95-18921. Safety Standards for Fall Protection in the Construction Industry  

  • [Federal Register Volume 60, Number 148 (Wednesday, August 2, 1995)]
    [Rules and Regulations]
    [Pages 39253-39255]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-18921]
    
    
    
    =======================================================================
    -----------------------------------------------------------------------
    
    [[Page 39254]]
    
    
    DEPARTMENT OF LABOR
    
    Occupational Safety and Health Administration
    
    29 CFR Part 1926
    
    [Docket No. S-206B]
    
    
    Safety Standards for Fall Protection in the Construction Industry
    
    AGENCY: Occupational Safety and Health Administration (OSHA), Labor.
    
    ACTION: Final rule; correcting amendment.
    
    -----------------------------------------------------------------------
    
    SUMMARY: Negotiated rulemaking is currently underway to develop a 
    proposed revision of OSHA's standards for steel erection in subpart R 
    of part 1926. That proposal is expected to include fall protection 
    requirements for employees performing steel erection work. OSHA has 
    concluded that the Agency's recently revised general requirements for 
    fall protection (subpart M of part 1926) should be amended at this time 
    to clarify that they do not apply to any steel erection activities. 
    Therefore, OSHA is withdrawing amendments to subpart E which have not 
    yet become effective and is amending certain provisions of subpart M of 
    part 1926 in order to maintain the fall protection requirements for 
    steel erection that were in effect before the issuance of revised 
    subpart M.
    
    EFFECTIVE DATE: This document is effective on August 2, 1995.
    
    FOR FURTHER INFORMATION CONTACT: Mr. Richard Liblong, Director of 
    Information and Consumer Affairs, Occupational Safety and Health 
    Administration, U.S. Department of Labor, Room N-3647, 200 Constitution 
    Avenue, NW., Washington, DC 20210. Telephone (202) 219-8151.
    
    SUPPLEMENTARY INFORMATION:
    
    I. Background
    
        On August 9, 1994, the Occupational Safety and Health 
    Administration (OSHA) issued a final rule on Fall Protection in the 
    Construction Industry, 29 CFR part 1926, subpart M (59 FR 40672), which 
    became effective, except as described below, on February 6, 1995. With 
    respect to steel erection activities, the new subpart M established the 
    duty to provide fall protection for employees engaged in steel erection 
    in structures other than buildings (revised Secs. 1926.500(a)(2)(iii)), 
    and 1926.501(b)) and established the fall protection systems criteria 
    and training requirements for employees engaged in all steel erection 
    work (revised Secs. 1926.500(a)(2)(iii), (a)(3), (a)(4), 1926.502, and 
    1926.503).
        On October 7, 1994, five steel erection companies petitioned OSHA 
    for an administrative stay of final subpart M to the extent the 
    standard applies to steel erection activities. They argued that OSHA 
    had not given fair notice that subpart M would apply to the steel 
    erection industry at all, and that, in consequence, they did not have 
    the opportunity to comment on this issue.
        After reviewing the rulemaking record in light of petitioner's fair 
    notice claims, OSHA agreed that the petitioners and other interested 
    persons did not receive adequate notice of OSHA's intention that some 
    steel erection activities would be covered by revised subpart M. 
    Because of the notice deficiency, OSHA recognized that the rulemaking 
    record was incomplete with respect to steel erection and that revised 
    subpart M was not a final rule to the extent it applied to steel 
    erection.
        Accordingly, OSHA granted the request for an administrative stay 
    and delayed the effective date of revisions to subpart M and subpart E, 
    to the extent they applied to steel erection, until August 6, 1995 (60 
    FR 5131, January 26, 1995). OSHA explained in the January 1995 notice 
    that it intended to reopen the subpart M record for supplemental 
    comments concerning subpart M coverage of certain steel erection work. 
    See 60 FR 5131.
        For construction activity other than steel erection, revised 
    subpart M and supporting amendments to subparts E, H, N, P, Q, and V 
    became effective on February 6, 1995.
        At the time OSHA granted the petitioners' request for an 
    administrative stay and delayed the effective date of revised subpart 
    M, a negotiated rulemaking committee was in the process of developing a 
    proposal to revise 29 CFR part 1926, subpart R. Subpart R currently 
    applies to steel erection of buildings. The Steel Erection Negotiated 
    Rulemaking Advisory Committee, SENRAC, was expected to issue a proposal 
    in June 1995 which would, among other things, expand subpart R's scope. 
    In order to avoid overlap or conflict between two rulemakings 
    concerning steel erection fall hazards, OSHA decided to wait to reopen 
    subpart M for additional comment concerning coverage of steel erection 
    until after SENRAC's June proposal made clear which steel erection 
    activities would remain unregulated by subpart R. Accordingly, OSHA 
    delayed the effective date of revisions to subpart E and subpart M 
    purporting to apply to steel erection for six months, or until August 
    6, 1995 (60 FR 5131, January 26, 1995).
        To date, SENRAC has not decided which steel structures will be 
    subject to subpart R's fall protection requirements. Accordingly, OSHA 
    has granted SENRAC additional time to develop a proposal to revise 
    subpart R. In light of these developments, further extending the 
    administrative stay of subpart M would prolong indefinitely the time in 
    which the text of the standard does not reflect the standard's actual 
    scope. OSHA has decided therefore that subpart M should be amended at 
    this time to accurately reflect that it does not cover steel erection 
    and that subpart E should be amended so that the generic fall 
    protection provisions that have applied to steel erection continue in 
    effect.
        OSHA intends, after the SENRAC proposal is issued and the scope of 
    the subpart R revision rulemaking is definite, to formally propose to 
    amend subpart M to include any steel erection activity omitted from the 
    subpart R revision process.
        Until subparts M and R are finally revised, the Agency's 
    enforcement policy on fall protection during steel erection is the 
    policy outlined in Deputy Assistant Secretary Stanley's July 10, 1995 
    memorandum to the Office of Field Programs, ``Fall Protection in Steel 
    Erection.'' The memorandum provides that the term ``steel erection 
    activities'' means the movement and erection of skeleton steel members 
    (structural steel) in or on buildings or non-building structures. It 
    includes the initial connecting of steel, employees moving point-to-
    point, installing metal floor or roof decking, welding, bolting and 
    similar activities.
        The memorandum further provides that steel erection does not 
    include the erection of steel members such as lintels, stairs, 
    railings, curtainwalls, windows, architectural metalwork, column 
    covers, catwalks, and similar non-skeletal items or the placement of 
    reinforcing rods in concrete structures.
        Accordingly, OSHA is amending subpart M and subpart E in order to 
    maintain, until such time as further rulemaking procedures may be 
    initiated and completed, the fall protection requirements for steel 
    erection that were in effect before the issuance of revised subpart M.
    II. Summary and Explanation
    
    A. Personal Protective Equipment--Subpart E
    
        OSHA is amending subpart E to withdraw the actions whereby the 
    Agency removed Secs. 1926.104, Safety belts, lifelines and lanyards; 
    1926.105, safety nets; and 1926.107 (b), (c) and (f) 
    
    [[Page 39255]]
    (definitions for the terms ``lanyard'', ``lifeline'' and ``safety 
    belt'', respectively), insofar as those provisions relate to steel 
    erection. Through this amendment, OSHA will maintain the existing fall 
    protection requirements for steel erection activities pending 
    rulemaking that addresses the steel erection industry.
    
    B. Scope and Application--Subpart M
    
        OSHA is amending Sec. 1926.500(a), Scope and application, of 
    subpart M to indicate clearly that the provisions of revised 
    Secs. 1926.501, Duty to have fall protection; 1926.502, Fall protection 
    systems criteria and practices; and 1926.503, Training requirements, do 
    not apply to steel erection activities. The revised provision clearly 
    indicates that subpart R and specified provisions of subpart E cover 
    steel erection.
    
    Exemption From Delayed Effective Date Requirement
    
        Under 5 U.S.C. 553, OSHA finds that there is good cause for making 
    this amendment effective upon publication in the Federal Register. This 
    amendment simply maintains the fall protection requirements which have 
    applied to the steel erection industry, notwithstanding the 
    promulgation of subpart M, Fall protection, so it does not increase the 
    existing regulatory burden.
    
    Authority
    
        This document was prepared under the direction of Joseph A. Dear, 
    Assistant Secretary of Labor for Occupational Safety and Health, U.S. 
    Department of Labor, 200 Constitution Avenue, N.W., Washington, D.C. 
    20210.
    
    List of Subjects in 29 CFR Part 1926
    
        Construction industry, Construction safety, Excavations, Fall 
    protection, Hoisting safety, Occupational safety and Health, Protective 
    equipment, Safety, Tools.
    
        Accordingly, pursuant to sections 4, 6(b) and 8(g) of the 
    Occupational Safety and Health Act of 1970 (29 U.S.C. 653, 655, 657); 
    section 107 of the Contract Work Hours and Safety Standards Act (40 
    U.S.C. 333); section 4 of the Administrative Procedure Act (5 U.S.C. 
    553); Secretary of Labor's Order No. 1-90 (55 FR 35736); and 29 CFR 
    part 1911, the amendment to 29 CFR part 1926 made in the Federal 
    Register on August 9, 1994 (59 FR 40672) is further amended as set 
    forth below.
    
        Signed at Washington, D.C. this 28th day of July 1995.
    Joseph A. Dear,
     Assistant Secretary of Labor.
    
    PART 1926--[AMENDED]
    
    Subpart E--[Amended]
    
        1. The authority citation for subpart E of part 1926 continues to 
    read as follows:
    
        Authority: Sec. 107, Contract Work Hours and Safety Standards 
    Act (Construction Safety Act) (40 U.S.C. 333); 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 1-90 (55 FR 9033), as applicable.
    
        2. Amendatory items 4, 5, 6, and 7 to subpart E, published in the 
    Federal Register issue of August 9, 1994 (59 FR 40729) and stayed in 
    the issue of January 26, 1995 (60 FR 5131), are withdrawn.
    
    Subpart M--Fall Protection
    
        3. The authority citation for subpart M of part 1926 continues to 
    read as follows:
    
        Authority: Sec. 107, Contract Work Hours and Safety Standards 
    Act (Construction Safety Act) (40 U.S.C. 333); Secs. 4, 6, 8, 
    Occupational Safety and Health Act of 1970 (29 U.S.C. 653, 655, 
    657); Secretary of Labor's Order No. 1-90 (55 FR 9033); and 29 CFR 
    Part 1911.
    
        4. Paragraphs (a)(2)(iii), (a)(3)(iv) and (a)(4) of Sec. 1926.500 
    are revised to read as follows:
    
    
    Sec. 1926.500  Scope, application, and definitions applicable to this 
    subpart.
    
        (a) * * *
        (2) * * *
        (iii) Requirements relating to fall protection for employees 
    performing steel erection work are provided in Sec. 1926.105 and in 
    subpart R of this part.
    * * * * *
        (3) * * *
        (iv) Section 1926.502 does not apply to steel erection activities. 
    (Note: Section 1926.104 sets the criteria for body belts, lanyards and 
    lifelines used for fall protection in steel erection activities. 
    Paragraphs (b), (c) and (f) of Sec. 1926.107 provide definitions for 
    the pertinent terms).
        (4) Section 1926.503 sets forth requirements for training in the 
    installation and use of fall protection systems, except in relation to 
    steel erection activities.
    * * * * *
    [FR Doc. 95-18921 Filed 8-1-95; 8:45 am]
    BILLING CODE 4510-26-P
    
    

Document Information

Effective Date:
8/2/1995
Published:
08/02/1995
Department:
Occupational Safety and Health Administration
Entry Type:
Rule
Action:
Final rule; correcting amendment.
Document Number:
95-18921
Dates:
This document is effective on August 2, 1995.
Pages:
39253-39255 (3 pages)
Docket Numbers:
Docket No. S-206B
PDF File:
95-18921.pdf
CFR: (1)
29 CFR 1926.500