**FEDERAL MINE SAFETY AND HEALTH REVIEWCOMMISSION**

 

OFFICEOF THE CHIEF ADMINISTRATIVE LAW JUDGE

1331PENNSYLVANIA AVE., N.W., SUITE 520N

WASHINGTON,DC 20004-1710

TELEPHONE:202-434-9900 / FAX: 202-434-9949

 

 
| SECRETARY  OF LABOR,

MINE  SAFETY AND HEALTH 

 ADMINISTRATION  (MSHA),

                 Petitioner

 

                        v.

 

VULCAN  CONSTRUCTION MATERIALS, 

 LLC,  

                 Respondent                                                        |                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                       |   | CIVIL PENALTY PROCEEDING

 

     Docket No. SE 2023-0117

     A.C. No. 01-03143-571391

 

 

     Mine: South Russellville Quarry          |
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**DECISION AND ORDER**

** **

Appearances:               Alessandra T. Palazzolo, Office of the Solicitor, U.S.Department of Labor, Atlanta, Georgia, for the Petitioner, 

 

                                    JeanC. Abreu, Office of the Solicitor, U.S. Department of Labor, Atlanta, Georgia,for the Petitioner,

 

                                    MistyHillis, Vulcan Construction Materials, LLC, Birmingham, Alabama, for theRespondent, 

 

                                    AutumnGraves, Vulcan Construction Materials, LLC, Birmingham, Alabama, for theRespondent. 

 

 

Before:                        Judge Sullivan 

 

**I.              ****INTRODUCTION**

** **

This case is before me upon a Petition for theAssessment of Civil Penalty filed by the 

Secretary of Laborthrough her Mine Safety and Health Administration (“MSHA”) against VulcanConstruction Materials, LLC (“Vulcan” or “Respondent”), pursuant to section105(d) of the Federal Mine Safety and Health Act of 1977 (“Mine Act’), 30U.S.C. § 815(d). The Secretary alleges that Vulcan violated 30 C.F.R. §56.11012 when it failed to properly guard a ladderway opening on an elevated walkwayadjoining a conveyor at Vulcan’s South Russellville Quarry in Russellville,Alabama.

The partiespresented testimony and documentary evidence at a virtual hearing via ZOOM forGovernment on September 19, 2023. MSHA Inspector Timothy Schmidt testified onbehalf of the Secretary. Vulcan’s area manager, Coleman McNider, andRussellville’s plant manager, Rob Molyneux testified on behalf of theRespondent which is acting pro se in this matter. The Secretary filed herpost-hearing brief on December 1, 2023, and Vulcan filed its response onDecember 29, 2023.[1]For the reasons below, I affirm the single citation and uphold MSHA’s proposed penalty.

** **

**II.           ****GENERALFACTUAL AND PROCEDURAL BACKGROUND**

** **

The SouthRussellville Quarry involves typical quarry operations, including the drillingand blasting of rock that is then processed through a plant that crushes andsizes the material using multiple crushers, screeners, and belt conveyorsystems. Among these systems is the C-17 conveyor, which includes, among other components,a radial stacker, a shoot entryway where rock pours from an adjacent conveyor,skirting, and guarding. Tr. 13, 15-16, 38-39.

 

Running alongside theC-17 conveyor system is an adjoining elevated metal walkway, a catwalk that isaccessible at one end by a fixed ladder. Atop the ladder is the metal structureof the conveyor to the left, and on the right is the start of the railing thatruns the length of the catwalk. At the other end of the catwalk is theconveyor’s head pulley section, where the conveyor’s drive belt motor islocated. Tr. 15; Ex. S-2 & 3 (photographs).

 

On June 6, 2022,Inspector Schmidt conducted a regular inspection of the quarry. Before workingat MSHA, Inspector Schmidt, over the course of seven years held multiplepositions, including plant operator at a surface mining company. In January2017, he started his current position as a MSHA inspector and successfullycompleted his training at the Mine Safety and Health Academy. As part of hismandatory refresher training, Inspector Schmidt returns to the academy everytwo years. Annually, he conducts approximately fifty to sixty regularinspections – 20 to 30% of which involve limestone quarries. Tr. 11-13.

 

During his priorinspection of the South Russellville plant, six months earlier, InspectorSchmidt did not cite Vulcan for any unguarded ladderways, including at C-17.Tr. 29-31. Later, however, a month before his June inspection, InspectorSchmidt issued citations for violations of section 56.11012 involving unguardedladderway openings at two of Vulcan’s other operations. Tr. 25, 27; Ex. S-5& S-7. Section 56.11012 provides that “[o]peningsabove, below, or near travelways through which persons or materials may fallshall be protected by railings, barriers, or covers. Where it is impractical toinstall such protective devices, adequate warning signals shall be installed.” Vulcandid not contest those citations, or the penalties assessed for them. Tr. 57;Ex. S-6 & S-8.

 

            Duringhis June inspection at Russellville, Inspector Schmidt issued Citation No.9700252, alleging a violation of section 56.11012 for the unguarded opening atthe top of the ladderway to the C-17 catwalk that exposed a miner atop thewalkway to a vertical drop of approximately 50 inches to the ground below. Tr.14-15; Ex. S-1. The inspector designated the violation as unlikely to result ininjury or illness, that any injury that did occur would result in lost workdaysor restricted duty, and that it was due to low negligence on the part of Vulcan. Ex. S-1. That same day, Vulcan terminated the citation by adding a chain that couldbe strung between the railing and the conveyor structure to close the openingatop the ladderway. Tr. 24; Ex. S-4 (post-abatement photograph); Ex. S-13, at 4(Admission No. 7).

 

The Secretary laterpetitioned the Commission for a civil penalty assessment, proposing the then-minimumpenalty of $143. At issue here is whether Vulcan violated 30 C.F.R. § 56.11012,and if so, the penalty to be assessed**.**

** **

** **

**III.         ****FURTHERFINDINGS OF FACT AND CONCLUSIONS OF LAW**

** **

**A.   ****Fact of Violation**

** **

Citation No.9700252 states: 

No chain or barrier is provided foran opening on the work platform on the walkway of the C-17 conveyor. Theladderway opening has no chain or gate exposing a drop off of approximately 50inches. Miners may work in the area to change skirt boards, work on guards orconveyor parts. This condition exposes miners to a fall hazard should theymisstep into the unguarded drop off while working. Should a miner fall throughthe opening injuries such as fractures, strains, and contusions would likelyoccur.

 

Ex. S-1. Toprevail here, the Secretary must prove the cited violation “by a preponderanceof the credible evidence.” *In re: Contests of Respirable Dust SampleAlteration Citations*, 17 FMSHRC 1819, 1838 (Nov. 1995) (citations omitted).The Secretary’s burden of proof requires her to demonstrate that the “existenceof a fact is more probable than its nonexistence.” *RAG Cumberland Res. Corp.*,FMSHRC 1066, 1070 (Sept. 2000) (citations and internal quotations omitted).

 

There is nodispute regarding the lack of either guarding around the ladderway opening oran alternative warning signal at the top of the C-17 ladderway. Tr. 14, 21-23,35; Ex. S-1, S-2, S-13, at 4 (Admission No. 8); Jt. Stip. No. 9. Rather, theSecretary and Vulcan disagree on whether the opening at the top of theladderway was subject to section 56.11012 and thus protection as provided bythe standard. 

 

Athearing, in explaining why he issued the citation, Inspector Schmidt’s primaryfocus was on the risk posed to a miner working on the catwalk close to the ladderwayopening. The inspector, drawing upon his experience with conveyor maintenance, explainedwhy he had concluded that a miner would work from the catwalk at a point closeto the ladderway opening. Tr. 16-17.

 

Theinspector began by pointing out that, immediately to the left of the openingabove the ladderway, was a shoot entryway where rocks poured onto the C-17conveyor from an adjacent conveyor. Tr. 15; Ex. S-3 (supporting photograph). Atthat entryway, skirting was present to settle the rocks, preventing them frombouncing or spilling off the conveyor. The inspector also described in detailother various rubber and metal components of that section of the conveyor, andestimated that, due to wear and tear over time, there would be a relativelyfrequent need to maintain and repair the skirting and other parts. Tr. 15-18.

 

Inspector Schmidt alsotestified to additional potential maintenance issues with the conveyor that mayrequire a miner to work from the catwalk, including at a point near theladderway opening. The conveyor ran on various types of rollers, that theinspector also predicted would wear out over time, which could lead to misalignmentof the belt and prompt the need for replacement of the rollers. He alsodiscussed that at the other end of catwalk was the conveyor’s drive pulley, orV-belt, which, attached to its motor like a large rubber band, had to pull theweight of the whole conveyor. In the inspector’s opinion, such pressure andstretching of the drive pulley would eventually lead to the need to replace thebelt. The inspector also explained that all the guarding at the head pulley’smoving parts would wear down and need replacement due to vibration and wear. Theinspector further testified that cleanup of spillage from the conveyor wouldoccur from the catwalk, as well as sampling of material for quality control andother purposes. Tr. 18-20.

Lastly, theinspector stated that the length of the catwalk would be traveled each month bya miner to grease the head pulley, and on an annual basis to change the oil inin the gear box there. The inspector’s ultimate estimate was that miners would needto travel upon at least part of the catwalk a minimum of two to three times perweek, on average. Tr. 20-21.

Accordingto Vulcan’s two witnesses, the inspector vastly overstated miners’ use of thecatwalk for conveyance maintenance and repair assignments. Mr. McNider,Vulcan’s area operations manager reviewed the work plan records for the C-17conveyor for the preceding two years. Ex. R-4. He testified that these plansshowed all the maintenance and repair work being done by miners either standingon the ground or using a manlift while wearing fall protection. The projectsincluded maintenance and repair work on the tail pulley, head section, and theconveyor’s return pan. McNider also said that skirt board or guardingmaintenance or repair would be done by a miner in a manlift, and that the minerwould be outfitted in fall protection. Tr. 39-41, 43.

Thetestimony of Mr. Molyneux, the Vulcan plant manager at Russellville, largelysupported McNider’s on how much of the repair and maintenance on the C-17conveyor is usually accomplished. Tr. 59, 62. Molyneux further testified thatquality control is also done from the ground after a sample is dumped by aloader bucket. Tr. 59-60.

            For the most part,I credit the Vulcan witnesses over Inspector Schmidt on the issue of howfrequently miners would perform conveyor maintenance or repair tasks from thecatwalk, particularly near the ladderway. The Vulcan witnesses’ testimony wasbased on records kept by Vulcan and their general knowledge of how work was doneon the C-17 conveyor, while Schmidt’s testimony was based solely on his general,previous experience from working on conveyors like the C-17. 

Inevertheless conclude that the Secretary established that the ladderway openingwas, in the terms of section 56.11012 an “[o]pening . . . below [] or near [a]travelway[] through which” the miner could fall if the opening was notprotected. A “travelway” is specifically defined in the regulations as “a passage, walk or way regularly used and designated forpersons to go from one place to another.” 30 C.F.R. § 56.2. Here, there is morethan sufficient evidence that miners would regularly access the catwalk by footusing the ladderway, and thus, upon return from whatever their task, be exposedto the unprotected drop off at the ladderway to the ground 50 or so inchesbelow.

Priorto hearing, Vulcan answered interrogatories from the Secretary, providinginformation that “miners moved or walked on or otherwise used the C-17 Walkway betweenJune 6, 2020, and June 6, 2022” in order “to access the head pulley forgreasing and inspections,” and that the walkway was accessed for suchinspections “usually [one to two] times per month.” Ex. S-12, at 4-5 (Answersto Interrogatory Nos. 2 and 5); Jt. Stip. No. 11. Similarly, Vulcan admittedthat during that period “miners accessed the C-17 Walkway at least once permonth to inspect the C-17 conveyor’s motor head and pulley.” Ex. S-13, at 5(Admission No. 12); Jt. Stip. No. 10. Finally, the parties stipulated thatminers use the C-17 walkway for conveyor inspection and head pulley greasing atleast once per month. Jt. Stips. 13-15. 

Use ofthe catwalk for conveyor inspection and head pulley maintenance was alsoaddressed at hearing. Inspector Schmidt testified that the citation waspredicated in part upon such miner use of the catwalk. Tr. 18, 20. Moreimportantly, Vulcan’s McNider stated that “[t]he catwalk is used to inspect theconveyor,” and that “[t]he catwalk at Russellville is a travelway forinspection purposes of the conveyor system.” Tr. 39, 44;[2]*seealso* Resp’t Post-Hearing Br. at 2 (“Vulcan does perform periodic inspectionand greasing at the head pulley of our conveyors, as stated in the admissions.. . . . The location of greasing and inspection at the head pulley, which is 92feet from the end of the catwalk.”). McNider testified that miners would accessthe catwalk not only by using a manlift, but also by climbing the ladder to thecatwalk. Tr. 38-39. 

Theforegoing establishes, under the section 56.2 definition of travelway asproviding “a way regularly used and designated for person to go from one placeto another,” that the catwalk here is a travelway, and thus subject to theterms of section 56.11012. The catwalk was used by miners to go from the ladderwayto points elsewhere on the catwalk, and then used by them to return to theexposed ladderway opening. The inspector may have viewed the primary dangerposed to miners to be use of the catwalk as a working platform for maintenanceand repair projects conducted near the ladderway opening. However, Vulcan had adequatenotice that it was also being cited for violating section 56.11012 by exposingminers traveling back to the unguarded ladderway from other points on thecatwalk, such as the tail pulley area, to the risk of falling to the ground. *Cf.Nolichuckey Sand*, 22 FMSHRC at 1060-61.

Vulcandoes not contest that the ladderway and catwalk was, in the terms of thesection 56.2 definition of travelway, the “designated” way for miners conductinginspection and greasing of the head pulley on foot. With no other manual accesspoint, such miners had no choice but to climb up to the catwalk and return tothe ground via the ladderway. *See Watkins Engineers & Constructors*,24 FMSHRC 669, 678 (July 2002).

Inaddition, that this occurred on at least a monthly basis establishes that thecatwalk was “regularly used” as a travelway under the section 56.2 definition.Recently, Commission Judges have been looking more to the regularity of use ofan alleged travelway rather than the frequency of its use. *See, e.g., Oil-DriProd. Co.*,32 FMSHRC 1761, 1769-1770 (Nov. 2010) (ALJ) (finding regular use even whereoperator employees did not use testing platform when evidence was thatcontractor employees conducted emission testing from it every two years); *seealso Nordic Ind.*,36 FMSHRC at 2688-89 (unprotected landing accessed once a week for inspectionspurposes held to be a “regularly used” travelway and thus subject to section56.11012).

Instead,at hearing the testimony of Vulcan’s witnesses largely focused on discreditingthe statement in the citation that the catwalk was subject to use as “a workplatform” near the ladderway for the previously discussed C-17 repair andmaintenance projects. Tr. 40-41. Given the greater relative credibility of itswitnesses on this subject, Vulcan argues that the citation should therefore bedismissed in this instance. Resp’t Post-Hearing Br. at 2. 

Nothingin section 56.11012, or the definition of travelway provided by section 56.2, however,limits the application of section 56.11012 to just those times or places wherethe travelway is being used as a work platform. Section 56.11012 applies to any“[o]pening[] . . . . through which persons or materials may fall . . . .” Whileit is unlikely that a miner, having accessed the catwalk via the ladderwaywould, upon returning, fail to perceive the ladderway opening and fall to theground below, it is at least possible. Moreover, the lack of likelihood of theoccurrence of this hazard was reflected in the citation as written (Tr. 23), and,consequentially, in the minimal penalty assessed.

Vulcanalternatively argues that the cited unguarded ladderway does not require a gateor chain because of MSHA guidance clarifying the requirements of 30 C.F.R. §§56/57.15005. Resp’t Post-Hearing Br. at 1; Ex. R-14 (PPL No. P14-IV-02 (Mar.25, 2014)). In that Program Policy Letter, MSHA generally adopts OSHA’s fallprotection standard requiring guardrail systems, safety net systems, orpersonal fall arrest systems to protect employees that walk or work on a horizontalor vertical surface with an unprotected side or edge at least six feet above alower level. Ex. R-14; *see*29 C.F.R. § 1926.50(b)(1). Vulcan’s positionis that the PPL thus establishes that the 50-inch drop off from the top of theunguarded ladderway to the ground at issue here is not a violation. Tr. 49-50.

I agree with the Secretarythat the PPL’s guidance with respect to totally different standards – sections56.15005 and 57.15005 – has no bearing on how section 56.11012 is to beapplied. There is no indication whatsoever therein that MSHA intended for the PPLto apply to standards beyond the two it specified.[3] Vulcan isessentially arguing that its compliance with section 56.15005 permits it toignore the plain terms of section 56.11012, a view that is contrary to how theMine Act is enforced. *See Consol Pennsylvania Coal Co.*, 44 FMSHRC 691,696 n.10 (Dec. 2022) (compliance with another applicable standard has nobearing on whether the Secretary established a violation of the citedstandard).

Finally,Vulcan argues that because MSHA does not cite unguarded openings to stairwaysas violations of section 56.11012, it should not be permitted to enforce thestandard with respect to unprotected ladderways. Resp’t Br. at 2; Tr. 48, Ex.R-11 & 13. This is little more than an impermissible collateral attack on section56.11012. In any event, as Inspector Schmidt explained in his rebuttaltestimony, stairways and ladderways are fundamentally different, and aretreated as such under the regulations. He stated that a ladder is inherentlymore dangerous than a stairway as a ladder has a vertical drop while a stairwayhas a more gradual incline. Tr. 64-66.**The regulations recognize thesedifferences in incline by requiring a stairway leading to an elevated walkwayto only have hand railings. *See*30 C.F.R. 56.11002 (“Crossovers,elevated walkways, elevated ramps, and stairways shall be of substantialconstruction, provided with handrails, and maintained in good condition.”).

 

Accordingly, I concludethat the cited area was a “travelway” under the Mine Act’s definition, and thatby failing to install a chain, barrier, or protective cover on the ladderway, Vulcanviolated section 56.11012.

 

**B.   ****Fair Notice**

 

Vulcan also arguesthat it should not be penalized because MSHA failed to provide it fair notice inthis instance of what section 56.11012 required of it concerning the C-17catwalk and ladderway. Resp’t Br. at 2. However, as a matter of law, Vulcan wasprovided sufficient notice that its C-17 catwalk qualified as a travelway undersection 56.2, and thus subject to the terms of section 56.11012, by thepreviously discussed plain meaning of section 56.2’s definition of travelway.“The Commission has held that when ‘the meaning of a standard is clear based onits plain language, it follows that the standard provided the operator withadequate notice of its requirements.’” *Austin Powder Co.*, 29 FMSHRC 909,919 (Nov. 2007) (quoting *LaFarge Constr. Materials*, 20 FMSHRC 1140, 1144(Oct. 1998)); *see also Nolichuckey Sand*, 22 FMSHRC at 1059-61.

 

Vulcan maintainsthat notice was especially lacking because Inspector Schmidt had, as recentlyas the previous year, inspected the Russellville plant and had not cited theC-17 ladderway or any other similar ladderway at the plant for lacking requiredprotection. Resp’t Br. at 2; Tr. 61. Vulcan’s contention is essentially a formof estoppel argument that has been consistently rejected by the Commission andthe courts. The “Commission has long held that an inconsistent enforcementpattern by MSHA inspectors does not prevent MSHA from proceeding under anapplication of the standard that it concludes is correct.” *Austin Powder*,29 FMSHRC at 919-20 (citing *Nolichuckey Sand*, 22 FMSHRC at 1063-64); *seealso Mainline Rock & Ballast, Inc., v. Sec’y of Labor*, 693 F.3d 1181,1187 (10th Cir. 2012) (“MSHA cannot be estopped from enforcing its regulationssimply because it did not previously cite the mine operator. . . . ‘Those whodeal with the [g]overnment are expected to know the law and may not rely on theconduct of government agents contrary to the law.’” 693 F.3d at 1187 (quoting *EmeryMining Corp. v. Sec’y of Labor*, 744 F.2d 1411, 1416 (10th Cir. 1984)); *PalmerCoking Coal Co.*, 22 FMSHRC 887, 890 (July 2000) (ALJ) (“[o]perator is in noworse position than if MSHA had cited the condition five years ago. It simplywould have had to correct the condition and pay the civil penalty at thattime.”).[4]

Insum, fair notice of the requirements of section 56.11012 was provided to Vulcanin this instance and the minimum requirements of due process have beensatisfied.

 

**C.   ****Gravity**

 

For Citation No. 9700252, Inspector Schmidt designated the citationas “unlikely” to 

cause an injury orillness, given that most of the travel, work, or maintenance done on thewalkway would be completed away from the ladderway opening and the side skirt.Tr. 23. If an injury occurred, Inspector Schmidt concluded that it could resultin one person suffering an injury reasonably expected to lead to lost workdaysor restricted duties. Tr. 23. Because the citation is designated as “unlikely,”it was not designated as a significant and substantial violation. 

 

            InspectorSchmidt, given his years of experience, offered credible testimony that oneperson would travel along or complete work and maintenance on the C-17 walkway ata time, subjecting only that one person from falling through the unguardedladderway opening. In the unlikely event of a person falling, Inspector Schmidtanticipated that the possible injuries would include fractures, sprains, orbruises. According to his testimony, these relatively minor injuries areassociated with a fall from four to five and a half feet and would likely resultin restricted duty or missed work. Tr. 23.

            Giventhe facts above and Vulcan’s silence on this issue, I affirm the assessedlikelihood, severity, and number of persons likely to be affected.

 

**D.   ****Negligence**

** **

Commission “judges may evaluate negligence from thestarting point of a traditional 

negligenceanalysis” rather than based on the Secretary’s definition of negligence under30 C.F.R. § 100.3(d). *Brody Mining, LLC*, 37 FMSHRC 1687, 1702 (Aug.2015); *JWR Res. Inc.*, FMSHRC 1972, 1975 n. 4 (Aug. 2014) (explainingthat the MSHA regulations are not binding in Commission proceedings). TheCommission has further recognized that “[e]ach mandatory standard . . . carrieswith it an accompanying duty of care to avoid violations of the standard, andan operator’s failure to meet the appropriate duty can lead to a finding ofnegligence if a violation...occurs.” *A.H. Smith Stone Co.*, 5 FMSHRC 13, 15(Jan. 1983). 

 

The Commission’snegligence analysis asks whether an operator has met “the requisite standard ofcare – a standard of care that is high under the Mine Act.” *Brody Mining,LLC*,    37 FMSHRC at 1702. To determine whether an operator met its duty ofcare, Commission Judges consider “what actions would have been taken under thesame circumstances by a reasonably prudent person familiar with the miningindustry, the relevant facts, and the protective purpose of the regulation.” *Id.*(citations omitted). A Judge, however, “is not limited to an evaluation ofallegedly ‘mitigating’ circumstances” and should consider the “totality of thecircumstances holistically.” *Id.*at 1702-1703*; see*30 C.F.R. §100.3(d) (stating that operators must be “on the alert for conditions andpractices in the mine that affect the safety or health of miners and to takesteps necessary to correct or prevent hazardous conditions or practices.”).Lastly, the Commission has recognized that an “operator’s knowledge (actual orconstructive) is a key component of a negligence determination.”*Ohio Cty.Coal Co.*, 40 FMSHRC 1096, 1099 (Aug. 2018). 

** **

****Here, Vulcan doesnot challenge Inspector Schmidt’s designation of low negligence. In hisdetermination, Inspector Schmidt explained that low negligence was appropriatebecause there had been no indication that there was a recent change, such asthe removal or addition of a chain or barrier, and the operator may not havenoticed the condition. Tr. 23-24. His explanation is supported by Mr. Molyneux’stestimony that none of the six conveyors at the quarry had chains or gates forat least six months before the June citation was issued. Tr. 63. 

** **

****While****it isplausible that a reasonably prudent person familiar with the mining industryunder the same circumstances, would have guarded the ladderway opening with achain, gate, or comparable barrier to protect miners from a vertical drop, Icredit Inspector Schmidt’s decision to give Vulcan the benefit of the doubt ofnot noticing the condition. Tr. 23-24. With that, I find that the operatorpossessed little to no actual or constructive knowledge of the violation. 

 

Considering thetotality of the circumstances, I conclude that a designation of low negligenceis appropriate.

 

**IV.         ****PENALTY**

** **

            Commissionadministrative law judges have the authority to assess civil penalties *denovo*for violations of the Mine Act. *Sellersburg Stone Co.*, 5 FMSHRC287, 291 (Mar. 1983). The Act requires that the ALJ consider six statutorypenalty criteria in assessing civil monetary penalties: 

 

(1) the operator’shistory of previous violations, (2) the appropriateness of such penalty to thesize of the business of the operator charged, (3) whether the operator wasnegligent, (4) the effect on the operator’s ability to continue in business,(5) the gravity of the violation, and (6) the demonstrated good faith of theperson charged in attempting to achieve rapid compliance after notification ofa violation.

 

30U.S.C. § 820(i).

 

            Inthe fifteen months preceding the issuance of Citation No. 9700252, MSHA issued twoviolations of section 56.11012 to Vulcan Construction Materials, LLC. *See*MSHA,*Mine Data Retrieval System*, https://www.msha.gov/mine-data-retrieval-system (lastvisited March 4, 2024). While Mr. McNider asserts that the upholding of thecitation would be devastating to the operator’s continued operation of all itsmines to the tune of millions of dollars, Vulcan failed to provide any supportingevidence to substantiate that claim or convince me that the penalty would impactits ability to stay in business. Tr. 52. With no such evidence, I presume thatno such adverse effect would occur. *See John Richards Constr.*, 39 FMSHRC959, 965 (May 2017) (confirming that “[i]n the absence of proof that theimposition of authorized penalties would adversely affect [an operator’s]ability to continue in business, it is presumed that no such adverse [e]ffectwould occur”) (citations omitted). 

 

            ForCitation No. 9700252, the Secretary proposed a penalty of $143.00. I determinedVulcan’s negligence to be low. *See*discussion *supra*Part III.D. Regardingthe gravity of the violation, I also determined that it would affect oneperson, was unlikely to result in injury or illness, and was reasonably likelyto result in a lost workdays/restricted duty-type injury. *See*discussion*supra*Part III.C. Moreover, Vulcan demonstrated good faith by promptlyadding a chain to barricade the ladderway opening on the same day it receivedthe citation. Tr. 24; Ex. S-4. Considering the six criteria set forth undersection 110(i) of the Mine Act in conjunction with the relevant facts, I herebyassess a penalty of $143.00. 

 

**V.            ****CONCLUSIONAND ORDER**

** **

            Inlight of the foregoing, it is hereby **ORDERED**that Citation No. 9700252is **AFFIRMED** and that Respondent pay a penalty of **$143.00**within30 days of the date of this decision. Accordingly, this case is **DISMISSED**.

 

 

 

 

/s/John T. Sullivan

John T. Sullivan

                                                                                    AdministrativeLaw Judge

 

 

Distribution(First Class Mail and E-mail): 

 

Alessandra T.Palazzolo, and Jean C. Abreu, Office of the Solicitor, U.S. Department ofLabor, 61 Forsyth Street, S.W., Room 7T10, Atlanta, GA 30303 (palazzolo.alessandra.t@dol.gov, abreu.jean.c@dol.gov,atl.fedcourt@dol.gov) 

 

Misty Hillis, Safety& Health Manager, Vulcan Construction Materials, LLC, 1200 Urban Center Dr,Birmingham, AL, 35242 (hillism@vcmmail.com)

 

Autumn Graves,Safety & Health Manager, Vulcan Construction Materials, LLC, 1200 UrbanCenter Dr, Birmingham, AL, 35242 (hensleya@vcmmail.com) 

[1] In this decision,the joint stipulations, transcript, Secretary’s exhibits, and Respondent’sexhibits are abbreviated as follows: “Jt. Stip.,” “Tr.,” “Ex. S-#,” and “Ex. R-#.”

[2] McNider’stestimony was contradictory, as he also argued that the catwalk did *not*qualify as a travelway in this instance because traveling from “one place to another” in section 56.2 means to travel froma catwalk to an adjacent catwalk or from one conveyor to another.  Tr. 39. However,there is nothing in the standard or its regulatory history that leads to theconclusion that the phrase “one place to another” in section 56.2 is solimited. Indeed, the Commission has held to the contrary. *See NolichuckeySand Co.*, 22 FMSHRC 1057, 1059-61 (Sept. 2000) (finding end of maintenanceplatform was a “place” under the plain meaning of that term as it is used in section56.2 definition of travelway); *see also Nordic Ind.*, 36 FMSHRC 2687, 2688-89(Oct. 2014 (ALJ) (platform used to gain access to mine equipment constitutedtravelway under section 56.1101).

[3]Even if the letterprovided relevant and appropriate guidance, MSHA in the PPL recognizes that theOSHA fall protection standard may not always satisfy MSHA’s standards. The PPLstates that MSHA retains the discretion to independently “evaluate all workarea hazards to ensure appropriate fall protection provisions are in place toprotect miners from fall hazards.” Ex. R-14. Under this discretionary reading,the “6 feet above a lower level” standard is not absolute.

[4] At hearing,evidence was introduced that Inspector Schmidt, the month before he cited theC-17 conveyor at Russellville, had issued citations involving unguardedladderway openings to Vulcan at two of its other mines. Ex. S-5, 7. Vulcanmaintains that it did not contest those citations because it conceded in thoseinstances that its miners would use areas near the openings to conduct workassignments. Resp’t Br. at 1. I have no reason to doubt Vulcan on this, andthus that Vulcan may have reasonably considered the citations to have beenissued for that reason. Indeed, Inspector Schmidt testified as much. Tr. 26-27.However, as discussed, the scope of section 56.11012 is not limited to “workplatforms,” but rather is broader, with the regulation applying to all“travelways.” The earlier citations are thus of little relevance to my findingof violation here.                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                         |