Source: https://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=PREAMBLES&p_id=976
Timestamp: 2015-08-30 13:59:42
Document Index: 569858499

Matched Legal Cases: ['art 1910', 'art 1910', 'art 1910', 'art 1910', 'arts 1917', 'art 1910', 'art 1910', 'art 1918', 'art 1910', 'art 1917', 'arts 1917', 'art 1918', 'art 1917', 'art 1919', 'art 1917', 'art 91', 'art 1919', 'art 1918', 'arts 1917']

(b)(1) Access to employee exposure and medical records. Subpart Z, 1910.1020;
(b)(2) Commercial diving operations. Subpart T;
(b)(3) Electrical. Subpart S when shore-based electrical installations provide power for use aboard vessels;
(b)(4) Hazard communication. Subpart Z, 1910.1200;
(b)(5) Ionizing radiation. Subpart Z, 1910.1096;
(b)(6) Noise. Subpart G, 1910.95;
(b)(7) Nonionizing radiation. Subpart G, 1910.97; and
Note: Exposures to nonionizing radiation emissions from commercial vessel radar transmitters are considered hazardous under the following situations: (a) where the radar is transmitting, the scanner is stationary, and the exposure distance is 19 feet (6 m) or less; or (b) where the radar is transmitting, the scanner is rotating, and the exposure distance is 5 feet (1.8 m.) or less.
(b)(8) Respiratory protection. Subpart I, 1910.134.
(b)(9) Toxic and hazardous substances. Subpart Z applies to marine cargo handling activities except for the following:
(A) when a substance or cargo is contained within a sealed, intact means of packaging or containment complying with Department of Transportation or International Maritime Organization requirements;(5)
(B) Bloodborne pathogens, 1910.1030;
(C) Carbon monoxide, 1910.1000 (See 1918.94(a)); and
(D) Hydrogen sulfide, 1910.1000 (See 1918.94(f)).
These subparts and sections of OSHA's General Industry Standards are also incorporated into the Marine Terminals Standard (1917.1(a)(2)) by reference along with several other part 1910 sections that have application only in a marine terminal. Incorporating the same General Industry Standards into the Longshoring and Marine Terminals Standards will make both of OSHA's marine cargo handling rules similar with respect to these issues, an approach that has long been advocated by the marine cargo handling industry and is supported by this record.
OSHA's Bloodborne Pathogens Standard (29 CFR 1910.1030) does not apply to marine cargo handling operations. OSHA will continue its past policy of applying the first aid requirements of 1917.26 and 1918.97. In a letter dated July 31, 1992, to the National Maritime Safety Association, OSHA addressed the coverage of the Bloodborne Pathogen Standard to the marine cargo handling industry. It states, in pertinent part, as follows:
* * * the bloodborne pathogen standard primarily applies to general industry establishments and not the cargo handling industry that N.M.S.A. represents. (Ex. 6-158).
Bloodborne pathogens are most commonly encountered in the cargo-handling environment during a first aid response when an injured employee is bleeding. Under these circumstances, first aid, which encompasses universal precautions (procedures for handling human blood and certain human body fluids in a manner that prevents the transmission of infection), must be followed by first aid responders. For further guidance, particularly for small employers, OSHA has included a non-mandatory appendix, Appendix V, titled Basic Elements of a First Aid Training Program.
In addition, as was proposed, OSHA is exempting from subpart Z all sealed, intact packages or containers that meet the Department of Transportation (DOT) or International Maritime Organization (IMO) requirements. OSHA's existing Longshoring Standard contains no such exemption, although the existing Marine Terminals Standard (1917.1(a)(2)(ii)) does. Packages and containers that are sealed present no exposure hazards to marine cargo handling employees, provided that such containment remains intact. In order for packages and containers to qualify for the exemption in 1918.1(b)(9)(B), they must meet DOT or IMO requirements. This will ensure that exempted packages are properly packaged, and thus highly unlikely to expose workers to toxic or hazardous substances. Including the exemption for intact packages and containers in the final Longshoring Standard will thus make that standard consistent with the Marine Terminals Standard.
OSHA also proposed to incorporate various other provisions of the General Industry Standards into the Longshoring and Marine Terminals Standards. These included subpart P of 29 CFR part 1910, which covers hand and portable tools, 29 CFR 1910.120(q), which addresses emergency response to hazardous substance releases, and subpart O of 29 CFR part 1910, which covers machine guarding. At the time of the proposal, OSHA had made an initial determination that these general industry provisions provided more comprehensive coverage than the corresponding provisions of the Longshoring and Marine Terminals Standards. However, commenters did not support the incorporation of these general industry provisions, as discussed in detail below.
To ensure safe practices in the use of hand tools, in 1918.1(b)(5), OSHA proposed deleting the current longshoring requirements for hand tools, 1918.72, titled "Tools," and replacing this section with the more comprehensive requirements of subpart P of 29 CFR part 1910, titled Hand and Portable Powered Tools and Other Hand Held Equipment. OSHA also proposed to incorporate the same general industry section into the Marine Terminals Standard (proposed 1917.1(a)(2)(vii)). This approach was not supported by rulemaking participants, however. For example, the Pacific Maritime Association in their comments asserted that:
About the only hand tools used by longshoremen aboard vessels are hammer-hatchets, chain saws, hand saws, hydraulic wire cutters and manual wrenches. There is no need for OSHA to require the adoption of 1910 Subpart P that includes hand tools never used aboard vessels (Ex. 8-8).
This position was also voiced by several respondents (Ex. NMSA et al.). In addition, OSHA has re-examined its compliance history for marine cargo handling found in its Integrated Management Information System (which contains computerized data on all OSHA compliance inspection data,
dating back to 1972). While citations were found for the provisions addressing the hazards associated with hand and portable power tools found in Parts 1917 and 1918, no such citations were found for Part 1910. After considering these comments and in light of the Agency's own enforcement data, OSHA has determined that the hand tool provisions in the Agency's existing Marine Terminals and Longshoring Standards do address the hand tool hazards present in marine cargo handling operations more effectively than would be the case if subpart P of the General Industry Standards were incorporated by reference. Accordingly, the final rule does not incorporate these general industry requirements.
OSHA proposed to include from the General Industry Standards a paragraph from Subpart H, Hazardous waste operations and emergency response, 1910.120(q), to address the issue of appropriate coverage of emergency response to hazardous incidents. This paragraph, essentially, requires employers to develop and implement an emergency response plan to handle anticipated toxic substance emergencies prior to the commencement of emergency response operations. If employers decide to evacuate their employees from the danger area when an emergency occurs and do not permit their employees to assist in handling the emergency, they are exempt from the requirements of this paragraph if they have provided an emergency action plan and met other requirements in accordance with 1910.38(a).
The existing longshore and marine terminals regulations address the issue of responding to hazardous cargo spills in 1917.22 (marine terminals) and 1918.86 (longshoring). In general, these sections require the employer to remove employees from the area that the cargo has been spilled in, to determine the hazard involved, and to instruct employees in proper clean-up procedures.
Many commenters felt that adding this general industry provision duplicated the existing marine terminal and longshoring regulations discussed in the last paragraph (Exs. 6-29a, 6-39, NMSA et al.).
Mr. Richard Buonocore, Director of Safety for Matson Terminals, Incorporated and Matson Navigation Company, Incorporated, and Shore Side Operations, stated at the Seattle hearings:
I also direct the Committee's attention to proposed 1918.89(a) and (c). These sections would repeat in the marine terminals rules existing sections 1917.22(a) and (c) from the longshoring rules. We're still with preparation for receiving hazard cargo and for responding to hazard cargo spills.
We believe these proposals, both of which deal with hazard materials, awareness, and responses to hazard material incidents, are unnecessary because these subjects are adequately and appropriately addressed by other existing provisions.
Emergency response plans were addressed in 1910.38(a), preparing for receipt of hazard cargos and dealing with spills are addressed in 1918.86(a) and (c).
Hazard communications issues are addressed in 1918.90, particularly subpart (h), as well as in the general OSHA hazard communication standard of 29 CFR 1910.1200.
Ventilation risks for particular hazard commodities are addressed by 1918.93.
Perhaps most importantly in this regard is DOT's HAZMAT employee training rules, 49 CFR 172.204, which was alluded to by John Pavelko but not by citation number, requiring training on hazard material, risk, and emergency response.
Under the DOT rules, all employees, including longshore personnel working with hazardous materials and transportation must be given awareness and safety training and must know how to recognize potential dangers and how to take appropriate actions to protect their personal safety in the event of a hazardous release (SEA Tr. pp. 218-219).
Mr. John Pavelko, the Pacific Maritime Association Coast Director for Training and Accident Prevention testified to the issue that the marine cargo handling industry does not do hazardous material clean-up:
Again, the PMA members on the West Coast have an agreement that if there is an emergency, the emergency will be responded to by a professional vendor. Longshoremen will not be called to respond to any emergency.
Under the HAZWOPER, the HAZWOPER, as you know, was designed for hazardous waste generators. It was for big time corporations that generate a lot of hazardous waste. The maritime industry just kind of got sucked into this thing by that one little sentence in there that says if there's going to be an emergency, then you've got to have a plan.
Then if you don't respond to an emergency, then you've got to refer to, what was it, 1910.38. So all of our members fall under 1910.38 and not under the HAZWOPER, but yet when a compliance officer, on several--I shouldn't say several--on at least two or three occasions when compliance officers have come to the waterfront, they try to cite our employers under the HAZWOPER.
We're saying, it's not us, it doesn't apply, and there's back and forth, back and forth, and this is another issue that causes a lot of problems for employers. (SEA Tr. pp. 189-190)
Mr. Ron Signorino, Director of Regulatory Affairs, Universal Maritime Service Corporation, testified in the New Orleans hearings:
The HAZWOPER rule was written by OSHA in response to a mandate by Congress to have rules in place, whereby employees responding to an emergency situation could be protected from the hazards that are associated with that response.
Now, the position of the National Maritime Safety Association has been traditionally that when employees employed by members of NMSA are aware of the spill that those employees be directed to evacuate any area in a spill, so that a professional team can come in and respond to that emergency, the professional teams are outside contractors who have no affiliation with the work.
Typically, they're specialists in performing these clean-ups of these hazard emergency responses.
Then, as a consequence, the provisions of HAZWOPER, rightly should not apply to employees who have, in fact, no exposure (NO Tr. p. 202).
OSHA agrees with the commenters that the HAZWOPER regulations are for those employers and employees that are in the business of cleaning up spills of hazardous chemicals and hazardous waste generators. However, if a marine cargo handling employer decides to respond to an emergency that is beyond the scope of the Emergency Action Plan developed by the employer in accordance with the final rule (1917.30 and 1918.100), that employer ceases to be acting in a "marine cargo handling" capacity and the appropriate sections of OSHA's General Industry Standards (e.g., 29 CFR 1910.120(q), HAZWOPER) would apply. This is reflective of the application of 1910.120(q)(1) which reads in relevant part:
Employers who will evacuate their employees from the danger area when an emergency occurs, and who do not permit any of their employees to assist in handling the emergency, are exempt from the requirements of this paragraph if they provide an emergency action plan in accordance with 1910.38(a) of this part.
In the final rule, OSHA has decided to address these hazards by adding a new section to each of the Longshoring and Marine Terminals Standards. These new sections, which are identical, will alleviate the duplication and confusion that would be caused by the proposed cross-referencing of paragraphs from the Hazardous Waste Operations and Emergency Response Standard, 1910.120(q), and from the Emergency Action Plans Standard 1910.38(a). These new sections, which are codified in subpart B, Marine Terminal Operations (1917.30), and subpart I, General Working Conditions (1918.100), require marine terminal and longshoring employers, respectively, to develop a written (if there are 10 or fewer employees, oral
communication of the emergency action plan is acceptable) emergency action plan to handle anticipated emergencies of all types, including those involving fires and toxic substances, before the commencement of emergency response operations. These sections identify the basic elements of an emergency action plan (escape route planning, accountability, employer contacts); an alarm system; evacuation procedures; and training requirements. OSHA believes that, as a practical matter, the emergency action plan can be adequately communicated to a small group of employees of 10 or fewer when the requirements of the plan are orally explained; a written plan is therefore unnecessary in this circumstance.
OSHA proposed to protect marine cargo handling employees from the hazards of fixed machines by referencing the comprehensive list of machine guarding provisions contained in OSHA's General Industry Machine Guarding Standards (29 CFR 1910 subpart O) into the scope of both the Marine Terminals and Longshoring Standards.
The existing regulations address machine guarding in different ways. In the Longshoring Standard, machine guarding is addressed in several areas such as cargo winches ("When moving parts of winches or other deck machinery present a hazard, they shall be guarded," 1918.53(a)(1)) and in powered conveyors ("All conveyor and trimmer drives which create a hazard shall be adequately guarded," 1918.69(c)). In the Marine Terminals Standard, the existing regulations on machine guarding center around the "danger zone" concept. A "danger zone" is defined in the Marine Terminals Standard as any place in or about a machine or piece of equipment where an employee may be struck by or caught between moving parts, caught between moving and stationary objects or parts of the machine, caught between the material and a moving part of the machine, burned by hot surfaces or exposed to electric shock. The danger zone performance approach to machine guarding provides coverage of all hazards within the danger zone without the need to address each hazard separately. This approach also requires employers to use their judgment about which machine parts or areas at or near a machine do in fact expose employees to workplace hazards.
Several commenters noted that the existing danger zone concept used in the Marine Terminals Standard provided the necessary employee protection and that the proposed machine guarding provisions were unnecessary (Exs. 6-29a, 6-31a, 6-35). Other commenters favored the danger zone approach and stated that the machine guarding provisions in the General Industry Standards were voluminous and addressed several types of machinery that were not found in marine cargo handling operations (Ex. NMSA et al.).
Mr. Signorino addressed this issue during the hearings in New Orleans, testifying as part of a panel representing the National Maritime Safety Association:
We adopt the approach that was originated by OSHA, implemented by that agency in the promulgation of the 1917 standards; and, in the space of time since the promulgation of those standards, has borne significance in terms of lack of accident experience, in terms of moving parts of machinery. That concept is, of course, the dangers [zone] (NO Tr. p. 413).
OSHA agrees with the above comments and testimony and in the final rule has decided that the same danger zone approach to machine guarding hazards pioneered in the Marine Terminals Standard (917.2(g) and 1917.151) will provide appropriate protection from machine guarding hazards in marine cargo handling operations regardless of location, i.e., in both marine terminal and longshoring operations. In addition, using the danger zone concept will allow employers some compliance flexibility. For example, although an unguarded nip point near an employee's work station will usually present a significant caught-in hazard, a nip point located 10 feet above the working surface is far less likely to present such a hazard.
Accordingly, the final rule does not incorporate subpart O of the General Industry Standards into the scope of the Marine Terminals and Longshoring Standards as proposed. Instead the final rule retains the existing machine guarding protections provided by 1917.151 of the Marine Terminals Standard and brings these provisions into the final Longshoring Standard as 1918.96(e). (Guidance on a wide range of machine guarding techniques and background information may be found in the OSHA pamphlet "Concepts and Techniques of Machine Guarding" (OSHA 3067-1992) or the American National Standards Institute (ANSI) publication "American National Standard for Machine Tools" (ANSI Bll.l9-1990).)
In keeping with the Agency's efforts to develop regulatory language that is easier to follow, the references to part 1910, OSHA's General Industry Standards in 1918.1(b) have been renumbered and placed in alphabetical order.
Section 1918.2 Definitions
Final rule 1918.2 carries over many definitions from the proposed and existing Longshoring Standards because those definitions are still relevant and are used in the final rule. However, some new definitions and modifications to existing definitions were proposed and have been added or made to reflect changes in current custom and practice in the longshore industry.
The existing rule's references to "Federal maritime jurisdiction" and "navigable waters" in the definitions of "employee" in 1918.2 paragraph (e) and "employer" in paragraph (f) were not included in the proposal. The existing rules were originally promulgated under the Longshore and Harbor Workers' Compensation Act (33 U.S.C. 941), whose jurisdiction was limited to navigable waters. The promulgation of the OSH Act, which applies to private sector employment in covered workplaces, no longer uses navigable waters to establish jurisdiction. The final rule does not include these references.
New definitions or definitions that OSHA has revised substantially in the proposal or final are described below.
The definition of "danger zone" in the final rule is taken from OSHA's existing Marine Terminals Standard, as discussed above. This definition exists in the existing Marine Terminals Standard and is being added to the final Longshore Standard. OSHA finds it appropriate to include identical definitions of this term in the Marine Terminals and Longshoring Standards because various kinds of equipment that pose similar hazards to employees are present in both marine cargo handling environments.
OSHA proposed a new definition for "designated person," which received considerable support (Ex. NMSA et al., Ex. 6-22). This term has been incorporated in the final rule, and is defined to mean a person who has a special skill in a particular area and has been assigned by the employer to do a specific task in that area. Examples of the use of this term in the final Longshoring Standard are: 1918.51(b) which requires that a designated person inspect a vessel's cargo gear before use and at intervals during use; and 1918.55(c)(7) which requires that a designated person supervise tandem lifting operations.
The definitions for "enclosed space" and "fumigant" in the final are essentially unchanged from those proposed in the Longshore Standard. In
addition, these definitions are essentially identical to those found in the Marine Terminals Standard.
A definition for "fall hazard" has been added to the final rule in 1918.2. According to the final rule, a fall hazard exists when employees are working within 3 feet of the unprotected edge of a work surface that is 8 or more feet above the adjoining surface and 12 inches or more horizontally from the adjacent surface, or when weather conditions are such as to impair the vision or footing of employees working on top of containers. This definition was proposed as a footnote to the container top fall protection section; however, because it has application in several other sections of the Longshoring Standard (1918.32, 1918.85, and 1918.87), it has been placed in the definitions section. The definition makes it clear that it is the unprotected edge that poses a fall hazard and not necessarily the entire work surface (except in bad weather or when ice, grease etc. is present so the entire surface may be slippery). Additionally, any gap of 12 inches (.31 m) or more on a horizontal surface formed by containers is considered an unprotected edge and would constitute a fall hazard under this definition. OSHA believes that any work within 3 feet (.92 m) of an unprotected edge constitutes a hazard (Ex. 1-139), providing that the second essential element of this definition exists, i.e. that the vertical distance is such as to constitute a fall hazard. In proposed 1918.85(j), the Agency defined the fall height trigger at 10 or more feet above the adjoining surface. The final rule, however, sets the vertical height for fall hazards at 8 or more feet above the adjoining surface; this fall height is consistent with the fall height established in the final rule for non-containerized cargo (see 1918.32(b)). The final trigger height of 8 feet is identical to the existing requirement for fall protection found in 1918.32(b). OSHA believes that this height was originally adapted from an industry practice that pre-dated containerization. At that time, cargo was usually palletized into a standard 4 foot high pallet. It became an industry practice that whenever pallets were stacked two or more, the top working surface would be considered a fall hazard, thus requiring nets or other equivalent protection.
The definition of "Hazardous cargo, materials, substance or atmosphere" in the final longshore rule has been expanded to reflect the Marine Terminal Standard's definition of hazardous cargo. This definition goes beyond the existing part 1918 definition by including references to subpart Z of part 1910 and oxygen-deficient atmospheres.
The definition for "intermodal container," which remains unchanged from the definition in the proposal, reflects a combination of definitions found both in the International Labor Organization (ILO) Code of Practice for Safety and Health in Dock Work (Ex.1-135) and the definition found in the International Standards Organization (ISO) Standard 830, Freight Containers-Terminology (Ex.1-134). The definition in the final rule more accurately describes an intermodal container than the definition that is in the existing rule. This updated definition is also in the Marine Terminals Standard at 1917.2.
The definitions of "dockboards" and "ramps," found in the existing Marine Terminals Standard, have been brought into the Longshoring Standard with minor editorial modifications.
The extensive list of definitions that were included in 1918.3(r) of the existing Longshoring Standard that specifically refers to existing 1918.13, "Certification of shore-based material handling devices," has been deleted in the final rule. These definitions are no longer needed in the Longshoring Standard because part 1917, the Marine Terminals Standard, now contains OSHA's regulations for the certification of shore-based material handling devices.
The proposed definition for "vessel's cargo handling gear" had been modified by adding language to reflect cargo gear included under the ILO Convention 152. The final definition gives examples of the kinds of cargo handling gear that are included in this newer definition to reflect comments received that requested a more descriptive definition (Ex. 6-22).
For the sake of clarity and consistency, the word "required" (which is used extensively in parts 1917 and 1918) and the word "ensure" shall be synonymous for compliance purposes.
Subpart B--Gear Certification
Section 1918.11 Gear Certification
In OSHA's current Longshoring Standard, subpart B includes requirements for vessels' cargo gear certification, the certification of shore-based material handling equipment, and some provisions for gangways. The final rule's requirements for the certification of shore-based material handling equipment and for gangways are essentially unchanged from those in the current Longshoring Standard, although they have been moved from this subpart to the Marine Terminals Standard and to subpart C of the Longshoring Standard, respectively, as explained below. The final rule's requirements relating specifically to vessels' cargo gear certification, entitled "Gear Certification," have been streamlined and are now consolidated in subpart B of the Longshoring Standard. The gangway requirements in subparts B and C of OSHA's existing Longshoring Standard have, in the final rule, been moved to subpart C "Gangways and Other Means of Access" (1918.21). Furthermore, existing 1918.13 through 1918.15, which covered shore-based material handling devices and container cranes, have been removed from part 1918 because shore-based handling devices are currently covered exclusively under part 1917, the Marine Terminals Standard. In the existing definitions section, 1918.3(r)(5)(i) to (vi) listed material handling devices that were exempted from the certification requirements of existing 1918.13. Section 1918.13 required that shore-based material handling devices be certified in accordance with part 1919, OSHA's gear certification regulations. As mentioned above, these requirements are now found in part 1917, the Marine Terminals Standard. Material handling devices are now exempted from certification only if they are listed in 1917.50(h). Huletts, bridge cranes, ore and taconite loading facilities, and bulk coal loading facilities, which were exempted from certification under existing 1918.3, are not exempted under existing and final 1917.50.
Some commenters (Exs. 6-16a and NMSA et al.) urged OSHA to move the remaining regulations from subpart B of the Longshoring Standard to subpart F of that standard, "Vessels's Cargo Handling Gear," on the grounds that doing so would consolidate all vessel cargo handling gear requirements into one section (Ex. 8-20). OSHA disagrees with this position because subpart B's vessel cargo gear certification requirements are procedural in nature, have international significance, and apply to all lifting appliances aboard the vessel, such as elevators and material handling equipment. In contrast, subpart F primarily addresses the specific operational requirements for cranes and derricks. Accordingly, the final rule continues to address vessel cargo gear certification in subpart B.
Section 1918.11 of the final rule, entitled "Gear certification," requires employers to ensure that the vessel has a current and valid cargo gear register and certificates that are in accord with the recommendations of the International Labor Organization (ILO) Convention No. 152 as these pertain to
the testing and examination of cargo gear (paragraph (a)). Vessels holding a valid Certificate of Inspection from the U.S. Coast Guard (USCG) or public vessels are deemed to meet the requirements of paragraph (a). Paragraphs (c) and (d) of 1918.11 specify the competencies that persons and organizations making entries and issuing the certificates required by paragraph (a) of this section must have, both with regard to U.S. vessels not holding a valid USCG Certificate of Inspection and vessels under foreign registry.
These requirements of the final rule are essentially unchanged from the corresponding provisions of the proposal. However, by requiring that vessel cargo gear be certificated in accordance with ILO 152 rather than ILO 32, OSHA is effecting a change from the Agency's existing Longshoring Standard.
Since 1960, safety and health regulations designed to protect U.S. dockworkers (with particular regard to vessels' cargo handling gear) have relied upon the documentary proofs of tests and examinations mandated by ILO 32 (Ex. 1-34). In Article 9 of that Convention, units and articles comprising ships' cargo handling gear are specified and assigned an annual/quadrennial schedule of tests/examinations that must be attended and attested to by individuals judged to be "competent" by the national authorities of the vessel's registry. Although not a signatory to that Convention, the United States has conformed to this Convention via regulations promulgated by: (1) the U.S. Coast Guard, regarding inspected U.S. flag vessels; and (2) OSHA, regarding foreign flag vessels (existing 1918.12). The Coast Guard has promulgated cargo gear regulations that exceed those found in ILO 32, namely those codified at 46 CFR part 91, that promote safe and unencumbered operations for U.S. flag vessels trading at foreign ports. On foreign flag vessels trading at U.S. ports, however, OSHA has sole responsibility for regulating and enforcing rules that address the cargo gear U.S. longshore workers use.
Under ILO 32, proof load testing (6) was only required initially before gear was put into service. After that initial test, such gear received various degrees of visual scrutiny, supplemented occasionally by nondestructive testing, e.g., a hammer test. Components such as derricks, goosenecks, mast bands, derrick bands and any other difficult to disassemble fixed gear, were to be "thoroughly examined" every 4 years and "inspected" every 12 months. Other hoisting machinery, such as cranes, winches, blocks, shackles, and any other accessory gear, was to be "thoroughly examined" every 12 months.
ILO 152, adopted June 25, 1979, requires that proof load testing be conducted at least every 5 years, and applies to all ships' lifting appliances. Within Article 3 of ILO 152, the term "lifting appliance" means:
Lifting appliance covers all stationary or mobile cargo-handling appliances used on shore or on board ship for suspending, raising or lowering loads or moving from one position to another while suspended or supported (Ex. 1-5, p. 2).
Thus, because the final rule requires compliance with ILO 152 instead of ILO 32, it expands testing and certification requirements for cargo handling equipment on board vessels. Such testing and certification, which was formerly restricted to specific assemblies and components (i.e., derricks, cranes, winches, etc.) will now include all "lifting appliances" as defined by the newer ILO Convention. This includes forklifts and other powered equipment used to handle cargo that might be carried by a Ro-Ro vessel, and elevators found on Ro-Ro vessels used to move cargo (including vehicles) from one deck level to another, in addition to the vessel's cranes and derricks. Under final rule 1918.11, all of this equipment is required to be: tested and thoroughly examined initially before being put into use; retested and thoroughly examined every 5 years; and thoroughly examined every 12 months.
In 1993, OSHA received a letter from Sea-Land Service, Inc. requesting that OSHA interpret the current regulations to allow the lifting of two empty 40 foot ISO freight containers that are vertically coupled using semi-automatic twist locks (Ex. 1-161). OSHA's response allowed the practice under the existing regulations, provided that certain additional requirements were met (Ex. 1-160). However, the existing regulations, which reference Convention 32, did not require the certification of the "lifting appliance," i.e., the top container and the semi-automatic twist locks.
In the preamble to the proposed rule, the Agency discussed differences between Convention 32 and Convention 152, including the requirement in the latter convention to certify lifting appliances. OSHA stated that, under Convention 152, when a container was used to lift another container, the top container would fall within the definition of "lifting appliance":
In those situations where one container is used to lift another container, using twist locks, then the upper container and twist locks become, in effect, a lifting appliance and must be certified as such. Page 28602.
In response to this proposed interpretation of Article 3, paragraph (e) of ILO Convention 152, OSHA received comments only from the International Longshoremen's and Warehousemen's Union (ILWU) (Exs. 19, 6-19, and 78). Although these comments favored the proposed interpretation and requested the Agency to include it as a requirement in the regulatory text, they included no specific information regarding lifting containers vertically coupled. Furthermore, while Sea-Land Services, Inc. submitted a detailed six page comment (Ex. 1-6) addressing a number of the proposed changes to the Marine Terminals and Longshoring Standards, it did not address this issue. In addition, OSHA received a late, post-hearing submission from the International Longshoremen's Association (ILA) that indicated a serious problem with this type of lift, citing several incidents at U.S. ports where failures occurred (L-90a). While this letter cannot be the basis of rulemaking at this time since it is not part of the record, it has made OSHA aware of safety concerns that may need to be addressed by the Agency. The record contains a dearth of information regarding safety considerations associated with double container lifts, as well as feasibility information regarding certificating containers and twist locks as "lifting appliances". In light of this lack of information, OSHA has decided to reserve judgment on this issue, pending further study.
In the near future, OSHA will reopen the record on this narrow issue and publish a notice requesting specific information regarding whether or not OSHA should allow the practice of lifting vertically coupled containers, and, if so, under what circumstances. The notice will request information regarding the lifting of one container by another container using twist locks, including data on the following issues:
Have the bottoms of intermodal containers been designed and tested for the purposes of "lifting"?
Have the twist locks been designed and tested for "lifting"of containers?
What information do the manufacturers of containers and twist locks have regarding the use of their products as lifting appliances?
Do any international bodies currently certify containers and twist locks as "lifting appliances"?
Is there any scientific data that addresses maintenance testing and "life" of the components used for lifting purposes?
What precautions can be taken to assure that defective or damaged containers should not be used to hoist other containers?
To what extent are lifts of vertically coupled containers currently being conducted and by whom?
How many containers and twist locks would have to be certificated for use as lifting appliances?
What would it cost to certificate the upper containers and twist locks for use as lifting appliances?
In vessel sharing agreements, is it feasible for upper containers and twist locks to be used as lifting appliances to be certificated?
What are the productivity gains, if any, associated with the lifting of vertically coupled containers?
What information, including anecdotal information is available on incidents involving vertically coupled containers that have fallen and hurt or killed employees or caused "near-misses"?
Several commenters (Exs. NMSA et al., NO Tr. pp. 388-393, 638-644) asked that OSHA continue to recognize and allow vessel's cargo gear on vessels whose cargo gear registers are in accordance with ILO 32 but not ILO 152:
* * * Refusal by stevedores to work vessels of nations that have not ratified ILO 152 will result in loss of business for the stevedore and terminal operator and can possible [sic] damage U.S. and foreign trade agreements. Until such nations of the world have ratified ILO 152, those still a signatory to ILO 32 should be recognized and accepted (Ex. 8-20, p. 4).
During the three public hearings held for this rulemaking, OSHA questioned witnesses about the difficulty posed by provisions requiring vessel's cargo gear to comply with the pertinent parts of ILO 152 ( SEA Tr. pp. 276-278 and 333; NO Tr. pp. 388-394, 454-455, 638-642, and 712). Several commenters (NO Tr. pp. 638-642, 1391, and 1158) expressed concern that if OSHA requires vessel's cargo gear to meet ILO 152, vessels with cargo gear that does not comply will go to other countries to load and unload cargo that will then be brought into the United States by truck and rail, thereby having an adverse economic impact on the U.S. marine cargo handling industry. The two other countries that were of primary concern were Mexico and Canada. However, during the public hearings, it was pointed out by one witness that Mexico has ratified ILO 152 and Canada is expected to adopt the basics of ILO 152 in the near future (NO Tr. p. 627). (Also see the discussion in the section that follows, "International Aspects.")
OSHA recognizes that some vessels may need a longer phase-in period to comply with the ILO 152 cargo gear requirements. In addition, OSHA recognizes that the stevedore, who is the employer, does not own or have control of the vessels' cargo gear and thus must depend on the owner to accomplish the change before the stevedore can determine that the register is current and valid. Testimony by Mr. Mike Compton, Chair of the Safety Panel of the International Cargo Handling and Coordination Association (ICHCA), addressed the phase-in periods granted by the United Kingdom, for the ILO 152 cargo gear requirements. Mr. Compton stated:
* * * there were two lead-in periods given. For the change from a quadrennial to an annual thorough examination on derricks, there was one year given as a lead-in period.
The way in which this worked was that all of our member ports told their shipping company customers that this was going to happen in a year's time, and that in a year's time they would legally not be able to handle their derricks unless there was a thorough examination and record of it in the register within the last 12 months, and there was no problem with that. That ship owner had a year to see that was done.
With regard to the testing, which is now a new requirement of testing every five years, we gave a four-year lead-in time to that, which is more than enough time for a shipowner to ensure that the testing required was carried out.
Again, the member ports told their shipping company customers, who also heard about it in the course of their own trade associations, made appropriate requirements, arrangements, and there was no problem with that either (NO Tr. pp. 630-640).
OSHA finds Mr. Compton's recommendations persuasive and consistent with the goals of current International Trade Agreements.
Therefore, effective a year from the publication date of the final rule (1918.11(a)(1)), all lifting appliances and all loose gear are required to have had a thorough examination that is duly recorded in a cargo gear register in accordance with ILO 152. Effective four years from the publication date of the final rule (1918.11(a)(2)), all lifting appliances and all loose gear must have been tested (or retested) with the results duly recorded in a cargo gear register in accordance with ILO 152. At that time, vessels that do not have a cargo gear register that is properly filled out and up to date will be violating this regulation if the vessel's lifting appliances are used. However, in such cases, properly certified shore-based equipment may be used to load and unload the vessel.
A new paragraph, (a)(3), has been added to address these interim periods (up to one year for thorough examinations and up to four years for testing), vessels with cargo gear registers that are in accordance with ILO 32 will continue to be acceptable during these interim periods.
Several witnesses during the public hearings expressed concern that the cargo gear register forms required by ILO 152 were not readily available and that even if such forms were available, employers would have difficulty in reading and understanding them (SEA Tr. 277-278, NO Tr. pp. 651-655). In Appendix I of the proposed rule, OSHA provided a sample cargo gear register that came from the International Labor Organization's maritime office and conforms with ILO 152 requirements (See also Ex. 58). The sample register is in English and includes definitions and instructions on how to conduct the required inspections and/or tests and how to fill out the forms. Non-mandatory Appendix I, as proposed, is included in this final rule.
The International Cargo Gear Bureau, Inc. (Ex. 6-22), pointed out that although ILO 152 requires that proof load testing be done "at least every five years," proof testing is often done and is required by some countries to be done every four years or even more frequently. The same commenter went on to say that this discrepancy should be clarified because four-year proof load testing is required in current 1917.50(c) and current 1918.61(h). In addition, this commenter wrote:
If it is the intention of USDL/OSHA to adopt the five (5) year proof load testing cycle for shipboard cargo handling gear within the jurisdiction of USDL/OSHA, the justification for such relaxation of proof load testing requirements should be explained by USDL/OSHA considering the "lost workdays" statistics and statements on page 28595 of the June 2 Federal Register * * * (Ex. 6-22, p.4).
In the final rule, OSHA is not changing either the requirement at
current 1917.50(c), which mandates a quadrennial proof load testing requirement for shore based material handling devices, or the requirement at current 1918.61(h), which requires such testing for special stevedore gear. Instead, by requiring foreign vessels using ship's gear while working in the United States to comply with ILO 152, OSHA is providing greater protection to employees than is currently required, because compliance with ILO 152 requires inspection and testing of all lifting appliances, not just cranes and derricks, and requires retesting at least every five years. Thus, the final rule's vessel cargo gear certification requirements substantially increase employee protections.
One commenter wrote that OSHA should clarify in the rule what is meant by "vessel's cargo handling gear" because of the expanded requirements under ILO 152 (Ex. 6-22). OSHA modified the definition of "vessel's cargo handling gear" in the proposal to "include all stationary or mobile cargo handling appliances * * *. " and the final rule includes the same definition. OSHA has included a cross-reference to that definition in 1918.11.
It should be noted that 29 CFR part 1919, provides procedures and standards governing accreditation of persons by OSHA for the purpose of certificating vessel's cargo gear and shore-based material handling devices, and the manner in which such certification shall be performed. Categories of competency have been established based on the equipment that they have been accredited to inspect. For example, a "full function vessel" accreditation would mean that the person or agency has been recognized as competent to inspect and certify all of a vessel's cargo handling equipment. Similarly, a "loose gear and wire rope" accreditation requires the showing of a different inspection competency. The inspection requirements of this subpart involve both of these categories.
With regard to these inspection requirements, several commenters wrote that paragraph 1918.11(c) should be clarified by adding the term "full function vessels" to identify the type of accreditation that persons competent to make entries in the registers and issue certificates must have. (Exs. NMSA et al., 6-16a). OSHA agrees with these commenters and has made the change in the final rule in both paragraphs 1918.11(c) and (d). The words "or loose gear and wire rope testing" have also been added to identify those accredited agencies that can issue certificates for loose gear and wire rope that are part of the cargo gear register.
One commenter (Ex. 6-5) noted that OSHA's "proposed rules are significantly more stringent than the existing Coast Guard regulations." The U.S. Coast Guard has rules covering marine terminals that handle bulk flammable liquids and gases. However, all employees engaged in longshoring operations, whether on U.S. flag or foreign flag vessels, are covered by OSHA's part 1918 regulations. These regulations cover forklifts and other powered industrial equipment. During this rulemaking, OSHA coordinated with, and received support from the Commandant of the U.S. Coast Guard (Ex. 6-44). OSHA believes that its final rule will provide longshoring and marine terminal employees with effective protection from the hazards of marine cargo handling.
The preamble section titled "International Aspects," which was in the proposal, is repeated in this preamble to the final rule to explain why OSHA is retaining the provision (at 1918.11(a)) that allows foreign flag vessels to comply with ILO gear provisions instead of requiring them to comply with U.S. standards. This issue was brought out in written comments and during the hearings (Ex. 6-22, NO Tr. pp. 454-455, pp. 650-651).
As with all Federal agencies whose regulations influence international trade, OSHA has developed this final rule in light of international considerations. Through both law and policy, the United States has decided that standards-related activities should not, if possible, be a barrier to trade. The Trade Agreements Act of 1979 (19 U.S.C. 2501 et seq.) addresses technical barriers to trade regarding federal regulation. Section 2532 of this Act states the following:
Section 2532. Federal standards-related activities.
No Federal Agency may engage in any standards related activity that creates unnecessary obstacles to the foreign commerce of the United States, * * *.
* * * Undertake to cooperate in securing the highest practicable degree of uniformity in formalities, documentary requirements and procedures in all matters in which such uniformity will facilitate and improve international maritime traffic and keep to a minimum any alteration's informalities, documentary requirements and procedures necessary to meet special requirements of a domestic nature. (Article 3)
Mindful of these international aspects, OSHA sought to formulate an acceptable approach to the vessel's cargo handling gear issue, and to other issues. The Agency requested the Department of State (Ex. 1-7) to present OSHA's approach to all foreign nations whose vessels may enter U.S. ports. This exercise was conducted in the hope of identifying acceptance. Reports back from responding foreign nations (Ex. 1-6) indicated overwhelming support for the Agency's approach to these issues. Most of the nations responding, although stipulating that they had not yet ratified the more recent ILO Convention, suggested that their national laws recently ratified were at least as strong, and sometimes more stringent, than ILO 152. Thus, OSHA is confident that the cargo gear certification requirements of the final rule are consistent with those of ILO Convention 152 and national laws and practices of most other countries.
Subpart C--Gangways and Other Means of Access
In final rule subpart C, OSHA has organized requirements by subject matter and enhanced the uniformity of shoreside and shipboard requirements.
Subpart C is titled "Means of Access" in the existing and proposed Longshoring Standard. It contains requirements that employers must meet before allowing employees to board a vessel. Several commenters suggested that the title be changed to "Gangways and Other Means of Access" to better describe the contents of this subpart (Ex. 6-16a, NMSA et al.). These same commenters also recommended that this subpart be rearranged so that each section, such as Gangways, Jacob's ladders, etc., contains only the specific requirements that apply to the subject matter of that section. OSHA agrees with the recommended changes to the title and grouping of subjects in this subpart and has generally rearranged it accordingly.
The provisions of final 1918.21 "General requirements," are taken from the existing and proposed Longshoring Standards, with editorial changes made for clarity. In final 1918.21(a), which requires that the means of access to the vessel not be located under suspended
loads to the extent possible, the words "or others" have been added after the word "employees". OSHA believes that suspended loads should not pass over a vessel's means of access, regardless of whose employees would be exposed to the hazards of overhead loads. While OSHA recognizes that the stevedoring employer may not have control over all employees (or users of the gangway), employers do have control over the movement of suspended loads and thus have the means to comply with this provision.
Final rule 1918.21(b) stipulates that substantial steps and a minimum of one handrail be provided between the bulwark and deck when the upper end of the means of access rests or is flush with the top of the bulwark. This provision is unchanged from the corresponding provision of the proposal.
To eliminate the ambiguity of the current rule, which required that means of access be "adequately" illuminated, final paragraph 1918.21(c) references 1918.92 which requires specific illumination levels. In addition, the final rule has a footnote that gives the candlepower requirement found in 1918.92, to make it readily available in this section.
The title of 1918.22, currently "Gangways and other means of access," is being changed to "Gangways" in the final rule. The word "gangways," as defined in 1918.2, includes accommodation ladders, brows, etc. This section also joins two similar sections of OSHA's current Longshoring rules (1918.11--titled "Gangways" and 1918.21--titled "Gangways and other means of access"). The final rule's 1918.22, therefore, eliminates the need for employers and employees to look in different subparts for information on gangways.
Following the format of the current Longshoring Standard, gangway dimensions and characteristics are set out in paragraphs (a) and (b). Using a combination of specification language with performance-based alternatives, the final rule provides the flexibility needed in adapting to vessels built according to international guidelines. The final rule allows rails to be made of materials other than those specified in the current rule, if the material is at least equivalent in strength to those listed. Paragraphs 1918.22(a) and (b) are essentially unchanged from the proposal.
Paragraph (c), which requires that the gangway be trimmed at all times, carries over language from the current rule, plus the term "trimmed," a word that is also found in the Joint Maritime Safety Code of the New York Shipping Association/International Longshoremen's Association (NYSA/ILA Safety Code) (Ex. 1-2). This paragraph is designed to ensure, despite changing conditions caused by tides, cargo operations, etc., that the gangway and its components are fully useable at all times.
Final rule paragraphs (d), (f), (h), and (j) are essentially identical to the corresponding provisions of the current and proposed rules. They address fixed flat-tread accommodation ladders, handrails on walkways, and prohibitions against obstructions (paragraphs (d), (f), and (h), respectively), while paragraph (j) states that vessels inspected and certified by the USCG are deemed to meet the requirements of this section. Paragraphs (e), (g), and (i) have been editorially modified for clarity to address problems of interpretation associated with these provisions of the existing standard. Proposed paragraph (e) of the final rule has been revised to require a safety net or suitable protection when the gangway overhangs the water in a way that poses a danger of employees falling between the ship and the dock. The purpose of the net is to prevent an employee from falling to a lower level. This is consistent with ILO's "Safety and Health in Dock Work" (Ex. 1-138). Final rule paragraph (g) requires gangways to be kept clear of supporting bridles and other obstructions but allows that, in situations where gangway supporting bridles cannot be moved because of the design, the employer is to mark the hazard to alert employees using such a gangway. Paragraph 1918.21(i) has been added to the final rule to address the hazard associated with slippery handrails and walking surfaces on gangways. Several commenters suggested the use of more performance-oriented language (Exs. 6-31, 8-20, NMSA et al.) than the proposal. OSHA agrees and has included the language suggested by the commenters in the final rule, which has been renumbered as 1918.22(i).
Final rule 1918.23, titled "Jacob's ladders," carries over language from the current rule. Paragraphs (a) and (b) of this section contain criteria for rope ladders, also known as "Jacob's ladders". In keeping with the previously mentioned public comments regarding rearranging this subpart, two paragraphs, proposed as 1918.23(e) and (f), that address Jacob's ladders have been moved to become final rule 1918.23(c) and (d). Final paragraph (c) addresses the potential for the lower rungs of a Jacob's ladder to be crushed between the barge and another structure by requiring that a spacer or equivalent means be used to prevent this from occurring. Final rule paragraph 1918.23(d) requires that a net or equivalent protection be provided if there is a space between the vessel, barge, or other structure when using a Jacob's ladder; this provision is designed to prevent an employee from falling into the water or from being crushed between the barge and other structure. Such rope ladders are often provided by the vessel when more traditional means of access cannot be used. Nevertheless, the employer (who is often a contractor rendering a service to the vessel) must comply with the provisions of this section before employees are permitted to use Jacob's ladders.
Final rule 1918.24 is a new section titled "Fixed and portable ladders." This section was moved from proposed 1918.25 "Ladders," which included requirements for both fixed and portable ladders. For streamlining purposes, the final rule combines the requirements for portable ladders contained in the current Longshoring Standard with similar requirements contained in 1917.119 "Portable ladders."
Generally, final 1918.24 includes much of the current Longshoring Standard's language for ladders. Paragraph 1918.24(a) requires that a minimum of one ladder be provided for each gang working in a hatch and that an effective means of gaining a handhold be provided at or near the head of vertical fixed ladders. Paragraph (b) requires employers to identify ladders that are visibly unsafe and prohibit their use. Paragraph 1918.24(c) requires that portable straight ladders be sufficiently long to extend a minimum of 3 feet above the upper landing surface and be secured against slipping.
For fixed ladders, OSHA proposed to change the clearance required behind the ladder rungs from four inches (.11 m) to six inches (.16 m) on vessels built after December 5, 1981,(7) in order to be consistent with the recommendations of the ILO's Guide to Safety and Health in Dock Work (Ex. 1-129). In addition, OSHA's existing Longshoring Standard allows that where a fixed ladder has inadequate clearance, a suitable portable ladder could be used in its place, and the final rule continues to allow this practice. Two commenters addressed the issue of clearance. One commenter suggested that OSHA did not give adequate compliance time to vessel owners on this issue and stated that the
six-inch (.16 m) requirement should apply to vessels only after a phase-in period or should apply only to vessels contracted for after the effective date of the final regulations (Ex. 6-5). The New York Shipping Association (NYSA) commented that using a permanent ladder with a four-inch (.11 m) clearance would be safer than using portable ladders (Ex. 6-16a). Although OSHA agrees with the NYSA comments overall, the Agency believes that a six-inch (.16 m) clearance is important to employee safety and OSHA also seeks to encourage conformance with the international guidelines. To address these commenters' concerns, however, OSHA is providing for a phase-in period before the six inch (.16 m) clearance requirement becomes effective. OSHA believes that this phase-in period will provide adequate time for the international shipbuilding community to include this requirement in its shipbuilding design criteria. On those vessels built on or after four years after the date of the publication of the final rule, fixed ladders must have six inches (.16 m) of clearance or more, or another means of access must be used. In the interim period, four inches (.11 m) of clearance is acceptable.
Provisions have been added to the final rule at paragraph (g) that reference ANSI standards for manufactured portable ladders. New provisions for ladder maintenance and usage similar to those found in the current Marine Terminals Standard have been added to the final Longshoring Standard in paragraph (i).
Final paragraphs (c) and (e) of 1918.24 recognize that, as an alternative to securing the ladder, an employee(s) may hold a portable ladder in place while another employee is climbing. The final phrase reads "positively secured or held against shifting or slipping while in use" and is consistent with the PMA-ILWU Safety Code, Rule 1506 (Ex. 1-145).
In addition, to clarify final paragraph (e), where the employer can show that employees can safely use the cargo itself to climb in and out of the hold (often called "safe cargo steps"), a straight ladder is not necessary.
Paragraph (f) of the final rule sets out the requirements for rung strength, spacing, and positioning, and establishes the widths between side rails required for ladders of various heights.
As mentioned above, paragraph (g) establishes standards for manufactured portable ladders by cross-referencing the appropriate ANSI requirements for portable wood ladders, portable metal ladders, and portable reinforced plastic ladders.
In paragraph (h) of the final rule, minimum requirements are set forth for job-made portable ladders. These requirements address between-rung distances, strength requirements, and width between side rail requirements.
The requirements in final rule paragraph (i) cover maintenance and inspection requirements for portable ladders. They identify the kinds of defects that require employers to take ladders out of service, either by tagging the ladder or removing it from the vessel. In addition, paragraph (i)(2) states that ladders must be inspected for defects before each day's use and after any event that could damage the ladder.
Paragraph (j), which includes provisions addressing ladder usage, acknowledges that while some ladders may not have slip-resistant bases, they can be positively secured against shifting or slipping while in use (paragraph (j)(2)). The language of this paragraph allows "holding" as an alternative to "lashing" to be consistent with paragraphs (c) and (e) of this section. Other provisions of paragraph (j) prohibit the use of single-rail ladders, the use of ladders as guys, braces, or skids, or as platforms, runways, or scaffolds. Other safety procedures and prohibitions are also included in this paragraph.
Final 1918.25, which addresses bridge plates and ramps used to span the gap between the vessel and another vessel or the dock, combines the current language of the Longshoring Standard's provisions with the terms that apply to similar shoreside equipment (see 1917.124). In the proposal, OSHA would have required sideboards that are at least six inches (.16 m) high. OSHA also proposed to require the same six inch (.16 m) sideboards for dockboards and ramps in the Marine Terminals Standard, 1917.124(c)(5) and (d)(1). The six-inch height is the same as that for "bull rails" that were in place on the effective date of the Marine Terminals Standard (1917.112). Bull rails, frequently railroad ties, are placed around the edge of the dock of a marine terminal and are used to prevent equipment from falling into the water. Based on the height requirement for bull rails in the Marine Terminals Standard, OSHA believed that six inch sideboards would prevent vehicles and equipment from accidentally falling off the edge of a bridge plate or ramp.
Several commenters expressed reservations about the six-inch sideboard requirement on the grounds that it was too high or was unnecessary (Exs. 6-16a, 6-29a, 6-31a, 6-36, 80, SEA Tr. pp. 171-172, 242-243, 385-389, 422-423, NO Tr. pp. 158-160, 164, 384-386). These commenters felt that six-inch sideboards on dockboards would create a tripping hazard, would interfere with forklift operations, or would fail to provide additional safety benefit. Other commenters (Exs. 6-29a, 6-36) suggested OSHA use ANSI Standard MH14.1 as a guide; that ANSI standard recommends a sideboard height of two and three-quarters of an inch. Others stated their preference that performance language and grandfathering of existing ramps would be appropriate (NO Tr. pp. 386, 432).
John Faulk of NMSA, at the public hearings in New Orleans, stated that bridged distances rarely exceed several inches in the industry (NO Tr. p.158). In addition, he said that there are thousands of ramps and bridge plates in the industry that would not meet the 6-inch height requirement and would thus require retrofitting with sideboards and noted further that there are no accident data to justify such a modification. In its post hearing comment, NMSA estimated that there were 35,000 ramps and bridge plates that would require modification under the proposal (Ex.80). NMSA estimated that it would cost $36 million to retrofit each of these ramps and bridge plates with sideboards.
After a thorough review of the record, OSHA concludes that six inches is an appropriate height for "bull rails," but not for sideboards. As commenters noted, sideboards of that height could cause a tripping hazard and interfere with safe operations.
OSHA has reviewed the ANSI standard (MH14.1) and OSHA's proposed standard on Walking/Working Surfaces and Protective Equipment (Fall Protection Systems) (29 CFR 1910 subpart C) (55 FR 13360). In accordance with the ANSI standard and OSHA's proposal, when the space to be spanned is less than three feet (.91 m), no sideboard is necessary, because the space is not large enough to allow machinery such as a powered industrial truck to fall through. However, OSHA believes that sideboards, or some alternative, are necessary on dockboards and bridge plates spanning a gap greater than three feet. OSHA believes that three feet (.91 m) is a large enough opening to allow equipment to fall to a lower level, injuring the driver. In the final rule, OSHA has decided to use performance language similar to that in the proposed rule for Walking and Working Surfaces and Protective Equipment (Fall Protection Systems) (29 CFR 1910 subpart C) (55 FR 13360); thus, the final rule stipulates only that bridge and car plates be designed to
prevent vehicles from running off the edge (paragraph 1918.25(a)(4)) and that portable ramps be similarly designed (paragraph 1918.25(b)(5)). In addition, footnotes provide specification and compliance guidance on sideboard heights when the gap to be bridged is greater than 36 inches.
Paragraph (b) addresses portable ramps used afloat. Except for the requirement for sideboards, the final language remains the same as that proposed.
Final rule 1918.26, Access to barges and river towboats, was numbered 1918.23 in the proposal. This section has been treated separately in the final regulation because some barge operations, particularly those conducted in the Mississippi River system (see definition at 1918.2), are unique.
Final rule paragraph (a) sets out criteria for ramps used to gain vehicular access to or between barges. Of primary importance is that such ramps be of sufficient strength for the intended load. Although the railings required by 1918.25(b)(2) are not required on these vehicular ramps, as stated in paragraph (a), the ramps must be equipped with sideboards that will prevent vehicles from falling off the edge. Except for the railing requirement, ramps used for vehicle access to or between barges must meet all of the requirements of 1918.25.
Final rule paragraph 1918.26(b) remains the same as proposed; it addresses employee passage to and from certain floating craft. Under favorable conditions, it is sometimes possible to pass to and from such vessels without the aid of any additional means of access. In unfavorable conditions, however, this paragraph sets forth the provisions required for safe passage. These range from a straight ladder to a Jacob's ladder or other safe means of access. Of significance is the exception that recognizes the practical difficulties that may be encountered on the Mississippi River system in providing traditional access. Historically (Ex. 1-98), this exception is based on tidal and current conditions on the Mississippi system.
Final rule paragraph (c) addresses the situation where a barge or raft is being worked alongside a larger vessel. Unless other safe means of access is provided, paragraph (c) requires a maximum of two Jacob's ladders for any single barge or raft being worked. This is consistent with the requirement in 1918.24(a) that requires no more than two access ladders in a hatch. In final paragraph (c), the term "gang" is used to refer to a group of longshore workers assigned to a particular hold, deck, etc. on a ship to load or discharge cargo. The use of this term is consistent with its use elsewhere in this final rule.
Final rule paragraph (d) mandates that barges on which longshoring operations are taking place must be secured to the vessel, wharf, or dolphins. The purpose of this provision is to prevent workers from falling into the water while handling cargo.
Subpart D--Working Surfaces
Subpart D, Working Surfaces, addresses the hazards associated with slips, trips, and falls that are common causes of injuries in the marine cargo handling industry.
OSHA clearly understands that many hazards addressed by this and other subparts represent working environments and physical characteristics that are encountered much less frequently now than when the Longshoring Standards were last revised. This primarily is a result of the evolution of handling cargo in intermodal containers rather than as break bulk. However, OSHA believes those conventional break-bulk cargo handling methods, together with the more traditional vessel characteristics, such as a yard and stay cargo handling gear and hatches covered by hatch boards, are still encountered at U.S. ports. In the proposal, OSHA requested comment from the public on the issue of obsolete regulations, primarily those that addressed methods of cargo handling that are no longer used. OSHA also received testimony on this issue (SEA Tr. pp. 133-134).
It has been pointed out to OSHA, particularly at the West Coast public hearing, that ex-Soviet bloc vessels that were once not allowed to enter some United States ports, due to security reasons, are now allowed to enter. Some of these vessels have cargo handling gear and hatch coverings that had virtually disappeared from ports in the United States. In the final rule, OSHA is retaining many provisions that might otherwise have been considered obsolete because they still have application to these vessels. To illustrate, 1918.31(d) prohibits the placing of poorly fitting hatch covers and hatch beams that would constitute a work surface. As a practical matter, seeing vessels at U.S. ports fitted out with hatch beams is rare. However, such situations do still arise.
Section 1918.31, "Hatch coverings," (paragraphs (a), (b), (c), (d), and (e)) retains the same requirements as the current and proposed regulation, except that some editorial changes have been made for clarity.
Paragraph 1918.32, "Stowed cargo and temporary landing surfaces," addresses surfaces used temporarily to load cargo, fall hazards posed by the edges of hatch sections or by stowed cargo, and fall hazards posed by gangs working on different levels of the hatch (paragraphs (a), (b), and (c), respectively). Paragraph (a) specifies that temporary surfaces used to land a load be of sufficient size and strength to allow employees to work safely, that edges of hatch sections or of stowed cargo be guarded by a safety net or equivalently protective means, and that employees working in the same hatch but at different levels be protected from falling by safety nets. The requirements in this paragraph are essentially identical to those in the existing rule and have only been modified minimally for clarity.
Final rule paragraph 1918.32(b) has been revised to address changes that have occurred in technology and work practices since OSHA's original Longshoring Standard was adopted. This paragraph does not apply to employees working on top of intermodal containers, whether above or below deck, because such work is now covered by Section 1918.85(j), "Fall protection" (for a more detailed discussion of this issue, see the preamble to 1918.85(j), below). Instead, section 1918.32 applies when employees are working non-containerized cargo in the hold and are exposed to falls of more than eight feet (2.4 m); it requires that the edge of the working surface be guarded by a safety net or that other means of fall protection (such as guardrails or fall arrest systems) be used to prevent employee injury. This fall distance of 8 feet comes from the original Longshoring safety rules promulgated under the Longshoremen and Harborworker's Compensation Act (33 U.S.C. 901) in 1960 and is reflected in the existing rule. Rule 1016 of the Pacific Coast Marine Safety Code (PCMSC) (Ex. 1-145) is very similar to this paragraph, although the OSHA provision has been written to reflect a more performance-oriented approach. In addition, instead of specifying the precise fall distance, distance to the edge, and so forth that triggers fall protection in individual provisions, OSHA has defined the term "fall hazard" in the Definitions section (1918.2). A discussion of the definition of "fall hazard" can be found in subpart A.
It is essential that employees satisfy the intent of this provision and do not merely appear to comply with it. Many times, particularly when safety nets have been rigged, they have been allowed to become very slack, and have
even in some cases been secured only at their top ends. The improper rigging of safety nets compromises or even removes the protection provided to falling employees.
This paragraph has also been revised to distinguish between the purpose and use of vertical safety nets, which rise at right angles at the perimeter of a work surface to prevent employees from falling, and trapeze nets, which are designed to be placed horizontally below a raised work surface to prevent falling employees from striking the surface below.
OSHA proposed to require that the safety nets specified in this section meet the requirements of ANSI A10.11, "Personnel and Debris Nets." One commenter wrote:
Rigging and testing nets under ANSI regs in maritime conditions may not be possible such as providing outriggers for horizontal distance. This regulation was written for long-term construction projects where nets can be rigged, tested and left in place. (Ex 6-36).
Commenters also pointed out that ships often supply the safety nets and that requiring a foreign vessel to provide a net that meets ANSI specifications may be difficult. Other commenters also opposed including the reference to the ANSI standard (Exs. 6-16a, 6-29a, 6-36, 8-8, 8-20). After considering the international implications of this provision as proposed, OSHA agrees with these commenters and has deleted the reference to ANSI A10.11 in the final rule. In its place, OSHA has added performance language suggested by the National Maritime Safety Association--"Safety nets shall be maintained in good condition and be of adequate strength for the purpose intended" (Ex. 8-20).
The language in 1918.32(c), which requires that gangs working at different levels of the same hatch be protected by nets from falling themselves or from being crushed by falling cargo, is unchanged from the proposed provision. However, because this paragraph, like paragraph (b), requires the use of safety nets, OSHA has included identical performance language in this paragraph, i.e. that "Safety nets shall be maintained in good condition and be of adequate strength for the purpose intended."
Final 1918.33, titled "Deck loads," addresses the safe performance of work on or around deck loads; it has been carried over from the current rule and the proposal and is unchanged in the final rule. It requires that employees be prohibited from passing over or around deck loads except where safe passage exists (paragraph (a)). This requirement is designed to protect employees from falling or being crushed by falling cargo. Paragraph (b) of the final rule requires employees giving signals to crane operators to have safe passage if they walk over deck loads from rail to coaming; absent such safe passage, this provision prohibits these employees from walking over deck loads. In situations where it is necessary for the employees giving signals to stand or walk at the outboard or inboard edge of a deck load having less than 24 inches (.61 m) of bulwark, rail, coaming, or other protection, those employees must be provided with fall protection equivalent to that provided by a safe passageway, i.e. with a guardrail, personal fall protection system, or other equally effective means.
Some commenters (Ex. NMSA et al.) recommended that OSHA not include this section in the final rule because, in their opinion, it is redundant with provisions in 1918.32 and 1918.91. However, OSHA does not agree with these commenters, because 1918.32 addresses working below deck and section 1918.91 addresses housekeeping. Mr. Douglas Getchell, a member of the Pacific Coast Marine Safety Code Committee, International Longshoremen's and Warehousemen's Union, agrees with OSHA on this point; at the hearing, he testified that 1918.32 and 1918.91 only "peripherally apply" to conditions found when working deck loads. He stated that, since 1918.33 is more specific to the subject, it should not be deleted (NO Tr. pp.246-250).
Final rule 1918.34, "Other decks," includes requirements to protect longshore workers from being injured while working on other decks, e.g. skeleton decks, mechano decks. Paragraph (a) prohibits the working of cargo on any deck that was not designed to support a load of the weight being worked, and paragraph (b) requires that grated decks be properly placed, supported, maintained, and designed to support employees; grated decks that do not meet this requirement may not be used to work cargo. OSHA proposed to change the title of this section of the existing rule, which is "Skeleton decks," to "Other decks" and received support from commenters to make this change (Ex. 8-20, NMSA et al.). Accordingly, the final rule section is titled "Other decks."
Final rule 1918.35 and 1918.36 address hazards longshore workers face when conducting operations around open weather deck hatchways or when weather deck rails are removed to conduct cargo operations. Vessels calling at U.S. ports are of varied designs and capabilities. Some vessels have coamings, which are the vertical structures that surround the hatch opening on a ship, that are much higher than the section 1918.35's minimum acceptable range (36 to 42 inches (.91 to 1.07 meters)), while other vessels may have no hatch coamings but have flush decks or decks with a short sill. Decks of the latter two types pose substantial fall hazards to longshore workers. Sections 1918.35 and 1918.36 require that, when employees work around the perimeter of open hatchways that are not protected to a height of 24 inches (.61 m) on vessels with low or no hatch coamings, appropriate guarding, such as that provided by taut lines or barricades, must be provided to a height of 36 to 42 inches (.91 to 1.07 m) on all but the working side of the hatch (1918.35). Weather deck rails must be kept in place except when cargo is being worked, and they must be replaced after cargo operations are finished (1918.36). These provisions were widely supported (Ex. NMSA et al.), and these sections are unchanged from the proposal.
Final 1918.37, "Barges," addresses the fall hazards associated with working on the decks of lighters and barges. Final paragraph (a) prohibits the use of marginal (less than three feet (.91 m) wide) deck space along the sides of covered lighters or barges on all such vessels having coamings more than five feet (1.5 m) high but allows an employer to provide, instead, a taut handline or a serviceable grab rail. Two commenters (Exs. 6-18, 6-42) asked OSHA to allow existing barges to be "grandfathered" from compliance with 1918.37(a) on the grounds that "Many barges currently in service do not meet the three-foot standard [the width for walkways]. Rather the walkways on these barges are only 18-24 inches in width" (Ex. 6-18). OSHA is not providing such an exemption in the final rule because this requirement has been in place since the 1960's, and it allows considerable compliance flexibility, e.g. the use of a taut handline or a serviceable grab rail in lieu of a 3-foot wide walkway. This requirement is essentially identical to that proposed.
Final rule paragraph (b) prohibits working or walking on barge decks that have not been visually inspected to ensure that they are structurally sound and have been maintained properly. The visual check of such decks must be done before loading operations begin. If during discharge operations an unsafe surface is discovered, work must be stopped until protective measures are taken (such as bridging the unsafe surface with steel plate or barricading a deck section deemed unsafe). This provision is essentially unchanged from
the corresponding provision in the proposal.
Proposed 1918.38, titled "Log rafts," which was a new section in the proposal, has been moved to subpart H, "Handling Cargo" in the final rule. It has been combined with 1918.88, "Log operations," so that all requirements dealing with handling logs from the water are in the same section, as suggested by several commenters (Exs. 78, PMA et al., SEA Tr. p. 397, pp. 410-411). A discussion of log rafts is found below in subpart H.
Subpart E--Opening and Closing Hatches
Final subpart E, titled "Opening and Closing Hatches," remains very similar to the corresponding subpart of OSHA's current Longshoring Standard. This subpart addresses the hazards presented to employees by the opening and closing of covers designed to protect cargo from the elements. The principal hazards include employees falling into the hold while removing or replacing hatch covers and hatch beams and employees being struck by covers and beams as these articles are moved. The proposed language received widespread support from commenters (Exs. NMSA et al., PMA et al) and are thus essentially unchanged in the final rule. OSHA is retaining sections in subpart E that address methods of covering hatches, such as with hatch boards, even though these methods have largely been replaced by more modern or automated methods or equipment. In both written comments and testimony, participants stated that vessels that require these older methods of covering hatches are still worked in U.S. ports and thus that OSHA should retain these requirements in the final rule (Ex. 8-20; SEA Tr. pp. 134-135).
Final rule 1918.41, "Coaming clearances," addresses the fall hazards associated with such clearances. Paragraph (a) addresses weather deck clearances and requires that when a smooth-sided deck load more than 5 feet high is stowed within three feet (.91 m) of the hatch coaming, and the coaming height is less than 24 inches (.61 m), a taut handline must be provided along the side of the deckload so that employees are able safely to remove or replace hatch beams and covers. This provision is essentially identical both to the corresponding provision of the existing standard and the proposed rule; it is also similar to requirements in the NYSA/ILA Joint Maritime Safety Code--part C/Rule 38 (Ex. 1-2) and the PCMSC--Rule 1007 (Ex. 1-145).
Final rule paragraph (b) is titled "Intermediate decks." Paragraph (b)(1) requires that a three-foot (.91 m) clear work area be provided for intermediate deck hatchways before employees remove or replace these hatch beams or covers when a fall hazard exists. Paragraph (b)(1) also states an exception where the 3-foot clearance is not required when no fall hazard exists; for example, such a clearance is not necessary on the covered portion of a partially open hatch or when the lower deck has been filled to hatch beam height with cargo that itself provides a safe working surface. Paragraph (b)(2) specifically recognizes that a fitted grating can be considered part of the actual deck or working space if it is in good condition and is properly spaced within the 3-foot area. In addition, OSHA has dropped the reference to "banana" gratings found in the Agency's current longshoring regulation because it is an obsolete term.
Final rule paragraph (c) addresses the hazard of falling where, because of wing-space structures or spare parts storage, coaming clearance is reduced below the required 3-foot clearance. It requires employers to provide grab rails or taut hand lines in such cases.
Final paragraph (d) states that this section (1918.41) does not apply where the opening and closing of hatches is accomplished by mechanical means that eliminate the need for employees to place or remove individual sections manually. However, whenever a three-foot clearance does not exist, means shall be taken to adequately secure cargo that is stowed within three feet (.91 m) of the edge of the hatch to prevent cargo from falling into the hold.
Final rule 1918.42, "Hatch beam and pontoon bridles," is carried over in its entirety from OSHA's current longshore rules, although some editorial changes have been made for clarity. Provisions in this section address the hazards of handling hatch beams and pontoons, such as falling into the hatch or being struck by these removable items. Equivalent rules can be found in section two of the PCMSC (Ex. 1-145) and parts C and O of the NYSA/ILA Joint Maritime Safety Code (Ex. 1-2).
Paragraph (a) of final rule 1918.42 requires that hatch beams and pontoon bridles be long enough to fit their attachment points easily, be strong enough to lift the load safely, and be properly maintained. Paragraph (b) requires that bridles for lifting hatch beams be equipped with attachment devices, such as toggles, that cannot become accidentally dislodged. It also prohibits the use of hooks other than those specified in paragraph (b) unless such hooks are hooked into the standing part of the bridle.
Paragraph (c) requires that bridles used for lifting pontoons and plugs have the number of legs required by the design of the pontoon or plug and that all legs be used. Any legs that are not used must be hung on the hook or ring to prevent them from swinging free.
Paragraph (d) requires that at least two legs be fitted with a fiber rope lanyard that is a minimum of 8 feet long, is in good condition, and has a bridle end that is made of chain or wire. The purpose of all of the requirements in 1918.42 is to ensure proper manual guidance of the lift.
Final 1918.43, "Handling hatch beams and covers," has also generally been carried over from OSHA's existing longshore rules, with some editorial changes made for clarity. Provisions in this section address the hazards associated with the handling and stowing of hatch boards, hatch beams, and pontoons; examples include employees or hatch covers falling into the hatch or employees being struck by improperly stowed items. Similar requirements are found in Section X of the PCMSC (Ex. 1-145), part O of the NYSA/ILA code (Ex. 1-2), and ILO Convention 152.
Paragraph (a)(1) requires that hatch covers or pontoons stowed on the weather deck adjacent to hatches must be positioned in stable piles that are a minimum of 3 feet from hatch coamings. An exception to this requirement is permitted in the situation where hatch covers or pontoons are spread one high between the coaming and bulwark on the working side of the hatch and there is no space between them (providing that the coaming is at least 24 inches high). Paragraph (a)(1) also prohibits hatch covers and pontoons from being stacked higher than the coaming or bulwark on the working side of the hatch.
Paragraph (a)(2) prohibits hatch boards or other covers that have been removed from the hatch beams in a section of the hatch that has been partially opened for the purpose of being worked, cleaned, or used for other operations from being stowed on those covers or boards in the hatch that have been left in place. This provision applies to seagoing vessels only.
Final rule paragraph (b) stipulates that hatch beams be laid on their sides or be stood on their edges and be lashed together except in cases where the hatch beams have flanges: (1) Whose width is at least 50 percent of the height of the web and (2) that rest flat on the deck when the hatch beam is stood upright.
Paragraph (c) addresses the potential dislodgement of strongbacks, hatch covers, or pontoons. It requires that, when such items are placed on the weather deck, they be placed so as not to obstruct clear fore-
and-aft and coaming-to-bulwark passage and be lashed or otherwise secured. In addition, this paragraph requires that dunnage or other suitable material be positioned under each tier of strongbacks or hatch covers to prevent them from slipping; this provision applies only when such items are stowed on steel decks.
In paragraph (d), the final rule requires employers to take precautions designed to protect workers from falling hatch covers and strongbacks. It stipulates that hatch covers and strongbacks unshipped in an intermediate deck be placed a minimum of 3 feet from the coaming or be removed to another deck altogether, except that strongbacks may be placed a minimum of 6 inches from the coaming if they have been secured so that they cannot tip over or be dragged into the lower compartment.
To prevent accidental displacement, paragraph (e) requires that any hatch beam or pontoon left next to an open hatch section being worked must be locked or otherwise secured. In addition, unless portable, manually handled hatch covers (including those that have been bound together to form a single larger cover) have been securely lashed, they must be removed from sections being worked and adjacent sections.
Paragraph (f)(1) of the final rule mandates that the roller hatch beam at the edge of the open section of the hatch be lashed or pinned back to prevent it from being dislodged and falling through the open hatch. Similarly, paragraph (f)(2) requires that rolling, sectional, or telescoping hatch covers on barges that open in the fore and aft direction be secured against movement when they are in the open position, and paragraph (g) requires similar precautions for hinged or folding hatch covers when in the upright position (except in cases where the design of the system precludes unintentional movement).
Paragraph (h) prohibits the opening or closing of hatches while workers are in the square of the hatch below. This prohibition is necessary to prevent hatch beams or covers from dislodging and falling on the employees working on the lower level.
In the final rule, paragraph (i), which was a newly proposed provision, addresses the hazards of unsecured materials. Lashing wires, rods, and twist locks are often left on top of a hatch cover after the cargo has been discharged. These items can fall from the covers when the covers are being moved and injure employees, and this provision thus requires that all such materials be removed from the hatch cover or be secured before the hatch cover is removed. The words "or secured to prevent them from falling off the cover" has been added to the proposed language to recognize that, in addition to removing such materials, employers can achieve the required protection by securing these items to the hatch cover.
Final rule 1918.43(j) requires that hatch covers or night tents be used to cover hatches, and that any covering that only partially covers a hatch, such as alternating hatch covers or dunnage strips, may not be covered by a tarpaulin. The reason for this prohibition is that employees could fall through the tarpaulin and partial covering. However, paragraph (i) allows an exception: tarpaulins may be used to cover an open or only partially covered hatch if they are used to reduce dust during bulk cargo loading and if positive means, such as barricades with placards, have been taken to ensure that employees do not walk on the tarpaulin. Verbal warnings, instructions or placards alone will not satisfy this provision. The exception has been added to the final rule, although the rest of this provision is similar to a paragraph in OSHA's existing Longshore Standard.
Subpart F--Vessel's Cargo Handling Gear
Subpart F applies to all gear and equipment used in cargo handling that is the property of the vessel. Examples of such equipment include cranes, derricks, specialized bridles, winches, wire rope, and shackles. This subpart addresses the hazards associated with that gear, such as using faulty gear, overloading or improperly rigging cargo gear, or the improper operation of cargo gear, which can result in serious injury or death (Ex. 1-103.).
Mr. Ronald Signorino, the Director of Health, Safety and Regulatory Affairs for Universal Maritime Services, described the diminishing amount of break-bulk cargo being handled with conventional cargo gear since the advent of containerized cargo (Ex. 6-35). He stated that traditional cargo handling expertise had become a "lost art" and therefore recommended that language be included in the final rule addressing the proper rigging and operating of conventional cargo gear. He reasoned that, since some cargo is still handled by conventional methods, including recommendations addressing the correct spotting of cargo handling gear would provide employees unfamiliar with such gear with guidance on its safe operation. Mr. Signorino noted that improperly spotted conventional cargo handling gear can fail, which causes the gear and cargo to fall and can lead to serious injury. OSHA agrees and has added this information in non-mandatory Appendix III.
Section 1918.51 contains general requirements that apply to all cargo handling equipment that is permanently attached to a vessel. Final rule paragraph (a) remains essentially the same as proposed and stipulates that the safe working load of the gear, whether marked on the lifting appliance itself or specified in the required certificates/gear
register, may not be exceeded. It also specifies that any limitations imposed by the authority responsible for certificating the gear be followed.
Final rule paragraph (b) requires that each component of ship's cargo handling gear be inspected by the employer (or his or her designee) before every use and at appropriate intervals during use. This paragraph clarifies the corresponding requirement in OSHA's existing Longshore Standard by making clear that the employer has an obligation to do a visual inspection. One commenter, the International Cargo Gear Bureau, Inc. (ICGB), pointed out that the proposed paragraph would have limited the designees to "representatives of the employer," which was not OSHA's intent (Ex. 6-22). OSHA has revised the language of the final rule to say, "designated person."
Referring to the same paragraph, 1918.51(b), another commenter, the National Maritime Safety Association (NMSA), suggested that OSHA add the words "and when necessary" before the words "at intervals during use" (Ex. NMSA et al.). However, OSHA disagrees with this comment because the Agency believes that, during use, events could occur or conditions arise that would suggest to a prudent operator that an unscheduled visual inspection may be necessary. OSHA agrees with NMSA that the inspection intervals required by the final rule should be qualified but believes that the word "appropriate" captures the desired meaning better than the suggested word "necessary." The final rule reflects this determination.
In final paragraph (c), employers are required to determine the load ratings of all wire ropes and rope slings presented in the vessel's wire rope certificate and to observe these ratings when using this gear.
Final rule paragraph (d) provides criteria for splicing wire rope and for wire rope configuration characteristics and is essentially unchanged from the corresponding paragraph of the proposal. It addresses eye splices, requirements for wire rope used in lifting, natural and synthetic fiber rope slings, and chains. Additionally, this paragraph brings the Longshore regulations for wire rope into conformity with the same criteria as those in OSHA's rules for shoreside marine cargo handling equipment (1917.42) and thus reflects OSHA's effort to maintain consistency between parts 1917 and 1918 and to enhance employee safety.
Final rule 1918.52, 1918.53, and 1918.54 all address the subject of rigging and operating vessel's cargo handling gear. The requirements of these sections are essentially the same as those parallel provisions found in the existing and proposed rules, although some language modifications have been made to enhance clarity.
Final rule 1918.52, "Specific requirements," contains provisions addressing preventers, stoppers, falls, heel blocks, coaming rollers, and cargo hooks. Paragraphs (a)(1) and (a)(2) mandate that preventers have sufficient strength to achieve their purpose and be properly secured to the head of the boom (unless, for cast fittings, the strength of the fitting exceeds the strength of all lines secured to it (paragraph (a)(1)) and that wire rope clips and knots not be used to form eyes in or join preventer guys (paragraph (a)(2)).
Paragraphs (b)(1), (2), and (3) contain requirements for the condition, configuration, strength, and securing of chain topping lift stoppers. These requirements are essentially unchanged from the parallel provisions of the proposal. OSHA solicited comment in the proposal regarding whether or not to delete 1918.52(b) as obsolete. This paragraph addresses the use of chain topping lift stoppers and clamp type stoppers that are used manually to lower and raise the boom. This method of topping the boom is a potentially dangerous operation and has been largely replaced by the use of electric topping lift winches that do not require the use of stoppers. As noted earlier, however, vessels continue to call on U.S. ports equipped with this older equipment. Such vessels will need to be addressed by 1918.52(b), as noted in the comments (Ex. NMSA et al.). OSHA agrees and has accordingly left this requirement in the final rule.
Paragraph (c) specifies requirements for the securing, conditions of use, formation of, and winding of the fall on the drum. Again, no comments were received on these provisions, which are essentially unchanged from those proposed. These provisions are designed to ensure that winch falls do not slip, break, or release while cargo is being lifted.
Heel blocks are covered by the requirements of paragraph (d). Paragraph (d)(1) requires that a preventer or equally effective means be used to hold the block in the event of heel block attachment failure. In paragraph (d