Opinion ID: 680968
Heading Depth: 1
Heading Rank: 3

Heading: FEDERAL RAIL SAFETY ACT AND Sec. 4(b)(1) OF THE OSH ACT

Text: 14 The AAR contends that the standard violates the FRSA, which in the AAR's view vests exclusive authority in the FRA to regulate railroad bridge worker safety. The FRA replies that the FRSA does not vest exclusive jurisdiction in the FRA to regulate all aspects of bridge worker safety, and consequently, under Sec. 4(b)(1) of the OSH Act, OSHA retains residual authority to regulate. Section 4(b)(1) states: 15 Nothing in this [Act] shall apply to working conditions of employees with respect to which other Federal agencies ... exercise statutory authority to prescribe or enforce standards or regulations affecting occupational safety or health. 16 29 U.S.C. Sec. 653(b)(1). 17 We have previously held that under Sec. 4(b)(1), an exercise of statutory authority to prescribe or enforce standards means more than merely holding authority to prescribe standards, or merely initiating rulemaking pursuant to that authority. Congress did not contemplate that there would be no regulation whatever while the FRA is still considering what road to take, nor does a single step down that road carry preemption further than that step itself. Baltimore & O.R. Co. v. OSHRC, 548 F.2d 1052, 1055 (D.C.Cir.1976) (per curiam). See also Donovan v. Red Star Marine Serv., Inc., 739 F.2d 774, 778 (2d Cir.1984) ( 'exercise,' as used in section 4(b)(1) of the Act, requires an actual, concrete assertion of regulatory authority as opposed to mere possession of authority), cert. denied, 470 U.S. 1003, 105 S.Ct. 1355, 84 L.Ed.2d 377 (1985); Southern Pac. Transp. Co. v. Usery, 539 F.2d 386, 389 (5th Cir.1976) (FRSA and OSH Act decree[ ] the existence of overlapping authority to regulate railroad safety, with displacement of OSHA coverage by the FRA dependent on unilateral action by the FRA to exercise its authority), cert. denied, 434 U.S. 874, 98 S.Ct. 221, 54 L.Ed.2d 154 (1977). 18 The AAR nonetheless contends that 1988 and 1992 amendments to the FRSA vest exclusive jurisdiction in the FRA to regulate railroad bridge worker safety. The FRSA, as amended, provides that: 19 The Secretary shall ... issue rules, regulations, orders and standards for the safety of maintenance-of-way employees, on railroad bridges. At a minimum, the Secretary shall provide standards for bridge safety equipment, including nets, walkways, handrails, and safety lines, and requirements for the use of boats when work is performed on bridges located over bodies of water. 20 45 U.S.C. Sec. 431(n) (emphasis added). 21 On its face, the statute neither explicitly ousts OSHA of jurisdiction over railroad bridge worker safety, nor does it explicitly vest exclusive authority in the FRA. It does, however, unambiguously require the Secretary to issue some safety regulations--at a minimum providing for certain safety equipment and the use of boats. The FRA offers the most plausible reading of the statute, under which it can meet its statutory mandate by issuing a bridge worker safety rule covering these minimum requirements. The final bridge worker safety rule in fact does meet these minimum requirements, and also sets standards for scaffolding and personal protective equipment including head protection, foot protection, and eye and face protection. 22 We do not find the statute ambiguous on its face, but even if we did, the legislative history confirms the FRA's reading. The AAR relies heavily on a statement by Rep. Dingell, chairman of the House Energy and Commerce Committee, in a 1991 hearing, as evidence that the FRSA vests exclusive authority in the FRA: [I]f Congress told FRA to do this, what possible justification could there be for FRA to decide that existing OSHA regulations would suffice and so authorize FRA to disregard the clear instructions of the committee? Railroad Safety Programs: Hearings Before the Subcomm. on Transp. and Hazardous Materials of the House Comm. on Energy and Commerce, 102d Cong., 1st Sess. 69-72 (Apr. 11, 1991). Whatever insight we may glean from a single statement by a single Member of Congress, the statement relied upon by the AAR does not manifest congressional intent to vest exclusive jurisdiction in the FRA, or to require the FRA to issue a comprehensive bridge worker safety rule. More plausibly, Rep. Dingell simply chastised the FRA for failing to issue any rule, even one that met the minimum requirements; his statement is consistent with the FRA's view that it has discretion to defer to some OSHA standards, as long as it issues a rule meeting the FRSA's minimum requirements. 23 The AAR further argues that the FRA's discretion to adopt a partial rule was eliminated by 1992 amendments deleting language providing for the FRA to issue such regulations as may be necessary. Petitioners' Brief at 26. Again, however, the legislative history does not support the AAR's reading. The House Committee Report states that the amendment was prompted by the FRA's failure to take any action toward promulgating a rule, in violation of the statutory directive. H.R.REP. NO. 102-205, 102d Cong., 1st Sess. 6, reprinted in 1992 U.S.Code Cong. & Admin.News 866 (1993). The Committee Report explains that as may be necessary was deleted to clarify [Congress'] original intent, id. at 11, 1992 U.S.Code Cong. & Admin.News at 872, that the FRA had discretion only to determine the extent of ... regulations but no discretion to determine whether a rule-making was needed, id. at 9, 1992 U.S.Code Cong. & Admin.News at 870. The FRA had interpreted as may be necessary to permit the agency to decide whether any ... regulations at all were 'necessary....'  Id. (emphasis added). 24 Thus even if the statute were ambiguous on its face, the legislative history supports the FRA's interpretation. The FRA's interpretation of the FRSA is therefore reasonable, and is entitled to deference under Chevron U.S.A. Inc. v. Natural Resources Defense Council, Inc., 467 U.S. 837, 104 S.Ct. 2778, 81 L.Ed.2d 694 (1984). We conclude that the FRSA does not vest exclusive jurisdiction in the FRA to regulate all aspects of railroad bridge worker safety.