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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">SECRETARY OF LABOR,</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; text-indent:1.244cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Complainant,</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; text-indent:2.514cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">v.</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">OSHRC DOCKET NO. 1</span><span style="font-family:Times New Roman; font-size:12pt; ">8-0033</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">BRUBACHER EXCAVATING, INC., and its successors,</span></p>
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							<p style="margin-top:7.667px; margin-bottom:0px; line-height:1; text-indent:1.244cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Respondent.</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">SECRETARY OF LABOR,</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; text-indent:1.244cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Complainant,</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; text-indent:2.514cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">v.</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">OSHRC DOCKET NO. 1</span><span style="font-family:Times New Roman; font-size:12pt; ">8-00</span><span style="font-family:Times New Roman; font-size:12pt; ">19</span></p>
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							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">TRAFFIC CONTROL SERVICES LLC,<span>
									</span></span><span style="font-family:Times New Roman; font-size:12pt; ">d/b/a FLAGGER FORCE</span><span style="font-family:Times New Roman; font-size:12pt; ">, and its successors,</span></p>
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							<p style="margin-top:7.667px; margin-bottom:0px; line-height:1; text-indent:1.244cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Respondent.</span></p>
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					<td style="vertical-align:top;padding-left:.194cm; padding-right:.194cm; border-left:none, 0, inherit; border-right:none, 0, inherit; border-top:none, 0, inherit; border-bottom:none, 0, inherit; width:8.255cm;">
						<div>
							<p style="margin-top:7.667px; margin-bottom:3.467px; line-height:1; widows:0; orphans:0; "> </p>
						</div>
					</td>
				</tr>
			</table>
			<div>
				<p style="margin-top:8px; margin-bottom:8px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Appearances:</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Kate</span><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">O’Scannilain, Solicitor</span><span style="letter-spacing:.007cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">of<span>
						</span></span><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; ">Labor</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Oscar L. Hampton</span><span style="font-family:Times New Roman; font-size:12pt; ">, III</span><span style="font-family:Times New Roman; font-size:12pt; ">, Regional</span><span style="letter-spacing:-.012cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Solicitor</span><span style="letter-spacing:.046cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Brittany M. Williams</span><span style="font-family:Times New Roman; font-size:12pt; ">, Attorney</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">U.S. Department</span><span style="letter-spacing:.005cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">of</span><span style="letter-spacing:-.011cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Labor, Office</span><span style="letter-spacing:.005cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">of</span><span style="letter-spacing:-.011cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="letter-spacing:.002cm; font-family:Times New Roman; font-size:12pt; ">the</span><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; ">Regional<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Solicitor,<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Philadelphia, PA</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>For</span><span style="font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>the</span><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Complainant</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Kenneth D. Kleinman</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Brad M. Kushner</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="letter-spacing:-.002cm; font-family:Times New Roman; font-size:12pt; ">Stevens & Lee</span><span style="font-family:Times New Roman; font-size:12pt; ">,<span>
						</span></span><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; ">Philadelphia, PA</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; text-indent:1.27cm; widows:0; orphans:0; "><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; ">For</span><span style="font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Brubacher Excavating, Inc.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; text-indent:1.27cm; widows:0; orphans:0; "> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-size:11.5pt; font-family:Times New Roman; font-size:12pt; font-size:11.5pt; ">Brandon J. Brigham</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-size:11.5pt; font-family:Times New Roman; font-size:12pt; font-size:11.5pt; ">Morgan, Lewis & Bockius, LLP</span><span style="font-size:11.5pt; font-family:Times New Roman; font-size:12pt; font-size:11.5pt; ">, Philadelphia, PA</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-size:11.5pt; font-family:Times New Roman; font-size:12pt; font-size:11.5pt; "><span style="mso-tab-count:1">  </span>For<span>
						</span></span><span style="font-size:11.5pt; font-family:Times New Roman; font-size:12pt; font-size:11.5pt; ">Traffic Control Services LLC, d/b/a Flagger Force</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-indent:1.27cm; widows:0; orphans:0; "> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:2; text-align:justify; text-indent:1.27cm; widows:0; orphans:0; "><span style="font-family:Times New Roman; font-size:12pt; ">Before:</span><span style="font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Covette Rooney</span><span style="font-family:Times New Roman; font-size:12pt; ">,<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Chief<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Administrative</span><span style="letter-spacing:-.004cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Law</span><span style="letter-spacing:.002cm; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Judge</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-align:center; text-indent:0cm; "><span style="font-weight:bold; text-decoration:underline ;font-family:Times New Roman; font-size:12pt; font-weight:bold; text-decoration:underline ;">DECISION</span><span style="font-weight:bold; letter-spacing:.002cm; text-decoration:underline ;font-family:Times New Roman; font-size:12pt; font-weight:bold; text-decoration:underline ;"><span><span></span>
						</span></span><span style="font-weight:bold; text-decoration:underline ;font-family:Times New Roman; font-size:12pt; font-weight:bold; text-decoration:underline ;">AND</span><span style="font-weight:bold; letter-spacing:.002cm; text-decoration:underline ;font-family:Times New Roman; font-size:12pt; font-weight:bold; text-decoration:underline ;"><span><span></span>
						</span></span><span style="font-weight:bold; text-decoration:underline ;font-family:Times New Roman; font-size:12pt; font-weight:bold; text-decoration:underline ;">ORDER</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Following a worker injury, the Occupational Safety and Health Administration (OSHA), commenced investigations<span><span></span>
					</span>of two employers who had been working at<span>
					</span>a<span>
					</span>construction site<span>
					</span>located along Pottstown Pike<span>
					</span>in<span>
					</span>West Chester, Pennsylvania. The investigation led to<span>
					</span>citations being issued to Brubacher Excavating, Inc.<span><span></span>
					</span>(Brubacher) and Traffic Control Services, LLC, which does business as Flagger Force (Flagger Force).<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref2" href="#ftn2">1</a></span> (Stip. 6.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Brubacher and Flagger Force both<span>
					</span>filed timely challenges to<span>
					</span>the citations<span><span></span>
					</span>with the<span>
					</span>Occupational Safety and Health Review<span>
					</span>Commission<span><span></span>
					</span>(Commission). Brubacher’s challenge was<span>
					</span>assigned docket<span>
					</span>No. 18-0033<span><span></span>
					</span>and<span><span></span>
					</span>Flagger Force’s challenge was docketed as No.<span>
					</span>18-0019. Because of the similarity of the underlying facts, Brubacher and Flagger Force’s cases were consolidated for review. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Prior to the hearing, the Secretary vacated certain citation items<span><span></span>
					</span>for each party. From<span>
					</span>the citation issued to Brubacher,<span>
					</span>the Secretary<span><span></span>
					</span>vacated Items<span><span></span>
					</span>1b and 2<span>
					</span>of Citation 1. Likewise, Citation 1, Items 1b and 2 were vacated from the citation issued to Flagger Force. For both parties, there is only one remaining<span><span></span>
					</span>citation item at issue,<span>
					</span>an alleged violation of 29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span> 1926.200(g)(1).<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref3" href="#ftn3">2</a></span> A hearing<span>
					</span>on the consolidated matters was held on February 26-28, 2019,<span><span></span>
					</span>in Philadelphia, Pennsylvania. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">For the reasons that follow, the citation issued to Brubacher as a result of OSHA Inspection No. 1280576 is VACATED, and no penalty is assessed; and the citation issued to Flagger Force as a result of OSHA Inspection No. 1263466 is VACATED, and no penalty is assessed.</p>
			</div>
			<p class="style_Normal style_Normal style_Heading1 style_Heading1 " style="margin-left:0cm; text-indent:0cm; ">
				<span style="font-family:Times New Roman; font-weight:bold; font-style:normal; text-transform:uppercase;color:WindowText; padding-right:20px;">I.</span>Jurisdiction</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; "><span style="font-family:Times New Roman; font-size:12pt; ">The</span><span><span></span>
					</span>Commission<span>
					</span>has jurisdiction over this contest, pursuant to<span>
					</span>section 10(c) of the<span><span></span>
					</span>Occupational Safety and Health Act of 1970,<span>
					</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">29 U.S.C. §§ 651-678 (OSH Act)</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">.</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>(Stip. 7.) Brubacher is an employer within the meaning of<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">s</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">ection 3(5) of the OSH Act, as it is<span>
						</span></span>engaged<span style="color:#000000; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>in a business affecting commerce.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="color:#000000; font-family:Times New Roman; font-size:12pt; "><a name="ftnref4" href="#ftn4">3</a></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "> (Stip</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">s</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">. 8</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">, 10</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">.) </span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">It had nine employees at a construction worksite in West Chester, PA</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>from May 31, 2017 through June 5, 2017</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="color:#000000; font-family:Times New Roman; font-size:12pt; "><a name="ftnref5" href="#ftn5">4</a></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "> (Stips.<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">1, 2</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">, 12</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">.) </span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">Flagger Force is<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">also an employer within the meaning of<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">s</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">ection 3(5) of the OSH Act, as it is engaged in a business affecting commerce.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="color:#000000; font-family:Times New Roman; font-size:12pt; "><a name="ftnref6" href="#ftn6">5</a></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "> (Stips. 9, 11.) </span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">It also had<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">employees at the<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">same<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">construction<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">worksite on the same days. (Stips. 1,</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>3-5</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">, 12.)<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span>Based upon the record, including the parties’ admission to jurisdiction, the undersigned concludes the Commission has jurisdiction over the parties and the subject matter of this case. </p>
			</div>
			<p class="style_Normal style_Normal style_Heading1 style_Heading1 " style="margin-left:0cm; text-indent:0cm; ">
				<span style="font-family:Times New Roman; font-weight:bold; font-style:normal; text-transform:uppercase;color:WindowText; padding-right:20px;">I.</span>Background</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Brubacher was retained by the Islamic Society of Chester County<span>
					</span>(Islamic Society)<span>
					</span>and Aqua Pennsylvania<span>
					</span>(Aqua)<span>
					</span>to<span>
					</span>perform construction<span>
					</span>work associated with the<span>
					</span>installation of<span><span></span>
					</span>a water line along Pottstown Pike to service the Islamic Society’s property.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref7" href="#ftn7">6</a></span> (Tr.<span>
					</span>225, 307-8; Stip. 1, 12;<span>
					</span>Gov.<span>
					</span>Exs. 22, 25, 26.) The<span>
					</span>construction<span>
					</span>worksite<span>
					</span>abutted<span><span></span>
					</span>the northbound side<span><span></span>
					</span>of Pottstown Pike from Taylors Mill Road<span>
					</span>through Cross Pointe Drive. (Tr.<span>
					</span>225-26, 261-62;<span><span></span>
					</span>Stip. 12.) Brubacher<span>
					</span>first<span>
					</span>excavated<span><span></span>
					</span>land<span>
					</span>to allow<span><span></span>
					</span>Aqua<span><span></span>
					</span>to lay the water pipes in the ground. (Stip. 1, 12.) After<span>
					</span>Aqua laid<span>
					</span>the pipe, Brubacher employees<span>
					</span>covered<span><span></span>
					</span>the trench and<span>
					</span>worked<span><span></span>
					</span>on paving<span>
					</span>over<span>
					</span>the surface. (Tr.<span>
					</span>592.) The paving work began on Wednesday, May 31, 2017. (Stip. 1.) The<span><span></span>
					</span>project took four days<span><span></span>
					</span>and was completed on Monday, June 5, 2017.<span><span></span>
					</span><span><span></span>
					</span>(Stip. 1; Tr. 592.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The work<span>
					</span>took place within the northbound lane and shoulder of Pottstown Pike, a multi-lane road in West Chester, PA. (Stip. 1;<span>
					</span>Gov. Exs.<span>
					</span>16,<span>
					</span>17,<span>
					</span>22.) The<span>
					</span>paving<span><span></span>
					</span>work required an adjustment to the road’s<span>
					</span>regular traffic pattern. (Gov. Ex. 22.) A traffic control plan for this<span>
					</span>adjustment<span>
					</span>was<span>
					</span>approved by the Pennsylvania Department of Transportation (Penn DOT). (Gov. Exs.<span>
					</span>8,<span>
					</span>21.) The approved traffic pattern shifted traffic from the northbound lane into what is ordinarily a middle lane for turning. (Gov. Ex. 21.)<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">
					</span>The speed limit for traffic moving both north and southbound remained the same as it was before the work began, 45 miles per hour. (Tr. 628; Gov. Ex. 16.) Cones were placed to divert traffic and provide a barrier between the vehicles traveling north and those traveling south. (Gov.<span>
					</span>Exs. 16, 21.) In addition, one flagger worked<span><span></span>
					</span>at the north<span>
					</span>end<span><span></span>
					</span>of the<span>
					</span>worksite,<span><span></span>
					</span>and another<span>
					</span>worked<span><span></span>
					</span>at the south<span>
					</span>end.<span><span></span>
					</span><span><span></span>
					</span>(Tr.<span>
					</span>623; Gov. Ex. 21, 22.)<span>
					</span><span><span></span>
					</span>The<span>
					</span>flaggers were<span><span></span>
					</span>to assist with<span>
					</span>making drivers aware<span><span></span>
					</span>of the<span>
					</span>changed traffic pattern. (Gov. Ex. 21.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">To<span><span></span>
					</span>implement<span><span></span>
					</span>the traffic control plan, Brubacher retained Flagger Force.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref8" href="#ftn8">7</a></span> (Stip. 3; Tr. 593;<span><span></span>
					</span>Gov. Ex. 30.) Flagger First’s business is to provide its clients with traffic control services such<span>
					</span>as<span>
					</span>flagging operations, lane closures, and shifting traffic patterns. (Gov. Ex. 34 at 3.) Brubacher and<span>
					</span>Flagger Force have a long-standing relationship, whereby Flagger Force provides<span>
					</span>most<span><span></span>
					</span>of<span>
					</span>the<span>
					</span>traffic control services<span>
					</span>needed at<span><span></span>
					</span>Brubacher<span><span></span>
					</span>worksites and assists with training Brubacher employees<span><span></span>
					</span>about flagging. (Tr. 228, 571;<span>
					</span>Gov.<span><span></span>
					</span>Exs.<span>
					</span>8,<span>
					</span>24.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">David<span><span></span>
					</span>Duda was Brubacher’s supervisor for the<span>
					</span>Pottstown Pike<span>
					</span>worksite. (Tr.<span>
					</span>345,<span>
					</span>589; Stip. 2.) He met with the Flagger Force employees<span><span></span>
					</span>to<span>
					</span>explained what work his crew would be doing and where they would be working. (Tr.<span>
					</span>615-17; Gov. Ex. 21.) After work began on May 31, 2017,<span>
					</span>which was<span>
					</span>Flagger Force’s first day<span><span></span>
					</span>at the worksite, Mr. Duda completed a Safety Observation Compliance Form. (Tr. 601;<span>
					</span>Gov.<span>
					</span>Ex. 32.) Mr. Duda explained that he<span>
					</span>typically completes this type of form<span>
					</span>on the first day of<span>
					</span>a<span>
					</span>project to make sure he does not “overlook anything.” (Tr.<span>
					</span>601-2.) Before completing the form, Mr. Duda traveled the entirety of the worksite to see that<span>
					</span>three sets<span>
					</span>of advance warning signs were<span>
					</span>properly<span><span></span>
					</span>in place. (Tr. 604.) Specifically,<span>
					</span>he checked to make sure<span><span></span>
					</span>Flagger Force set up advance warning signs in three places: (1) on the northbound side of Pottstown Pike; (2) on the southbound side of Pottstown Pike; and (3) along the Route 322 exit ramp, which connects<span>
					</span>another road<span>
					</span>to<span>
					</span>a section of<span>
					</span>Pottstown Pike<span><span></span>
					</span>near the worksite. (Tr. 604; Gov. Ex. 32.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">After the work began, it became apparent that<span>
					</span>the traffic control pattern<span>
					</span>was not<span>
					</span>functioning as expected. Mr. Duda, in consultation with the Flagger Force<span>
					</span>employees working at the site,<span>
					</span>adjusted<span>
					</span>how much<span>
					</span>time motorists had to enter the<span>
					</span>new traffic pattern and improved the visibility of the signs for motorists<span>
					</span>entering Pottstown Pike from the Route 322 exit ramp. (Tr.<span>
					</span>597-600.) These changes were maintained through the first three days of the project. (Tr.<span>
					</span>606, 652.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">During these<span>
					</span>first three days, the same employees from Flagger Force arrived each day. (Gov. Ex. 21.) On the last day of the project, June 5, 2017,<span>
					</span>two different Flagger Force employees<span>
					</span>were sent to the worksite.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref9" href="#ftn9">8</a></span> (Tr. 181,<span>
					</span>Gov. Exs.<span>
					</span>21,<span>
					</span>31; Stip. 4.) Unlike the prior days, these<span>
					</span>employees<span><span></span>
					</span>only set up warning signs on the<span>
					</span>northbound side of the Pottstown Pike, which<span>
					</span>was side closest to<span>
					</span>where<span>
					</span>the<span>
					</span>paving and excavation work was being done. No advance warning signs were placed on the southbound side or along the Route 322 exit ramp as had been<span>
					</span>done<span>
					</span>on the<span>
					</span>first three<span>
					</span>days. (Gov.<span>
					</span>Ex. 16.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">About two and<span>
					</span>a<span>
					</span>half<span>
					</span>hours after<span>
					</span>Brubacher started<span>
					</span>work, around<span>
					</span>11:30 a.m., a car traveling northbound on Pottstown Pike failed to adhere to the traffic control pattern and ran into<span>
					</span>a<span><span></span>
					</span>Flagger Force employee. (Tr. 89;<span>
					</span>Gov.<span>
					</span>Exs.<span>
					</span>19,<span>
					</span>22.) The employee was seriously injured. (Tr. 183.) A Brubacher employee,<span>
					</span>Joey Sipes,<span>
					</span>called 911 and emergency responders arrived at the worksite. (Tr.<span>
					</span>230;<span>
					</span>Gov.<span><span></span>
					</span>Ex. 22.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The emergency response team included<span>
					</span>two<span>
					</span>West Goshen Township Police<span>
					</span>Officers,<span>
					</span>Officer<span>
					</span>Virgilio and Officer<span>
					</span>Grandizio. (Tr.<span>
					</span>37,<span>
					</span>110.) Officer Grandizio<span>
					</span>interviewed<span>
					</span>three<span><span></span>
					</span>Brubacher employees, including Mr. Duda and Mr. Sipes, shortly after arriving at the scene. (Tr. 110-11.) These<span><span></span>
					</span>interviews were recorded. (Tr.<span>
					</span>286.) Officer Virgilio<span><span></span>
					</span>was the lead<span>
					</span>investigator of<span>
					</span>the accident at Brubacher’s worksite. (Tr. 41, 110, 158.) As part of his investigation, Officer<span>
					</span>Virgilio<span>
					</span>reviewed video footage of the worksite that was taken<span>
					</span>earlier in the day of<span><span></span>
					</span>the accident<span><span></span>
					</span>when another officer<span>
					</span>drove by worksite<span><span></span>
					</span>as well as other evidence. (Tr.<span>
					</span>46-47, 112.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">OSHA<span><span></span>
					</span>commenced<span>
					</span>its<span><span></span>
					</span>investigation the day<span><span></span>
					</span>after the accident, on June 6, 2017. (Stip. 6.) By that time all worked had stopped at the worksite.<span>
					</span><span><span></span>
					</span>(Stip. 1.) Compliance<span><span></span>
					</span>Officer Allen Wilcox<span><span></span>
					</span>(CO)<span>
					</span>visited the worksite<span>
					</span>and spoke with<span>
					</span>representatives<span><span></span>
					</span>of Brubacher and Flagger Force. (Tr. 261, 263, 265; Gov. Exs. 3, 4.) He also collected information from the West Goshen Township<span>
					</span>Police, including video footage of the worksite<span><span></span>
					</span>and the<span>
					</span>recorded<span>
					</span>interviews with the Brubacher employees. (Tr.<span>
					</span>48-49,<span>
					</span>286,<span>
					</span>289.) </p>
			</div>
			<p class="style_Normal style_Normal style_Heading1 style_Heading1 " style="margin-left:0cm; text-indent:0cm; ">
				<span style="font-family:Times New Roman; font-weight:bold; font-style:normal; text-transform:uppercase;color:WindowText; padding-right:20px;">I.</span>Discussion</p>
			<div>
				<p class="style_Normal style_Normal style_NormalWeb style_NormalWeb " style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:2; text-indent:1.27cm; ">To establish a violation of a specific standard, the Secretary must show<span>
					</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">by a preponderance of the evidence that: (1) the cited standard applies; (2) its terms were violated; (3) the employer knew, or with the exercise of reasonable diligence could have known, of the violative condition; and (4) one or more employees had access to the cited condition.  </span><span style="font-style:italic; color:#000000; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Astra Pharm. Prods</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">., 9 BNA OSHC 2126, 2129 (No. 78-6247, 1981), </span><span style="font-style:italic; color:#000000; font-family:Times New Roman; font-size:12pt; font-style:italic; ">aff’d in relevant part,</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "> 681 F.2d 69 (1st Cir. 1982). </span>The cited standard, 29 C.F.R.<span>
					</span>§<span><span></span>
					</span>1926.200(g)(1),<span><span></span>
					</span>states that: “construction areas shall be posted with legible traffic signs at points of hazard.”<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref10" href="#ftn10">9</a></span> There is no dispute that the Pottstown Pike worksite, which included Brubacher’s paving and excavating operations, constitutes a “construction area” within the meaning of the standard. (Stips. 1, 12.) The parties contest the other elements of the Secretary’s burden.</p>
			</div>
			<p class="style_Normal style_Normal style_Heading1 style_Heading1 style_Heading2 style_Heading2 " style="margin-left:48px; text-indent:0cm; margin-left:48px; text-indent:0cm; ">
				<span style="font-weight:bold; font-style:normal; color:WindowText; padding-right:20px;">A.</span>Flagger Force</p>
			<p class="style_Normal style_Normal style_Heading3 style_Heading3 " style="margin-left:96px; text-indent:0cm; margin-left:96px; text-indent:0cm; ">
				<span style="font-weight:normal; font-style:normal; color:WindowText; padding-right:20px;">1.</span>Applicability,<span><span></span>
				</span>Violation, and Exposure</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The Secretary alleges that Flagger Force violated 29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span><span><span></span>
					</span>1926.200(g)(1)<span>
					</span>by failing to provide at least one<span>
					</span>advance warning sign for motorists approaching the worksite from<span>
					</span>two directions: (1)<span>
					</span>the southbound lane of Pottstown Pike, or (2)<span>
					</span>the exit ramp connecting Pottstown Pike to Route 322. The parties agree that<span>
					</span>there were no signs at those locations. (Gov.<span>
					</span>Exs.<span>
					</span>16,<span>
					</span>20,<span>
					</span>51.) Instead, they argue that<span>
					</span>those locations were not points of hazard within the meaning of the cited standard. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The purpose of posting the traffic signs the cited standard<span>
					</span>requires<span>
					</span>is to warn motorists of construction work being done along the roadway. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See Sunshine Guardrail Servs.,<span>
						</span></span>No. 96-631,<span><span></span>
					</span>1996 WL 650480 (O.S.H.R.C.A.L.J.,<span>
					</span>Oct. 28, 1996). To satisfy the adequate advance warning requirement,<span><span></span>
					</span>employers<span>
					</span>must<span>
					</span>convey: (1) that work is taking place, (2) information about highway conditions, and (3) information about how traffic can move through the temporarily revised traffic pattern. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See<span>
						</span></span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">KS Energy Servs., Inc.</span>,<span>
					</span>22 BNA OSHC 1261,<span>
					</span>1262<span>
					</span>(No. 06-1416, 2008) (affirming a violation of<span>
					</span>29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span><span><span></span>
					</span>1926.200(g)(2),<span><span></span>
					</span>which<span>
					</span>also<span>
					</span>addresses<span>
					</span>“Signs, Signals, and Barricades”). </p>
			</div>
			<p class="style_Normal style_Normal style_Heading4 style_Heading4 " style="margin-left:144px; text-indent:0cm; margin-left:144px; text-indent:0cm; ">
				<span style="padding-right:20px;">a)</span>Southbound Lane</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Unlike<span>
					</span>motorists<span><span></span>
					</span>approaching the worksite from the northbound lane,<span>
					</span>those<span><span></span>
					</span>traveling southbound on Pottstown Pike<span>
					</span>were not warned<span>
					</span>they were about to<span>
					</span>approach the worksite. While the traffic control pattern did not require a<span>
					</span>full<span><span></span>
					</span>lane shift for<span>
					</span>southbound<span>
					</span>motorists,<span>
					</span>the lane was partially obstructed. (Gov.<span>
					</span>Exs. 16, 17, 21.) Mr.<span>
					</span>Duda<span><span></span>
					</span>indicated<span>
					</span>that<span>
					</span>the<span>
					</span>traffic<span>
					</span>pattern required an approximately<span>
					</span>two-foot<span><span></span>
					</span>diversion for vehicles traveling in the southbound lane. (Gov.<span>
					</span>Ex. 21.) If motorists were not aware of the diversion, they could cross into the<span>
					</span>northbound lane. (Tr. 343.) This could result in crashes<span>
					</span>impacting<span><span></span>
					</span>the worksite. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id. </span>In addition,<span>
					</span>the traffic control plan required<span>
					</span>the placement of<span>
					</span>a number of<span><span></span>
					</span>cones along what was typically the middle turning lane. (Tr. 293;<span>
					</span>Gov. Ex. 16.) If a vehicle<span>
					</span>were to<span>
					</span>strike<span><span></span>
					</span>one of<span>
					</span>the<span>
					</span>cones<span><span></span>
					</span>it could become airborne and hit<span>
					</span>the flaggers or other workers. (Tr.<span>
					</span>343; Gov. Ex.<span>
					</span>22.) The cones<span>
					</span>were “like a projectile” and could “come flying through the air”<span>
					</span>if<span>
					</span>struck<span><span></span>
					</span>by a vehicle. (Tr.<span>
					</span>227, 627-28.) Indeed,<span>
					</span>early on the morning of June 5, 2017, a<span>
					</span>pickup truck with a trailer<span>
					</span>on it<span>
					</span>knocked over a row<span><span></span>
					</span>of cones after they were set up. (Tr. 223-24, Gov. Ex. 22.) Besides<span><span></span>
					</span>the<span>
					</span>risk posed by<span><span></span>
					</span>the cones,<span>
					</span>Mr.<span>
					</span>Duda<span><span></span>
					</span>also thought<span>
					</span>that<span>
					</span>the work might<span>
					</span>require<span>
					</span>periodic disruption to the southbound traffic flow. (Tr. 651.) Because of that possibility, Mr. Duda<span>
					</span>testified that there should<span>
					</span>have<span>
					</span>been<span><span></span>
					</span>a “flagman ahead” sign on<span>
					</span>both the north and southbound sides of the road. (Tr.<span>
					</span>605, 651.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Flagger Force’s own policies also recognized the need for advance warning signs on each side of a worksite. (Tr. 192,<span><span></span>
					</span>741-42, 744, 755-56;<span>
					</span>Gov.<span>
					</span>Ex.<span>
					</span>33, FF<span><span></span>
					</span>Exs.<span>
					</span>10, 12.)<span>
					</span><span><span></span>
					</span>Consistent with this policy, the Master Services Agreement,<span><span></span>
					</span>which governed the relationship between Flagger Force and Brubacher, specifically required<span>
					</span>at least two warning signs to be placed at<span>
					</span>appropriate distances<span><span></span>
					</span>from either end of the work zone. (Tr. 285-86.) Finally, there is no dispute that there were<span>
					</span>signs on both sides of the<span>
					</span>road<span><span></span>
					</span>for the first three days of the project. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Thus, the Secretary adequately showed that the southbound lane of Pottstown Pike was a “point of hazard”<span>
					</span>where advance warning signs were required,<span><span></span>
					</span>and Flagger Force failed to have any warning signs at that location. </p>
			</div>
			<p class="style_Normal style_Normal style_Heading4 style_Heading4 " style="margin-left:144px; text-indent:0cm; margin-left:144px; text-indent:0cm; ">
				<span style="padding-right:20px;">b)</span>Exit Ramp</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Motorists on the Route 322 exit ramp had to merge into traffic along the northbound lane of Pottstown Pike, the same lane along which Brubacher<span>
					</span>and the Flagger Force employees were<span><span></span>
					</span>working. As discussed, the northbound lane was diverted as a result of Brubacher’s work. The end of the exit<span><span></span>
					</span>ramp was a short distance from the beginning of the worksite—approximately 250<span><span></span>
					</span>feet. (Tr. 93, 101-2; Gov Ex. 7 at 5.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">For<span>
					</span>the first three days of the project, Flagger Force installed at least two signs indicating “work area ahead” and “flagman ahead” along the Route 322 exit ramp. (Tr.<span>
					</span>485,<span>
					</span>605-6.) Shortly after work began the signs were re-positioned to improve their visibility. (Tr.<span>
					</span>597.) In addition to the signs placed<span><span></span>
					</span>by Flagger Force, the end of the ramp also had a stop sign. (Tr. 102.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Flagger Force<span><span></span>
					</span>argues that this<span><span></span>
					</span>stop sign<span>
					</span>satisfied<span><span></span>
					</span>the cited standard. (Flagger Force Br. at 18-19.) However, as this stop sign was always in place, its presence<span><span></span>
					</span>did not alert drivers that they would<span>
					</span>be<span>
					</span>quickly entering a worksite with<span>
					</span>a different traffic pattern<span><span></span>
					</span>and that there may be flaggers in the road.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref11" href="#ftn11">10</a></span> (Tr. 102.) Not only did the initial traffic plan recognize that the stop sign alone would be insufficient,<span>
					</span>but the<span>
					</span>conditions at the worksite<span>
					</span>also<span>
					</span>made that apparent. Mr. Duda discussed<span>
					</span>motorists failing to come to a complete stop at this<span>
					</span>particular stop<span><span></span>
					</span>sign. (Tr. 607-8.) Many motorists treated the sign as requiring a yield, rather than a full stop. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id. </span>They tended to “jet out at 45 miles per hour” rather than fully stopping before attempting to<span>
					</span>merge.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref12" href="#ftn12">11</a></span>
					<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.</span> The CO explained that the focus of motorists on the ramp would be<span>
					</span>to “pay attention to any oncoming traffic” and<span>
					</span>they<span>
					</span>would not necessarily realize the nearby worksite and changed traffic pattern. (Tr. 344.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">This is<span>
					</span>sufficient<span><span></span>
					</span>to show that<span><span></span>
					</span>the exit ramp was also a point of hazard<span><span></span>
					</span>and as such should have had at least one<span>
					</span>advance warning sign. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See<span>
						</span></span>29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span><span><span></span>
					</span>1926.200(g)(1). </p>
			</div>
			<p class="style_Normal style_Normal style_Heading3 style_Heading3 " style="margin-left:96px; text-indent:0cm; margin-left:96px; text-indent:0cm; ">
				<span style="font-weight:normal; font-style:normal; color:WindowText; padding-right:20px;">1.</span>Exposure</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">There is no dispute that two Flagger Force employees were working<span>
					</span>in and around<span><span></span>
					</span>Pottstown Pike when<span>
					</span>two points of hazard lacked appropriate signage. (Tr. 390; Gov. Exs.<span>
					</span>4,<span>
					</span>7, 16-18.) Flagger Force argues that its employees did not have reason to be on the Route 322 exit ramp<span><span></span>
					</span>and so were not exposed to that hazard. (Flagger Force Reply Br. at 7.) However, the need for signage<span>
					</span>on the exit ramp<span>
					</span>and<span>
					</span>along both directions of the<span>
					</span>Pottstown Pike arose because<span>
					</span>Flagger<span>
					</span>Force<span>
					</span>employees were<span><span></span>
					</span>working along that road, including at a point<span><span></span>
					</span>a short distance from the end of the<span>
					</span>ramp. (Gov.<span>
					</span>Exs.<span>
					</span>16,<span>
					</span>17A, 18.) As such, they were exposed to the hazardous condition<span><span></span>
					</span>that is the focus of the cited standard. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See RGM</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span>Constr. Co.,<span>
						</span></span>17 BNA OSHC 1229, 1234<span><span></span>
					</span>(No. 91-2107, 1995)<span>
					</span>(finding<span>
					</span>that<span>
					</span>the zone of danger for purposes of assessing<span><span></span>
					</span>employee<span><span></span>
					</span>exposure to be the “area surrounding the violative condition that presents the danger to employees which the standard is intended to prevent”). </p>
			</div>
			<p class="style_Normal style_Normal style_Heading3 style_Heading3 " style="margin-left:96px; text-indent:0cm; margin-left:96px; text-indent:0cm; ">
				<span style="font-weight:normal; font-style:normal; color:WindowText; padding-right:20px;">1.</span>Knowledge</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">On June 5, 2017, two Flagger Force employees arrived at the worksite—one crew leader and one crew member.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref13" href="#ftn13">12</a></span><span><span></span>
					</span><span><span></span>
					</span>(Stips. 4, 5; Tr. 667.) The crew leader arrived<span>
					</span>at the worksite<span>
					</span>first. (Tr. 615-16.) He<span>
					</span>met with Mr. Duda, who walked the length of the worksite<span>
					</span>with him<span>
					</span>and explained the traffic control pattern that had been in place<span>
					</span>over the<span>
					</span>first<span><span></span>
					</span>few days of the job. (Tr. 617-20.) The crew leader set up the traffic cones<span><span></span>
					</span>and the warning signs on the northbound side of the road. (Tr.<span>
					</span>227,<span>
					</span>621.) The crew member<span>
					</span>showed up<span>
					</span>later<span>
					</span>and<span>
					</span>then<span>
					</span>both him and the crew leader<span><span></span>
					</span>took up positions<span><span></span>
					</span>as flaggers<span><span></span>
					</span>near the start and end of the cones lining the worksite. (Tr.<span>
					</span>623.) The<span><span></span>
					</span>flaggers<span>
					</span>kept<span><span></span>
					</span>a lookout for<span>
					</span>distracted motorists and those who were unsure of<span>
					</span>how to follow the adjustment to the usual traffic pattern. (Gov. Ex. 21.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The crew leader knew where he set up the signs<span><span></span>
					</span>and had actual knowledge of the hazardous condition. (Tr. 518.) The<span><span></span>
					</span>parties dispute whether his knowledge can be imputed to Flagger Force. In general,<span>
					</span>a supervisor’s knowledge of a hazardous condition is imputable to his or her employer. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Jersey Steel Erectors</span>, 16 BNA OSHC 1162, 1164<span><span></span>
					</span>(No. 90-1307, 1993),<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">aff'd</span>, 19 F.3d 643 (3d Cir. 1994)<span><span></span>
					</span>(unpublished). The issue here is whether the crew leader<span>
					</span>was a supervisor. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Flagger Force argues that it did not consider<span>
					</span>the<span>
					</span>crew leader to be<span>
					</span>a<span>
					</span>supervisor. (Tr. 450-51; Gov. Ex. 51.) He was an hourly employee who did not have the authority to hire or fire people. (Tr. 166, 451.) Nor could he discipline any other employee. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id. </span>In Flagger Force’s view, no supervisor ever visited the worksite.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref14" href="#ftn14">13</a></span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The Secretary<span>
					</span>responds<span><span></span>
					</span>that despite how Flagger Force labeled its employees, the crew leader had sufficient authority over the crew member such that he can be considered a supervisor for purposes of imputing knowledge.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref15" href="#ftn15">14</a></span>
					<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See Diamond Installations, Inc.,</span><span><span></span>
					</span>21 BNA OSHC 1688, 1690 (No. 02-2080, 2006) (supervisory status turns on the delegation of authority, not the title of the employee). An employee who has been delegated authority over other employees, even if temporarily,<span>
					</span>is considered to be<span><span></span>
					</span>a supervisor for the purposes of imputing<span>
					</span>his<span>
					</span>knowledge to an employer. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See Kerns Bros. Tree Serv.</span>, 18 BNA OSHC 2064,<span>
					</span>2068-69<span><span></span>
					</span>(No.<span>
					</span>96-1719,<span><span></span>
					</span>2000)<span><span></span>
					</span>(determining that<span>
					</span>a<span><span></span>
					</span>crew leader<span>
					</span>was a supervisor whose knowledge could be imputed<span><span></span>
					</span>even though he had no authority<span>
					</span>to discipline other employees);<span><span></span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Tampa Shipyards Inc</span>., 15 BNA OSHC 1533, 1537<span><span></span>
					</span>(No.<span>
					</span>86-630, 1992)<span><span></span>
					</span>(finding temporary delegation of authority sufficient for purposes of imputing knowledge).<span><span></span>
					</span><span><span></span>
					</span>The<span>
					</span>employee’s formal title is not controlling—what matters is<span><span></span>
					</span>the substance of the<span>
					</span>employee’s duties. 18 BNA OSHC at<span>
					</span>2068. The employee’s authority<span>
					</span>need<span><span></span>
					</span>not be widespread. It is<span>
					</span>sufficient<span><span></span>
					</span>if they<span>
					</span>are “in charge” of one or two<span>
					</span>other employees. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See<span>
						</span></span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Access<span>
						</span></span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Equip</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">.</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span>Sys., Inc.</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">,<span>
						</span></span>18 BNA OSHC<span>
					</span>1718,<span>
					</span>1726<span>
					</span>(No. 95-1449, 1999)<span>
					</span>(employee who was “in charge of” or “the lead person for” one or two employees who erected scaffolds “can be considered a supervisor”);<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span></span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">P</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">a.</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span>Power & Light Co. v. OSHRC</span>,<span>
					</span>737 F.2d<span>
					</span>350,<span><span></span>
					</span>352, 355<span><span></span>
					</span>(3d Cir.<span>
					</span>1984)<span><span></span>
					</span>(hereafter,<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">PP&L</span>)<span>
					</span>(finding that<span>
					</span>the crew leader of a three-person electrical utility crew at a remote worksite<span>
					</span>was a<span><span></span>
					</span>supervisor for purposes of determining the employer's knowledge of violative conditions). </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Crew leaders and crew members both<span>
					</span>have a role in identifying unsafe conditions. Any crew leader<span>
					</span>or<span><span></span>
					</span>crew member could stop work<span><span></span>
					</span>for safety issues. (Tr. 748.) But crew leaders have more training than crew members and Flagger Force required there to be at least one crew leader at each job site. (Tr. 169, 173, 746, 769.) The<span>
					</span>crew leader<span><span></span>
					</span>was<span><span></span>
					</span>“in charge”<span>
					</span>at the worksites.<span>
					</span><span><span></span>
					</span>(Tr. 166,<span>
					</span>168,<span>
					</span>391,<span>
					</span>623,<span>
					</span>746.) They were tasked<span>
					</span>with ensuring that<span>
					</span>each worksite<span>
					</span>is set up in<span><span></span>
					</span>accordance with<span>
					</span>Flagger Force’s policies and the designated traffic pattern for the job.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref16" href="#ftn16">15</a></span> (Tr. 166,<span><span></span>
					</span>203,<span>
					</span>391,<span>
					</span>685,<span>
					</span>745-46, 758; Gov. Ex. 8<span><span></span>
					</span>at 3.) The crew leader was responsible for assessing whether the<span>
					</span>Manual on Uniform Traffic Control Devices (MUTCD)<span><span></span>
					</span>or Pennsylvania’s Temporary Traffic Control Guidelines apply, and then to comply with<span>
					</span>the<span><span></span>
					</span>requirements<span><span></span>
					</span>of the applicable regulations. (FF Ex. 12; Gov. Ex. 8.) The<span>
					</span>crew leader was<span><span></span>
					</span>issued a truck,<span>
					</span>signs, cones,<span><span></span>
					</span>and other safety equipment.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref17" href="#ftn17">16</a></span> (Tr. 167, 731-32.) Crew leaders are the employees responsible<span>
					</span>for obtaining<span>
					</span>the proper safety equipment needed to complete the work Flagger Force was hired for,<span>
					</span>mainly the protection of<span>
					</span>workers<span><span></span>
					</span>on or near roads. (Tr. 176-77, 194; Gov. Ex. 24.) If the crew leader determined additional equipment was needed, he or she would contact the regional office to get the equipment. (Tr.<span>
					</span>732.) While the branch managers were the employees who determined who<span>
					</span>got promotions and handled formal discipline, there is no evidence they ever<span><span></span>
					</span>supervised<span><span></span>
					</span>work in the field directly.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref18" href="#ftn18">17</a></span> (Tr. 763.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">As crew leader,<span>
					</span>MD was tasked with responsibility for the safety of<span>
					</span>the<span>
					</span>Flagger Force<span>
					</span>employees<span><span></span>
					</span>at the worksite and implementing the correct traffic cone pattern. (Tr. 203, 208-9.) He met with Brubacher to discuss the traffic pattern, led the set-up work,<span><span></span>
					</span>and determined where he and the other flagger would be working. (Tr. 451, 623.) After discussing<span><span></span>
					</span>the planned<span>
					</span>construction<span>
					</span>work with<span>
					</span>Brubacher, consistent with Flagger Force’s policy, he<span><span></span>
					</span>led the<span>
					</span>pre-job brief to explain<span>
					</span>the tasks to be done with the crew member. (Tr. 194-95, 201.) During any such pre-job brief, the crew leader<span>
					</span>had the obligation<span><span></span>
					</span>to inform the crew members of “the hazards to the crew,” explain job responsibilities, and discuss how to do the job safely and securely. (Tr. 195, 745-46; Flagger Force<span><span></span>
					</span>Br. at 8.) MD<span><span></span>
					</span>was in charge of<span><span></span>
					</span>setting up and making sure the traffic pattern, including the sign placement,<span><span></span>
					</span>was correct. (Tr.<span>
					</span>166,<span>
					</span>391, 394, 518.) He<span><span></span>
					</span>considered himself qualified to be responsible for the other Flagger Force employee he was supervising at the worksite. (Tr. 201.) His work at job sites was not directly overseen by anyone else.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref19" href="#ftn19">18</a></span> (Tr. 179.) On this record,<span>
					</span>the crew leader<span>
					</span>had been delegated sufficient authority to be considered a supervisor and his actual<span>
					</span>knowledge of the violative conditions can be imputed to his employer.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref20" href="#ftn20">19</a></span>
					<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Kerns,<span>
						</span></span>18 BNA OSHC at<span>
					</span>2069;<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span></span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">PP&L</span>, 737 F.2d<span>
					</span>at<span><span></span>
					</span>352, 355.</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Ordinarily, after the Secretary<span><span></span>
					</span>establishes<span>
					</span>the<span>
					</span>applicability of the cited standard, its violation, employee exposure,<span><span></span>
					</span>and employer knowledge of<span>
					</span>the violative condition,<span><span></span>
					</span>the burden shifts to the employer<span>
					</span>to<span>
					</span>show<span><span></span>
					</span>that the violation should be excused<span><span></span>
					</span>based on some affirmative defense. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See e.g.,<span>
						</span></span><span style="font-style:italic; color:#000000; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Astra Pharm.</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">, 9 BNA OSHC<span>
						</span></span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">at</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>2129</span><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">. However, i</span>n<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Kerns</span>, the Commission concluded that under<span>
					</span>Third Circuit precedent,<span>
					</span>when the<span>
					</span>employer’s<span><span></span>
					</span>knowledge of a hazardous condition<span>
					</span>can only be inferred through<span>
					</span>“proof of<span>
					</span>a supervisor’s misconduct,”<span>
					</span>the Secretary<span><span></span>
					</span>cannot<span>
					</span>shift the burden of<span>
					</span>persuasion of the issue of misconduct to the employer. 18 BNA OSHC at 2069<span><span></span>
					</span>(discussing<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">PP&L</span>,<span>
					</span>737 F.2d<span>
					</span>at 352, 355). In such situations, the violation will be “excused” if the<span>
					</span>supervisor’s misconduct was contrary to a consistently enforced company<span>
					</span>policy,<span><span></span>
					</span>supervisors were adequately<span>
					</span>trained,<span><span></span>
					</span>and reasonable steps were taken to discover safety violations. 737 F.2d at 358. In contrast,<span>
					</span>“[i]n cases where the Secretary proves that a company supervisor had knowledge of, or participated in, conduct violating the<span>
					</span>[OSH<span>
					</span>Act], we do not quarrel with the logic of requiring the company to come forward with some evidence that it has undertaken reasonable safety precautions.” <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span>at 357. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The present matter aligns<span><span></span>
					</span>with such a situation. The Secretary<span>
					</span>relies<span><span></span>
					</span>on the supervisor’s actual knowledge of the violative condition—his<span>
					</span>own<span>
					</span>failure to place<span>
					</span>the<span>
					</span>advance warning signs at points of hazard<span><span></span>
					</span>as required by the cited standard. In any event,<span>
					</span>apart from<span><span></span>
					</span>the burden of proof,<span>
					</span>the test applied in<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">PP&L</span><span><span></span>
					</span>largely<span>
					</span>tracks the Commission’s<span>
					</span>test for establishing unpreventable employee misconduct.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref21" href="#ftn21">20</a></span>
					<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Compare<span>
						</span></span>737 F.2d at 358<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">with<span>
						</span></span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Nooter Constr.</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">, Inc.,</span><span><span></span>
					</span>16 BNA OSHC 1572, 1578 (No.<span>
					</span>91-0237, 1994). So,<span>
					</span>for the reasons discussed below,<span>
					</span>regardless of whether the Third Circuit would<span>
					</span>extend<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">PP&L</span><span><span></span>
					</span>to apply to the<span>
					</span>fact pattern<span>
					</span>at issue here,<span>
					</span>the<span>
					</span>undersigned finds that the violation should be vacated<span><span></span>
					</span>because the record<span>
					</span>shows it was the result of unpreventable employee misconduct. </p>
			</div>
			<p class="style_Normal style_Normal style_Heading3 style_Heading3 " style="margin-left:96px; text-indent:0cm; margin-left:96px; text-indent:0cm; ">
				<span style="font-weight:normal; font-style:normal; color:WindowText; padding-right:20px;">1.</span>Unpreventable Employee Misconduct</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">To establish the defense of unpreventable employee misconduct, the employer must<span>
					</span>show<span><span></span>
					</span>it:<span>
					</span>(1) established specific work rules designed to prevent the violative conditions from occurring; (2) adequately communicated those rules to its employees; (3) took steps to discover violations of those rules; and (4) effectively enforced the rules when violations were discovered. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Nooter,<span>
						</span></span>16 BNA OSHC at<span>
					</span>1578. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The Secretary<span>
					</span>admits<span><span></span>
					</span>that Flagger Force had a specific<span>
					</span>written<span>
					</span>work rule<span>
					</span>intended to prevent<span><span></span>
					</span>missing advance warning signs. (Sec’y Br. at 43.) Indeed,<span>
					</span>Flagger Force’s first “fundamental principle” of flagging was to have<span><span></span>
					</span>advance warning signs in place. (FF<span>
					</span>Ex.<span>
					</span>10.)<span>
					</span><span><span></span>
					</span>Flagger Force anticipated the hazards<span><span></span>
					</span>contemplated by the cited standard and formulated a specific rule<span><span></span>
					</span>to facilitate compliance. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Besides its specific written work rule requiring advance warning signs, Flagger Force also<span>
					</span>had general safety rules. It<span>
					</span>required<span><span></span>
					</span>compliance with “federal, state, and local laws” and the company’s “best practices.” (Gov. Ex. 36 at 12.)<span><span></span>
					</span><span><span></span>
					</span>All employees must adhere to the company’s<span>
					</span>safety program. (Gov.<span>
					</span>Exs. 35, 36; Tr. 726-27.) Flagger Force’s<span>
					</span>Field Employee Handbook (Handbook)<span><span></span>
					</span>specifies that employees are to follow the procedures learned in training. (Gov. Ex. 36 at 12; Tr. 756.) Any violation of a safety rule is “absolutely prohibited and could lead to termination.” (Gov. Ex. 36 at 14.)<span>
					</span><span><span></span>
					</span>All employees receive a copy of the<span>
					</span>Handbook<span><span></span>
					</span>at the start of their employment. (Tr. 682.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">As for the second prong of the defense,<span><span></span>
					</span>communication of the work rule,<span><span></span>
					</span>the Secretary admits that<span>
					</span>“Flagger Force training for both crew members and<span>
					</span>crew leaders emphasizes the need for advance warning signs.” (Sec’y Br. at 9.) Flagger Force<span>
					</span>incorporated its<span>
					</span>specific<span>
					</span>work<span><span></span>
					</span>rule into a comprehensive training program. (FF Exs. 10, 12.)<span>
					</span><span><span></span>
					</span>Crew members receive a<span>
					</span>four-hour<span><span></span>
					</span>training course and pass a written exam. (FF<span>
					</span>Ex.<span>
					</span>10; Tr.<span>
					</span>678.) This training course is separate from a longer<span>
					</span>six-hour<span><span></span>
					</span>orientation program. (Tr.<span>
					</span>679-80.) Employees must re-take the<span>
					</span>four-hour<span><span></span>
					</span>training course every<span>
					</span>three<span>
					</span>years. (Tr. 749.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Flagger Force’s training directly addressed the specific work rule at issue here. It<span>
					</span>required<span>
					</span>all<span><span></span>
					</span>crew members<span>
					</span>and crew leaders<span>
					</span>to know the “ABCs of Flagging,” which were the “fundamental principles” of flagging. (Tr. 741-42;<span>
					</span>FF<span>
					</span>Ex.<span>
					</span>10<span><span></span>
					</span>at 19.) The “A” in<span>
					</span>its “ABCs of Flagging” was a<span>
					</span>clear<span>
					</span>shorthand<span><span></span>
					</span>way to remind employees of the need for<span>
					</span>“advance warning signs.” (Tr. 741-42; FF<span>
					</span>Ex.<span>
					</span>10<span><span></span>
					</span>at 19.) The<span><span></span>
					</span>written<span>
					</span>training<span>
					</span>materials<span>
					</span>explicitly<span>
					</span>direct employees to never begin a flagging operation<span>
					</span>“without signs on the road.” (FF<span>
					</span>Ex.<span>
					</span>10; Tr. 744.) The training also addresses sign placement, including with diagrams showing signs on both sides of the road and<span>
					</span>along<span><span></span>
					</span>intersecting roads. (FF Ex. 10 at 63, 77-78,<span>
					</span>121.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Crew leaders completed<span>
					</span>the<span>
					</span>same course as crew members<span>
					</span>and then<span>
					</span>completed an<span>
					</span>additional<span>
					</span>three-day<span><span></span>
					</span>training. (Tr.<span>
					</span>169, 173,<span>
					</span>753,<span>
					</span>769;<span>
					</span>FF<span>
					</span>Ex.<span>
					</span>12.) Like the crew member training, the crew leader<span>
					</span>training also<span>
					</span>explained the requirement to have<span><span></span>
					</span>advance warning signs and<span>
					</span>specifically<span>
					</span>instructed crew leaders to<span>
					</span>“[i]nstall<span><span></span>
					</span>necessary signage.”<span>
					</span><span><span></span>
					</span>(FF<span>
					</span>Ex.<span>
					</span>12<span><span></span>
					</span>at 63.) It<span>
					</span>reviews<span><span></span>
					</span>the information from the crew member training about the placement of<span>
					</span>advance warning signs and provides additional<span>
					</span>instructions<span>
					</span>about sign placement<span>
					</span>specific to different traffic patterns and road conditions,<span>
					</span>such as<span><span></span>
					</span>the presence of other roads near worksites.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref22" href="#ftn22">21</a></span> (Tr. 753, 755-56; FF Ex. 12 at 54-58, 72, 82-91, 123-30.) Crew leaders<span>
					</span>are also required to attend additional<span>
					</span>one-day<span>
					</span>re-fresher<span>
					</span>trainings<span>
					</span>three times a year.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref23" href="#ftn23">22</a></span> (Tr.<span>
					</span>669-70, 748.) Thus,<span>
					</span>Flagger Force specifically trained workers about<span>
					</span>its<span><span></span>
					</span>rule related to the cited<span>
					</span>standard and the hazards anticipated by that<span><span></span>
					</span>standard. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Both MD and the other flagger<span>
					</span>(JL)<span>
					</span>were tested on their knowledge of flagging, and both passed before beginning to work on<span>
					</span>the<span>
					</span>Pottstown Pike<span><span></span>
					</span>project.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref24" href="#ftn24">23</a></span> (Tr.<span>
					</span>683-85,<span>
					</span>750; Gov. Exs. 37,<span>
					</span>38.) MD<span>
					</span>could not recall<span>
					</span>all of<span><span></span>
					</span>the training he received, but<span>
					</span>he “absolutely”<span><span></span>
					</span>knew he needed to set up advance warning signs. (Tr. 192.) In addition, there’s no dispute that all required advance warning signs were in place every other day that Flagger Force employees were at the Pottstown Pike worksite. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">As for uncovering violations of work rules,<span>
					</span>Flagger Force’s<span>
					</span>quality specialists<span>
					</span>conduct<span>
					</span>random checks of worksites to ensure compliance. (Tr.<span>
					</span>687-89,<span>
					</span>764-66.) Flagger Force’s inspection process requires an examination of 41 separate issues, including<span>
					</span>assessing<span>
					</span>whether<span>
					</span>signage is correct, whether<span>
					</span>employees are abiding by the MUTCD,<span><span></span>
					</span>and<span>
					</span>whether they are<span>
					</span>acting safely. (Tr. 764.) In general, Flagger Force observes<span><span></span>
					</span>the work zone of crew leaders<span>
					</span>at least<span>
					</span>twice<span>
					</span>per month<span><span></span>
					</span>and<span>
					</span>has an auditing system to<span>
					</span>randomly visit<span>
					</span>at least 20% of the company’s worksites per month. (Gov. Exs.<span>
					</span>8,<span>
					</span>13; Tr. 764-66.) If inspectors find issues on a repeated basis, they will inspect the relevant employees more frequently. (Tr. 765.) In the<span><span></span>
					</span>six months<span>
					</span>prior to the accident,<span><span></span>
					</span>about<span>
					</span>3,000<span>
					</span>random inspections were conducted<span>
					</span>by the regional office<span><span></span>
					</span>which staffed the Pottstown Pike project.<span><span></span>
					</span><span><span></span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">While<span>
					</span>a Flagger Force inspector had not visited<span>
					</span>the Pottstown Pike project,<span>
					</span>MD’s<span>
					</span>worksites were<span><span></span>
					</span>inspected four times in the two months preceding his being assigned crew leader<span><span></span>
					</span>on June 5, 2017.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref25" href="#ftn25">24</a></span> (Gov.<span>
					</span>Exs. 41-44, 45A.) When<span><span></span>
					</span>MD<span><span></span>
					</span>served as crew leader, the inspections of his<span><span></span>
					</span>worksites<span>
					</span>neither<span>
					</span>uncovered any issues<span>
					</span>related<span>
					</span>to<span>
					</span>advance warning signs<span>
					</span>nor gave any indication that he did not understand the fundamental principles of his training.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref26" href="#ftn26">25</a></span> (Tr. 752-53; Gov.<span>
					</span>Exs. 41-44, 45A.) This is entirely consistent with MD’s testimony at the hearing<span><span></span>
					</span>when he<span>
					</span>expressed no hesitation when asked whether he understood the requirement to have advance warning signs. (Tr. 192; Gov. Ex. 41-45A.) The Secretary tries to spin MD’s<span>
					</span>good<span>
					</span>safety record and his understanding of the advance warning sign rule as showing Flagger Force’s program was deficient because this well-regarded employee ended up violating<span>
					</span>a safety<span><span></span>
					</span>rule on June 5, 2017. (Sec’y Br. at 46.) However,<span>
					</span>this record<span>
					</span>actually reflects<span><span></span>
					</span>an idiosyncratic violation of an enforced work rule by an employee<span>
					</span>who understood the rule and<span>
					</span>whose past behavior gave no indication<span>
					</span>he would violate it.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref27" href="#ftn27">26</a></span>
				</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">With no evidence of<span>
					</span>a lack of understanding or<span>
					</span>prior<span>
					</span>violations of work rules by the Flagger Force employees<span>
					</span>assigned to<span>
					</span>the Pottstown Pike worksite, the Secretary points to infractions by other employees. (Sec’y Br. at<span>
					</span>24-27.) Flagger Force’s inspection records show that<span><span></span>
					</span>the company periodically uncovered<span><span></span>
					</span>violations of its work<span><span></span>
					</span>rule<span><span></span>
					</span>about signage<span>
					</span>and then<span><span></span>
					</span>took action<span><span></span>
					</span>in response. (Gov.<span>
					</span>Exs. 45B-E.) At<span>
					</span>a<span>
					</span>minimum, Flagger Force verbally coached employees and corrected any issues with the traffic pattern identified<span>
					</span>during<span><span></span>
					</span>an<span>
					</span>inspection. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id. </span>The<span>
					</span>inspection<span>
					</span>records support<span><span></span>
					</span>the<span>
					</span>testimony of Flagger Force’s safety manager,<span>
					</span>Joshua Foltz, who<span><span></span>
					</span>explained that<span>
					</span>when inspectors identified<span>
					</span>a work rule<span>
					</span>violation, the issue was immediately corrected and then<span>
					</span>the inspector would coach the employees<span><span></span>
					</span>about issues identified.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref28" href="#ftn28">27</a></span> (Tr. 703,<span>
					</span>763, 768.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Consistent with Flagger Force’s progressive system of discipline, on occasion, additional disciplinary steps beyond verbal coaching were taken<span><span></span>
					</span>to address violations of the advance warning sign work<span><span></span>
					</span>rule. (Tr. 697, 703, 763-65, 772-74; Gov.<span>
					</span>Exs. 8, 36 at 12, 15.) In January 2015, Flagger Force<span>
					</span>demoted<span><span></span>
					</span>an employee for, among other reasons, having improper advance warning signs. (Gov. Ex.<span>
					</span>47 at 11-14.) A few months later, Flagger Force terminated a different employee<span>
					</span>for, among other reasons,<span><span></span>
					</span>his failure<span><span></span>
					</span>to have any advanced warning signs set up<span>
					</span>before<span><span></span>
					</span>a curve in the road. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span>at 18-21. The Secretary argues that there was no evidence beyond<span>
					</span>verbal coaching for violations of the advance warning sign<span>
					</span>rule in 2016. (Sec’y Br.<span>
					</span>at 27-29.) However, there is also<span>
					</span>no evidence<span>
					</span>of worksites<span>
					</span>lacking all<span><span></span>
					</span>advance warning signs<span><span></span>
					</span>or otherwise<span>
					</span>violating<span><span></span>
					</span>29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span> 1910.200(g)(1)<span><span></span>
					</span>during that time. (Gov. Ex. 45A-E.) Although<span><span></span>
					</span>the<span>
					</span>inspection<span>
					</span>records identify<span>
					</span>concerns<span>
					</span>with signage<span><span></span>
					</span>at worksites, none indicate<span>
					</span>a failure to have<span>
					</span>at least one advance warning sign<span><span></span>
					</span>as required by<span><span></span>
					</span>the standard the work rule addresses.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref29" href="#ftn29">28</a></span>
					<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id. </span>Flagger Force showed a history of issuing written warnings and taking other disciplinary actions taken when employees failed to follow the rule to ensure proper advance warning signs.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref30" href="#ftn30">29</a></span> (Gov. Ex. 47.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Flagger Force<span>
					</span>had a clear<span>
					</span>written<span>
					</span>safety rule directly addressing the cited hazard. The requirement for advance warning signs was a “fundamental principle” and<span>
					</span>the rule was<span>
					</span>emphasized in<span>
					</span>several<span><span></span>
					</span>ways. (FF<span>
					</span>Ex.<span>
					</span>10.) Its crew leader attended the training covering the rule, was tested on it, and<span>
					</span>“absolutely” understood signage was required. (Tr.<span>
					</span>54.) MD had no history of violating<span>
					</span>the relevant rule, or other<span>
					</span>safety rules, despite being regularly inspected. (Gov.<span>
					</span>Exs. 41-44, 45A.) There is no evidence that he departed from his training<span>
					</span>on June 5, 2017<span>
					</span>because he believed it was appropriate or would not result in adverse consequences.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref31" href="#ftn31">30</a></span> On<span>
					</span>the<span>
					</span>contrary, failing to<span>
					</span>set up advance warning signs had led to a variety of punitive measures against other employees. (Gov. Exs.<span>
					</span>45A-E, 47.) There is no reason why Flagger Force should have anticipated a potential<span>
					</span>departure from<span>
					</span>its<span><span></span>
					</span>training<span>
					</span>program<span>
					</span>and the established written work rule by this crew leader. Flagger Force showed that the crew leader’s failure to set up<span><span></span>
					</span>appropriate warning signs on the morning of June<span>
					</span>5, 2016 was the result of unpreventable employee misconduct. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Accordingly,<span>
					</span>Citation 1, Item 1a from the citation issued as a result of<span>
					</span>OSHA Inspection No. 1263466<span>
					</span>is vacated<span><span></span>
					</span>and no penalty is assessed.</p>
			</div>
			<p class="style_Normal style_Normal style_Heading1 style_Heading1 style_Heading2 style_Heading2 " style="margin-left:48px; text-indent:0cm; margin-left:48px; text-indent:0cm; ">
				<span style="font-weight:bold; font-style:normal; color:WindowText; padding-right:20px;">A.</span>Brubacher</p>
			<p class="style_Normal style_Normal style_Heading3 style_Heading3 " style="margin-left:96px; text-indent:0cm; margin-left:96px; text-indent:0cm; ">
				<span style="font-weight:normal; font-style:normal; color:WindowText; padding-right:20px;">1.</span>Applicability<span><span></span>
				</span>and<span><span></span>
				</span>Violation</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">For the same reasons discussed above in connection with the citation issued to Flagger Force, the cited standard applied<span>
					</span>to Brubacher’s worksite<span>
					</span>and was violated. Brubacher was engaged in construction work. (Stip. 12.) The work took place on the shoulder of<span>
					</span>Pottstown Pike<span>
					</span>and required an adjustment to the<span>
					</span>road’s<span>
					</span>typical traffic pattern. The cited standard requires at least one advance warning sign for each point of hazard. 29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span> 1926.200(g)(1)<span><span></span>
					</span>(requiring<span>
					</span>“traffic<span><span></span>
					</span>signs at points of hazard”). Brubacher’s worksite had<span><span></span>
					</span>no advance warning signs at two points of hazard, along<span><span></span>
					</span>the<span>
					</span>southbound side of Pottstown Pike and the<span>
					</span>Route 322<span>
					</span>exit ramp. (Gov. Exs.<span>
					</span>16, 20,<span>
					</span>51.)</p>
			</div>
			<p class="style_Normal style_Normal style_Heading3 style_Heading3 " style="margin-left:96px; text-indent:0cm; margin-left:96px; text-indent:0cm; ">
				<span style="font-weight:normal; font-style:normal; color:WindowText; padding-right:20px;">2.</span>Exposure</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Brubacher had<span>
					</span>nine<span><span></span>
					</span>employees working<span>
					</span>on June 5, 2016<span><span></span>
					</span>when there was inadequate signage. (Tr. 342; Gov. Exs. 6, 12;<span>
					</span>Stip. 2.) Brubacher alleges<span><span></span>
					</span>that<span>
					</span>the Secretary failed to show exposure<span>
					</span>because<span>
					</span>its employees were not working alongside<span><span></span>
					</span>the southbound side<span>
					</span>of the road<span><span></span>
					</span>or on the exit ramp where there was<span><span></span>
					</span>no signage. (Brubacher Br. at<span>
					</span>23-24.) This argument is rejected.</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">On the morning of June<span>
					</span>5, 2017,<span>
					</span>after work at the site had begun but before the accident,<span>
					</span>a West Goshen<span>
					</span>police officer drove along the Route 322 ramp<span><span></span>
					</span>to Pottstown Pike<span><span></span>
					</span>and<span>
					</span>then<span>
					</span>past the worksite. (Gov.<span>
					</span>Ex. 16,<span>
					</span>Tr. 79, 84-85.) Video taken by<span>
					</span>a<span>
					</span>dashboard mounted camera<span>
					</span>in the<span>
					</span>officer’s vehicle<span>
					</span>shows cars<span>
					</span>on both sides of the road<span>
					</span>passing the worksite within a few feet of<span>
					</span>Brubacher’s employees. (Gov. Exs.<span>
					</span>16-18.) Only a row of cones separated the north and southbound sides of the road. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id. </span>Mr. Duda explained how his view of the southbound side of the road and the exit ramp was obscured. (Tr. 619, 625-26,<span>
					</span>651-52.) As he could not see these approaches to the worksite despite being in a fixed location, motorists traveling in the area would similarly not be able to see the worksite until they were very close to it.<span><span></span>
					</span><span><span></span>
					</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Turning to the lack of signage on the exit ramp, Brubacher notes that the worksite could be visible from the very end of the ramp. (Tr. 446.) The end of the ramp was approximately 250 feet apart from the start of the worksite. (Tr. 93, 98-99, 101-2.) However, as discussed above, motorists tended<span>
					</span>to<span>
					</span>not<span>
					</span>fully<span>
					</span>stop at the end of the exit ramp. Even those who did<span>
					</span>obey the stop sign,<span>
					</span>would tend to be focused on oncoming traffic rather than looking for a temporary worksite<span><span></span>
					</span>about which they had no warning. (Tr. 344; Gov. Ex. 16.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Besides<span>
					</span>the proximity<span>
					</span>of<span>
					</span>the workers and the<span>
					</span>vehicle<span>
					</span>traffic,<span>
					</span>a<span><span></span>
					</span>Brubacher employee explained how<span>
					</span>the cones themselves can injure<span><span></span>
					</span>workers. Once hit<span><span></span>
					</span>by a moving vehicle<span>
					</span>the cones<span>
					</span>can become projectiles<span>
					</span>and strike workers. (Tr. 227.)<span>
					</span><span><span></span>
					</span>This same employee also adjusted the cones in the roadway after they were knocked down by a passing trailer.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref32" href="#ftn32">31</a></span> (Tr.<span>
					</span>223,<span>
					</span>226-27; Gov. Ex. 22.) Particularly<span>
					</span>considering<span><span></span>
					</span>the<span>
					</span>45 miles<span><span></span>
					</span>per hour speed limit on the road<span>
					</span>and the fact that Brubacher employees were<span>
					</span>right at the edge of the northbound lane, the Secretary established that<span>
					</span>Brubacher’s own employees<span><span></span>
					</span>were exposed to the cited hazard.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref33" href="#ftn33">32</a></span>
				</p>
			</div>
			<p class="style_Normal style_Normal style_Heading3 style_Heading3 " style="margin-left:96px; text-indent:0cm; margin-left:96px; text-indent:0cm; ">
				<span style="font-weight:normal; font-style:normal; color:WindowText; padding-right:20px;">3.</span>Knowledge</p>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">The Secretary does not allege that a Brubacher supervisor had actual knowledge of the lack of signage on the southbound side of the road and<span>
					</span>on<span>
					</span>the exit ramp. (Tr. 487.) Nor would the record support such a finding. The two approaches were not in<span>
					</span>plain<span>
					</span>view<span>
					</span>from where<span>
					</span>the Brubacher employees<span><span></span>
					</span>were working. Curves<span>
					</span>in the topography<span>
					</span>obstructed the<span><span></span>
					</span>locations where the signs needed to be placed. (Tr. 499-500, 508, 625-26, 651-52.) <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See Thomas Indus. Coatings, Inc.,</span><span><span></span>
					</span>23 BNA OSHC 2082, 2085<span><span></span>
					</span>(No.<span>
					</span>06-1542, 2012)<span>
					</span>(declining to find actual knowledge when foreman’s view of the condition was restricted). Further,<span>
					</span>Flagger Force’s crew leader told<span>
					</span>Mr.<span>
					</span>Duda, the Brubacher supervisor at the worksite, that the signs were in place. (Tr. 622, 626, 656-57.) Rather than rely on actual knowledge, the Secretary argues that<span>
					</span>Brubacher<span>
					</span>should be found to have constructive knowledge of the violation because it<span>
					</span>failed to engage in reasonable diligence. (Tr. 488, 589; Gov. Ex. 21; Stip. 2.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Reasonable diligence involves consideration of<span>
					</span>several factors,<span>
					</span>including<span><span></span>
					</span>“an employer’s obligation to inspect the work area, to anticipate hazards to which employees may be exposed, and to<span><span></span>
					</span>take measures to prevent the occurrence.” <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Pride Oil Well Serv.,<span>
						</span></span>15 BNA OSHC 1809, 1814 (No. 87-692, 1992). As noted above, Brubacher retained<span>
					</span>Flagger Force<span>
					</span>to<span>
					</span>implement the<span>
					</span>worksite’s<span>
					</span>traffic control plan. At all times, a<span><span></span>
					</span>Flagger Force crew leader was present at the worksite to oversee the flagging and traffic control work. (Tr. 166, 746, 769.) Although Brubacher trains its employees<span>
					</span>about<span>
					</span>traffic control, Flagger Force has more experience and expertise<span><span></span>
					</span>in<span><span></span>
					</span>traffic control. (Tr. 477-78,<span>
					</span>573,<span>
					</span>634,<span>
					</span>644.) Flagger Force<span>
					</span>“are the specialists in their field” and<span>
					</span>they<span>
					</span>routinely<span>
					</span>provided<span>
					</span>traffic control<span><span></span>
					</span>services for Brubacher worksites. (Tr. 251,<span>
					</span>477,<span>
					</span>506, 576; Gov. Ex. 24.) The relationship was governed by a Master Subcontract Agreement, under which<span>
					</span>Flagger Force was responsible for supplying labor, supervision,<span><span></span>
					</span>and equipment needed for traffic control. (Gov. Ex. 24.) Flagger Force agreed to comply with all applicable laws. (Gov. Ex. 24<span>
					</span>at<span>
					</span>2, Tr. 479). The<span>
					</span>agreement<span>
					</span>also required Flagger Force to<span>
					</span>abide by a detailed Subcontractor and Vendor Safety Program<span><span></span>
					</span>(Safety Program). (Gov. Ex. 24.) The Safety Program required subcontractors and their employees to comply with<span><span></span>
					</span>Brubacher’s Safety Program<span>
					</span>and<span>
					</span>all<span>
					</span>applicable<span>
					</span>OSHA<span>
					</span>standards.<span>
					</span><span><span></span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span>at<span>
					</span>7-8. The<span>
					</span>Safety<span>
					</span>Program<span>
					</span>specifically<span>
					</span>addresses<span>
					</span>the cited standard. It requires<span><span></span>
					</span>“[a]t least<span>
					</span>two warning sides” to be placed at appropriate distances from the work zone. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span>at 8. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Besides these<span>
					</span>contractual obligations, Mr.<span>
					</span>Duda<span><span></span>
					</span>also explained the need for advance warning signs<span><span></span>
					</span>directly to<span>
					</span>its subcontractor. At the start of the project,<span>
					</span>he<span><span></span>
					</span>met with the Flagger Force crew and discussed the project. (Tr. 615.) Mr.<span>
					</span>Duda<span><span></span>
					</span>completed a Safety<span>
					</span>Observation Compliance Form, documenting his first formal inspection of the worksite<span><span></span>
					</span>on May<span>
					</span>31, 2017. (Tr. 601; Gov Ex. 32.) He explained<span>
					</span>how “first and foremost” he wanted to make sure the work was being<span>
					</span>done “safely” as he did not<span><span></span>
					</span>“want to see anybody get hurt.” (Tr. 645-46.) For this initial inspection<span><span></span>
					</span>on the project’s first day, he traveled the entirety of the worksite to make sure that<span>
					</span>all three sets of advance warning signs were in place, i.e.,<span>
					</span>along the north and southbound sides of Pottstown Pike and<span>
					</span>on<span>
					</span>the exit ramp. (Tr. 604.) His notes from the inspection indicate that<span>
					</span>he checked the traffic control and for road hazards.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref34" href="#ftn34">33</a></span> (Gov. Ex. 32.) He specifically noted that “signs are okay.” (Tr.<span>
					</span>604; Gov. Ex. 32.) After work started,<span>
					</span>collectively<span>
					</span>with Flagger Force, he decided<span><span></span>
					</span>that<span>
					</span>the signs on the exit ramp were not sufficiently visible to motorists<span><span></span>
					</span>and should be re-positioned. (Tr. 598-99.) This correction was promptly made. (Tr. 598-600.) As the project progressed, other minor adjustments were made to the traffic control pattern<span>
					</span>based on how<span>
					</span>motorists were responding<span><span></span>
					</span>to<span><span></span>
					</span>the setup. (Tr. 223;<span>
					</span>Gov. Ex. 21.) Mr.<span>
					</span>Duda<span><span></span>
					</span>conducted another<span><span></span>
					</span>inspection on the third day of the project<span><span></span>
					</span>during which<span>
					</span>he again confirmed<span>
					</span>the presence of the warning signs<span><span></span>
					</span>at three locations. (Tr. 606, 652.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">On<span><span></span>
					</span>the last day of the project,<span>
					</span>Mr. Duda discussed<span>
					</span>the signage and traffic control<span>
					</span>plan<span>
					</span>with Flagger Force<span><span></span>
					</span>before any work began. (Tr.<span>
					</span>616-621,<span>
					</span>624-25;<span><span></span>
					</span>Gov. Ex. 21.) He<span>
					</span>spoke directly with the crew leader, MD, and walked the<span>
					</span>worksite with him. (Tr.<span>
					</span>617-20; Gov. Exs. 21, 31.) He explained where the signs had been placed on the prior days. (Gov. Ex. 21.) This<span>
					</span>discussion included<span>
					</span>addressing where to place the advance warning signs on the exit ramp and<span>
					</span>the southbound side of Pottstown Pike.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref35" href="#ftn35">34</a></span> (Tr.<span>
					</span>617-620; Gov. Ex.<span>
					</span>6.)<span>
					</span><span><span></span>
					</span>Mr. Duda<span><span></span>
					</span>emphasized<span>
					</span>that he wanted the cones and signage to comply with<span>
					</span>the appropriate safety standards. (Gov. Ex. 31.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Mr. Duda was trained in traffic control<span><span></span>
					</span>and flagging. (Tr. 477-78, 634.) He did not have the same level of training or experience as Flagger Force employees, but he had enough training to identify issues. (Tr. 644, 660.) For example,<span>
					</span>during the<span>
					</span>project,<span><span></span>
					</span>he saw another<span>
					</span>construction<span>
					</span>crew possibly<span>
					</span>planning to<span>
					</span>engage<span><span></span>
					</span>in road work nearby. (Tr.<span>
					</span>653-54.) He was concerned that this work might make it more difficult<span>
					</span>for<span><span></span>
					</span>motorists, as they’d be navigating around two worksites. (Tr.<span>
					</span>613-14, 653-54.) He also knew that the relevant state regulator (PennDOT) typically would not issue permits for two projects in such proximity. (Tr.<span>
					</span>507, 653-54;<span>
					</span>Gov. Ex. 21.) He contacted<span>
					</span>a<span><span></span>
					</span>PennDOT<span><span></span>
					</span>inspector<span><span></span>
					</span>to have him review<span><span></span>
					</span>the work being done in<span>
					</span>the area. (Tr.<span>
					</span>613-14, 653-54.) The inspector<span><span></span>
					</span>visited the area<span>
					</span>and<span><span></span>
					</span>shut down the other<span>
					</span>project. (Tr. 653-54.) The PennDOT inspector<span><span></span>
					</span>did<span>
					</span>not cite any issues with the warning signs in place for Brubacher’s worksite.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref36" href="#ftn36">35</a></span>
				</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Mr. Duda also met with<span>
					</span>the crew member<span><span></span>
					</span>present on<span><span></span>
					</span>June 5, 2017. Although he had some initial hesitation when he learned the crew member<span>
					</span>was new to Flagger Force,<span>
					</span>the crew leader<span>
					</span>(MD)<span>
					</span>gave him confidence that the plan would be implemented<span><span></span>
					</span>correctly. (Tr.<span>
					</span>656.) He had no reason to believe MD would depart from<span>
					</span>where the signs had been placed each previous day of the project. The crew leader told Mr. Duda he would set up the signs. (Tr. 620-21.) Mr. Duda asked if he needed any assistance and<span>
					</span>the crew leader<span><span></span>
					</span>declined the offer,<span><span></span>
					</span>explaining that he had his vehicle and that the set up would not take long. (Tr.<span>
					</span>621.) Before beginning work on the site, the crew leader assured Mr. Duda that everything was “good to go.” (Tr.<span>
					</span>490-91,<span>
					</span>622,<span>
					</span>626,<span>
					</span>656-57.) Mr. Duda had no reason to believe that the crew leader would disregard his instructions as well as Flagger Force’s training<span><span></span>
					</span>and misrepresent that the signs were in place.<span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; "><a name="ftnref37" href="#ftn37">36</a></span> (Tr. 488, 508.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Mr. Duda explained<span>
					</span>that he would not have permitted work to begin if he<span>
					</span>knew that warning sides<span>
					</span>were<span>
					</span>missing. He would have ceased work until<span>
					</span>they were in place. (Tr. 611.)<span>
					</span><span><span></span>
					</span>Mr.<span>
					</span>Duda<span><span></span>
					</span>did not just assume Flagger Force would<span>
					</span>put up the advance warning signs. He met with the team, instructed them about the issue,<span><span></span>
					</span>and then<span>
					</span>checked<span>
					</span>their work. Mr.<span>
					</span>Duda<span><span></span>
					</span>could see the advance warning signs on the northbound side<span>
					</span>and<span>
					</span>assessed the<span>
					</span>placement of the cones<span><span></span>
					</span>before work began. (Tr. 658.) After<span><span></span>
					</span>seeing<span><span></span>
					</span>that the cones were laid down, the tapers<span>
					</span>to<span>
					</span>move drivers into the correct position<span>
					</span>were set up,<span><span></span>
					</span>and<span><span></span>
					</span>the<span>
					</span>three signs<span>
					</span>on the northbound side<span>
					</span>were up, Mr.<span>
					</span>Duda<span><span></span>
					</span>did not<span>
					</span>consider it necessary<span>
					</span>to<span>
					</span>visually<span>
					</span>confirm that<span>
					</span>the<span>
					</span>Flagger Force<span>
					</span>crew leader<span>
					</span>was truthful<span>
					</span>when<span>
					</span>he<span>
					</span>indicated<span><span></span>
					</span>the setup of the warning signs was complete. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id. </span>The Brubacher<span>
					</span>crew began work at approximately 9:00 a.m., and no Brubacher employee learned of the missing signs until after the accident a few hours later.<span>
					</span><span><span></span>
					</span>(Tr. 626, 651-52;<span>
					</span>Gov.<span>
					</span>Exs.<span>
					</span>21,<span>
					</span>22.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; ">Brubacher took reasonable steps under the circumstances to ensure that the traffic control plan, including the advance warning signs,<span><span></span>
					</span>would appropriately be placed at points of hazard<span><span></span>
					</span>as required. Mr. Duda performed<span>
					</span>regular safety inspections and confirmed that the signs were in place as part of those inspections. (Tr. 514, 601-602, 652-53; Gov. Ex. 32.) Brubacher<span><span></span>
					</span>trained its own employees about flagging and then<span>
					</span>retained an expert in traffic control to<span>
					</span>ensure<span>
					</span>compliance with<span><span></span>
					</span>the<span><span></span>
					</span>traffic control plan, including the presence of<span>
					</span>warning signs. It<span>
					</span>had<span>
					</span>frequent<span>
					</span>experience with Flagger Force and<span><span></span>
					</span>had<span>
					</span>not<span>
					</span>experienced safety issues with them in the past. The CO acknowledged that Flagger Force had not previously been cited<span><span></span>
					</span>for OSHA violations<span><span></span>
					</span>after other<span>
					</span>inspections. Nor is there any dispute<span>
					</span>that Flagger Force has a reputation of being qualified to perform<span>
					</span>traffic control services. (Tr.<span>
					</span>506.) Certainly, Brubacher’s retention of a qualified expert alone did not relieve it<span>
					</span>of all responsibility<span>
					</span>to comply with<span><span></span>
					</span>the cited standard. But,<span><span></span>
					</span>this fact<span>
					</span>is<span>
					</span>relevant to<span>
					</span>assessing<span>
					</span>what<span><span></span>
					</span>to level of<span>
					</span>supervision<span><span></span>
					</span>was appropriate. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See</span><span><span></span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">S.J. Louis Constr. of Tex</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">.</span>, 25 BNA OSHC 1892, 1896 (No. 12-1045, 2016) (more generalized instructions acceptable given the level of experience and<span>
					</span>the<span>
					</span>continued presence of a crew leader). Mr. Duda provided instructions, conducted periodic inspections,<span><span></span>
					</span>and obtained<span>
					</span>verbal confirmation that<span><span></span>
					</span>the signage at issue was in place before<span><span></span>
					</span>work commenced at the site. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See LJC Dismantling Corp</span>., 24 BNA OSHC 1478, 1481-82<span><span></span>
					</span>(No. 08-1318, 2014) (finding employer’s efforts<span>
					</span>adequate<span>
					</span>to preclude a finding of constructive knowledge<span>
					</span>in light of<span><span></span>
					</span>the employee’s extensive training, experience, and good safety history). The Secretary failed to establish that Brubacher should be charged with<span>
					</span>constructive knowledge of the violative condition. Thus, Citation 1, Item 1a of the citation issued to Brubacher as a result of OSHA Inspection No. 1280576 is vacated and no penalty is assessed.</p>
			</div>
			<div>
				<p style="margin-top:16px; margin-bottom:16px; text-align:center; "><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_Strong style_Strong " style="text-decoration:underline ;font-family:Times New Roman; font-size:12pt; font-weight:bold; text-decoration:underline ;">ORDER</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="text-indent:1.27cm; "><span style="color:#000000; font-family:Times New Roman; font-size:12pt; ">The foregoing Decision constitutes the Findings of Fact and Conclusions of Law in accordance with Rule 52(a) of the Federal Rules of Civil Procedure.  Based upon the foregoing Findings of Fact and Conclusions of Law, it is ORDERED that:</span></p>
			</div>
			<div>
				<p style="text-align:justify; margin-left:48px; "><span style="font-family:Times New Roman; font-size:12pt; ">1.<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">From Docket Number<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">18-0033</span><span style="font-family:Times New Roman; font-size:12pt; ">,<span>
						</span></span>Citation 1, Item 1a, a<span style="font-family:Times New Roman; font-size:12pt; ">lleging a serious violation of<span>
						</span></span>29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span> 1926.200(g)(1) by Brubacher Excavating, Inc. is<span>
					</span>VACATED,<span><span></span>
					</span>and no penalty is assessed.</p>
			</div>
			<div>
				<p style="text-align:justify; margin-left:48px; "><span style="font-family:Times New Roman; font-size:12pt; ">2.<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">From Docket Number<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">18-0019</span><span style="font-family:Times New Roman; font-size:12pt; ">,<span>
						</span></span><span style="font-family:Times New Roman; font-size:12pt; ">Citation 1, Item 1a, alleging a serious violation of<span>
						</span></span>29 C.F.R.<span>
					</span><span style="font-family:Times New Roman; font-size:12pt; ">§</span> 1926.200(g)(1) by Traffic Control Services<span>
					</span>LLC<span><span></span>
					</span>is VACATED,<span><span></span>
					</span>and no penalty is assessed.</p>
			</div>
			<div>
				<p style="text-align:justify; "> </p>
			</div>
			<div>
				<p style="text-align:justify; ">SO<span><span></span>
					</span>ORDERED.<span>
					</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="line-height:1; text-indent:1.27cm; "> </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="line-height:1; text-indent:1.27cm; ">
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>__<span style="font-style:italic; text-decoration:underline ;font-family:Times New Roman; font-size:12pt; font-style:italic; text-decoration:underline ;">/s/</span>______________________</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="line-height:1; text-indent:1.27cm; ">
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>Covette Rooney</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="line-height:1; text-indent:1.27cm; ">
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>
					<span style="mso-tab-count:1">  </span>Chief Administrative Law Judge, OSHRC</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="line-height:1; text-indent:1.27cm; "> </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="line-height:1; text-indent:0cm; ">Dated:<span><span></span>
					</span>February 24, 2020</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_BodyText style_BodyText " style="line-height:1; text-indent:0cm; ">Washington, D.C.</p>
			</div>
			<hr/>"
      <div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; ">
					<a name="ftn-1" href="#ftnref-1"></a> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; ">
					<a name="ftn0" href="#ftnref0"></a> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; ">
					<a name="ftn1" href="#ftnref1"></a> </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn2" href="#ftnref2"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">1 </span></a><span><span></span>
					</span>Stipulation 6 provides: “OSHA conducted an inspection at the worksite on June 6, 2017, and subsequently issued a Citation and Notification of Penalty to both Brubacher and Traffic Control.” </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn3" href="#ftnref3"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">2 </span></a><span><span></span>
					</span>For each party, the<span>
					</span>only<span><span></span>
					</span>citation item remaining was designated Citation 1, Item 1a. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn4" href="#ftnref4"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">3 </span></a><span><span></span>
					</span>Stipulation 8 provides: “Brubacher is an “employer” within the meaning of Section 3(5)<span><span></span>
					</span>of<span><span></span>
					</span>the [OSH Act].” And stipulation<span>
					</span>10<span>
					</span>states: “Brubacher is an employer engaged in a business<span>
					</span>affecting commerce within<span><span></span>
					</span>the meaning of sections 3(3) and 3(5) of the<span>
					</span>[OSH<span>
					</span>Act].” </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn5" href="#ftnref5"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">4 </span></a><span><span></span>
					</span>Stipulation 1 is: “Brubacher was conducting paving and excavating operations at, or in the vicinity of, Pottstown Pike and Taylors Mill Rd. in West Chester, PA 19380<span><span></span>
					</span>(hereafter<span><span></span>
					</span>“worksite”)<span><span></span>
					</span>from approximately May 31, 2017 through June 5, 2017<span><span></span>
					</span>(hereafter<span><span></span>
					</span>the “relevant period”).”<span><span></span>
					</span><span><span></span>
					</span>Stipulation 2 provides: “Brubacher<span>
					</span>had nine employees at the worksite on June 5, 2017, including but not limited to paving supervisor, David Duda and hourly employees Brent Horst and Joey Sipes.” Stipulation 12 states: “Brubacher’s worksite qualified as a “construction area,” as used in 29 C.F.R.<span>
					</span>§ 1926.200(g)(1).</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn6" href="#ftnref6"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">5 </span></a><span><span></span>
					</span>Stipulation 9 specifies: “[Flagger Force] is an “employer” within the meaning of Section 3(5) of the<span>
					</span>[OSH<span><span></span>
					</span>Act].” Stipulation 11 states: “[Flagger Force] is an employer engaged in a business affecting commerce within the meaning<span><span></span>
					</span>of<span>
					</span>sections 3(3) and (3) of the [OSH Act].” </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn7" href="#ftnref7"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">6 </span></a><span><span></span>
					</span>The parties stipulated that: “Brubacher was conducting paving and excavating operations at, or in the vicinity of, Pottstown Pike and Taylors Mill Rd. in West Chester, PA (hereafter “worksite”) from approximately May 31, 2017 through June 5, 2017 (hereafter the “relevant period”).” (Stip. 1.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn8" href="#ftnref8"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">7 </span></a><span><span></span>
					</span>Stipulation 3 provides: “Brubacher contracted with [Flagger Force] to conduct, manage, and otherwise provide flagging and/or provide traffic control services at the worksite during the relevant period, in accordance with the terms of the Master Subcontract Agreement between Brubacher and [Flagger Force], dated April 19, 2016.”</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn9" href="#ftnref9"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">8 </span></a><span><span></span>
					</span>Stipulation 4 is: “On June 5, 2017 [MD] and [JL] were the employees providing traffic control services at the worksite on behalf of [Flagger Force].” </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn10" href="#ftnref10"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">9 </span></a><span><span></span>
					</span>After the citation’s issuance, the<span>
					</span>cited standard was modified to<span>
					</span>provide: “At points of hazard, construction areas shall be posted<span>
					</span>with<span><span></span>
					</span>legible traffic control signs<span>
					</span>and protected by traffic control devices.” Signs, Signals, and Barricades, 84 Fed. Reg.<span>
					</span>21416, 21433, 21577<span><span></span>
					</span>(May 14, 2019)<span><span></span>
					</span>(to be codified at 29 C.F.R. Parts 1910,<span>
					</span>1915<span><span></span>
					</span>& 1926).<span><span></span>
					</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn11" href="#ftnref11"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">10 </span></a><span><span></span>
					</span>Flagger Force<span>
					</span>argues that<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">G</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">r</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">oves-Brown & Lambrecht-Dent</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">on Joint Venture</span>,<span>
					</span>No. 79-5070, 1981 WL 18957 (O.S.H.R.C.A.L.J., June 5,<span>
					</span>1981),<span>
					</span>supports finding that the permanent stop sign was<span>
					</span>sufficient. (Flagger Force Br. at 18-19.) In addition to not being binding,<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Groves-Brown</span><span><span></span>
					</span>is also factually distinct. That matter<span>
					</span>involved<span>
					</span>a worker<span>
					</span>using a temporary<span>
					</span>handheld<span><span></span>
					</span>stop sign<span><span></span>
					</span>to alert motorists<span><span></span>
					</span>as opposed to Flagger Force’s attempt to rely on a stop sign that was always in place and did not alert motorists to the upcoming worksite. 1981 WL 18957 at *<span>
					</span>3-4.</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn12" href="#ftnref12"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">11 </span></a><span><span></span>
					</span>Mr.<span>
					</span>Duda<span><span></span>
					</span>also described the exit ramp as an area “where everybody likes to cut everybody off.” (Tr. 599.) This created a situation where “usually the signs don’t get seen.” <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn13" href="#ftnref13"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">12 </span></a><span><span></span>
					</span>Stipulation 5 is: “June 5, 2017<span>
					</span>was the first day [MD] or [JL] worked at the worksite during the relevant period.” </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn14" href="#ftnref14"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">13 </span></a><span><span></span>
					</span>Notably, when discussing its<span>
					</span>efforts at reasonable diligence and its<span>
					</span>employee misconduct defense, Flagger Force touts the crew leader’s role in supervision and ensuring safety rules are enforced. (Flagger Force<span>
					</span>Br. at 21, 24.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn15" href="#ftnref15"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">14 </span></a><span><span></span>
					</span>When asked whether there was a Flagger Force supervisor present at the worksite, the CO explained that the crew leader was present and<span>
					</span>he<span>
					</span>was in charge of<span><span></span>
					</span>setting up and implementing the traffic pattern, including the correct placement of signs. (Tr.<span>
					</span>391, 449.) The CO<span>
					</span>explained<span>
					</span>that<span>
					</span>his<span><span></span>
					</span>investigation did not determine that Flagger Force considered the crew leader to be a supervisor. (Tr.<span>
					</span>450.) However, whether a person has<span>
					</span>sufficient<span><span></span>
					</span>supervisory authority for purposes of imputing knowledge is a legal conclusion, and thus neither the Secretary nor the undersigned is bound by the CO’s assessment. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">See e.g., Jim Boyd Constr., Inc.</span>, 26 BNA OSHC 1109, 1113<span><span></span>
					</span>n. 6<span>
					</span>(No. 11-2559, 2016)<span>
					</span>(whether efforts constitute “good faith” is legal<span>
					</span>determination<span>
					</span>so the CO conclusions are not binding);<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Kaspar Wire Works, Inc. v. Sec’y of Labor</span>,<span>
					</span>268 F.3d 1123, 1128 (D.C. Cir. 2001)<span><span></span>
					</span>(“the Commission is not bound by the representations or interpretations of Compliance Officers”). </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn16" href="#ftnref16"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">15 </span></a><span><span></span>
					</span>Flagger Force’s<span>
					</span>training program specifies that the “crew leader sets the pattern.” (FF Ex. 12 at 76.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn17" href="#ftnref17"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">16 </span></a><span><span></span>
					</span>Crew leaders kept their<span>
					</span>trucks<span><span></span>
					</span>at their homes and then drove to each worksite. (Tr. 176.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn18" href="#ftnref18"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">17 </span></a><span><span></span>
					</span>Separate quality inspectors<span>
					</span>checked<span>
					</span>on approximately 20% of<span>
					</span>all<span>
					</span>job sites per month and reported<span><span></span>
					</span>their findings<span>
					</span>to the branch managers. (Tr. 763, 766.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn19" href="#ftnref19"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">18 </span></a><span><span></span>
					</span>Neither crew leaders<span>
					</span>nor crew members are required to<span>
					</span>report to a Flagger Force office<span>
					</span>regularly. (Tr. 699.) Work assignments are sent out through a phone application. (Tr.<span>
					</span>181.) Crew leaders<span>
					</span>are only required to report<span>
					</span>three times a year<span>
					</span>for<span><span></span>
					</span>safety<span>
					</span>training,<span><span></span>
					</span>but they<span><span></span>
					</span>did<span><span></span>
					</span>come into the office to<span>
					</span>pick up equipment at other times. (Tr. 670, 732.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn20" href="#ftnref20"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">19 </span></a><span><span></span>
					</span>The Secretary also argues that Flagger Force had constructive knowledge of the violative conditions. (Sec’y Br. at 43.) To establish constructive knowledge, the Secretary must prove that the employer, with the exercise of reasonable diligence, should have known of the hazardous condition. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">See e.g., Jacobs Field</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; "><span><span></span>
						</span>Servs. N. Am.</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">,<span>
						</span></span>25 BNA OSHC<span>
					</span>1216, 1219<span><span></span>
					</span>(No. 10-2659, 2015)<span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">. </span>For the same reasons addressed in connection with<span>
					</span>the<span>
					</span>unpreventable employee misconduct defense, the record does not contain<span>
					</span>enough<span><span></span>
					</span>support for a finding of constructive knowledge. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Burford's Tree</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; "><span><span></span>
						</span>Inc</span>., 22 BNA OSHC<span>
					</span>1948,<span><span></span>
					</span>1951-52<span><span></span>
					</span>(No. 07-1899, 2010)<span><span></span>
					</span>(factors for evaluating constructive knowledge are the same for evaluating unpreventable employee misconduct defense),<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">aff’d</span>, 413 F.<span>
					</span>App’x<span><span></span>
					</span>222 (11th Cir. 2011)<span><span></span>
					</span>(unpublished).</p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn21" href="#ftnref21"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">20 </span></a><span><span></span>
					</span>The undersigned notes that in its opening brief Flagger Force discusses<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">PP&L</span><span><span></span>
					</span>only in the context of its unpreventable employee misconduct defense. (Flagger Force Br. at 23.) In its Reply Brief, Flagger Force discusses the overlap between the Commission’s test<span>
					</span>for unpreventable employee misconduct<span>
					</span>and the<span>
					</span>one<span>
					</span>the<span>
					</span>Third Circuit<span><span></span>
					</span>sets out in<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">PP&L</span>. (Flagger Force Reply Br. at 8.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn22" href="#ftnref22"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">21 </span></a><span><span></span>
					</span>Both the initial crew member training and<span>
					</span>the additional crew leader training<span>
					</span>included “hands-on” demonstrations. (Tr. 171, 173, 190;<span>
					</span>FF<span>
					</span>Exs. 10, 12.) However,<span><span></span>
					</span>the additional hands-on training<span>
					</span>section of the crew leader training<span>
					</span>did not<span>
					</span>include<span>
					</span>on-site demonstrations of setting up traffic control patterns. (Tr. 173.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn23" href="#ftnref23"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">22 </span></a><span><span></span>
					</span>Flagger Force also had<span>
					</span>employees in the role of advance crew leader. (Tr.<span>
					</span>169.) These employees received further training beyond what the crew leaders received and could operate additional types of traffic control equipment, such as arrow panels. (Tr. 175-76, 769.) There was no advance crew leader at the Pottstown Pike worksite on June 5, 2017. (Tr. 770.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn24" href="#ftnref24"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">23 </span></a><span><span></span>
					</span>The test for crew members includes questions about signage. (Tr. 751.) MD was tested after he completed the crew member training and again after completing the crew leader training. (Tr.<span>
					</span>189,<span>
					</span>684-85;<span>
					</span>Gov.<span>
					</span>Ex. 37.) His most recent training was completed on April 18, 2017, less than two months before<span>
					</span>the site inspection. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn25" href="#ftnref25"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">24 </span></a><span><span></span>
					</span>This is consistent with the company’s<span>
					</span>goal<span><span></span>
					</span>of<span>
					</span>inspecting the worksites of each crew leader twice per month. (Tr.<span>
					</span>688,<span>
					</span>766; Gov. Ex. 13.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn26" href="#ftnref26"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">25 </span></a><span><span></span>
					</span>Prior to MD’s promotion to crew leader, an inspection<span>
					</span>of a site<span>
					</span>where<span><span></span>
					</span>he was working<span>
					</span>as a crew member<span>
					</span>found that<span>
					</span>“one<span><span></span>
					</span>of the shift right signs”<span><span></span>
					</span>was<span>
					</span>missing. (Gov. Ex. 45A.) The rest of the signage was compliant<span><span></span>
					</span>and there is no evidence that<span>
					</span>the setup<span>
					</span>violated any<span><span></span>
					</span>OSHA standard. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span>Another inspection on the same day of a different worksite where MD was also working<span><span></span>
					</span>as a crew member<span><span></span>
					</span>revealed that “every sign was spaced<span>
					</span>properly,<span><span></span>
					</span>and the side streets covered properly.” <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span>The remaining two inspections<span><span></span>
					</span>were of<span>
					</span>sites where MD served as crew leader. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span>Neither<span>
					</span>of these inspections<span>
					</span>uncovered<span><span></span>
					</span>any issues related to signage or<span>
					</span>a traffic pattern. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span>Notably,<span>
					</span>one of these inspections related to a similar traffic pattern set up as was required for the Pottstown Pike project. (Gov. Ex. 41, Tr.<span>
					</span>766-67.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn27" href="#ftnref27"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">26 </span></a><span><span></span>
					</span>In<span>
					</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Am. Eng</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">’</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">g & Dev</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">.</span><span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; "><span><span></span>
						</span>Corp.</span>, 23 BNA OSHC 2093 (No. 10-0359, 2012), the supervisor had a good safety record and was supervising two new employees. 23 BNA OSHC<span><span></span>
					</span>at 2098. The Commission found that under the circumstances the one occasion when the conduct did not comply with the company’s safety rule was not<span>
					</span>sufficient<span><span></span>
					</span>to undermine the evidence showing that the employer consistently enforced its safety program. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn28" href="#ftnref28"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">27 </span></a><span><span></span>
					</span>Mr. Foltz also discussed how the<span>
					</span>Handbook’s<span>
					</span>more general<span>
					</span>rules requiring adherence<span>
					</span>to applicable laws and<span>
					</span>to<span>
					</span>act safely<span><span></span>
					</span>were enforced. (Tr. 726-27.) The company believed safety was its first objective. (Tr. 726.) To achieve this objective,<span><span></span>
					</span>it<span><span></span>
					</span>trained employees and then made<span>
					</span>sure employees<span>
					</span>adhered to<span>
					</span>their training in the field. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id.</span><span><span></span>
					</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn29" href="#ftnref29"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">28 </span></a><span><span></span>
					</span>The Secretary notes that some of the disciplinary records in evidence are dated after June 5, 2017. (Sec’y Br. at 27.) One such record, dated June 28, 2017, explains that it is following two written warnings that occurred earlier in the year<span><span></span>
					</span>(before the OSHA investigation). (Gov. Ex. 47 at 1.) Another record appears to relate to an employee who<span>
					</span>previously<span>
					</span>received verbal coaching before being written up. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id.<span>
						</span></span>at 3-4. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn30" href="#ftnref30"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">29 </span></a><span><span></span>
					</span>The Secretary<span>
					</span>contends<span><span></span>
					</span>that because<span>
					</span>Flagger Force uncovered violations of its work rule<span><span></span>
					</span>through its enforcement,<span>
					</span>the rule was ineffective or<span>
					</span>poorly communicated. (Sec’y Br. at<span>
					</span>45-46.) The Secretary is correct that some<span>
					</span>of the inspection<span>
					</span>reports indicate a failure to<span><span></span>
					</span>comply with Flagger Force’s<span><span></span>
					</span>signage requirements. (Gov. Ex. 45B-E.) For example, some entries note that<span>
					</span>worksites were “safe” but missing some sign or traffic control device. (Gov. Ex. 45D.) But, none of the reports describe worksites without<span>
					</span>any advance warning signs<span><span></span>
					</span>or<span>
					</span>establish past violations of 29 C.F.R.<span>
					</span>§<span><span></span>
					</span>1926.200(g)(1). (Gov. Ex. 45B-E.) Rather than reflecting a poor understanding of the work rule, the<span>
					</span>uncovered violations<span>
					</span>show that<span>
					</span>employees understood the requirement to have at least one warning sign. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span>The<span><span></span>
					</span>records also support<span><span></span>
					</span>Flagger Force’s argument that it<span><span></span>
					</span>took steps to ensure<span><span></span>
					</span>adherence<span>
					</span>to its rules, including those<span>
					</span>rules<span>
					</span>that went beyond<span>
					</span>what OSHA requires. (Tr. 687; Gov. Ex. 45B-E.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn31" href="#ftnref31"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">30 </span></a><span><span></span>
					</span>Because of his traumatic brain injury,<span>
					</span>the crew leader had<span>
					</span>no recollection<span>
					</span>of specific events<span>
					</span>on the day he failed to set up the advance warning signs. (Tr. 182-83.) He also indicated that his injury impacted his recollection of other things, such as the details of his training. (Tr. 200.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn32" href="#ftnref32"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">31 </span></a><span><span></span>
					</span>Mr.<span>
					</span>Duda<span><span></span>
					</span>also indicated<span><span></span>
					</span>in his interview with Officer<span>
					</span>Grandizio<span><span></span>
					</span>that he moved<span>
					</span>two cones to the southbound lane<span><span></span>
					</span>after the accident. (Gov. Ex. 21<span><span></span>
					</span>at 10-11.)<span>
					</span><span><span></span>
					</span>Thus, there were times<span>
					</span>when<span>
					</span>Brubacher<span>
					</span>employees were out of their vehicles and in the roadway. </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn33" href="#ftnref33"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">32 </span></a><span><span></span>
					</span>Brubacher argues it should be treated only as a controlling employer. (Brubacher Br. at 17.) However, the cited standard relates to a hazard to which Brubacher’s own employees were exposed. Thus, it was both a controlling and exposing employer at the worksite. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">See S. Pan Servs. Co.,<span>
						</span></span>25 BNA OSHC 1081, 1085-86<span><span></span>
					</span>(No.<span><span></span>
					</span>08-0866, 2014). </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn34" href="#ftnref34"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">33 </span></a><span><span></span>
					</span>The Safety Observation Compliance Form has various<span>
					</span>headings<span>
					</span>listing the topics<span>
					</span>the safety observer is to examine<span><span></span>
					</span>depending on the nature of the worksite. (Gov. Ex. 32.) Under the topic “Traffic Control/Road,” the form notes various things to check, including<span><span></span>
					</span>whether traffic control signs are in place. <span style="font-style:italic; font-family:Times New Roman; font-size:12pt; font-size:10pt; font-style:italic; ">Id. </span>Mr. Duda completed this section<span><span></span>
					</span>by writing<span><span></span>
					</span>“signs are okay” and the number “4,” which he explained meant there were two flaggers and that all signs and cones called for by the plan were present. (Tr. 604.)<span>
					</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn35" href="#ftnref35"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">34 </span></a><span><span></span>
					</span>A Brubacher employee explained that at this worksite<span>
					</span>he had not seen any need to correct Flagger Force’s work. (Tr. 228.) However,<span><span></span>
					</span>Brubacher did check on the traffic control work and sometimes<span><span></span>
					</span>had to address<span><span></span>
					</span>safety issues. (Tr. 229.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn36" href="#ftnref36"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">35 </span></a><span><span></span>
					</span>Mr. Duda was personally familiar with this PennDOT inspector and believed he would<span>
					</span>promptly shut down any worksite not<span>
					</span>complying<span><span></span>
					</span>with<span>
					</span>an<span><span></span>
					</span>approved traffic control plan. (Tr.<span>
					</span>653.) He described him as “the most opinionated and the hardest inspector,” so he believed that<span>
					</span>he would have brought any safety issues<span><span></span>
					</span>at<span><span></span>
					</span>Brubacher’s<span><span></span>
					</span>worksite<span><span></span>
					</span>to his attention right away. (Tr. 654.) </p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText ">
					<a name="ftn37" href="#ftnref37"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-size:12pt; font-size:10pt; ">36 </span></a><span><span></span>
					</span>Flagger Force also trained Brubacher employees in traffic control and flagging. (Tr.<span>
					</span>573, 634.) </p>
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