reused for hoisting.
[[Page 40212]]
Sec. 1918.63 Chutes, gravity conveyors and rollers.
(a) Chutes shall be of adequate length and strength to support the
conditions of use, and shall be free of splinters and sharp edges.
(b) When necessary for the safety of employees, chutes shall be
equipped with sideboards to afford protection from falling objects.
(c) When necessary for the safety of employees, provisions shall be
made for stopping objects other than bulk commodities at the delivery
end of the chute.
(d) Chutes and gravity conveyor roller sections shall be firmly
placed and secured to prevent displacement, shifting, or falling.
(e) Gravity conveyors shall be of sufficient strength to support
the weight of materials placed upon them safely. Conveyor rollers shall
be installed in a way that prevents them from falling or jumping out of
the frame.
(f) Frames shall be kept free of burrs and sharp edges.
Sec. 1918.64 Powered conveyors.
(a) Emergency stop. Readily accessible stop controls shall be
provided for use in an emergency. Whenever the operation of any power
conveyor requires personnel to work close to the conveyor, the conveyor
controls shall not be left unattended while the conveyor is in
operation.
(b) Guarding. All conveyor and trimmer drives that create a hazard
shall be adequately guarded.
(c) Approved for location. Electric motors and controls on
conveyors and trimmers used to handle grain and exposed to grain dust
shall be of a type approved by a nationally recognized testing
laboratory for use in Class II, Division I locations. (See Sec. 1910.7
of this chapter.)
(d) Grain trimmer control box. Each grain trimmer shall have a
control box on the weather deck close to the spout feeding the trimmer.
(e) Grain trimmer power cable. Power cables between the deck
control box and the grain trimmer shall be used only in continuous
lengths without splice or tap between connections.
(f) Portable conveyors. Portable conveyors shall be stable within
their operating ranges. When used at variable fixed levels, the unit
shall be secured at the operating level.
(g) Delivery and braking. When necessary for the safety of
employees, provisions shall be made for braking objects at the delivery
end of the conveyor.
(h) Electric brakes. Conveyors using electrically released brakes
shall be constructed so that the brakes cannot be released until power
is applied and the brakes are automatically engaged if the power fails
or the operating control is returned to the ``stop'' position.
(i) Starting powered conveyors. Powered conveyors shall not be
started until all employees are clear of the conveyor or have been
warned that the conveyor is about to start up.
(j) Loading and unloading. The area around conveyor loading and
unloading points shall be kept clear of obstructions during conveyor
operations.
(k) Lockout/tagout. (1) Conveyors shall be stopped and their power
sources locked out and tagged out during maintenance, repair, and
servicing. If power is necessary for testing or for making minor
adjustments, power shall only be supplied to the servicing operation.
(2) The starting device shall be locked out and tagged out in the
stop position before an attempt is made to remove the cause of a jam or
overload of the conveying medium.
(l) Safe practices. (1) Only designated persons shall operate,
repair or service powered conveyors.
(2) The employer shall ensure that each employee stays off
operating conveyors.
(3) Conveyors shall be operated only with all overload devices,
guards and safety devices in place and operable.
Sec. 1918.65 Mechanically powered vehicles used aboard vessels.
(a) Applicability. This section applies to every type of
mechanically powered vehicle used for material or equipment handling
aboard a vessel.
(b) General. (1) Modifications, such as adding counterweights that
might affect the vehicle's capacity or safety, shall not be done
without either the manufacturers' prior written approval or the written
approval of a registered professional engineer experienced with the
equipment, who has consulted with the manufacturer, if available.
Capacity, operation and maintenance instruction plates, tags or decals
shall be changed to conform to the equipment as modified.
(2) Rated capacities, with and without removable counterweights,
shall not be exceeded. Rated capacities shall be marked on the vehicle
and shall be visible to the operator. The vehicle weight, with and
without a counterweight, shall be similarly marked.
(3) If loads are lifted by two or more trucks working in unison,
the total weight shall not exceed the combined safe lifting capacity of
all trucks.
(c) Guards for fork lift trucks. (1) Except as noted in paragraph
(c)(5) of this section, fork lift trucks shall be equipped with
overhead guards securely attached to the machines. The guard shall be
of such design and construction as to protect the operator from boxes,
cartons, packages, bagged material, and other similar items of cargo
that might fall from the load being handled or from stowage.
(2) Overhead guards shall not obstruct the operator's view, and
openings in the top of the guard shall not exceed six inches (15.2 cm)
in one of the two directions, width or length. Larger openings are
permitted if no opening allows the smallest unit of cargo being handled
through the guard.
(3) Overhead guards shall be built so that failure of the vehicle's
mast tilting mechanism will not displace the guard.
(4) Overhead guards shall be large enough to extend over the
operator during all truck operations, including forward tilt.
(5) An overhead guard may be removed only when it would prevent a
truck from entering a work space and only if the operator is not
exposed to low overhead obstructions in the work space.
(6) Where necessary to protect the operator, fork lift trucks shall
be fitted with a vertical load backrest extension to prevent the load
from hitting the mast when the mast is positioned at maximum backward
tilt. For this purpose, a ``load backrest extension'' means a device
extending vertically from the fork carriage frame to prevent raised
loads from falling backward.
(d) Guards for bulk cargo-moving vehicles. (1) Every crawler type,
rider operated, bulk cargo-moving vehicle shall be equipped with an
operator's guard of such design and construction as to protect the
operator, when seated, against injury from contact with a projecting
overhead hazard.
(2) Overhead guards and their attachment points shall be so
designed as to be able to withstand, without excessive deflection, a
load applied horizontally at the operator's shoulder level equal to the
drawbar pull of the machine.
(3) Overhead guards are not required when the vehicle is used in
situations in which the seated operator cannot contact projecting
overhead hazards.
(4) After July 26, 1999, bulk cargo-moving vehicles shall be
equipped with rollover protection of such design and construction as to
prevent the possibility of the operator being crushed because of a
rollover or upset.
(e) Approved trucks. (1) ``Approved power-operated industrial
truck'' means one listed as approved for the intended use or location
by a nationally
[[Page 40213]]
recognized testing laboratory (see Sec. 1910.7 of this chapter).
(2) Approved power-operated industrial trucks shall bear a label or
other identification indicating testing laboratory approval.
(3) When the atmosphere in an area is hazardous (see Sec. 1918.2
and Sec. 1918.93), only approved power-operated industrial trucks shall
be used.
(f) Maintenance. (1) Mechanically powered vehicles shall be
maintained in safe working order. Safety devices shall not be removed
or made inoperative except where permitted in this section. Vehicles
with a fuel system leak or any other safety defect shall not be
operated.
(2) Braking systems or other mechanisms used for braking shall be
operable and in safe condition.
(3) Replacement parts whose function might affect operational
safety shall be equivalent in strength and performance capability to
the original parts that they replace.
(4) Repairs to the fuel and ignition systems of mechanically
powered vehicles that involve fire hazards shall be conducted only in
locations designated as safe for such repairs.
(5) Batteries on all mechanically powered vehicles shall be
disconnected during repairs to the primary electrical system except
when power is necessary for testing and repair. On vehicles equipped
with systems capable of storing residual energy, that energy shall be
safely discharged before work on the primary electrical system begins.
(6) Only designated persons shall do maintenance and repair.
(g) Parking brakes. All mechanically powered vehicles purchased
after January 21, 1998, shall be equipped with parking brakes.
(h) Operation. (1) Only stable and safely arranged loads within the
rated capacity of the mechanically powered vehicle shall be handled.
(2) The employer shall require drivers to ascend and descend grades
slowly.
(3) If the load obstructs the forward view, the employer shall
require drivers to travel with the load trailing.
(4) Steering knobs shall not be used unless the vehicle is equipped
with power steering.
(5) When mechanically powered vehicles use cargo lifting devices
that have a means of engagement hidden from the operator, a means shall
be provided to enable the operator to determine that the cargo has been
engaged.
(6) No load on a mechanically powered vehicle shall be suspended or
swung over any employee.
(7) When mechanically powered vehicles are used, provisions shall
be made to ensure that the working surface can support the vehicle and
load, and that hatch covers, truck plates, or other temporary surfaces
cannot be dislodged by movement of the vehicle.
(8) When mechanically powered vehicles are left unattended, load-
engaging means shall be fully lowered, controls neutralized, brakes set
and power shut off. Wheels shall be blocked or curbed if the vehicle is
on an incline.
(9) When lift trucks or other mechanically powered vehicles are
being operated on open deck-type barges, the edges of the barges shall
be guarded by railings, sideboards, timbers, or other means sufficient
to prevent vehicles from rolling overboard. When such vehicles are
operated on covered lighters where door openings other than those being
used are left open, means shall be provided to prevent vehicles from
rolling overboard through such openings.
(10) Unauthorized personnel shall not ride on mechanically powered
vehicles. A safe place to ride shall be provided when riding is
authorized.
(11) An employee may be elevated by fork lift trucks only when a
platform is secured to the lifting carriage or forks. The platform
shall meet the following requirements:
(i) The platform shall have a railing complying with
Sec. 1917.112(c) of this chapter.
(ii) The platform shall have toeboards complying with
Sec. 1917.112(d) of this chapter, if tools or other objects could fall
on employees below.
(iii) When the truck has controls elevated with the lifting
carriage, means shall be provided for employees on the platform to shut
off power to the vehicle.
(iv) Employees on the platform shall be protected from exposure to
moving truck parts.
(v) The platform floor shall be skid resistant.
(vi) An employee shall be at the truck's controls whenever
employees are elevated.
(vii) While an employee is elevated, the truck may be moved only to
make minor adjustments in placement.
Sec. 1918.66 Cranes and derricks other than vessel's gear.
(a) General. The following requirements shall apply to the use of
cranes and derricks brought aboard vessels for conducting longshoring
operations. They shall not apply to cranes and derricks forming part of
a vessel's permanent equipment.
(1) Certification. Cranes and derricks shall be certificated in
accordance with part 1919 of this chapter.
(2) Posted weight. The crane weight shall be posted on all cranes
hoisted aboard vessels for temporary use.
(3) Rating chart. All cranes and derricks having ratings that vary
with boom length, radius (outreach) or other variables shall have a
durable rating chart visible to the operator, covering the complete
range of the manufacturers' (or design) capacity ratings. The rating
chart shall include all operating radii (outreach) for all permissible
boom lengths and jib lengths, as applicable, with and without
outriggers, and alternate ratings for optional equipment affecting such
ratings. Precautions or warnings specified by the owner or manufacturer
shall be included along with the chart.
(4) Rated loads. The manufacturers' (or design) rated loads for the
conditions of use shall not be exceeded.
(5) Change of rated loads. Designated working loads shall not be
increased beyond the manufacturers' ratings or original design
limitations unless such increase receives the manufacturers' approval.
When the manufacturers' services are not available or where the
equipment is of foreign manufacture, engineering design analysis shall
be done or approved by a person accredited for certificating the
equipment under part 1919 of this chapter. Engineering design analysis
shall be done by a registered professional engineer competent in the
field of cranes and derricks. Any structural changes required by the
change in rating shall be carried out.
(6) Radius indicator. When the rated load varies with the boom
radius, the crane or derrick shall be fitted with a boom angle or
radius indicator visible to the operator.
(7) Operator's station. The cab, controls and mechanism of the
equipment shall be so arranged that the operator has a clear view of
the load or signalman, when one is used. Cab glass, when used, shall be
safety plate glass or equivalent. Cranes with missing, broken, cracked,
scratched, or dirty glass (or equivalent), that impairs operator vision
shall not be used. Clothing, tools, and equipment shall be stored so as
not to interfere with access, operation, and the operator's view.
(8) Counterweights or ballast. Cranes shall be operated only with
the specified type and amount of ballast or counterweights. Ballast or
counterweights shall be located and secured only as provided in the
manufacturers' or design specifications, which shall be available for
inspection.
(9) Outriggers. Outriggers shall be used according to the
manufacturers' specifications or design data, which
[[Page 40214]]
shall be available for inspection. Floats, when used, shall be securely
attached to the outriggers. Wood blocks or other support shall be of
sufficient size to support the outrigger, free of defects that may
affect safety, and of sufficient width and length to prevent the crane
from shifting or toppling under load.
(10) Exhaust gases. Engine exhaust gases shall be discharged away
from crane operating personnel.
(11) Electrical/Guarding. Electrical equipment shall be so placed
or enclosed that live parts will not be exposed to accidental contact.
Designated persons may work on energized equipment only if necessary
during inspection, maintenance, or repair; otherwise the equipment
shall be stopped and its power source locked out and tagged out.
(12) Fire extinguisher. (i) At least one portable approved or
listed fire extinguisher of at least a 5-B:C rating or equivalent shall
be accessible in the cab of the crane or derrick.
(ii) No portable fire extinguisher using carbon tetrachloride or
chlorobromomethane extinguishing agents shall be used.
(13) Rope on drums. At least three full turns of rope shall remain
on ungrooved drums, and two turns on grooved drums, under all operating
conditions. Wire rope shall be secured to drums by clamps, U-bolts,
shackles or equivalent means. Fiber rope fastenings are prohibited.
(14) Brakes. (i) Each independent hoisting unit of a crane shall be
equipped with at least one holding brake, applied directly to the motor
shaft or gear train.
(ii) Each independent hoisting unit of a crane shall, in addition
to the holding brake, be equipped with a controlled braking means to
control lowering speeds.
(iii) Holding brakes for hoist units shall have not less than the
following percentage of the rated load hoisting torque at the point
where the brake is applied:
(A) 125 percent when used with an other than mechanically
controlled braking means; or
(B) 100 percent when used with a mechanically controlled braking
means.
(iv) All power control braking means shall be capable of
maintaining safe lowering speeds of rated loads.
(15) Operating controls. Crane and derrick operating controls shall
be clearly marked, or a chart showing their function shall be posted at
the operator's position.
(16) Booms. Cranes with elevatable booms and without operable
automatic limiting devices shall be provided with boom stops if boom
elevation can exceed maximum design angles from the horizontal.
(17) Foot pedals. Foot pedals shall have a non-skid surface.
(18) Access. Ladders, stairways, stanchions, grab irons, foot steps
or equivalent means shall be provided as necessary to ensure safe
access to footwalks, cab platforms, the cab and any portion of the
superstructure that employees must reach.
(b) Operations. (1) Use of cranes together. When two or more cranes
hoist a load in unison, a designated person shall direct the operation
and instruct personnel in positioning, rigging of the load and
movements to be made.
(2) Guarding of swing radius. Accessible areas within the swing
radius of the body of a revolving crane shall be physically guarded
during operations to prevent an employee from being caught between the
body of the crane and any fixed structure or between parts of the
crane.
(3) Prohibited usage. (i) Equipment shall not be used in a way that
exerts side loading stresses upon the crane or derrick boom.
(ii) No crane or derrick having a visible or known defect that may
affect safe operation shall be used.
(4) Unattended cranes. The following steps shall be taken before
leaving a crane unattended between work periods:
(i) Suspended loads, such as those hoisted by lifting magnets or
clamshell buckets, shall be landed unless the storage position or
maximum hoisting of the suspended device will provide equivalent
safety;
(ii) Clutches shall be disengaged;
(iii) The power supply shall be shut off;
(iv) The crane shall be secured against accidental travel; and
(v) The boom shall be lowered or secured against movement.
(c) Protection for employees being hoisted. (1) No employee shall
be hoisted by the load hoisting apparatus of a crane or derrick except
on a platform meeting the following requirements:
(i) Enclosed by a railing or other means providing protection
equivalent to that described in Sec. 1917.112(c) of this chapter;
(ii) Fitted with toe boards if the platform has open railings;
(iii) A safety factor of four based on ultimate strength;
(iv) Bearing a plate or permanent marking indicating maximum load
rating, which shall not be exceeded, and the weight of the platform
itself;
(v) Equipped with a device to prevent access doors, when used, from
opening accidentally;
(vi) Equipped with overhead protection for employees on the
platform if they are exposed to falling objects or overhead hazards;
and
(vii) Secured to the load line by means other than wedge and socket
attachments, unless the free (bitter) end of the line is secured back
to itself by a clamp placed as close above the wedge as possible.
(2) Except in an emergency, the hoisting mechanism of all cranes or
derricks used to hoist personnel shall operate only in power up and
power down, with automatic brake application when not hoisting or
lowering.
(3) All cranes and derricks used to hoist personnel shall be
equipped with an anti-two-blocking device.
(4) Variable radius booms of a crane or derrick used to hoist
personnel shall be so constructed or secured as to prevent accidental
boom movement.
(5) Platforms or devices used to hoist employees shall be inspected
for defects before each day's use and shall be removed from service if
defective.
(6) Employees being hoisted shall remain in continuous sight of and
communication with the operator or signalman.
(7) Operators shall remain at the controls when employees are
hoisted.
(8) Cranes shall not travel while employees are hoisted, except in
emergencies or in normal tier-to-tier transfer of employees during
container operations.
(d) Routine inspection. (1) Designated persons shall visually
inspect each crane and derrick on each day of use for defects in
functional operating components and shall report any defect found to
the employer. The employer shall inform the operator of the result of
the inspection.
(2) A designated person shall thoroughly inspect all functional
components and accessible structural features of each crane or device
at monthly intervals.
(3) Any defects found during such inspections that may create a
safety hazard shall be corrected before further equipment use. Repairs
shall be done only by designated persons.
(4) A record of each monthly inspection shall be maintained for six
months in or on the crane or derrick or at the terminal.
(e) Protective devices. (1) When exposed moving parts such as
gears, chains and chain sprockets present a hazard to employees during
crane and derrick operations, those parts shall be securely guarded.
[[Page 40215]]
(2) Crane hooks shall be latched or otherwise secured to prevent
accidental load disengagement.
(f) Load-indicating devices. (1) Unless exempted by the provisions
of paragraph (f)(1)(viii) of this section, every crane used to load or
discharge cargo into or out of a vessel shall be fitted with a load-
indicating device or alternative device in proper working condition
that shall meet the following criteria:
(i) The type or model of any load-indicating device used shall be
such as to provide:
(A) A direct indication in the cab of actual weight hoisted or a
means of determining this by reference to crane ratings posted and
visible to the operator, except that the use of a dynamometer or simple
scale alone will not meet this requirement; or
(B) An automatic weight-moment device (e.g., a computer) providing
indications in the cab according to the radius and load at the moment;
or
(C) A device that will prevent an overloaded condition.
(ii) The accuracy of the load-indicating device, weight-moment
device, or overload protection device shall be such that any indicated
load (or limit), including the sum of actual weight hoisted and
additional equipment or ``add ons'' such as slings, sensors, blocks,
etc., is within the range between 95 percent (5 percent underload) and
110 percent (10 percent overload) of the actual true total load. Such
accuracy shall be required over the range of daily operating variables
reasonably anticipated under the conditions of use.
(iii) The device shall enable the operator to decide before making
any lift that the load indicating device or alternative device is
operative. In the alternative, if the device is not so mounted or
attached and does not include such means of checking, it shall be
certified by the manufacturer to remain operative for a specific time.
The device shall be checked for accuracy, using known values of the
load, at the time of every certification survey (see Sec. 1918.11) and
at such additional times as may be recommended by the manufacturer.
(iv) When the load indicating device or alternative device is so
arranged in the supporting system (crane structure) that its failure
could cause the load to be dropped, its strength shall not be the
limiting factor of the supporting system (crane structure).
(v) Units of measure in pounds or both pounds and kilograms (or
other indicators of measurement, such as colored indicator lights),
capacity of the indicating system, accuracy of the indicating system,
and operating instructions and precautions shall be conspicuously
marked. If the system used provides no readout but automatically ceases
crane operation when the rated load limit is reached under any specific
condition of use, the marking shall provide the make and model of the
device installed, a description of what it does, how it is operated,
and any necessary precautions regarding the system. All of these
markings shall be readily visible to the operator.
(vi) All load indicating devices shall operate over the full
operating radius. Overall accuracy shall be based on actual applied
loads and not on full scale (full capacity) load.
Note to paragraph (f)(1)(vi): If the accuracy of the load
indicating device is based on full scale loads and the device is
arbitrarily set at plus or minus 10 percent, it would accept a
reading between 90,000 and 110,000 lbs. at full capacity for a
machine with a maximum rating of 100,000 lbs. but would also show a
reading of between zero and 20,000 lbs. at that outreach (radius) at
which the load would be 10,000 lbs.; this is clearly unacceptable.
If, however, the accuracy of the device is based on actual applied
loads under the same conditions, the acceptable range would remain
the same with the 100,000-lb. load but would show a figure between
9,000 and 11,000 lbs. at the 10,000-lb. load; this is an acceptable
reading.
(vii) When a load-indicating device uses the radius as a factor in
its use or in its operating indications, the indicated radius (which
may be in feet and/or meters, or degrees of boom angle, depending on
the system used) shall be within the range between 97 percent and 110
percent of the actual (true) radius. When radius is presented in
degrees, and feet or meters are required for necessary determinations,
a conversion chart shall be provided.
(viii) The load indicating device requirements of this paragraph do
not apply to a crane:
(A) Of the trolley equipped bridge type while handling containers
known to be and identified as empty, or loaded, and in either case
according to the provisions of Sec. 1918.85(b) of this part, or while
hoisting other lifts by means of a lifting beam supplied by the crane
manufacturer for the purpose and in all cases within the crane rating;
(B) While handling bulk commodities or cargoes by means of
clamshell bucket or magnet;
(C) While used to handle or hold hoses in connection with transfer
of bulk liquids, or other hose-handled products; or
(D) While the crane is used exclusively to handle cargo or
equipment whose total actual gross weight is marked on the unit or
units hoisted, and the total actual gross weight never exceeds 11,200
lbs., and the load is less than the rated capacity of the crane at the
maximum outreach possible at the time.
(2) [Reserved]
Sec. 1918.67 Notifying the ship's officers before using certain
equipment.
(a) The employer shall notify the officer in charge of the vessel
before bringing aboard ship internal combustion or electric powered
tools, equipment or vehicles.
(b) The employer shall also notify the officer in charge of the
vessel before using the ship's electric power for the operation of any
electric tools or equipment.
Sec. 1918.68 Grounding.
The frames of portable electrical equipment and tools, other than
double insulated tools and battery operated tools, shall be grounded
through a separate equipment conductor run with or enclosing the
circuit conductors.
Sec. 1918.69 Tools.
(a) General. Employers shall not issue or permit the use of visibly
unsafe tools.
(b) Portable electric tools. (1) Portable hand-held electric tools
shall be equipped with switches of a type that must be manually held in
position.
(2) All portable, power-driven circular saws shall be equipped with
guards above and below the base plate or shoe. The upper guard shall
cover the saw to the depth of the teeth, except for the minimum arc
required to permit the base to be tilted for bevel cuts. The lower
guard shall cover the saw to the depth of the teeth, except for the
minimum arc required to allow proper retraction and contact with the
work. When the tool is withdrawn from the work, the lower guard shall
automatically and instantly return to the covering position.
Secs. 1918.70-.80 [Reserved]
Subpart H--Handling Cargo
Sec. 1918.81 Slinging.
(a) Drafts shall be safely slung before being hoisted. Loose
dunnage or debris hanging or protruding from loads shall be removed.
(b) Cargo handling bridles, such as pallet bridles, which are to
remain attached to the hoisting gear while hoisting successive drafts,
shall be attached by shackles, or other positive means shall be taken
to prevent them from being accidentally disengaged from the cargo hook.
[[Page 40216]]
(c) Drafts of lumber, pipe, dunnage and other pieces, the top layer
of which is not bound by the sling, shall be slung in a way that
prevents sliders. Double slings shall be used on unstrapped dunnage,
unless, due to the size of hatch or deep tank openings, using them is
impracticable.
(d) Case hooks shall be used only with cases designed to be hoisted
by these hooks.
(e) Bales of cotton, wool, cork, wood pulp, gunny bags or similar
articles shall not be hoisted by straps unless the straps are strong
enough to support the weight of the bale. At least two hooks, each in a
separate strap, shall be used.
(f) Unitized loads bound by bands or straps may be hoisted by the
banding or strapping only if the banding or strapping is suitable for
hoisting and is strong enough to support the weight of the load.
(g) Additional means to maintain the unitized loads during hoisting
shall be employed to ensure safe lifting of such loads having damaged
banding or strapping.
(h) Loads requiring continuous manual guidance during handling
shall be guided by guide ropes (tag lines) that are long enough to
control the load.
(i) No draft shall be hoisted unless the winch or crane operator(s)
can clearly see the draft itself or see the signals of a signalman who
is observing the draft's movement.
(j) Intermodal containers shall be handled in accordance with
Sec. 1918.85.
(k) The employer shall require that employees stay clear of the
area beneath overhead drafts or descending lifting gear.
(l) The employer shall not permit employees to ride the hook or the
load, except as provided for in Sec. 1918.85(g).
Sec. 1918.82 Building drafts.
(a) Drafts shall be built or means shall be taken to prevent cargo
from falling from them.
(b) Buckets and tubs used in handling bulk or frozen cargo shall
not be loaded above their rims.
Sec. 1918.83 Stowed cargo; tiering and breaking down.
(a) When necessary to protect personnel working in a hold, the
employer shall secure or block stowed cargo that is likely to shift or
roll.
(b) In breaking down stowed cargo, precautions shall be taken to
prevent remaining cargo from falling.
(c) Employees trimming bulk cargo shall be checked in and out by
the job boss. Before securing any reefer compartment, a check shall be
made to ensure that no employee remains inside. Frequent checks shall
be made to ensure the safety of any employee working alone in a tank or
cargo compartment.
Sec. 1918.84 Bulling cargo.
(a) Bulling cargo shall be done with the bull line led directly
from the heel block. However, bulling may be done from the head of the
boom when the nature of the cargo and the surface over which it is
dragged are such that the load cannot be stalled, or when the winch
actually does not have sufficient strength, with the purchase used, to
overload the boom.
(b) Snatch blocks shall be used to provide a fair lead for the bull
line to avoid unnecessary dragging of the bull line against coamings
and obstructions.
(c) Snatch blocks shall not be used with the point of the hook
resting on the flange of a beam, but shall be hung from padeyes,
straps, or beam clamps. Snatch blocks or straps shall not be made fast
to batten cleats or other insecure fittings.
(d) Beam frame clamps shall be so secured as to prevent their
slipping, falling, or being pulled from their stationary attachment.
(e) Falls led from cargo booms of vessels shall not be used to move
scows, lighters or railcars.
Sec. 1918.85 Containerized cargo operations.
(a) Container markings. Every intermodal container shall be legibly
and permanently marked with:
(1) The weight of the container when empty, in pounds;
(2) The maximum cargo weight the container is designed to carry, in
pounds; and
(3) The sum of the weight of the container and the maximum cargo
weight, in pounds.
(b) Container weight. No container shall be hoisted by any lifting
appliance unless the following conditions have been met:
(1) The employer shall determine from the carrier whether a
container to be hoisted is loaded or empty. Before loading or
discharging, empty containers shall be identified in a manner that will
inform every supervisor and job boss on the site and in charge of
loading or discharging, or every crane or other hoisting equipment
operator and signalman, that such container is empty. Methods of
identification may include cargo plans, manifests, or markings on the
container.
(2) For a loaded container:
(i) The actual gross weight shall be plainly marked and visible to
the crane or other hoisting equipment operator or signalman, or to
every supervisor or job boss on site and in charge of the operation; or
(ii) The cargo stowage plan or equivalent permanently recorded
display serving the same purpose, containing the actual gross weight
and the serial number or other positive identification of that specific
container, shall be provided to the crane or other hoisting equipment
operator and signalman, and to every supervisor and job boss on site
and in charge of the operation.
(3) Every outbound container received at a marine terminal ready to
load aboard a vessel without further consolidation or loading shall be
weighed to obtain the actual gross weight, either at the terminal or
elsewhere, before being hoisted.
(4)(i) When container weighing scales are found at a marine
terminal, any outbound container with a load consolidated at that
terminal shall be weighed to obtain the actual weight before being
hoisted.
(ii) If the terminal has no scales, the actual gross weight may be
calculated from the container's contents and the container's empty
weight. The weights used in the calculation shall be posted
conspicuously on the container, with the name of the person making the
calculation, and the date.
(5) Open top vehicle-carrying containers, and those built
specifically and used solely for the carriage of compressed gases, are
excepted from paragraphs (b)(3) and (b)(4) of this section.
(6) Closed dry van containers carrying vehicles are exempted from
paragraph (b)(4) of this section if:
(i) The container carries only completely assembled vehicles and no
other cargo;
(ii) The container is marked on the outside so that an employee can
readily discern that the container is carrying vehicles; and
(iii) The vehicles were loaded into the container at the marine
terminal.
(7) The weight of loaded inbound containers from foreign ports
shall be determined by weighing, by the method of calculation described
in paragraph (b)(4)(ii) of this section or by shipping documents.
(8) Any scale used within the United States to weigh containers for
the requirements of this section shall meet the accuracy standards of
the state or local public authority in which the scale is found.
(c) Overloaded containers. No container shall be hoisted if its
actual gross weight exceeds the weight marked as required in paragraph
(a)(3) of this section, or it exceeds the capacity of the lifting
appliance.
[[Page 40217]]
(d) Container inspection. (1) Prior to hoisting, each container
shall be inspected for any visible defects in structural members and
fittings that would make the handling of such container unsafe.
(2) Any container found to have such a defect shall either be
handled by a special means to ensure safe handling or shall be emptied
before handling.
(e) Suspended containers. The employer shall prohibit employees
from working beneath a suspended container.
(f) Lifting fittings. Containers shall be handled using lifting
fittings or other arrangements suitable and intended for the purpose as
set forth in paragraphs (f)(1) through (f)(3) of this section, unless
damage to an intermodal container makes special means of handling
necessary.
(1) Loaded intermodal containers. Loaded intermodal containers of
20 feet (6.1 m) or more shall be hoisted as follows:
(i) When hoisting containers by the top fittings, the lifting
forces shall be applied vertically from at least four such fittings. A
less than vertical lift is permitted only under the following
conditions:
(A) The container being lifted is an ISO ``closed box container'';
(B) The condition of the box is sound;
(C) The speed of hoisting and lowering is moderated when heavily
ladened containers \5\ are encountered;
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\5\ A heavily laden container is one that is loaded to within 20
percent of its rated capacity.
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(D) The lift angle is at 80 to 90 degrees;
(E) The distance between the lifting beam and the load is at least
8 feet, 2.4 inches (2.5 m); and
(F) The length of the spreader beam is at least 16.3 feet (5 m) for
a 20-foot container, and at least 36.4 feet (11 m) for a 40-foot
container.
(ii) When hoisting containers from bottom fittings, the hoisting
connections shall bear on the fittings only, making no other contact
with the container. The angles of the four bridle legs shall not be
less than 30 degrees to the horizontal for 40-foot (12.2 m) containers;
37 degrees for 30-foot (9.1 m) containers; and 45 degrees for 20-foot
(6.1 m) containers.
(iii) Lifting containers by fork lift trucks or grappling arms from
above or from one side may be done only if the container is designed
for this type of handling.
(iv) Other means of hoisting may be used only if the containers and
hoisting means are designed for such use.
(2) Intermodal container spreaders. (i) When using intermodal
container spreaders that employ lanyards for activation and load
disengagement, all possible precautions shall be taken to prevent
accidental release of the load.
(ii) Intermodal container spreaders that utilize automatic twist
lock systems shall be designed and used so that a suspended load cannot
accidentally be released.
(g) Safe container top access. A safe means of access shall be
provided for each employee required to work on the top of an intermodal
container. Unless ladders are used for access, such means shall comply
with the requirements of Sec. 1917.45(j) of this chapter.
(h) Employee hoisting prohibition. Employees shall not be hoisted
on intermodal container spreaders while a load is engaged.
(i) Portable ladder access. When other safer means are available,
portable ladders shall not be used in gaining access to container
stacks more than two containers high.
(j) Fall protection. (1) Containers being handled by container
gantry cranes.
(i) After July 26, 1999, where a container gantry crane is being
used to handle containers, the employer shall ensure that no employee
is on top of a container. Exception: An employee may be on top of a
container only to perform a necessary function that cannot be
eliminated by the use of positive container securing devices.\6\
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\6\ Examples of work that may not be eliminated by positive
container securing devices and that may require employees to work on
top of containers include, but are not limited to: installing or
removing bridge clamps; hooking up or detaching over-height
containers; or freeing a jammed semi-automatic twist lock.
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(ii) After July 26, 1999, the employer shall ensure that positive
container securing devices, such as semi-automatic twist locks and
above deck cell guides, are used wherever container gantry cranes are
used to hoist containers.
(iii) The employer shall ensure that each employee on top of a
container is protected from fall hazards by a fall protection system
meeting the requirements of paragraph (k) of this section.
(2) Containers being handled by other hoisting devices. Where
containers are being handled by hoisting devices other than container
gantry cranes, the employer shall ensure that each employee on top of a
container is protected by a fall protection system meeting the
requirements of paragraph (k) of this section.
(3) Other exposure to fall hazards. The employer shall ensure that
each employee exposed to a fall hazard is protected by a fall
protection system meeting the requirements of paragraph (k) of this
section. Exception: Where the employer can demonstrate that fall
protection for an employee would be infeasible or create a greater
hazard due to vessel design, container design, container storage, other
cargo stowage, container handling equipment, lifting gear, or port
conditions, the employer shall alert the affected employee about the
fall hazard and instruct the employee in ways to minimize exposure to
that hazard.
(k) Fall protection systems. When fall protection systems required
by paragraph (j) of this section are employed, the following shall
apply:
(1) Each fall protection system component, except anchorages, shall
have fall arrest/restraint as its only use.
(2) Each fall protection system subjected to impact loading shall
be immediately withdrawn from service and not be used again until
inspected and determined by a designated person to be undamaged and
suitable for use.
(3) Each fall protection system shall be rigged so that a falling
employee cannot contact any lower level stowage or vessel structure.
(4) Each fall protection system adopted for use shall have an
energy absorbing mechanism that will produce an arresting force on an
employee of not greater than 1800 pounds (8 kN).
(5) Each component of a fall protection system shall be designed
and used to prevent accidental disengagement.
(6) Each fall protection system's fixed anchorages shall be capable
of sustaining a force of 5,000 pounds (22.2 kN) or be certified as
capable of sustaining at least twice the potential impact load of an
employee's fall. Such certification must be made by a qualified
person.\7\ When more than one employee is attached to an anchorage,
these limits shall be multiplied by the number of employees attached.
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\7\ For the purposes of this paragraph, qualified person means
one with a recognized degree or professional certificate and
extensive knowledge and experience in the subject field who is
capable of design, analysis, evaluation and specifications in the
subject work, project, or product.
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(7) When ``live'' (activated) container gantry crane lifting beams
or attached devices are used as anchorage points, the following
requirements apply:
(i) The crane shall be placed into a ``slow'' speed mode;
(ii) The crane shall be equipped with a remote shut-off switch that
can stop trolley, gantry, and hoist functions and that is in the
control of the employee(s) attached to the beam; and
[[Page 40218]]
(iii) A visible or audible indicator shall be present to alert the
exposed employee(s) when the remote shut-off is operational.
(8) Fall protection system components, other than the anchorages,
shall be certified as a unit of being capable of sustaining at least
twice the potential impact load of an employee's fall. Such
certification shall be made by a qualified person.\8\
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\8\ For the purposes of this paragraph, qualified person means
one with a recognized degree or professional certificate and
extensive knowledge and experience in the subject field who is
capable of design, analysis, evaluation and specifications in the
subject work, project, or product.
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(9) Each fall protection system shall incorporate the use of a full
body harness.
(10) Each device, such as a safety cage, used to transport an
employee(s) by being attached to a container gantry crane spreader,
shall have a secondary means to prevent accidental disengagement and
the secondary means shall be engaged.
(11) Each fall protection system shall be inspected before each
day's use by a designated person. Any defective components shall be
removed from service.
(12) Before using any fall protection system, the employee shall be
trained in the use and application limits of the equipment, proper
hookup, anchoring and tie-off techniques, methods of use, and proper
methods of equipment inspection and storage.
(13) The employer shall establish and implement a procedure to
retrieve personnel safely in case of a fall.
(l) Working along unguarded edges. The employer shall provide, and
ensure that the employee use, fall protection meeting the requirements
of paragraph (k) of this section whenever the employee works along an
unguarded edge where a fall hazard exists (see Sec. 1918.2 ).
Sec. 1918.86 Roll-on roll-off (Ro-Ro) operations \9\ (See also
Sec. 1918.25).
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\9\ Ro-Ro operations occur only on Ro-Ro vessels which are
vessels whose cargo is driven on or off the vessel by way of ramps
and moved within the vessel by way of ramps and/or elevators.
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(a) Traffic control system. An organized system of vehicular and
pedestrian traffic control shall be established and maintained at each
entrance/exit ramp and on ramps within the vessel as traffic flow
warrants.
(b) Ramp load limit. Each ramp shall be plainly marked with its
load capacity. The marked capacity shall not be exceeded.
(c) Pedestrian traffic. Stern and side port ramps also used for
pedestrian access shall meet the requirements of Sec. 1918.25. Such
ramps shall provide a physical separation between pedestrian and
vehicular routes. When the design of the ramp prevents physical
separation, a positive means shall be established to prevent
simultaneous use of the ramp by vehicles and pedestrians.
(d) Ramp maintenance. Ramps shall be properly maintained and
secured.
(e) Hazardous routes. Before the start of Ro-Ro operations, the
employer shall identify any hazardous routes or areas that could be
mistaken for normal drive-on/drive-off routes. Such hazardous routes
shall be clearly marked and barricaded.
(f) Air brake connections. Each tractor shall have all air lines
connected when pulling trailers equipped with air brakes and shall have
the brakes tested before commencing operations.
(g) Trailer load limits. After July 27, 1998, flat bed and low boy
trailers shall be marked with their cargo capacities and shall not be
overloaded.
(h) Cargo weights. Cargo to be handled via a Ro-Ro ramp shall be
plainly marked with its weight in pounds (kilograms). Alternatively,
the cargo stow plan or equivalent record containing the actual gross
weight of the load may be used to determine the weight of the cargo.
(i) Tractors. Tractors used in Ro-Ro operations shall have:
(1) Sufficient power to ascend ramp inclines safely; and
(2) Sufficient braking capacity to descend ramp inclines safely.
(j) Safe speeds. Power driven vehicles used in Ro-Ro operations
shall be operated at speeds that are safe for prevailing conditions.
(k) Ventilation. Internal combustion engine-driven vehicles shall
be operated only where adequate ventilation exists or is provided. (Air
contaminant requirements are found in Sec. 1918.94 and part 1910,
subpart Z, of this chapter.)
(l) Securing cargo. Cargo loaded or discharged during Ro-Ro
operations shall be secured to prevent sliding loads.
(m) Authorized personnel. Only authorized persons shall be
permitted on any deck while loading or discharging operations are being
conducted. Such authorized persons shall be equipped with high
visibility vests (or equivalent protection \10\ ).
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\10\ Decals on hard hats will not be considered equivalent
protection for the purposes of this paragraph.
Note to paragraph (m): High visibility vests or equivalent
protection means high visibility/retroreflective materials which are
intended to provide conspicuity of the user by day through the use
of high visibility (fluorescent) material and in the dark by vehicle
headlights through the use of retroreflective material. The minimum
area of material for a vest or equivalent protection is .5
m2 (760 in.\2\) for fluorescent (background) material and
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.13m2 (197 in.2) for retroreflective material.
(n) Vehicle stowage positioning. Drivers shall not drive vehicles,
either forward or backward, while any personnel are in positions where
they could be struck.
Sec. 1918.87 Ship's cargo elevators.
(a) Safe working load. The safe working loads of ship's cargo
elevators shall be determined and followed.
(b) Load distribution. Loads shall be evenly distributed and
maintained on the elevator's platform.
(c) Elevator personnel restrictions. Personnel shall not be
permitted to ride on the elevator's platform if a fall hazard exists.
(See Sec. 1918.2.)
(d) Open deck barricades. During elevator operation, each open deck
that presents a fall hazard to employees shall be effectively
barricaded.
Sec. 1918.88 Log operations.
(a) Working in holds. When loading logs into the holds of vessels
and using dumper devices to roll logs into the wings, the employer
shall ensure that employees remain clear of areas where logs being
dumped could strike, roll upon, or pin them.
(b) Personal flotation devices. Each employee working on a log boom
shall be protected by a personal flotation device meeting the
requirements of Sec. 1918.105(b)(2).
(c) Footwear. The employer shall provide each employee that is
working logs with appropriate footwear, such as spiked shoes or caulked
sandals, and shall ensure that each employee wears appropriate footwear
to climb or walk on logs.
(d) Lifelines. When employees are working on log booms or cribs,
lifelines shall be furnished and hung overside to the water's edge.
(e) Jacob's ladder. When a log boom is being worked, a Jacob's
ladder meeting the requirements of Sec. 1918.23 shall be provided for
each gang working alongside unless other safe means of access (such as
the vessel's gangway) is provided. However, no more than two Jacob's
ladders are required for any single log boom being worked.
(f) Life-ring. When working a log boom alongside a ship, a U.S.
Coast Guard approved 30-inch (76.2 cm) life-ring, with no less than 90
feet (27.4 m) of line, shall be provided either on the floating unit
itself or aboard the ship close to each floating unit being worked.
[[Page 40219]]
(g) Rescue boat. When employees are working on rafts or booms, a
rescue boat capable of effecting an immediate rescue shall be
available. Powered rescue boats are required when the current exceeds
one knot.
(h) Log rafts. When an employee is working logs out of the water,
walking sticks \11\ (safety sticks) shall be provided as follows:
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\11\ A ``walking stick'' is two logs bolted or otherwise secured
together with two or three planks firmly attached on top that serves
as a floating walking and working surface and that is used in the
loading of logs onto vessels from the water.
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(1) They shall be planked and be no less than 24 inches (.61 m)
wide;
(2) They shall extend along the entire length of all rafts on the
side(s) of the vessel being worked, and to the means of access to the
log raft(s); and
(3) They shall be buoyant enough to keep the walking surface above
the waterline when employees are walking on them.
Sec. 1918.89 Handling hazardous cargo (See also Sec. 1918.2 and
Sec. 1918.99).
Hazardous cargo shall be slung and secured so that neither the
draft nor individual packages can fall because of tipping of the draft
or slacking of the supporting gear.
Subpart I--General Working Conditions.
Sec. 1918.90 Hazard communication.
See Sec. 1918.1(b)(4).
Sec. 1918.91 Housekeeping.
(a) General. Active work areas shall be kept free of equipment,
such as lashing gear, and materials not in use, and clear of debris,
projecting nails, strapping and other objects not necessary to the work
in progress.
(b) Slippery surfaces. The employer shall eliminate conditions
causing slippery walking and working surfaces in immediate areas used
by employees.
(c) Free movement of drafts. Dunnage shall not be placed at any
location where it interferes with the free movement of drafts.
(d) Dunnage height. Dunnage racked against sweat battens or
bulkheads shall not be used when the levels of such racks are above the
safe reach of employees.
(e) Coaming clearance. Dunnage, hatch beams, tarpaulins or gear not
in use shall be stowed no closer than three feet (.91 m) to the port
and starboard sides of the weather deck hatch coaming.
(f) Nails. (1) Nails that are protruding from shoring or fencing in
the work area shall be rendered harmless.
(2) Dunnage, lumber, or shoring material in which there are visibly
protruding nails shall be removed from the work area, or, if left in
the area, the nails shall be rendered harmless.
(g) Ice aloft. Employees shall be protected from ice that may fall
from aloft.
Sec. 1918.92 Illumination.
(a) Walking, working, and climbing areas. Walking, working, and
climbing areas shall be illuminated. Unless conditions described in the
regulations of the U.S. Coast Guard (33 CFR 154.570) exist for specific
operations, illumination for cargo transfer operations shall be of a
minimum light intensity of five foot-candles (54 lux). Where work tasks
require more light to be performed safely, supplemental lighting shall
be used.
(b) Intensity measurement. The lighting intensity shall be measured
at the task/working surface, in the plane in which the task/working
surface is present.
(c) Arrangement of lights. Lights shall be arranged so that they do
not shine into the eyes of winch-drivers, crane operators or hatch
tenders. On Ro-Ro ships, stationary lights shall not shine directly
into the eyes of drivers.
(d) Portable lights. Portable lights shall meet the following
requirements:
(1) Portable lights shall be equipped with substantial reflectors
and guards to prevent materials from coming into contact with the bulb.
(2) Flexible electric cords used with temporary lights shall be
designed by the manufacturer for hard or extra-hard usage. Temporary
and portable lights shall not be suspended by their electric cords
unless the cords and lights are designed for this means of suspension.
Connections and insulation shall be maintained in safe condition.
(3) Electric conductors and fixtures for portable lights shall be
so arranged as to be free from contact with drafts, running gear, and
other moving equipment.
(4) Portable cargo lights furnished by the employer for use aboard
vessels shall be listed as approved for marine use by the U.S. Coast
Guard or by a nationally recognized testing laboratory (see
Sec. 1910.7).
(e) Entry into darkened areas. Employees shall not be permitted to
enter dark holds, compartments, decks or other spaces without a
flashlight or other portable light. The use of matches or open flames
is prohibited.
Sec. 1918.93 Hazardous atmospheres and substances (See also
Sec. 1918.2).
(a) Purpose and scope. This section covers areas in which the
employer knows, or has reason to believe, that a hazardous atmosphere
or substance may exist, except where one or more of the following
sections apply: Sec. 1918.94(a), Carbon monoxide; Sec. 1918.94(b),
Fumigated grains; Sec. 1918.94(c), Fumigated tobacco; Sec. 1918.94(d),
Other fumigated cargoes; Sec. 1918.94(e), Catch of menhaden and similar
species of fish.
(b) Determination of the hazard. When the employer knows, or has
reason to believe, that a space on a vessel contains or has contained a
hazardous atmosphere, a designated and appropriately equipped person
shall test the atmosphere prior to employee entry to detect whether a
hazardous atmosphere exists.
(c) Testing during ventilation. When mechanical ventilation is used
to maintain a safe atmosphere, tests shall be made by a designated
person to ensure that the atmosphere is not hazardous.
(d) Entry into hazardous atmospheres. Only designated persons shall
enter hazardous atmospheres, in which case the following provisions
shall apply:
(1) Persons entering a space containing a hazardous atmosphere
shall be protected by respiratory and emergency protective equipment
meeting the requirements of subpart J of this part;
(2) Persons entering a space containing a hazardous atmosphere
shall be instructed about the hazards, precautions to be taken, and the
use of protective and emergency equipment. Standby observers, similarly
equipped and instructed, shall continuously monitor the activity of
employees within such space;
(3) Except in emergency or rescue operations, employees shall not
enter any atmosphere identified as flammable or oxygen-deficient (less
than 19.5% oxygen). Persons who may be required to enter flammable or
oxygen-deficient atmospheres in emergency operations shall be
instructed in the dangers attendant to those atmospheres and be
instructed in the use of self-contained breathing apparatus which shall
be used for entry.
(4) To prevent inadvertent employee entry into spaces identified as
having hazardous, flammable or oxygen-deficient atmospheres,
appropriate warning signs or equivalent means shall be posted at all
means of access to those spaces.
(e) Asbestos cargo leak. When the packaging of asbestos cargo
leaks, spillage shall be cleaned up by designated employees protected
from the harmful effects of asbestos as required by Sec. 1910.1001 of
this chapter.
[[Page 40220]]
Sec. 1918.94 Ventilation and atmospheric conditions (See also
Sec. 1918.2, definition of Hazardous cargo, materials, substance or
atmospheres).
(a) Ventilation with respect to carbon monoxide. (1) When internal
combustion engines exhaust into a hold, intermediate deck, or any other
compartment, the employer shall ensure that the atmosphere is tested as
frequently as needed to prevent carbon monoxide (CO) concentrations
from exceeding allowable limits. Such tests shall be made in the area
in which employees are working by persons competent in the use of the
test equipment and procedures. If operations are in a deep tank or
refrigerated compartment, the first test shall be made within one half
hour of the time the engine starts. To decide the need for further
testing, the initial test in all other cargo handling areas shall be
taken no later than one hour after the time the engine starts.
(i) The CO content of the atmosphere in a compartment, hold, or any
enclosed space shall be maintained at not more than 50 parts per
million (ppm) (0.005%) as an eight hour average area level and
employees shall be removed from the enclosed space if the CO
concentration exceeds a ceiling of 100 ppm (0.01%). Exception: The
ceiling shall be 200 ppm (0.02%) instead of 100 ppm (0.01%) for Ro-Ro
operations \12\
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\12\ Ro-Ro operations occur only on Ro-Ro vessels which are
vessels whose cargo is driven on or off the vessel by way of ramps
and moved within the vessel by way of ramps and/or elevators.
Note to paragraph (a)(1)(i): The term eight hour average area
level means that for any period in which the concentration exceeds
50 parts per million, the concentration shall be maintained for a
---------------------------------------------------------------------------
corresponding period below 50 parts per million.
(ii) When both natural ventilation and the vessel's ventilation
system are inadequate to keep the CO concentration within the allowable
limits, the employer shall use supplementary means to bring such
concentration within allowable limits, as determined by monitoring.
(2) The intakes of portable blowers and any exposed belt drives
shall be guarded to prevent injury to employees.
(3) The frames of portable blowers shall be grounded at the source
of the current by means of an equipment grounding conductor run with or
enclosing the circuit conductors. When the vessel is the source of the
current, the equipment grounding conductor shall be bonded to the
structure of the vessel. Electric cords shall be free from visible
defects.
(b) Fumigated grains. (1) Before commencing to handle bulk grain in
any compartment of a vessel in which employees will or may be present,
the employer shall:
(i) Determine whether the grain has been or will be fumigated at
the elevator; and
(ii) Determine whether that compartment, or any cargo within it
loaded at a prior berth, has been treated with a fumigant or any other
chemical.
(2) If fumigant or chemical treatment has been carried out, or if
there is reason to suspect that such treatment has been carried out, it
shall be determined by atmospheric testing that the compartment's
atmosphere is within allowable limits. (See paragraph (b)(3) of this
section.)
(3) A test of the fumigant concentration in the atmosphere of the
compartment shall be made after loading begins and before employees
enter the compartment. Additional tests shall be made as often as
necessary to ensure that hazardous concentrations do not develop.
(i) Tests for fumigant concentration shall be conducted by a
designated person, who shall be thoroughly familiar with the
characteristics of the fumigant being used, the correct procedure for
measurement, the proper measuring equipment to be used, the fumigant
manufacturers' recommendations and warnings, and the proper use of
personal protective equipment to guard against the specific hazard.
(ii) If the concentration in any compartment reaches the level
specified as hazardous by the fumigant manufacturer, or exceeds the
permissible exposure limits of part 1910, subpart Z of this chapter,
whichever is lower, all employees shall be removed from such
compartments and shall not be permitted to reenter until tests prove
that the atmosphere is within allowable limits.
(iii) No employee shall be permitted to enter any compartment in
which grain fumigation has been carried out, or any compartment
immediately next to such a compartment, until it has been determined by
testing that the atmosphere in the compartment to be entered is within
allowable limits for entry.
(iv) In the event a compartment containing a hazardous or unknown
concentration of fumigants must be entered for testing of the
atmosphere, or for emergency purposes, each employee entering shall be
protected by respiratory protective equipment following the provisions
of Sec. 1918.102, and by any protective clothing and other personal
protective equipment recommended by the fumigant manufacturer for
protection against the particular hazard. At least two other employees
shall be stationed outside the compartment as observers, to provide
rescue services in case of emergency. The observers shall be equipped
with similar personal protective equipment.
(v) One or more employees on duty shall be equipped and trained to
provide any specific emergency medical treatment stipulated for the
particular fumigant.
(vi) Emergency equipment required by this paragraph shall be
readily accessible wherever fumigated grains are being handled.
(4) If a compartment is treated for local infestation before
loading grain by a chemical other than a fumigant, the employee
applying the treatment, and any other employees entering the
compartment, shall be provided with and required to use any personal
protective equipment recommended by the manufacturer of the product to
protect them against the effects of exposure.
(c) Fumigated tobacco. The employer shall not load break-bulk
tobacco until the carrier has provided written notification about
whether or not the cargo has been fumigated. If break-bulk tobacco
cargo has been treated with any toxic fumigant, loading shall not
commence until a written warranty has been received from the fumigation
facility that the aeration of the cargo has been such as to reduce the
concentration of the fumigant to within the level specified as
hazardous by the fumigant manufacturer, or does not exceed the
permissible exposure limits of part 1910, subpart Z of this chapter,
whichever is lower. Such notification and warranty shall be maintained
for at least 30 days after the loading of the tobacco has been
completed, and shall be available for inspection.
(d) Other fumigated cargoes. Before commencing to load or discharge
fumigated cargo other than the cargo specifically addressed in
paragraphs (b) and (c) of this section, the employer shall determine
that the concentration of fumigants is within the level specified as
hazardous by the fumigant manufacturer, or does not exceed the
permissible exposure limits of part 1910, subpart Z of this chapter,
whichever is lower.
(e) Grain dust. When employees are exposed to concentrations of
grain dust greater than the allowable limit found in subpart Z of part
1910 of this chapter, they shall be protected by suitable respiratory
protective equipment as required by Sec. 1918.102.
(f) Catch of menhaden and similar species of fish. (1) The
provisions of this
[[Page 40221]]
paragraph shall not apply to vessels having and utilizing refrigerated
holds for the carriage of all cargo.
(2) After a vessel has arrived at berth for discharge of menhaden,
but before personnel enter the hold, and as frequently thereafter as
tests show to be necessary, tests shall be made of the atmosphere in
the vessel's hold to ensure a safe work space. The tests shall be done
for the presence of hydrogen sulfide and for oxygen deficiency.
(3) Tests required by paragraph (f)(2) of this section shall be
made by designated supervisory personnel, trained and competent in the
nature of hazards and the use of test equipment and procedures.
(4) Before employees enter a hold it shall be tested for hydrogen
sulfide and oxygen deficiency. Employees shall not enter the hold when
the hydrogen sulfide level exceeds 20 ppm ceiling or when the oxygen
content is less than 19.5 percent, except in emergencies.
Sec. 1918.95 Sanitation.
(a) Washing and toilet facilities. (1) Accessible washing and
toilet facilities sufficient for the sanitary requirements of employees
shall be readily accessible at the worksite. The facilities shall have:
(i) Running water, including hot and cold or tepid water, at a
minimum of one accessible location (when longshoring operations are
conducted at locations without permanent facilities, potable water may
be provided instead of running water);
(ii) Soap;
(iii) Individual hand towels, clean individual sections of
continuous toweling, or warm air blowers; and
(iv) Fixed or portable toilets in separate compartments with latch-
equipped doors. Separate toilet facilities shall be provided for male
and female employees unless toilet rooms will be occupied by only one
person at a time.
(2) Washing and toilet facilities shall be regularly cleaned and
maintained in good order.
(b) Drinking water. (1) Potable drinking water shall be accessible
to employees at all times.
(2) Potable drinking water containers shall be clean, containing
only water and ice, and shall be fitted with covers.
(3) Common drinking cups are prohibited.
(c) Prohibited eating areas. Consumption of food or beverages in
areas where hazardous materials are stowed or being handled is
prohibited.
(d) Garbage and overboard discharges. Work shall not be conducted
close to uncovered garbage or in the way of overboard discharges from
the vessel's sanitary lines unless employees are protected from the
garbage or discharge by a baffle or splash boards.
Sec. 1918.96 Maintenance and repair work in the vicinity of
longshoring operations.
(a) Noise interference (See also Sec. 1918.1(b)(6).) Longshoring
operations shall not be carried on when noise interferes with
communications of warnings or instructions.
(b) Falling objects. Longshoring operations shall not be carried on
in the hold or on deck beneath work being conducted overhead whenever
such work exposes the employee to a hazard of falling objects.
(c) Hot work. Longshoring operations shall not be carried on where
the employee is exposed to damaging light rays, hot metal, or sparks
from welding or cutting.
(d) Abrasive blasting and spray painting. Longshoring operations
shall not be carried on in the immediate vicinity of abrasive blasting
or spray painting operations.
(e) Machine guarding. (See also Sec. 1918.2, definition of ``Danger
zone''.)
(1) Danger zones on machines and equipment used by employees shall
be guarded.
(2) The power supply to machines shall be turned off, locked out,
and tagged out during repair, adjustment, or servicing.
Sec. 1918.97 First aid and lifesaving facilities. (See Appendix V of
this part).
(a) Injury reporting. The employer shall require each employee to
report every work-related injury, regardless of severity, to the
employer.
(b) First aid. A first aid kit shall be available at or near each
vessel being worked. At least one person holding a valid first aid
certificate, such as is issued by the Red Cross or other equivalent
organization, shall be available to render first aid when work is in
progress.
(c) First aid kits. First aid kits shall be weatherproof and shall
contain individual sealed packages for each item that must be kept
sterile. The contents of each kit shall be determined by a person
certified in first aid and cognizant of the hazards found in marine
cargo handling operations. The contents shall be checked at intervals
that allow prompt replacement of expended items.
(d) Stretchers. (1) For each vessel being worked, at least one
Stokes basket stretcher, or its equivalent, shall be available to be
permanently equipped with bridles for attachment to the hoisting gear.
(2) Stretchers shall be kept close to vessels and shall be
positioned to avoid damage to the stretcher.
(3) A blanket or other suitable covering shall be available.
(4) Stretchers shall have at least four sets of effective patient
restraints in operable condition.
(5) Lifting bridles shall be of adequate strength, capable of
lifting 1,000 pounds (454 kg) with a safety factor of five (lifting
capability of 5,000 pounds), and shall be maintained in operable
condition. Lifting bridles shall be provided for making vertical
patient lifts at container berths. Stretchers for vertical lifts shall
have foot plates.
(6) Stretchers shall be maintained in operable condition. Struts
and braces shall be inspected for damage. Wire mesh shall be secured
and have no burrs. Damaged stretchers shall not be used until repaired.
(7) Stretchers in permanent locations shall be mounted to prevent
damage and be protected from the elements if located out-of-doors. If
concealed from view, enclosures shall be marked to indicate the
location of the lifesaving equipment.
(e) Life-rings. (1) The employer shall ensure that there is in the
vicinity of each vessel being worked at least one U.S. Coast Guard
approved 30-inch (76.2 cm) life-ring with no less than 90 feet (27.4 m)
of line attached, and at least one portable or permanent ladder that
will reach from the top of the apron to the surface of the water.
(2) In addition, when working a barge, scow, raft, lighter, log
boom, or carfloat alongside a ship, a U.S. Coast Guard approved 30-inch
(76.2 cm) life-ring, with no less than 90 feet (27.4 m) of line shall
be provided either on the floating unit itself or aboard the ship in
the immediate vicinity of each floating unit being worked.
(f) Communication. Telephone or equivalent means of communication
shall be readily available at the worksite.
Sec. 1918.98 Qualifications of machinery operators and supervisory
training.
(a) Qualification of machinery operators. (1) Only an employee
determined by the employer to be competent by reason of training or
experience, and who understands the signs, notices and operating
instructions and is familiar with the signal code in use, shall be
permitted to operate a crane, winch, or other power-operated cargo
handling apparatus, or any power-operated vehicle, or give signals to
the operator of any hoisting apparatus. However, an employee being
trained and supervised by a designated person may operate such
machinery and give signals to operators during training.
[[Page 40222]]
(2) No employee known to have defective uncorrected eyesight or
hearing, or to be suffering from heart disease, epilepsy, or similar
ailments that may suddenly incapacitate the employee, shall be
permitted to operate a crane, winch or other power-operated cargo
handling apparatus or a power-operated vehicle.
Note to paragraph (a)(2): OSHA is defining suddenly
incapacitating medical ailments consistent with the Americans with
Disabilities Act (ADA), 42 U.S.C. 12101 (1990). Therefore, employers
who act in accordance with the employment provisions (Title I) of
the ADA (42 U.S.C. 12111-12117), the regulations implementing Title
I (29 CFR part 1630), and the Technical Assistance Manual for Title
I issued by the Equal Employment Opportunity Commission (Publication
number: EEOC-M1A), will be considered as being in compliance with
this paragraph.
(b) Supervisory accident prevention proficiency. (1) By July 16,
1999, each immediate supervisor of a cargo handling operation of more
than five persons shall satisfactorily complete a course in accident
prevention.
(2) Each employee newly assigned to supervisory duties after that
date shall be required to meet the provisions of this paragraph within
90 days of such assignment.
(3) The accident prevention course shall consist of instruction
suited to the particular operations involved.\13\
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\13\ The following are recommended topics: Safety responsibility
and authority; elements of accidents prevention; attitudes,
leadership and motivation; hazards of longshoring, including
peculiar local circumstances; hazard identification and elimination;
applicable regulations; and accident investigations.
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Sec. 1918.99 Retention of DOT markings, placards and labels.
(a) Any employer who receives a package of hazardous material that
is required to be marked, labeled or placarded in accordance with the
U.S. Department of Transportation's Hazardous Materials Regulations (49
CFR parts 171 through 180) shall retain those markings, labels and
placards on the package until the packaging is sufficiently cleaned of
residues and purged of vapors to remove any potential hazards.
(b) Any employer who receives a freight container, rail freight
car, motor vehicle, or transport vehicle that is required to be marked
or placarded in accordance with the Hazardous Materials Regulations
shall retain those markings and placards on the freight container, rail
freight car, motor vehicle or transport vehicle until the hazardous
materials that require the marking or placarding are sufficiently
removed to prevent any potential hazards.
(c) Markings, placards and labels shall be maintained in a manner
that ensures that they are readily visible.
(d) For non-bulk packages that will not be reshipped, the
provisions of the section are met if a label or other acceptable
marking is affixed in accordance with OSHA's Hazard Communication
Standard (29 CFR 1910.1200).
(e) For the purposes of this section, the term ``hazardous
material'' has the same definition as in the Hazardous Materials
Regulations (49 CFR parts 171 through 180).
Sec. 1918.100 Emergency action plans.
(a) Scope and application. This section requires all employers to
develop and implement an emergency action plan.\14\ The emergency
action plan shall be in writing (except as provided in the last
sentence of paragraph (e)(iii) of this section) and shall cover those
designated actions employers and employees must take to ensure employee
safety from fire and other emergencies.
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\14\ When an employer directs his employees to respond to an
emergency that is beyond the scope of the Emergency Action Plan
developed in accordance with this section Sec. 1910.120(q) shall
apply.
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(b) Elements. The following elements, at a minimum, shall be
included in the plan:
(1) Emergency escape procedures and emergency escape route
assignments;
(2) Procedures to be followed by employees who remain to operate
critical operations before they evacuate;
(3) Procedures to account for all employees after emergency
evacuation has been completed;
(4) Rescue and medical duties for those employees who are to
perform them;
(5) The preferred means of reporting fires and other emergencies;
and
(6) Names or regular job titles of persons or departments that can
be contacted for further information or explanation of duties under the
plan.
(c) Alarm system. The employer shall establish an employee alarm
system that provides warning for necessary emergency action or for
reaction time for safe escape of employees from the workplace or the
immediate work area, or both.
(d) Evacuation. The employer shall establish the types of
evacuation to be used in emergency circumstances.
(e) Training. (1) Before implementing the emergency action plan,
the employer shall designate and train a sufficient number of persons
to assist in the safe and orderly emergency evacuation of employees.
(2) The employer shall review the plan with each employee covered
by the plan at the following times:
(i) Initially when the plan is developed;
(ii) Whenever the employee's responsibilities or designated actions
under the plan change; and
(iii) Whenever the plan is changed.
(3) The employer shall review with each employee upon initial
assignment those parts of the plan that the employee must know to
protect the employee in the event of an emergency. The written plan
shall be kept at the workplace and made available for employee review.
Employers with 10 or fewer employees may communicate the plan orally to
employees and need not maintain a written plan.
Subpart J--Personal Protective Equipment
Sec. 1918.101 Eye and face protection.
(a) The employer shall ensure that:
(1) Each affected employee uses appropriate eye and/or face
protection where there are exposures to eye and/or face hazards. Such
equipment shall comply with American National Standards Institute, ANSI
Z-87.1-1989, ``Practice for Occupational and Educational Eye and Face
Protection.''
(2) For an employee wearing corrective glasses, eye protection
equipment required by paragraph (a)(1) of this section shall be of the
type that can be worn over glasses. Prescription-ground safety lenses
may be substituted if they provide equivalent protection.
(b) Eye protection shall be maintained in good condition.
(c) Used eye protection shall be cleaned and disinfected before
issuance to another employee.
Sec. 1918.102 Respiratory protection.
See Sec. 1918.1(b)(12).
Sec. 1918.103 Head protection.
(a) The employer shall ensure that each affected employee wears a
protective helmet when working in areas where there is a potential for
injury to the head from falling objects.
(b) Such equipment shall comply with American National Standards
Institute, ANSI Z-89.1-1986, ``Personnel Protection-Protective Headwear
for Industrial Workers-Requirements.''
(c) Previously worn protective hats shall be cleaned and
disinfected before issuance by the employer to another employee.
[[Page 40223]]
Sec. 1918.104 Foot protection.
(a) The employer shall ensure that each affected employee wears
protective footwear when working in areas where there is a danger of
foot injuries due to falling or rolling objects or objects piercing the
sole.
(b) Such equipment shall comply with American National Standards
Institute, ANSI Z-41-1991, ``American National Standard for Personal
Protection-Protective Footwear.''
Sec. 1918.105 Other protective measures.
(a) Protective clothing. (1) The employer shall provide and shall
require the wearing of special protective clothing for each employee
engaged in work where protective clothing is necessary.
(2) When necessary, protective clothing shall be cleaned and
disinfected before reissuance.
(b) Personal flotation devices (PFDs). (1) The employer shall
provide and shall require the wearing of PFDs for each employee engaged
in work in which the employee might fall into the water.
(2) PFDs (life preservers, life jackets, and work vests) worn by
each affected employee shall be any United States Coast Guard (USCG)
approved and marked Type I PFD, Type II PFD or Type III PFD; or shall
be a USCG approved Type V PFD that is marked for use as a work vest,
for commercial use, or for use on vessels. USCG approval is pursuant to
46 CFR part 160, Coast Guard Lifesaving Equipment Specifications.
(3) Personal flotation devices shall be maintained in safe
condition and shall be considered unserviceable when damaged in a
manner that affects buoyancy or fastening capability.
Appendix I to Part 1918--Cargo Gear Register and Certificates (Non-
mandatory)
Note: This Appendix is non-mandatory and provides guidance to
part 1918 to assist employers and employees in complying with the
requirements of this standard, as well as to provide other helpful
information. Nothing in this Appendix adds or detracts from any of
the requirements of this standard. The language in this appendix is
taken directly from the recommended ILO document.
Form No. 1
Identity of National Authority or Competent Organization
Register of Ships' Lifting Appliances and Cargo Handling Gear
Name of Ship-----------------------------------------------------------
Official Number--------------------------------------------------------
Call Sign--------------------------------------------------------------
Port of Registry-------------------------------------------------------
Name of Owner----------------------------------------------------------
Register Number--------------------------------------------------------
Date of Issue----------------------------------------------------------
Issued by--------------------------------------------------------------
Signature and Stamp----------------------------------------------------
Note: This register is the standard international form as
recommended by the International Labour Office in accordance with
the ILO Convention No. 152.
General
The tests, examinations and inspections indicated in this
register are based on the requirements of ILO Convention 152 and
Recommendation 160. They are intended to ensure that ships having
lifting appliances are initially certified by a competent person,
and to establish periodically that they continue to be in safe
working order to the satisfaction of a competent person acceptable
to a competent authority. A Register of lifting appliances and items
of loose gear shall be kept in a form prescribed by the competent
authority, account being taken of this model recommended by the
International Labour Office. This Register and related certificates
shall be kept available to any person authorized by the competent
authority. The Register and certificates for gear currently aboard
the ship shall be preserved for at least five years after the date
of the last entry.
Instruction
1. Initial Examination and Certification
1.1. Every lifting appliance shall be certified by a competent
person before being taken into use for the first time to ensure that
it is of good design and construction and of adequate strength for
the purpose for which it is intended.
1.2. Before being taken into use for the first time, a competent
person shall supervise and witness testing, and shall thoroughly
examine every lifting appliance.
1.3. Every item of loose gear shall, before being taken into use
for the first time, shall be tested, thoroughly examined and
certified by a competent person, in accordance with national law or
regulations.
1.4. Upon satisfactory completion of the procedures indicated
above, the competent person shall complete and issue the Register of
lifting appliances and attach the appropriate certificates. An entry
shall be made in part I of the Register.
1.5. A rigging plan showing the arrangement of lifting
appliances shall be provided. In the case of derricks and derrick
cranes, the rigging should show at least the following information:
(a) The position of guys;
(b) The resultant force on blocks, guys, wire ropes and booms;
(c) The position of blocks;
(d) The identification mark of individual items; and
(e) Arrangements and working range of union purchase.
2. Periodic Examination and Re-testing
2.1. All lifting appliances and every item of loose gear shall
be thoroughly examined by a competent person at least once in every
twelve months. The particulars of these thorough examinations shall
be entered in part I of the Register.
2.2. Re-testing and thorough examination of all lifting
appliances and every item of loose gear is to be carried out:
(a) after any substantial alteration or renewal, or after repair
to any stress bearing part, and
(b) in the case of lifting appliances, at least once in every
five years.
2.3. The retesting referred to in paragraph 2.2(a) may be
omitted provided the part which has been renewed or repaired is
subjected by separate test, to the same stress as would be imposed
on it if it had been tested in-situ during the testing of the
lifting appliance.
2.4. The thorough examinations and tests referred to in
paragraph 2.2. are to be entered in part I of the Register.
2.5. No new item of loose gear shall be manufactured of wrought
iron. Heat treatment of any existing wrought iron components should
be carried out to the satisfaction of the competent person. No heat
treatment should be applied to any item of loose gear unless the
treatment is in accordance with the manufacturer's instruction; and
to the satisfaction of the competent person. Any heat treatment and
the associated examination are to be recorded by the competent
person in part I of the Register.
3. Inspections
3.1. Regular visual inspections of every item of loose gear
shall be carried out by a responsible person before use. A record of
these regular inspections is to be entered in part II of the
Register, but entries need only be made when the inspection has
indicated a defect in the item.
4. Certificates
4.1. The certification forms to be used in conjunction with this
Register (Form No. 1) are as follows:
(Form No. 2)--Certificate of test and thorough examination of
lifting appliance.
(Form No. 2(U))--Certificate of test and thorough examination of
derricks used in union purchase.
(Form No. 3)--Certificate of test and thorough examination of
loose gear.
(Form No. 4)--Certificate of test and thorough examination of
wire rope.
Definitions
(a) The term ``competent authority'' means a minister,
government department, or other authority empowered to issue
regulations, orders or other instructions having the force of law.
(b) The term ``competent person'' means a person appointed by
the master of the ship or the owner of the gear to be responsible
for the performance of inspections and who has sufficient knowledge
and experience to undertake such inspections.
(c) The term ``thorough examination'' means a detailed visual
examination by a competent person, supplemented if necessary by
other suitable means or measures in order to arrive at a reliable
conclusion as to the safety of the lifting appliance or item of
loose gear examined.
(d) The term ``lifting appliance'' covers all stationary or
mobile cargo handling appliances used on board ship for
[[Page 40224]]
suspending, raising or lowering loads or moving them from one
position to another while suspended or supported.
(e) The term ``loose gear'' covers any gear by means of which a
load can be attached to a lifting appliance, but which does not form
an integral part of the appliance or load.
The Following Are Sample Forms of Certificates as Recommended by the ILO
[Part I--Thorough Examination of Lifting Appliances and Loose Gear]
I certify that on the
date to which I have
appended my
signature, the gear
Situation and description of shown in col. (1) was
lifting appliances and loose thoroughly examined
gear (with distinguishing Certificate Examination performed and no defects Remarks (to be dated
numbers or marks, if any) Nos. (see note 2) affecting its safe and signed)
which have been thoroughly working condition
examined. (See note 1) were found other than
those shown in col.
(5) (date and
signature)
(1) (2) (3).................. (4).................. (5)
----------------------------------------------------------------------------------------------------------------
........... ..................... ..................... .....................
........... ..................... ..................... .....................
........... ..................... ..................... .....................
----------------------------------------------------------------------------------------------------------------
Note 1: If all the lifting appliances are thoroughly examined on the same date it will be sufficient to enter in
Col. (1) ``All lifting appliances and loose gear''. If not, the parts that have been thoroughly examined on
the dates stated must be clearly indicated.
Note 2: The thorough examinations to be indicated in Col. (3) include:
(a) Initial.
(b) 12 monthly.
(c) 5 yearly.
(d) Repair/Damage.
(e) Other thorough examinations.
[Part II--Regular Inspections of Loose Gear]
------------------------------------------------------------------------
Situation and description of
loose gear (with Signature and date
distinguishing numbers or of the responsible Remarks (to be dated
marks, if any) that has been person carrying out and signed)
inspected. (See note 1) the inspection
------------------------------------------------------------------------
------------------------------------------------------------------------
Note 1: All loose gear should be inspected before use. However, entries
need only be made when the inspection discloses a defect.
Form No. 2
Identity of National Authority or Competent Organization
Certificate of Test and Thorough Examination of Lifting Appliances
Name of Ship-----------------------------------------------------------
Official Number--------------------------------------------------------
Call Sign--------------------------------------------------------------
Port of Registry-------------------------------------------------------
Name of Owner----------------------------------------------------------
Certificate No.--------------------------------------------------------
Situation and description of
lifting appliances (with Angle to the horizontal Safe working load at
distinguishing numbers or marks, or radius at which test Test load (tonnes) angle or radius shown in
if any) which have been tested load applied col. 2 (tonnes)
and thoroughly examined
(1) (2)...................... (3)..................... (4)
----------------------------------------------------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Name and address of the firm or competent person who witnessed
testing and carried out thorough examination.
I certify that on the date to which I have appended my
signature, the gear shown in Col. (1) was tested and thoroughly
examined and no defects or permanent deformation was found and that
the safe working load is as shown.
Date:------------------------------------------------------------------
Place:-----------------------------------------------------------------
Signature:-------------------------------------------------------------
Note: This certificate is the standard international form as
recommended by the International Labor Office in accordance with ILO
Convention No. 152.
[[Page 40225]]
Reverse of Form No. 2
Instructions
1. Every lifting appliance shall be tested with a test load
which shall exceed the Safe Working Load (SWL) as follows:
------------------------------------------------------------------------
SWL Test load
------------------------------------------------------------------------
Up to 20 tonnes........................ 25 percent in excess.
20 to 50 tonnes........................ 5 tonnes in excess.
Over 50 tonnes......................... 10 percent in excess.
------------------------------------------------------------------------
2. In the case of derrick systems, the test load shall be lifted
with the ship's normal tackle with the derrick at the minimum angle
to the horizontal for which the derrick system was designed
(generally 15 degrees), or at such greater angle as may be agreed.
The angle at which the test was made should be stated in the
certificate.
2.1. The SWL shown is applicable to swinging derrick systems
only. When derricks are used in union purchase, the SWL (U) is to be
shown on Form 2 (U).
2.2. In the case of heavy derricks, care should be taken to
ensure that the appropriate stays are correctly rigged.
3. In the case of cranes, the test load is to be hoisted and
luffed at slow speed. Gantry and traveling cranes together with
their trolleys, where appropriate, are to be traversed and traveled
over the full length of their track.
3.1. In the case of variable load-radius cranes, the tests are
generally to be carried out with the appropriate test load at
maximum, minimum and intermediate radii.
3.2. In the case of hydraulic cranes where limitations of
pressure make it impossible to lift a test load 25 percent in excess
of the safe working load, it will be sufficient to lift the greatest
possible load, but in general this should not be less than 10
percent in excess of the safe working load.
4. As a general rule, tests should be carried out using test
loads, and no exception should be allowed in the case of initial
tests. In the case of repairs/replacement or when the periodic
examination calls for re-test, consideration may be given to the use
of spring or hydraulic balances provided the SWL of the lifting
appliance does not exceed 15 tonnes. Where a spring or hydraulic
balance is used, it shall be calibrated and accurate to within
2 percent and the indicator should remain constant for
five minutes.
4.1. If the test weights are not used, this is to be indicated
in Col. (3).
5. The expression ``tonne'' shall mean a tonne of 1000 kg.
6. The terms ``competent person'', ``thorough examination'', and
``lifting appliance'' are defined in Form No. 1.
Note: For recommendations on test procedures reference may be
made to the ILO document ``Safety and Health in Dock Work''.
Form No. 2(U)
Identity of National Authority or Competent Organization
Certificate of Test and Thorough Examination of Derricks Used in Union
Purchase
Name of Ship-----------------------------------------------------------
Official Number--------------------------------------------------------
Call Sign--------------------------------------------------------------
Port of Registry-------------------------------------------------------
Name of Owner----------------------------------------------------------
Certificate No.--------------------------------------------------------
Situation and description of
derricks used in Union Purchase Max. height of triangle Safe working load, SWL
(with distinguishing numbers or plate above hatch coaming Test load (tonnes) when operating in union
marks) which have been tested and (m) or max. angle between purchase (tonnes)
thoroughly examined runners
(1) (2)...................... (3)..................... (4)
----------------------------------------------------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Position of outboard preventer guy attachments:
(a) forward/aft * of mast--(m) and
(b) from ship's centerline--(m)
Position of inboard preventer guy attachments:
(a) forward/aft * of mast--(m) and
(b) from ship's centerline--(m)
* Delete as appropriate.
Name and address of the firm or competent person who witnessed
testing and carried out thorough examination
----------------------------------------------------------------------
----------------------------------------------------------------------
I certify that on the date to which I have appended my
signature, the gear shown in Col. (1) was tested and thoroughly
examined and no defects or permanent deformation was found and that
the safe working load is as shown.
Date:------------------------------------------------------------------
Signature:-------------------------------------------------------------
Place:-----------------------------------------------------------------
Note: This certificate is the standard international form as
recommended by the International Labour Office in accordance with
ILO Convention No. 152.
Reverse Form No. 2 (U)
Instructions
1. Before being taken into use, the derricks rigged in Union
Purchase shall be tested with a test load which shall exceed the
Safe Working Load (SWL (U)) as follows:
------------------------------------------------------------------------
SWL Test load
------------------------------------------------------------------------
Up to 20 tonnes........................ 25 percent in excess.
20 to 50 tonnes........................ 5 tonnes in excess.
Over 50 tonnes......................... 10 percent in excess.
------------------------------------------------------------------------
2. Tests are to be carried out at the approved maximum height of
the triangle plate above the hatch coaming or at the angle between
the cargo runners and with the derrick booms in their working
positions, to prove the strength of deck eye plates and the Union
Purchase system. These heights or angles must not exceed the values
shown on the rigging plan.
3. Tests should be carried out using test loads.
4. The expression ``tonne'' shall mean a tonne of 1000 kg.
5. The terms ``competent person'', ``thorough examination'' and
``lifting appliance'' are defined in Form No. 1.
Note: For recommendations on test procedures, reference may be
made to the ILO document ``Safety and Health in Dock Work''.
Form 3
Identity of National Authority or Competent Organization
Certificate of Test and Thorough Examination of Loose Gear
Name of Ship-----------------------------------------------------------
Official Number--------------------------------------------------------
Call Sign--------------------------------------------------------------
Port of Registry-------------------------------------------------------
Name of Owner----------------------------------------------------------
Certificate No.--------------------------------------------------------
[[Page 40226]]
-----------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Description Safe work
Distinguishing number or mark of loose Number Date of Test load load (SWL)
gear tested test (tonnes) (tonnes)
----------------------------------------------------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Name and address of makers or suppliers:
Name and address of the firm or competent person who witnessed
testing and carried out thorough examination.
I certify that the above items of loose gear were tested and
thoroughly examined and no defects affecting their SWL were found.
Date:------------------------------------------------------------------
Place:-----------------------------------------------------------------
Signature:-------------------------------------------------------------
Note: This certificate is the standard international form as
recommended by the International Labour Office in accordance with
ILO Convention No. 152.
Reverse Form No. 3
Instructions
1. Every item of loose gear is to be tested and thoroughly
examined before being put into use for the first time and after any
substantial alteration or repair to any part liable to affect its
safety. The test loads to be applied shall be in accordance with the
following table:
------------------------------------------------------------------------
Item Test load (tonnes)
------------------------------------------------------------------------
Single sheave blocks (See Note 1)......... 4 x SWL
Multi sheave blocks (See Note 2):
SWL < 25="" tonnes.......................="" 2="" x="" swl="" 25="" tonnes="">< swl=""> 160 tonnes (0.933 x SWL) + 27
SWL > 160 tonnes...................... 1.1 x SWL
Chains, hooks, rings, shackles, swivels,
etc.:
SWL < 25="" tonnes.......................="" 2="" x="" swl="" swl=""> 25 tonnes....................... (1.22 x SWL) + 20
Lifting beams, spreaders, frames and
similar devices:
SWL 10 tonnes............. 2 x SWL
10 tonnes < swl=""> 160 tonnes (1.04 x SWL) + 9.6
SWL > 160 tonnes...................... 1.1 x SWL
------------------------------------------------------------------------
Note: 1. The SWL for a single sheave block, including single
sheave blocks with beckets, is to be taken as one-half of the
resultant load on the head fitting.
2. The SWL of a multi-sheave block is to be taken as the
resultant load on the head fitting.
3. This form may also be used for the certification of
interchangeable components of lifting appliances.
4. The expression ``ton'' shall mean a ton of 1,000 kg.
5. The terms ``competent person'', ``thorough examination'' and
``loose gear'' are defined in Form No. 1.
Note: For recommendations on test procedures reference may be
made to the ILO document ``Safety and Health in Dock Work''.
Form No. 4
Identity of National Authority or Competent Organization
Certificate of Test and Thorough Examination of Wire Rope
Name of Ship-----------------------------------------------------------
Official Number--------------------------------------------------------
Call Sign--------------------------------------------------------------
Port of Registry-------------------------------------------------------
Name of Owner----------------------------------------------------------
Certificate No.--------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Name and address of maker or supplier
----------------------------------------------------------------------------------------------------------------
Nominal diameter of rope (mm)
Number of strands
Number of wires per strand
Core
Lay
Quality of wire (N/mm\2\)
Date of test of sample
Load at which sample broke (tonnes)
Safe working load of rope (tonnes)
Intended use
----------------------------------------------------------------------------------------------------------------
Name and address of the firm or competent person who witnessed
testing and carried out thorough examination.
I certify that the above particulars are correct, and that the
rope was tested and thoroughly examined and no defects affecting its
SWL were found.
Date:------------------------------------------------------------------
Place:-----------------------------------------------------------------
Signature:-------------------------------------------------------------
Note: This certificate is the standard international form as
recommended by the International Labour Office in accordance with
ILO Convention No. 152.
Reverse Form No. 4
Instructions
1. Wire rope shall be tested by sample, a piece being tested to
destruction.
2. The test procedure should be in accordance with an
International or recognized National standard.
[[Page 40227]]
3. The SWL of the rope is to be determined by dividing the load
at which the sample broke, by a co-efficient of utilization,
determined as follows:
------------------------------------------------------------------------
Item Coefficient
------------------------------------------------------------------------
Wire rope forming part of a sling:
SWL of the sling...................... 5
SWL < 10="" tonnes.......................="" 10="" \5\="" -----------------------------="" 10="" tonnes="">< swl=""> 160 tonnes (8.85 x SWL) + 1910
SWL > 160 tonnes...................... 3
Wire rope as integral part of a lifting
appliance:
SWL of lifting appliance.............. 10 \4\
-----------------------------
SWL 160 tonnes............ (8.85 x SWL) + 1910
SWL > 160 tonnes...................... 3
------------------------------------------------------------------------
These coefficients should be adopted unless other requirements
are specified by a National Authority.
4. The expression ``tonne'' shall mean a tonne of 1000 kg.
5. The terms ``competent person'', ``thorough examination'' and
``lifting appliance'' are defined in Form No. 1.
Note: For recommendations on test procedures reference may be
made to the ILO document ``Safety and Health in Dock Work''.
Appendix II to Part 1918--Tables for Selected Miscellaneous Auxiliary
Gear (Mandatory)
Note: This Appendix is mandatory and is to be used in the
appropriate sections of part 1918 when certificates or the
manufacturers' use recommendations are not available.
Table 1.--Wire Rope Clips
------------------------------------------------------------------------
Improved plow steel, rope Minimum number of clips Minimum spacing
------------------------------------------------------------------------
Other
Inches (cm) Drop forged material Inches (cm)
------------------------------------------------------------------------
\1/2\ or less (1.3)......... 3 4 3 (7.6)
\5/8\ (1.6)................. 3 4 3\3/4\ (9.5)
\3/4\ (1.9)................. 4 5 4\1/2\ (11.4)
\7/8\ (2.2)................. 4 5 5\1/4\ (13.3)
1 (2.5)..................... 5 6 6 (15.2)
1\1/8\ (2.7)................ 6 6 6\3/4\ (17.1)
1\1/4\ (3.2)................ 6 7 7\1/2\ (18.1)
1\3/8\ (3.5)................ 7 7 8\1/2\ (21.0)
1\1/2\ (3.8)................ 7 8 9 (22.9)
------------------------------------------------------------------------
Table 2
------------------------------------------------------------------------
-------------------------------------------------------------------------
Natural Fiber Rope and Rope Slings
------------------------------------------------------------------------
Load Capacity in Pounds (lbs.) Safety Factor=5
------------------------------------------------------------------------
Eye and Eye Sling
------------------------------------------------------------------------
Basket Hitch
------------------------------------------------------------------------
Angle of rope to horizontal
90 deg. 60 deg. 45 deg. 30 deg.
------------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Angle of rope to vertical
Rope diameter nominal in. Vertical Choker ---------------------------------------------------
hitch hitch 0 deg. 30 deg. 45 deg. 60 deg.
----------------------------------------------------------------------------------------------------------------
\1/2\............................. 550 250 1,100 900 750 550
\9/16\............................ 700 350 1,400 1,200 1,000 700
\5/8\............................. 900 450 1,800 1,500 1,200 900
\3/4\............................. 1,100 550 2,200 1,900 1,500 1,100
\13/16\........................... 1,300 650 2,600 2,300 1,800 1,300
\7/8\............................. 1,500 750 3,100 2,700 2,200 1,500
1................................. 1,800 900 3,600 3,100 2,600 1,800
1\1/16\........................... 2,100 1,100 4,200 3,600 3,000 2,100
1\1/8\............................ 2,400 1,200 4,800 4,200 3,400 2,400
1\1/4\............................ 2,700 1,400 5,400 4,700 3,800 2,700
1\5/16\........................... 3,000 1,500 6,000 5,200 4,300 3,000
1\1/2\............................ 3,700 1,850 7,400 6,400 5,200 3,700
1\5/8\............................ 4,500 2,300 9,000 7,800 6,400 4,500
1\3/4\............................ 5,300 2,700 10,500 9,200 7,500 5,300
[[Page 40228]]
2................................. 6,200 3,100 12,500 10,500 8,800 6,200
2\1/3\............................ 7,200 3,600 14,500 12,500 10,000 7,200
2\1/4\............................ 8,200 4,100 16,500 14,000 11,500 8,200
2\1/2\............................ 9,300 4,700 18,500 16,000 13,000 9,300
2\5/8\............................ 10,500 5,200 21,000 18,000 14,500 10,500
----------------------------------------------------------------------------------------------------------------
Endless Sling
----------------------------------------------------------------------------------------------------------------
\1/2\............................. 950 500 1,900 1,700 1,400 950
\9/16\............................ 1,200 600 2,500 2,200 1,800 1,200
\5/8\............................. 1,600 800 3,200 2,700 2,200 1,600
\3/4\............................. 2,000 950 3,900 3,400 2,800 2,000
\13/16\........................... 2,300 1,200 4,700 4,100 3,300 2,300
\7/8\............................. 2,800 1,400 5,600 4,800 3,900 2,800
1................................. 3,200 1,600 6,500 5,600 4,600 3,300
1\1/16\........................... 3,800 1,900 7,600 6,600 5,400 3,800
1\1/8\............................ 4,300 2,200 8,600 8,600 6,100 4,300
1\1/4\............................ 4,900 2,400 9,700 8,400 6,900 4,900
1\5/16\........................... 5,400 2,700 11,000 9,400 7,700 5,400
1\1/2\............................ 6,700 3,300 13,500 11,500 9,400 6,700
1\5/8\............................ 8,100 4,100 16,000 14,000 11,500 8,000
1\3/4\............................ 9,500 4,800 19,000 16,500 13,500 9,500
2................................. 11,000 5,600 22,500 19,500 16,000 11,000
2\1/3\............................ 13,000 6,500 26,000 22,500 18,500 13,000
2\1/4\............................ 15,000 7,400 29,500 25,500 21,000 15,000
2\1/2\............................ 16,500 8,400 33,500 29,000 23,500 16,500
2\5/8\............................ 18,500 9,500 37,000 32,500 26,500 18,500
----------------------------------------------------------------------------------------------------------------
Table 3A
------------------------------------------------------------------------
-------------------------------------------------------------------------
Polypropylene Rope and Rope Slings
------------------------------------------------------------------------
Load Capacity in Pounds (lbs.) Safety Factor=6
------------------------------------------------------------------------
Eye and Eye Sling
------------------------------------------------------------------------
Basket Hitch
Angle of rope to horizontal
------------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Angle of rope to vertical
Rope diameter nominal in. Vertical Choker ---------------------------------------------------
hitch hitch 0 deg. 30 deg. 45 deg. 60 deg.
----------------------------------------------------------------------------------------------------------------
\1/2\............................. 650 350 1,300 1,200 950 650
\9/16\............................ 800 400 1,600 1,400 1,100 800
\5/8\............................. 1,000 500 2,000 1,700 1,400 1,000
\3/4\............................. 1,300 700 2,700 2,300 1,900 1,300
\13/16\........................... 1,600 800 2,600 2,300 2,200 1,600
\7/8\............................. 1,800 900 3,100 2,700 2,600 1,800
1................................. 2,200 1,100 3,600 3,100 3,100 2,200
1\1/16\........................... 2,500 1,300 4,200 3,600 3,600 2,500
1\1/8\............................ 2,900 1,500 4,800 4,200 4,100 2,900
1\1/4\............................ 3,300 1,700 6,700 5,800 4,700 3,300
1\5/16\........................... 3,700 1,900 7,400 6,400 5,300 3,700
1\1/2\............................ 4,700 2,400 9,400 8,100 6,700 4,700
1\5/8\............................ 5,700 2,900 11,500 9,900 8,100 5,700
1\3/4\............................ 6,800 3,400 13,500 12,000 9,600 6,800
2................................. 8,200 4,100 16,500 14,500 11,500 8,200
2\1/8\............................ 9,700 4,800 19,500 16,500 13,500 9,700
2\1/4\............................ 11,000 5,500 22,000 19,000 15,500 11,000
2\1/2\............................ 12,500 6,300 25,500 22,000 18,000 12,500
2\5/8\............................ 14,500 7,100 28,500 24,500 20,000 14,500
----------------------------------------------------------------------------------------------------------------
Table 3B
------------------------------------------------------------------------
-------------------------------------------------------------------------
Polypropylene Rope and Rope Slings
------------------------------------------------------------------------
Load Capacity in Pounds (lbs.) Safety Factor = 6
[[Page 40229]]
Endless Sling
------------------------------------------------------------------------
Basket Hitch
------------------------------------------------------------------------
Angle of rope to horizontal
90 deg. 60 deg. 45 deg. 30 deg.
------------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Angle of rope to vertical
Rope diameter nominal in. Vertical Choker ---------------------------------------------------
hitch hitch 0 deg. 30 deg. 45 deg. 60 deg.
----------------------------------------------------------------------------------------------------------------
\1/2\............................. 1,200 600 2,400 2,100 1,700 1,200
\9/16\............................ 1,500 750 2,900 2,500 2,100 1,500
\5/8\............................. 1,800 900 3,500 3,100 2,500 1,800
\3/4\............................. 2,400 1,200 4,900 4,200 3,400 2,400
\13/16\........................... 2,800 1,400 5,600 4,900 4,000 2,800
\7/8\............................. 3,300 1,600 6,600 5,700 4,600 3,300
1................................. 4,000 2,000 8,000 6,900 5,600 4,000
1\1/16\........................... 4,600 2,300 9,100 7,900 6,500 4,600
1\1/8\............................ 5,200 2,600 10,500 9,000 7,400 5,200
1\1/4\............................ 6,000 3,000 12,000 10,500 8,500 6,000
1\5/16\........................... 6,700 3,400 13,500 11,500 9,500 6,700
1\1/2\............................ 8,500 4,200 17,000 14,500 12,000 8,500
1\5/8\............................ 10,500 5,100 20,500 18,000 14,500 10,500
1\3/4\............................ 12,500 6,100 24,500 21,000 17,500 12,500
2................................. 15,000 7,400 29,500 25,500 21,000 15,000
2\1/8\............................ 17,500 8,700 35,500 30,100 24,500 17,500
2\1/4\............................ 19,500 9,900 39,500 34,000 28,000 19,500
2\1/2\............................ 23,000 11,500 45,500 39,500 32,500 23,000
2\5/8\............................ 25,500 13,000 51,500 44,500 36,500 25,500
----------------------------------------------------------------------------------------------------------------
Table 4 A.--Rated Load for Grade 80 Alloy Steel Chain Slings \1\ (Chain per NACM)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Chain size nominal Single leg sling--90 Rated load double leg sling horizontal angle (note 2)
------------------------------------------------- deg. to horizontal -----------------------------------------------------------------------------
loading 60 deg. 45 deg. 39 deg.
-------------------------------------------------------------------------------------------------------
in. mm Double at 60 deg. Double at 45 deg. Double at 30 deg.
lb kg -----------------------------------------------------------------------------
lb kg lb kg lb kg
--------------------------------------------------------------------------------------------------------------------------------------------------------
\8/32\............................. 7 3,500 1570 6,100 2,700 4,900 2,200 3,500 1,590
\2/8\.............................. 10 7,100 3200 12,300 5,500 10,000 4,500 7,100 3,200
\1/2\.............................. 13 12,000 5400 20,800 9,400 17,000 7,600 1,200 5,400
\5/8\.............................. 16 18,000 8200 31,300 14,200 25,600 11,600 18,100 8,200
\3/4\.............................. 20 28,300 12800 49,000 22,300 40,000 18,200 28,300 12,900
\7/8\.............................. 22 34,200 15500 59,200 27,200 48,400 22,200 34,200 15,700
1.................................. 26 47,700 21600 82,600 37,900 67,400 31,000 47,700 21,900
1\1/4\............................. 32 72,300 32800 125,200 56,800 102,200 46,400 72,300 32,800
--------------------------------------------------------------------------------------------------------------------------------------------------------
Notes:
(1) Other grades of proof tested steel chain include Proof Coil (Grade 28), Hi-Test (Grade 43 Chain, and Transport (Grade 70) Chain. These grades are
not recommended for overhead lifting and therefore are not covered by this Standard.
(2) Rating of multi-leg slings adjusted for angle of loading between the inclined leg and the horizontal plane of the load.
Table 4 B.--Maximum Allowable Wear at any Point of Link
----------------------------------------------------------------------------------------------------------------
Nominal chain or coupling link size Maximum allowable
---------------------------------------------------------------------------------------------- wear of cross-
sectional
in. mm diameter, in.
----------------------------------------------------------------------------------------------------------------
\8/32\.................................................................... 7 0.037
\3/8\..................................................................... 10 0.052
\1/2\..................................................................... 13 0.060
\5/8\..................................................................... 16 0.084
\3/4\..................................................................... 20 0.105
\7/8\..................................................................... 22 0.116
1......................................................................... 26 0.137
1\1/4\.................................................................... 32 0.169
----------------------------------------------------------------------------------------------------------------
Note: For other sizes, consult chain or sling manufacturer.
[[Page 40230]]
Table 5.--Safe Working Loads for Shackles
[In tons of 2,000 pounds]
----------------------------------------------------------------------------------------------------------------
Pin diameter
Material size (inches) (inches) Safe working load
----------------------------------------------------------------------------------------------------------------
\1/4\..................................................................... \5/8\ 1.4
\5/8\..................................................................... \3/4\ 2.2
\3/4\..................................................................... \7/8\ 3.2
\7/8\..................................................................... 1 4.3
1......................................................................... 1\1/8\ 5.6
1\1/8\.................................................................... 1\1/4\ 6.7
1\1/4\.................................................................... 1\3/8\ 8.2
1\3/8\.................................................................... 1\1/2\ 10.0
1\1/2\.................................................................... 1\5/8\ 11.9
1\1/4\.................................................................... 2 16.2
2......................................................................... 2\1/4\ 21.1
----------------------------------------------------------------------------------------------------------------
Wire Rope Table--Rated Loads for Single Leg Slings 6 x 19 or 6 x 37 Classification Improved Plow Steel Grade
Rope With Fiber Core (FC)
----------------------------------------------------------------------------------------------------------------
Rated loads [note {1}], Tons (2,000 lb)
-----------------------------------------------------------------------------------------------------------------
Vertical Choker
----------------------------------------------------------------------------------------------------------------
Rope diameter, in. HT MS S HT, MS&S
----------------------------------------------------------------------------------------------------------------
\1/4\................................................... 0.49 0.51 0.55 0.38
\8/16\.................................................. 0.78 0.79 0.85 0.6
\3/8\................................................... 1.1 1.1 1.2 0.85
\7/16\.................................................. 1.4 1.5 1.7 1.2
\1/2\................................................... 1.8 2.0 2.1 1.5
\9/16\.................................................. 2.3 2.5 2.7 1.9
\5/11\.................................................. 2.8 3.1 3.3 2.3
\3/4\................................................... 3.9 4.4 4.8 3.3
\7/8\................................................... 5.2 6.0 6.4 4.5
1....................................................... 6.7 7.7 8.4 5.9
1\3/8\.................................................. 8.4 9.5 11 7.4
1\1/4\.................................................. 10 12 13 9.0
1\3/8\.................................................. 12 14 16 11
1\1/2\.................................................. 15 17 18 13
1\6/8\.................................................. 17 19 21 15
1\3/4\.................................................. 20 22 25 17
2....................................................... 26 29 32 22
----------------------------------------------------------------------------------------------------------------
HT=Hand tucked Splice.
For Hidden Tuck Splice (IWRC), use values in HT (FC) columns.
MS=Mechanical Splice.
S=Poured Socket or Swaged Socket.
Notes:
(1) These values are based on slings being vertical. If they are not vertical, the rated load shall be reduced.
If two or more slings are used, the minimum horizontal angle between the slings shall also be considered [see
para. 9.2.2.1(d)].
(2) These values only apply when the D/d ratio (see Fig. 11) is 15 or greater.
(3) These values only apply when the D/d ratio is 25 or greater.
D=Diameter or curvature around which the body of the sling is bent.
d=Diameter of rope.
Wire Rope Table--Rated Loads for Single Leg Slings 6 x 19 or 6 x 37 Classification Improved Plow Steel Grade
Rope With Independent Wire Rope Core (IWRC)
----------------------------------------------------------------------------------------------------------------
Rated loads [note {1}], tons (2,000 lb)
-----------------------------------------------------------------------------------------------------------------
Vertical Choker Vertical basket
----------------------------------------------------------------------------------------------------------------
[Note (2)] [Note (3)]
Rope diameter, in. HT MS S HT, MS & S ---------------------------
HT MS & S
----------------------------------------------------------------------------------------------------------------
\3/4\....................... 0.53 0.56 0.59 0.31 1.1 1.1
\5/16\...................... 0.82 0.87 0.92 0.64 1.6 1.7
\3/8\....................... 1.2 1.2 1.3 0.92 2.3 2.5
\7/10\...................... 1.5 1.7 1.8 1.2 3.1 3.4
\1/2\....................... 2.0 2.2 2.3 1.6 4.0 4.4
\9/16\...................... 2.5 2.8 2.9 2.0 4.9 5.5
\6/8\....................... 3.0 3.4 3.6 2.6 6.0 6.8
\3/4\....................... 4.2 4.9 5.1 3.6 8.4 9.7
\7/8\....................... 5.5 6.6 6.9 4.8 11 13
[[Page 40231]]
1........................... 7.2 8.5 9.0 6.3 14 17
1\1/8\...................... 9.0 10 11 7.9 18 20
1\1/4\...................... 11 13 14 9.7 22 26
1\3/8\...................... 13 15 17 12 27 31
1\1/2\...................... 16 18 20 14 32 37
1\5/8\...................... 18 21 23 16 37 43
1\3/4\...................... 21 25 27 19 43 49
2........................... 28 32 34 24 55 64
----------------------------------------------------------------------------------------------------------------
HT=Hand Tucked Splice.
For Hidden Tuck Splice (IWRC), use values in HT columns of Table 3.
MS=Mechanical Splice, S=Poured Socket or Swaged Socket.
Notes:
(1) These values are based on slings being vertical. If they are not vertical, the rated load shall be reduced.
If two or more slings are used, the minimum horizontal angle between the slings shall also be considered (see
para. 9.2.2.1(d)).
(2) The values only apply when the D/d ratio (see Fig. 11) is 15 or greater.
(3) The values only apply when the D/d ratio is 25 or greater.
D=Diameter or curvature around which the body of the sling is bent.
d=Diameter of rope.
Wire Rope Table--Rated Loads for Single Leg Slings 6 x 19 or6 x 37 Classification Extra Improved Plow Steel
Grade Rope With Independent Wire Rope Core (IWRC)
----------------------------------------------------------------------------------------------------------------
Rated loads [note {1}], tons (2,000 lb)
-----------------------------------------------------------------------------------------------------------------
Vertical Choker Vertical
--------------------------------------------------------------------------------------------------- basket [note
(2)]
Rope diameter MS S MS&S -------------
MS&S
----------------------------------------------------------------------------------------------------------------
\1/4\................................................... 0.65 0.68 0.48 1.3
\5/16\.................................................. 1.0 1.1 0.74 2.0
\3/8\................................................... 1.4 1.5 1.1 2.9
\7/10\.................................................. 1.9 2.0 1.4 3.9
\1/2\................................................... 2.5 2.7 1.9 5.1
\9/16\.................................................. 3.2 3.4 2.4 6.4
\6/8\................................................... 3.9 4.1 2.9 7.8
\3/4\................................................... 5.6 5.9 4.1 11
\7/8\................................................... 7.6 8.0 5.6 15
1....................................................... 9.8 10 7.2 20
1\1/8\.................................................. 12 13 9.1 24
1\1/4\.................................................. 15 16 11 30
1\3/8\.................................................. 18 19 13 36
1\1/2\.................................................. 21 23 16 42
1\5/8\.................................................. 24 26 18 49
1\3/4\.................................................. 28 31 21 57
2....................................................... 37 40 28 73
----------------------------------------------------------------------------------------------------------------
HT=Hand tucked Splice.
For Hidden Tuck Splice (IWRC), use values in HT columns of Table 3.
MS=Mechanical Splice.
S=Poured Socket or Swaged Socket.
Notes:
(1) These values are based on slings being vertical. If they are not vertical, the rated load shall be reduced.
If two or more slings are used, the minimum horizontal angle between the slings shall also be considered (see
para. 9.2.2.1(d)).
(2) These values only apply when the D/d ratio (see Fig. 11) is 25 or greater.
Appendix III to Part 1918--The Mechanics of Conventional Cargo Gear
(Non-mandatory)
Note: This Appendix is non-mandatory and provides an explanation
of the mechanics in the correct spotting of cargo handling gear.
Although the most prevalent method of cargo handling is
accomplished through the use of modern shoreside container gantry
cranes, there are occasions when break-bulk cargo is handled with
conventional ship's cargo gear. This appendix provides a reference
for those unfamiliar with such cargo gear.
Sections 1918.52, 1918.53, and 1918.54 all address the subject
of rigging and operating vessel's cargo handling gear. It is
important to understand that under the Burton System of cargo
handling (conventional gear consisting of two cargo derricks with
married falls), the midships or up-and-down boom should be spotted
as close to the fore and aft centerline of the hatch as
operationally possible. Such spotting of the up-and-down boom will
allow the most effective leads for the guy(s) and preventer(s) to
safely support
[[Page 40232]]
the lateral stresses generated in the boom(s) by the married falls.
As the lead of the guy(s) and preventer(s) approaches the vertical,
in supporting the boom(s) head, the total stress in the guy(s)
increases rapidly due to the increased vertical force that is
generated in the guy(s) in order to counteract any particular
horizontal or lateral force exerted on the boom(s) head. The
appreciable vertical forces that are generated in this process are
transmitted, in substantial part, to the boom(s) and topping
lift(s), causing proportionate compressive stresses in the boom(s)
and tension stresses in the topping lift(s).
In general, guys and preventers must be located so that enough
vertical resistance is developed so as to prohibit the boom(s) from
jackknifing as cargo passes across the deck. Special care must be
exercised in the proper placement of guys and preventers associated
with the Burton or yard boom. Preventers, when used, must parallel
as closely as possible the guys that they support. Guys and
preventers must not be attached to the same fitting.
While under a load, the cargo falls (running rigging) must not
be permitted to chafe on any standing or other running gear. Special
attention must be paid to ensure that cargo runners work freely
through the heel block, without chafing the cheek of the block.
Also, bobbing chains and heel block preventers must be attached so
as to not interfere with the movement of the cargo runners.
Appendix IV to Part 1918--Special Cargo Gear and Container Spreader
Test Requirements (Mandatory) [See Sec. 1918.61 (f), (g), (h); Also
Applicable to Sec. 1917.50(c)(5)]
----------------------------------------------------------------------------------------------------------------
Proof test
Type gear Test requirement Tested by ---------------------------------------
----------------------------------------------------------------------------------------------------------------
All Special Cargo Handling Gear Purchased or Manufactured on or After January 21, 1998
----------------------------------------------------------------------------------------------------------------
Safe Working Load--> 5 short Prior to initial OSHA Accredited Up to 20 short 125% SWL.
tons (10,000 lbs./4540 kg.). use. agency only. tons.
Prior to reuse .................. Between 20 and 50 5 short tons in
after structural short tons. excess of SWL.
damage repair.
Every four years OSHA Accredited Over 50 short tons 110% SWL.
after initial agency or
proof load test. designated
person..
Safe Working Load--5 short tons Prior to initial OSHA Accredited
or less. use. agency or
designated person.
(1)125% SWL.
Prior to reuse
after structural
damage repair.
(1) 125% SWL
Container spreaders not part of Prior to initial OSHA Accredited
vessel's cargo handling gear. use. agency only.
Prior to reuse
after structural
damage repair.
Every four years OSHA Accredited
after initial agency or
proof load test. designated person.
(1)125% SWL.
----------------------------------------------------------------------------------------------------------------
All Special Cargo Handling Gear in Use Prior to January 21, 1998
----------------------------------------------------------------------------------------------------------------
Safe Working Load--> 5 short Every four years OSHA Accredited Up to 20 short 125% SWL.
tons (10,000 lbs./4540 kg.). from January 21, agency or tons.
1998. designated person.
Prior to reuse .................. Between 20 and 50 5 short tons in
after structural short tons. excess of SWL.
damage repair.
.................. .................. Over 50 short tons 110% SWL.
Safe Working Load--5 short tons Prior to initial OSHA Accredited
or less. use. agency or
designated person.
(1)125% SWL
Prior to reuse
after structural
damage repair.
(1) 125% SWL
Container spreaders not part of Prior to initial OSHA Accredited
vessel's cargo handling gear. use. agency or
designated person.
(1) 125% SWL
Prior to reuse
after structural
damage repair.
(1)125% SWL.
----------------------------------------------------------------------------------------------------------------
Appendix V to Part 1918--Basic Elements of a First Aid Training Program
(Non-mandatory)
Note: This Appendix is non-mandatory and provides guidelines for
small businesses, institutions teaching first aid, and the
recipients of first aid training.
General Program Elements
A. Teaching Methods
1. Trainees should develop ``hands on'' skills through the use
of manikins and trainee partners during their training.
2. Trainees should be exposed to acute injury and illness
settings as well as the appropriate response to those settings
through the use of visual aids, such as video tape and slides.
3. Training should include a course workbook which discusses
first aid principles and responses to settings that require
interventions.
[[Page 40233]]
4. Training duration should allow enough time for particular
emphasis on situations likely to be encountered in particular
workplaces.
5. An emphasis on quick response to first aid situations should
be incorporated throughout the program.
B. Principles of Responding to a Health Emergency
The training program should include instruction in:
1. Injury and acute illness as a health problem.
2. Interactions with the local emergency medical services
system. Trainees have the responsibility for maintaining a current
list of emergency telephone numbers (police, fire, ambulance, poison
control) easily accessible to all employees.
3. The principles of triage.
4. The legal aspects of providing first aid services.
C. Methods of Surveying the Scene and the Victim(s)
The training program should include instruction in:
1. The assessment of scenes that require first aid services
including:
a. general scene safety.
b. likely event sequence.
c. rapid estimate of the number of persons injured.
d. identification of others able to help at the scene.
2. Performing a primary survey of each victim including airway,
breathing, and circulation assessments as well as the presence of
any bleeding.
3. The techniques and principles of taking a victim's history at
the scene of an emergency.
4. Performing a secondary survey of the victim including
assessments of vital signs, skin appearance, head and neck, eye,
chest, abdomen, back, extremities, and medical alert symbols.
D. Basic Adult Cardiopulmonary Resuscitation (CPR)
Basic adult CPR training should be included in the program.
Retesting should occur every year. The training program should
include instruction in:
1. Establishing and maintaining adult airway patency.
2. Performing adult breathing resuscitation.
3. Performing adult circulatory resuscitation.
4. Performing choking assessments and appropriate first aid
interventions.
5. Resuscitating the drowning victim.
E. Basic First Aid Intervention
Trainees should receive instruction in the principles and
performance of:
1. Bandaging of the head, chest, shoulder, arm, leg, wrist,
elbow, foot, ankle, fingers, toes, and knee.
2. Splinting of the arm, elbow, clavicle, fingers, hand,
forearm, ribs, hip, femur, lower leg, ankle, knee, foot, and toes.
3. Moving and rescuing victims including one and two person
lifts, ankle and shoulder pulls, and the blanket pull.
F. Universal Precautions
Trainees should be provided with adequate instruction on the
need for and use of universal precautions. This should include:
1. The meaning of universal precautions, which body fluids are
considered potentially infectious, and which are regarded as
hazardous.
2. The value of universal precautions for infectious diseases
such as AIDS and hepatitis B.
3. A copy of OSHA's standard for occupational exposure to
bloodborne pathogens or information on how to obtain a copy.
4. The necessity for keeping gloves and other protective
equipment readily available and the appropriate use of them.
5. The appropriate tagging and disposal of any sharp item or
instrument requiring special disposal measures such as blood soaked
material.
6. The appropriate management of blood spills.
G. First Aid Supplies
The first aid provider should be responsible for the type,
amount, and maintenance of first aid supplies needed for their
particular worksite(s). These supplies need to be stored in a
convenient area available for emergency access.
H. Trainee Assessments
Assessment of successful completion of the first aid training
program should include instructor observation of acquired skills and
written performance assessments. First aid skills and knowledge
should be reviewed every three years.
I. Program Update
The training program should be periodically reviewed with
current first aid techniques and knowledge. Outdated material should
be replaced or removed.
Specific Program Elements
A. Type of Injury Training
1. Shock
Instruction in the principles and first aid intervention in:
a. shock due to injury.
b. shock due to allergic reactions.
c. the appropriate assessment and first aid treatment of a
victim who has fainted.
2. Bleeding
a. the types of bleeding including arterial, venous, capillary,
external, and internal.
b. the principles and performance of bleeding control
interventions including direct pressure, pressure points, elevation,
and pressure bandaging.
c. the assessment and approach to wounds including abrasions,
incisions, lacerations, punctures, avulsions, amputations, and crush
injuries.
d. the principles of wound care including infection precautions,
wounds requiring medical attention, and the need for tetanus
prophylaxis.
3. Poisoning
Instruction in the principles and first aid intervention of:
a. alkali, acid and systemic poisons. In addition, all trainees
should know how and when to contact the local Poison Control Center.
b. inhaled poisons including carbon monoxide, carbon dioxide,
smoke, and chemical fumes, vapors and gases as well as the
importance of assessing the toxic potential of the environment to
the rescuer and the need for respirators.
Trainees should be instructed in the acute effect of chemicals
utilized in their plants, the location of chemical inventories,
material safety data sheets (MSDS's), chemical emergency
information, and antidote supplies.
c. topical poisons including poison ivy, poison sumac, poison
oak, and insecticides.
d. drugs of abuse including alcohol, narcotics such as heroin
and cocaine, tranquilizers, and amphetamines.
4. Burns
Instruction in the principles and first aid intervention of:
a. assessing the severity of the burn including first degree,
second degree, and third degree burns.
b. differentiating between the types of third degree burns
(thermal, electrical, and chemical) and their specific
interventions. Particular attention should be focused upon chemical
burns, and the use of specific chemicals in the workplace which may
cause them.
5. Temperature Extremes
Instruction in the principles and first aid intervention of:
a. exposure to cold including frostbite and hypothermia.
b. exposure to heat including heat cramps, heat exhaustion, and
heat stroke.
6. Musculoskeletal Injuries
The training program should include instruction in the
principles and first aid intervention in:
a. open fractures, closed fractures, and splinting.
b. dislocations, especially the methods of joint dislocations of
the upper extremity. The importance of differentiating dislocations
from fractures.
c. joint sprains.
d. muscle strains, contusions, and cramps.
e. head, neck, back, and spinal injuries.
7. Bites and Stings
Instruction in the principles and first aid intervention in:
a. human and animal (especially dog and snake) bites.
b. bites and stings from insects (spiders, ticks, scorpions,
hornets and wasps). Interventions should include responses to
anaphylactic shock; other allergic manifestations; rabies and
tetanus prophylaxis.
8. Medical Emergencies
Instruction in the principles and first aid intervention of:
a. heart attacks
b. strokes
c. asthma attacks
d. diabetic emergencies including diabetic coma, insulin shock,
hyperglycemia, and hypoglycemia.
[[Page 40234]]
e. seizures including tonic-clonic and absence seizures.
Importance of not putting gags in mouth.
f. pregnancy including the appropriate care of any abdominal
injury or vaginal bleeding.
9. Confined Spaces
a. the danger of entering a confined space to administer first
aid without having the appropriate respiratory protection.
b. if first aid personnel will be required to assist evacuations
from confined spaces, additional training will be needed.
B. Site of Injury Training
Instruction in the principles and first aid intervention of
injuries to the following sites:
1. Head and Neck
a. including skull fractures, concussions, and mental status
assessments with particular attention to temporary loss of
consciousness and the need for referral to a physician.
b. including the appropriate approach to the management of the
individual who has suffered a potential neck injury or fracture.
2. Eye
a. foreign bodies, corneal abrasions and lacerations.
b. chemical burns and the importance of flushing out the eye.
c. the importance of not applying antibiotics without physician
supervision.
3. Nose
a. nose injuries and nose bleeds.
4. Mouth and Teeth
a. oral injuries, lip and tongue injuries, and broken and
removed teeth. The importance of preventing inhalation of blood and
teeth.
5. Chest
a. rib fractures, flail chest, and penetrating wounds.
6. Abdomen
a. blunt injuries, penetrating injuries, and protruding organs.
7. Hand, Finger, and Foot Injuries
a. finger/toe nail hematoma, lacerations, splinters, finger nail
avulsion, ring removal, and foreign bodies.
b. the importance of identifying amputation care hospitals in
the area. When an amputation occurs, appropriate handling of
amputated fingers, hands, and feet during the immediate
transportation of the victim and body part to the hospital.
[FR Doc. 97-19381 Filed 7-15-97; 8:45 am]
BILLING CODE 4510-26-P
