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				<p style="margin-top:0px; margin-bottom:0px; text-align:center; margin-left:72px; margin-right:24px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">UNITED STATES OF AMERICA</span></p>
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							<p style="margin-top:0px; margin-bottom:0px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">MARTY J. WALSH, Secretary of Labor</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">,<span>
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							<p style="margin-top:0px; margin-bottom:0px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">United States Department of Labor</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">,</span></p>
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							<p style="margin-top:0px; margin-bottom:0px; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Complainant,</span></p>
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							<p style="margin-top:0px; margin-bottom:0px; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">v.</span></p>
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							<p style="margin-top:0px; margin-bottom:0px; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">OSHRC Docket No.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
									</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">20-1192</span></p>
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							<p style="margin-top:0px; margin-bottom:0px; "><span style="font-size:12pt; font-family:Times New Roman; text-transform:uppercase;color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">GREENBRIER CENTRAL LLC</span><span style="font-size:12pt; font-family:Times New Roman; text-transform:uppercase;color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">,</span></p>
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							<p style="margin-top:0px; margin-bottom:0px; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Respondent.</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">DECISION AND ORDER</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">Attorneys and Law firms</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Felix Marquez</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, Attorney, Office of the Solicitor, U.S. Department of Labor, Dallas, TX, for Complainant.<span>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Julie O’Keefe, Attorney, Armstrong Teasdale LLP, St. Louis, MO,<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">for Respondent.</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">JUDGE</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">: John B. Gatto, United States Administrative Law Judge.</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">I. INTRODUCTION</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Greenbrier Central LLC manufactures tank railcars at a facility in Marmaduke, Arkansas. On January 22 and 23, 2020, the United States Department of Labor, through its Occupational Safety and Health Administration (OSHA), conducted an inspection of the facility in response to a report of an injury sustained by an employee who required hospitalization.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref1" href="#ftn1">1</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Two OSHA compliance safety and health officers (CSHOs) conducted the inspection and found no violation of the Occupational Safety and Health Act of 1970, (the Act), 29 U.S.C. §§ 651-78, related to the reported injury.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref2" href="#ftn2">2</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>One of the CSHOs, however, observed Greenbrier employees working near openings atop railcars without the use of fall protection. It was his opinion that the employees were<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">exposed to fall hazards greater than four feet from the tops of the railcars to the lower levels of the railcars’ interiors.</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>On July 22, 2020, OSHA’s Little Rock, Arkansas</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">,</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Area Director issued a one-item Citation and Notification of Penalty to Greenbrier,</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref3" href="#ftn3">3</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>which alleged Greenbrier violated 29 C.F.R. § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">), by failing to ensure its employees were “protected from falling through any hole . . . that was 4 feet (1.2 m) or more above a lower level by” fall protection. The Secretary proposed a penalty of $10,603 for the Citation.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Greenbrier timely contested the Citation, and the case was designated for Simplified Proceedings by the Chief Judge where the complaint and answer requirements were suspended.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref4" href="#ftn4">4</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>The parties stipulated the Commission has jurisdiction over this action, and Greenbrier was a covered employer under the Act (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Joint Status Report and Joint Prehearing Statement,<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">¶¶<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">c.I</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>&<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">c.II</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">). Based on the stipulations and the record evidence, the Court concludes the Commission has jurisdiction over this proceeding under section 10(c) of the Act, and Greenbrier is a covered employer under section 3(5) of the Act. The Court held a bench trial remotely via Zoom on April 27, 2021, and the parties filed post-trial briefs on July 2, 2021.<span>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; text-indent:1.27cm; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">The facts of the case are not in dispute. The only contested element of proof is whether the cited standard applies to the cited conditions (Tr. 221-24). The Secretary contends he established Greenbrier committed a serious violation of 29 C.F.R. § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">). Greenbrier argues that the cited standard does not apply, based on its regulatory history and on OSHA-published documents related to the railcar industry. Greenbrier argues even if the Court finds the cited standard applies, the Secretary has failed to provide the railcar industry with fair notice of the application of § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) to railcars since prior published statements by OSHA indicated that “rolling stock” was exempt from citation under the Subpart D standards.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref5" href="#ftn5">5</a></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Pursuant to Commission Rules 90 and 209, after hearing and carefully considering all the evidence and the arguments of counsel, the Court issues this Decision and Order, which constitutes<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">its final disposition of the proceedings under section 12(j) of the Act. 8 29 U.S.C. § 661(j). For the reasons indicated<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">infra</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, the Court<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">VACATES<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">the Citation.</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">II. BACKGROUND</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">In July of 2019, The Greenbrier Companies acquired the manufacturing operations of American Railcar Industries, including the facility in Marmaduke, Arkansas. Greenbrier Central LLC, a subsidiary of The Greenbrier Companies, took over operations of the Marmaduke facility (Tr. 118, 135).</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref6" href="#ftn6">6</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "> Greenbrier manufactures tank railcars designed to haul liquid or gas commodities. The facility comprises several buildings (called shops) connected by rail lines. In the steel shop, steel components are rolled and welded together to form a tank. Employees then install “brake components, various handrails, ladders, [and] steps,” to the tank to transform it into a railcar. The railcar is placed on rails before it leaves the steel shop and moves only by rail thenceforth. After testing for quality assurance, the railcar is moved to either the new lining shop or the exterior coating shop (Tr. 156-58).</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>In the new lining shop, employees blast the interior of each railcar to remove rust and mill scale formed during the rolling process. After blasting the interior, they install a lining to ensure the purity of commodities hauled by the railcar. The railcars are then inspected and “any little minor defects or flaws” are painted (touched up) by employees “typically with an artist brush or 2-inch brush before the car is completed and sent over to the other paint shop.” (Tr. 137.) Thomas Friar, Greenbrier’s lining shop operations manager, stated he could inspect and touch up a railcar in 10 to 15 minutes. “But if someone may be newer, it might take a little longer. It is precision work, kind of tedious.” (Tr. 138.)</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref7" href="#ftn7">7</a></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Touchup employees access the railcar tops by climbing stairs to a mezzanine level (Tr. 88). From there, they step onto the tops of the railcars. The tops of the railcars are curved and surrounded by steel railings bolted to the railcar tops to prevent exterior falls. An employee accessing a<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">railcar top sits</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>down next to two circular openings in the center of the top.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref8" href="#ftn8">8</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>The openings are large enough to accommodate a ladder and allow a person to climb into and out of the railcar’s interior (Tr. 23-25, 45-46, 104-05, 126).</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref9" href="#ftn9">9</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Although people can intentionally climb through the openings to enter and exit the railcar interiors, the Greenbrier employees who appeared as witnesses did not think it was possible for anyone to fall through the openings. Friar “would not say it would be possible to fall in” the openings from the top of the railcar. “It’s small. There’s a lip that’s about 6 to 8 inches tall on the nozzle that would not allow your foot to slip inside of it or any other part of your body.” (Tr. 142.)</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref10" href="#ftn10">10</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "> Sanford Cunningham, Greenbrier’s line shop superintendent, agreed that it was not possible for a person to fall through the opening (Tr. 105-106). Greenbrier plant manager Brent Bonvillain did not “see a risk” of an employee stepping into the opening while working on top of a railcar (Tr. 127).</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Scott Sharpe is the senior environmental, health, and safety (EHS) manager at the Marmaduke facility. He is a certified safety professional and a certified hazardous materials manager (Tr. 171-72). Sharpe does not believe the openings in the railcar tops present a fall hazard to touchup employees. “[T]hey are seated at that time and that hole is a smaller hole. It would be very hard to fall into</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. . . .</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>You<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">have to</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>have a specific reason to be up there. So, no one would just walk through and step into the hole either.” (Tr. 192.) He also thinks the 6- to 8-inch-high nozzle prevents employees from slipping into the hole (Tr. 193).<span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Greenbrier notified OSHA on January 14, 2020, that an employee had been injured at its facility. The local OSHA area office assigned CSHO Stephen Heller and another CSHO to investigate the report. They arrived at the facility on January 22, 2020 (Tr. 18-19). After meeting with company representatives, the CSHOs conducted a walk-around inspection of the multi-building facility (Tr. 20-21). While in the new lining shop, Heller observed three touchup employees sitting atop three railcars near the openings in the tops. He believed the employees were exposed to fall hazards to the interiors of the railcars. He noted that the employees were not wearing harnesses or using any other form of personal fall protection (Tr. 21-23).</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Following the inspection, Heller recommended that the Secretary cite Greenbrier for a violation of § 1910.28(b)(3)(v)(a).</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref11" href="#ftn11">11</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>After reviewing the case file for the inspection, on July 22, 2020, OSHA’s Little Rock, Arkansas</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">,</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Area Director chose instead to cite Greenbrier for violating the standard at issue, § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) (Tr. 57-58, 74-75).<span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">III. THE CITATION</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>The fundamental objective of the Act is to prevent occupational deaths and serious injuries.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Whirlpool Corp. v. Marshall</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 445 U.S. 1, 11 (1980). The Act “establishes a comprehensive regulatory scheme designed ‘to assure so far as possible safe and healthful working conditions’ for ‘every working man and woman in the Nation.’”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Martin v. Occupational Safety & Health Review Comm'n (CF & I Steel Corp.),</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>499 U.S. 144, 147 (1991) (quoting 29 U.S.C. § 651(b)). “The Act charges the Secretary with responsibility for setting and enforcing workplace health and safety standards.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. “To implement its statutory purpose, Congress imposed dual obligations on employers. They must first comply with the ‘general duty’ to free the workplace of all recognized hazards.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">ComTran</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span>Grp., Inc. v. U.S. Dep't of Labor</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 722 F.3d 1304, 1307 (11th Cir. 2013). “They also have a ‘special duty’ to comply with all mandatory health and safety standards.” (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">.)<span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>“With respect to the latter, Congress provided for the promulgation and enforcement of the mandatory standards through a regulatory scheme that divides responsibilities between two federal agencies.” (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) “The Secretary establishes these standards through the exercise of rulemaking powers.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">CF & I Steel Corp</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">., 499 U.S. at 147.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>29 U.S.C. § 665. Pursuant to that authority, the standards at issue in this case were promulgated. Meanwhile, the Commission is assigned to conduct adjudicatory functions under the Act and serves “as a neutral arbiter and determine whether the Secretary's citations should be enforced over employee or union objections.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Cuyahoga Valley Ry. Co. v. United Transp. Union</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 474 U.S. 3, 7 (1985) (per<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">curiam</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">).<span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Under the law of the Eighth Circuit where this case arose,</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref12" href="#ftn12">12</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>the Secretary establishes a prima facie case for the violation of an OSHA standard by showing:<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">(1) “the cited standard applies and that its requirements were not met”; (2) “employees were exposed to, or had access to, the violative condition”; and (3) “the employer knew or, through the exercise of reasonable diligence, could have known of this condition.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Jacobs Field Servs. N. Am., Inc. v. Scalia,</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>960 F.3d 1027, 1033 (8th Cir. 2020) (quoting<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Omaha Paper Stock Co. v. Sec'y of Labor</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 304 F.3d 779, 784 (8th Cir. 2002)). “Standards under the Act should be given a reasonable, commonsense interpretation.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. (quoting </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Donovan v. Anheuser-Busch, Inc</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">., 666 F.2d 315, 326 (8th Cir. 1981).</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">Item 1: Alleged Serious Violation of § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">i</span><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">)</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Item 1 alleges that Greenbrier employees “were performing touchup work on top of tanker cars. Employees were exposed to falls approximately 6 feet above the lower level without fall protection.” Although the Secretary does not specify in the alleged violation description that he is citing Greenbrier for alleged exposure to falls to the interior of the railcars (through the entry hatch), and not to the exterior of the railcars, interior falls are the focus of the cited standard and is the issue the parties litigated. “The cited standard addresses the hazard of falling through any hole that is four feet or more above a lower level, which in this instance would be the open hatch located where employees work at the top.” (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Sec’y’s Br.,</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>p. 5.)</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>The cited standard provides: “</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">The employer must ensure: Each employee is protected from falling through any hole (including skylights) that is 4 feet (1.2 m) or more above a lower level by one or more of” covers, guardrail systems, travel restraint systems, or personal fall arrest systems. Greenbrier stipulates it “did not provide the protections specified in 29 C.F.R. § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">).” (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Resp’t’s</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span>Br.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, p. 1.) Neither does it dispute the elements of exposure and knowledge.</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref13" href="#ftn13">13</a></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Greenbrier argues the cited standard does not apply to railcars or, if it does, the Secretary has failed to provide fair notice of its application to the regulated community.</span></p>
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			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">IV. ANALYSIS</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>The cited standard is found in Subpart D, the “Walking-Working Surfaces” provisions of the general industry standards. Section 1910.21(a), the “Scope” provision, provides Subpart D “</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">applies to all general industry workplaces. It covers all walking-working surfaces unless specifically excluded by an individual section of this subpart.”</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Section 1910.28, the “Duty to have fall protection and falling object protection” provision, “requires employers to provide protection for each employee exposed to fall and falling object hazards.” 29 C.F.R. § 1910.28(a)(1).<span>
						</span></span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Section 1910.21(b) defines a “walking-working surface”</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">as “</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">any horizontal or vertical surface on or through which an employee walks, works, or gains access to a work area or workplace location.” It is undisputed Greenbrier’s touchup employees gain access to their work areas by stepping onto the tops of railcars and then sitting on the surfaces of the railcars to perform touchup work. The tops of railcars are, therefore, walking-working surfaces. Section 1910.21(b) defines a “hole” as “a gap or open space in a floor, roof, horizontal walking-working surface, or similar surface that is at least 2 inches (5 cm) in its least dimension.” Here, the openings at issue allow people to enter and exit the railcars. The openings are holes.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">A. The Cited Standard Applies</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; text-indent:1.27cm; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Based on these definitions and the language of § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">), the Secretary argues the standard manifestly applies to the cited conditions. Greenbrier contends the Court must consider supplementary documents issued by OSHA when determining the applicability of the cited standard.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Greenbrier argue § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) does not apply to railcars based on the Secretary’s continued unwillingness to revise Subpart D. “Protection against falls from railcars is not specifically addressed in Subpart D. A review of the lengthy regulatory history of Subpart D demonstrates that OSHA gave extensive consideration over several years to the potential inclusion of railcars and chose not to include them.” (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Resp’t’s</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span>Br.,<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">p. 17.) Greenbrier contends the Court should look to the regulatory history of Subpart D to determine its applicability to the cited railcars. According to Greenbrier, “[</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">]t is well-established that government agency preambles and opinion letters should be considered in order to gain an understanding of regulatory intent, regardless of whether a regulation is ambiguous.” (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Resp’t’s</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; "><span><span></span>
						</span>Br.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, pp. 17-18). The Court does not agree.<span>
						</span></span></p>
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			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; text-indent:1.27cm; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">As the Supreme Court has admonished us, “the possibility of deference can arise only if a regulation is genuinely ambiguous. And when we use that term, we mean it—genuinely ambiguous, even after a court has resorted to all the standard tools of interpretation.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Kisor v. Wilkie</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 139 S. Ct. 2400 (2019). </span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Here, the language of § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) is unambiguous. Subpart D applies to walking-working surfaces. The definition of walking-working surfaces encompasses the tops of railcars, onto which<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">employees</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>step and sit to perform work. The cited standard requires employers to provide covers, guardrail systems, travel restraint systems, or fall arrest systems to protect employees who have access to holes in walking-working surfaces that are 4 feet or more above lower surfaces. The entry hatches on the tops of the railcars are holes that are more than 4 feet above the interior floors of the railcars. None of these terms creates confusion, and the meaning of the cited standard is clear.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Therefore, the Secretary has established § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) applies to the cited conditions.</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">B. Greenbrier Lacked Fair Notice of the Cited Standard’s Applicability</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; text-indent:1.27cm; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">As noted<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">supra</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, Greenbrier argues even if the Court finds the cited standard applies, the Secretary has failed to provide the railcar industry with fair notice of the application of § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) to railcars since prior published statements by OSHA indicated that rolling stock was exempt from citation under the Subpart D standards. The Court concludes OSHA’s prior published statements<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">are<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">relevant to Greenbrier’s argument that it lacked fair notice.<span>
						</span></span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">1. The 1990 Proposed Rule</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>OSHA originally adopted a walking-working surface standard in 1971 as “part of the initial package of<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">standards promulgated by OSHA<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">in 1971 under</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>section 6(a) of” the Act. 75 Fed. Reg.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at 28863</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. In 1973, OSHA published a proposed revision of Subpart D, but withdrew it in 1976 because it was outdated. In 1990, OSHA proposed a new Subpart D that did not specifically address fall protection for railcars. It did, however, propose the following exemption at § 1910.21(a)(1):</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; "> </p>
			</div>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">(a)<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Scope and application</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. This subpart covers all walking and working surfaces that are used by employees, except as follows:<span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">(1) This subpart does not apply to surfaces that are an integral part of self-propelled, motorized mobile equipment[.]</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">2. The Miles Memorandum</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>In 1996, John B. Miles, Jr., the Director of OSHA’s Directorate of Enforcement Programs issued a memorandum regarding “Enforcement of Fall Protection on Moving Stock” to “clarify OSHA’s enforcement policy relating to fall hazards from the top of ‘rolling stock’ such as rail tank or hopper cars and tank or hopper truck or trailers.” (Ex. C-21, Bates p. 000154). The Miles Memorandum, which was corrected on February 6, 2009, clarifies that OSHA’s enforcement policy “is that falls from rolling stock [] will not be cited under Subparagraph D.” (Ex. C-21, Bates p. 000155).</span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><a name="ftnref14" href="#ftn14">14</a></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">3. The 2003 Notice of Reopening of the Rulemaking Record</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>In 2003, OSHA published a notice of reopening of the rulemaking record and public comment period for Subpart D. 68 Fed. Reg. 23528 (May 2, 2003). OSHA stated that it was seeking additional comments because the 1990 proposal had become outdated by industry practices and equipment design.<span>
						</span></span></p>
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			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">OSHA is requesting additional comment on whether rolling stock and self-propelled, motorized mobile equipment should be covered or excluded from subpart D. . . . [R]</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">olling</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>stock includes covered and uncovered rail cars, hopper cars, tank cars, and trailers.</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:center; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">***</span></p>
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			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">The preamble [to the 1990 proposed rule] also included examples of equipment that OSHA intended to exclude from<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">coverage, but</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>did not specify whether rolling stock were included in those examples (55 FR 13365). OSHA received comments saying that all rolling stock should be excluded from coverage (Docket S-041; Ex. 3-46).</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">An OSHA memorandum issued to its Regional Administrators on October 18, 1996, interpreted the proposal as excluding rolling stock from subpart D (Docket S-029; Ex. 1-16-2). In anticipation of a final revised rule, the memorandum directed OSHA inspectors not to cite rolling stock under subpart D.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at 23530.<span>
						</span></span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">4. The 2010 Notice of Proposed Rule</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>In 2010, OSHA issued a notice of proposed rulemaking for Subpart D where it defined rolling stock as “</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">any locomotive, railcar, or vehicle operated exclusively on a rail or rails.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">75 Fed. Reg. 28862 (May 24, 2010).<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Thus, the railcars at issue meet OSHA’s definition of rolling stock. OSHA once again sought comments regarding the applicability of Subpart D to rolling stock.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">OSHA is requesting additional comment on whether specific regulations are needed to cover falls from rolling stock and commercial motor vehicles. Existing subpart D does not specifically address or exclude fall protection on rolling stock or motor vehicles from coverage</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. . . .</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>OSHA is specifically seeking comment on whether it should include requirements specifying that when employees are exposed to falls from rolling stock and motor vehicles at heights greater than 4 feet, protective work practices, methods, or systems must be instituted. OSHA is also requesting comment on how it should define “rolling stock” and “motor vehicles,” or if the terms as defined are sufficiently inclusive.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at 28867.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Referring to the Miles Memorandum, OSHA conceded it “did not result in clear direction to the public or to OSHA’s field staff</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. . . .</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>[T]he<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">understanding</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>of the 1996 memorandum also varied among commenters.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">5. The 2016 Final Rule</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>In 2016, OSHA published its final rule.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">81 Fed. Reg. 82494 (Nov. 18, 2016). After an extensive listing in the preamble of comments regarding the applicability of Subpart D to rolling stock (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at 82505-09), OSHA concluded it would again defer clarification of the issue.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; background-color:#FFFFFF; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Since the Agency did not propose any specific fall protection requirements for rolling stock or motor vehicles, OSHA has not included any in this final rule. However, it will continue to consider the comments it has received, and in the future the Agency may determine whether it is appropriate to pursue any action on this issue.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>at 82509.</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">Fair Notice Analysis</span></p>
			</div>
			<div>
				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">In<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Latite Roofing & Sheet Metal Co., Inc.,</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>21 BNA OSHC 1282 (No. 02-0656, 2005), OSHA cited a roofing company for failing to provide fall protection to its employees. OSHA had previously cited the employer several times for the same conduct. Each time, the employer and OSHA had resolved the citations when the employer demonstrated the use of fall protection was infeasible, and it had developed an alternative fall protection plan in accordance with Subpart M.<span>
						</span></span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">In developing the plan, </span><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_cosearchterm style_cosearchterm " style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Latite</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "> relied on a July 12, 1995, memorandum by then-Deputy Assistant Secretary of Labor James Stanley (the ‘Stanley memorandum’), which indicated that contractors complying with Subpart M's provisions for fall protection plans would not always have to demonstrate infeasibility or greater hazard at each project site. This memorandum also stated that “proper notice” would be given to employers if OSHA came across or developed abatement methods that were “equal to or better than those set forth in the attached plans.”<span>
						</span></span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>at *2.</span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Despite the Stanley memorandum, OSHA went on to cite Latite several more times over the years for violating the fall protection standard. One of those citations resulted in a Commission trial where the judge affirmed the violation. The Commission reversed the judge’s decision and held,<span>
						</span></span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Having considered the<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">record as a whole, particularly</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>the parties' fifteen-year history of inspections and citations involving residential fall protection, followed by settlements, along with possible confusion engendered by the Stanley memorandum, we conclude that Latite lacked fair notice that its conduct at the time of the subject citation did not comply with the standard. </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See, e.g., Martin v. OSHRC (CF&I)</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 499 U.S. 144, 158 (1991) (Secretary's decision to use citation as initial means to announce interpretation may bear on adequacy of notice to regulated parties); </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">cf. Gen. Elec. Co. v. EPA (“GE”)</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 53 F.3d 1324, 1328 (D.C. Cir. 1995) (even if agency's interpretation is reasonable, penalty cannot be sustained unless regulated party had fair notice of interpretation).<span>
						</span></span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at *3. The Commission based its conclusion in part on Latite’s reliance on the Stanley memorandum.<span>
						</span></span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Latite could reasonably have interpreted the Stanley memorandum as meaning that it was not required to make a site-specific showing of infeasibility at all similar residential building sites, and that it would be notified before being cited if OSHA was planning to change its position and insist that Latite use a previously unemployed fall protection system. </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See GE</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 53 F.3d at 1333-34 (unclear policy statement contributed to lack of fair notice).</span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at *4. The Commission also considered the history of the standard’s enforcement and the inconsistency of the Secretary’s conduct in addressing the standard.<span>
						</span></span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Given the Secretary's lengthy and confusing course of conduct with Latite, we conclude Latite lacked notice at the time of the citation that it was under a duty to implement one or more of the fall protection systems the Secretary proposed, and therefore could no longer rely on its alternative plan. </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See Diebold v. Marshall</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 585 F.2d 1327, 1336-37 (6th Cir. 1978) (looking at ‘collection of several factors’ including common practice and pattern of administrative enforcement; while employers are under duty of inquiry, duty is not triggered where employer looking at language of regulation or industry practice would believe it was exempt from standard's requirements). </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See also GE</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 53 F.3d at 1332 (confusion and disagreement within agency is evidence that employer did not receive fair notice).</span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>The Commission addressed the Miles Memorandum in<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Erickson Air-Crane, Inc.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, No. 07-0645, 2012 WL 762001 (OSHRC March 2, 2012),<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">with regard to</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>a citation for a violation of the general duty clause. The Miles Memorandum states the Secretary may cite an employer for a fall hazard from railcars under the general duty clause “where feasible means exist to eliminate or materially reduce the hazard” from the tops of railcars (Ex. C-21, Bates p. 000155). The Secretary contended the Miles Memorandum supported citing Erickson for a general duty clause violation: “[T]</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">he Secretary argue[d] that the Memorandum’s reference to rolling stock ‘positioned inside or contiguous to a building or other structure where installation of fall protection is feasible’—the one specific circumstance identified in the Memorandum where fall protection on rolling stock is required—put Erickson on notice that it had to provide fall protection under the circumstances at issue.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Erickson,<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">2012 WL 762001, at *4. The Commission disagreed:</span></p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">[T]he Memorandum did not provide such notice, particularly considering (1) its broad exemption of all rolling stock from the fall protection standards, limited only by the very specifically described circumstance regarding rolling stock located inside or next to a building or structure, which is inapplicable here, and (2) the indication that under the general duty clause, the agency only requires administrative measures that reduce fall exposure, which are clearly distinct from the fall protection methods sought here by the Secretary. In these circumstances, we find that Erickson did not have notice of any duty to use fall protection equipment or provide the related training with respect to its tanker truck</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">. See Miami Indus., Inc.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 15 BNA OSHC at 1262-64, 1991 CCH OSHD at p. 39,739 (finding lack of notice where employer relied on OSHA's prior approval of abatement method).</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>at *5.<span>
						</span></span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; text-indent:1.27cm; "><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Here, the Secretary interprets<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Erickson</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>as supporting the applicability of § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) in this case, based on the<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Erickson</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Commission’s statement that “the policy described in the Memorandum regarding the enforcement of subpart D, the PPE standard, and the general duty clause as applied to tanker trucks that are not adjacent to a building or structure is consistent—the use of fall protection equipment is not considered feasible and thus, not required under any one of these provisions.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Id.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at *4. Working backwards from the Commission’s reasoning, the Secretary argues that since Greenbrier’s touchup employees work “atop stock that is positioned inside of or contiguous to a building or other structure where the installation is feasible,” then the cited standard applies (Ex. C-21, Bates p. 000155). This interpretation ignores the context of the quoted language. The Miles Memorandum provides that when rolling stock is in or contiguous to a structure where installation is feasible, the Secretary may cite the employer for a violation of § 1910.132(d), found in Subpart I (</span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Personal protective equipment</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">). The Miles Memorandum provides a blanket exemption from citations under Subpart D, where the standard at issue is found.</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>In another case, the Commission found the employer lacked fair notice where an OSHA “clarification letter” created more confusion than clarity.<span>
						</span></span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Our primary concern here is with the adequacy of the Secretary's notice to regulated parties. The interpretation of section 1910.212(b) that the Secretary advances in this case is inconsistent with a previous OSHA “clarification letter” dated November 2, 1978, which is still available on OSHA's website. In the letter, which Oberdorfer introduced into evidence at the hearing and cited in its post-hearing brief, OSHA's then Chief of Occupational Safety Programming states that “[m]</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">achines</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>that do not walk, move or present a tipping or falling-over hazard do not need to be anchored.”</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">On review, the Secretary provides neither a response to Oberdorfer's notice argument regarding this letter nor any rationale for changing her interpretation. </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See Greater Boston Television Corp. v. FCC</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 444 F.2d 841, 852 (D.C. Cir. 1970), </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">cert. denied</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 403 U.S. 923 (1971) (agency changing course must provide a reasoned analysis for the change). Under these circumstances, we cannot find that the Secretary's interpretation is reasonable or that Oberdorfer was afforded fair notice of the Secretary's interpretation that the standard applied to machines with pre-punched holes in the bases in the absence of evidence showing instability. </span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See Gates & Fox Co. v. OSHRC</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 790 F.2d 154, 156 (D.C. Cir. 1986) (due process prevents deference from validating the application of a regulation that fails to give fair warning of the conduct it prohibits or requires).</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1; text-align:justify; margin-left:48px; margin-right:48px; "> </p>
			</div>
			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Oberdorfer Indus., Inc.,</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>20 BNA OSHC 1321, 1330-31 (Nos. 97-0469 & 97-0470, 2003).</span></p>
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			<div>
				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>Here, as in<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">Oberdorfer</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, the Secretary failed to offer a response to Greenbrier’s notice argument, despite Greenbrier’s pretrial statement that fair notice was one of only three issues in dispute.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-style:italic; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-style:italic; ">See</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>J. Status Report and J.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">PreHr’g</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Statement, ¶ b.2.2 (“Whether the Secretary has afforded the regulated community fair notice of his position in this case that the cited regulation is applicable to the tank car referenced in the citation?”)</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">.</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>The Secretary does not mention fair notice in its post-trial brief, and he provides no rationale for contravening the explicit instructions of the Miles Memorandum.</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:justify; "><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>As with the Stanley memorandum, the Miles Memorandum served to muddle, rather than illuminate, the issue.<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Nonetheless, s</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">ince 199</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">6</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, the Secretary has signaled through the Miles Memorandum<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">that<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">OSHA’s enforcement policy</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>is<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">th</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">at “falls from rolling stock [] will not be cited under Subparagraph D.”<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Significantly, e</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">ven though</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>OSHA did not codify a<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">rolling stock<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">exclusion in the 2016 final rule,<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">the Miles Memorandum<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">continues to represent OSHA’s current enforcement policy<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">since it has n</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">ot</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>been<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">countermanded by a subsequent<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">enforcement policy<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">and s</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">till appears on OSHA’s web page under its<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">“</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Standard Interpretations</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">”</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>tab</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">. Under these circumstances, the Court concludes Greenbrier lacked fair notice that it was required to comply with § 1910.28(b)(3)(</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">i</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">) and therefore, Item 1 must be vacated. Accordingly,</span></p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "> </p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "> </p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "> </p>
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				<p style="background-color:#FFFFFF; margin-top:0px; margin-bottom:0px; line-height:1.5; text-align:center; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">V. ORDER</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; "><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">IT IS HEREBY ORDERED THAT</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>Item 1 of the<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">C</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">itation is<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">VACATED</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">.</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; "> </p>
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				<p><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; ">SO</span><span style="font-size:12pt; font-family:Times New Roman; font-weight:bold; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; font-weight:bold; "><span><span></span>
						</span>ORDERED</span><span style="font-size:12pt; font-family:Times New Roman; color:#000000; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">.<span>
						</span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; margin-left:312px; "> </p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; "> </p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; "><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; text-decoration:underline ;font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; text-decoration:underline ;">/s/</span><span style="font-size:12pt; font-family:Times New Roman; text-decoration:underline ;font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; text-decoration:underline ;"><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; text-decoration:underline ;font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; text-decoration:underline ;"><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; text-decoration:underline ;font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; text-decoration:underline ;"><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; text-decoration:underline ;font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; text-decoration:underline ;"><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; text-decoration:underline ;font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; text-decoration:underline ;"><span style="mso-tab-count:1">  </span></span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; "><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span style="mso-tab-count:1">  </span>JOHN B. GATTO, Judge</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1; "><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Dated:</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; "><span><span></span>
						</span>September<span>
						</span></span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">3</span><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">, 2021</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-indent:1.27cm; "><span style="font-size:12pt; font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-family:Times New Roman; font-size:12pt; ">Atlanta, GA</span></p>
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				<p style="margin-top:0px; margin-bottom:0px; line-height:1.5; text-indent:1.27cm; "> </p>
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			<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 class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn1" href="#ftnref1"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">1 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">The Secretary of Labor has assigned responsibility for enforcement of the Act to OSHA and has delegated his authority under the Act to the Assistant Secretary for Occupational Safety and Health, who heads OSHA.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">See</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Order 8-2020,<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">Delegation of</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Authority and Assignment of Responsibility to the Assistant Secretary for Occupational Safety and Health, 85 Fed. Reg. 58393 (Sept. 18, 2020),<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">superseding</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Order No. 1-2012, 77 Fed. Reg. 3912 (Jan. 25, 2012) (Order No. 1-2012 was in effect when the citation was issued). The terms “Secretary” and “OSHA” are used interchangeably herein.</span></p>
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				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn2" href="#ftnref2"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">2 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>A “Compliance Safety and Health Officer” is “a person authorized by the Occupational Safety and Health Administration, U.S. Department of Labor, to conduct inspections.” 29 C.F.R. §1903.22(d).</span></p>
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			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn3" href="#ftnref3"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">3 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>The Assistant Secretary has redelegated his authority to OSHA’s Area Directors to issue citations and proposed penalties</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">. See</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>29 C.F.R. §§ 1903.14(a) and 1903.15(a).</span></p>
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			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn4" href="#ftnref4"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">4 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Although the Federal Rules of Evidence are generally inapplicable in simplified proceedings, the parties stipulated to their applicability, as authorized by Commission Rule 209(c) (</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">J. Status Report and J.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">PreHr’g</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; "><span><span></span>
						</span>Statement,<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">¶ h).<span>
						</span></span></p>
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			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn5" href="#ftnref5"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">5 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>OSHA categorizes railcars as rolling stock.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">See</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Notice of Reopening of the Rulemaking Record for Walking and Working Surfaces; Personal Protective Equipment (Fall Protection Systems), 68 Fed. Reg. 23,528, 23,529-30 (proposed May 2, 2003) (to be codified at 29 C.F.R. pt. 1910) (“[R]</span><span style="font-family:Times New Roman; color:#212121; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">olling</span><span style="font-family:Times New Roman; color:#212121; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>stock includes covered and uncovered rail cars, hopper cars, tank cars, and trailers.”).<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">Therefore, the terms “</span><span style="font-family:Times New Roman; color:#212121; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">rolling stock</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">” and “</span><span style="font-family:Times New Roman; color:#212121; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">railcar</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">” are used interchangeably herein.</span></p>
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				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn6" href="#ftnref6"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">6 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>The Secretary issued the Citation to “Greenbrier Companies, Inc., d/b/a Greenbrier” on July 22, 2020. The parties stipulated the correct name of the cited company is “Greenbrier Central LLC.” (</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">J. Status Report and J.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">PreHr’g</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; "><span><span></span>
						</span>Statement</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>¶¶<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">c.II</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>&<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">c.V</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">;<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">Tr.</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>7.) </span></p>
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				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn7" href="#ftnref7"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">7 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>The reported injury that triggered the OSHA inspection occurred in the new lining shop. The employee was injured while inside one of the railcars when he slipped and fell, injuring his hip. This incident is unrelated to the conditions atop the railcars cited in Item 1 (Tr. 136-37, 150-52).<span>
						</span></span></p>
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			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn8" href="#ftnref8"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">8 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Exhibit C-4 comprises<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">a number of</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>photographs showing railcars in the new lining shop. Photographs at Bates pages 000020 and 000026 through 000030 show touchup employees sitting atop railcars as they work.</span></p>
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			<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-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">9 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>The CSHO did not take measurements of the openings because he did not deem it safe to step onto the railcar tops (Tr. 58-59). It is undisputed that the holes were large enough for a person to fit through.</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn10" href="#ftnref10"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">10 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>The raised nozzles encircling the railcar openings can be seen in the photographs at Bates pages 000020, 000021, and 000029 of Exhibit C-4.</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn11" href="#ftnref11"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">11 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Section 1910.28(B)(3)(v)(a) requires employers to ensure employees are<span>
						</span></span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; margin-left:18px; margin-right:48px; "><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">protected from falling through a hat</span><span style="font-family:Times New Roman; color:#333333; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">chway and<span>
						</span></span><span style="font-family:Times New Roman; color:#333333; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">chutefloor</span><span style="font-family:Times New Roman; color:#333333; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>hole by . . . [a] hinged floor-hole cover that meets the criteria in § 1910.29 and a fixed guardrail system that leaves only one exposed side. When the hole is not in use, the employer must ensure the cover is closed or a removable guardrail system is provided on the exposed sides[.]</span></p>
			</div>
			<div>
				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn12" href="#ftnref12"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">12 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>The employer or the Secretary may appeal a final decision and order to the federal court of appeals for the circuit in which the violation allegedly occurred or where the employer has its principal office, and the employer also may appeal to the D.C. Circuit.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">See</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>29 U.S.C. §§ 660(a) and (b). Here, the violation occurred in Marmaduke, Arkansas, in the Eighth Circuit. Respondent’s principal place of business is in Lake Oswego, Oregon, in the Ninth Circuit. (See<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">J. Status Report and J.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">PreHr’g</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; "><span><span></span>
						</span>Statement</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>¶¶ c.2). The Commission has held that where it is highly probable that a case will be appealed to a particular circuit, it generally has applied the precedent of that circuit in deciding the case— even though it may differ from the Commission’s precedent.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">Kerns Bros. Tree Serv</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">., 18 BNA OSHC 2064, 2067 (No. 96- 1719, 2000). The Court applies the precedent of the Eighth Circuit in deciding the case where it is highly probable the case would be appealed.<span>
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				<p class="style_Normal style_Normal style_FootnoteText style_FootnoteText " style="text-align:justify; ">
					<a name="ftn13" href="#ftnref13"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">13 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>Under<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">Respondent’s Issues of Law<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">in the parties’<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">J. Status Report and J.<span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">PreHr’g</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; "><span><span></span>
						</span>Statement,<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">Greenbrier lists “Whether the issued citation is properly classified as Serious?” (</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">Id.</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>at ¶ b.2.3). Greenbrier does not address the characterization of the cited item in its brief but states it “believed there was no risk of employees falling through the holes on top of the car because the holes were too small to fall through and, furthermore, the nozzles would prevent someone from sliding into them.” (</span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">Greenbrier’s Brief,<span>
						</span></span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">p. 35.)</span></p>
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					<a name="ftn14" href="#ftnref14"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_FootnoteReference style_FootnoteReference " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; ">14 </span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span></span><span style="font-family:Times New Roman; font-style:italic; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; font-style:italic; ">See</span><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span></span><a href="https://www.osha.gov/laws-regs/standardinterpretations/1996-10-18"><span class="style_DefaultParagraphFont style_DefaultParagraphFont style_Hyperlink style_Hyperlink " style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; text-decoration:underline ;font-family:Times New Roman; ">https://www.osha.gov/laws-regs/standardinterpretations/1996-10-18</span></a><span style="font-family:Times New Roman; font-family:Calibri; font-size:11pt; font-size:10pt; font-family:Times New Roman; "><span><span></span>
						</span>(Aug. 19, 2021).<span>
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