Opinion ID: 74019
Heading Depth: 3
Heading Rank: 3

Heading: Annual Fit-Test and Retraining Requirements

Text: 35 We turn next to the Industry's challenge to the provisions in the Standard requiring annual fit-testing and retraining of respirator-using employees. See 29 C.F.R. 1910.134(f)(2), (k)(5). With respect to the annual fit-testing requirement, a respirator cannot function properly unless it is properly fitted to the wearer's face. Accordingly, the Standard requires in paragraph (f) that an employee be fit tested with a respirator of the same make, model, style, and size as is proposed to be used, before he actually begins to use one in the course of employment. The Industry does not object to this initial-test requirement,but does object to a requirement in (f)(2) that wearers be tested at least annually following the initial test. 36 With respect to the annual retraining requirement, the Standard requires in paragraph (k) that the employer . . . provide effective training to employees who are required to use respirators. Training should address the necessity of respirators, fit, usage, maintenance, limitations and capabilities, emergency situations, malfunction, inspection, and storage. See 29 C.F.R. 1910.134(k)(1)(i)-(vii). The Industry does not object to the initial training requirement, but does object to a requirement in (k)(5) that such training be re-administered to employees annually. Like the challenge to the Change Schedule Condition, these challenges are exclusively factual and therefore this Court's review is on the deferential substantial evidence standard. 29 U.S.C. 655(f). 37 The Industry points out that some evidence indicates that annual fit-testing is unnecessary because only a tiny percentage of employees experience facial changes that necessitate changes in respirator fit, and those who do can easily be detected by physical appearance. 9 OSHA noted that [c]ommenters generally agreed that some additional fit testing beyond an initial test was necessary, but opinions varied widely on the appropriate intervals at which such tests should be performed. 63 Fed. Reg. at 1223. [A] large number of rulemaking participants supported OSHA's proposal to require the testing of respirator fit on an annual basis. Id. at 1224. We conclude that the annual fit-testing requirement is supported by substantial evidence in the record considered as a whole. 38 We find that the annual retraining requirement is also supported by substantial evidence. OSHA's compliance experience [had] demonstrated that inadequate respirator training is a common problem, and is often associated with respirator program deficiencies that could lead to employee exposures to workplace contaminants. 63 Fed. Reg. at 1261-62. OSHA stated that annual retraining is necessary so that employees know about the respiratory protection program and . . . cooperate and actively participate in the program, so that employees will be confident when using respirators, and to eliminate complacency on the part of both the employer and employees. Id. at 1261. OSHA noted that commenters requesting less frequent or no retraining submitted no data indicating that less frequent training would be sufficient for respirator users to retain information critical to the successful use of respirators on an individual basis. Id. Additionally, OSHA explained that annual retraining is the normwith respect to a number of other, substance-specific OSHA standards that involve respirators. Id. 39 While retraining at some other periodic interval might also be defensible, OSHA was entitled to require annual retraining as a precautionary measure to assure that no employee will suffer material impairment of health or functional capacity even if such employee has regular exposure to the hazard. 29 U.S.C. 655(b)(5). Moreover, OSHA could conclude based on the record that annual retraining is reasonably necessary to ensure that employee knowledge about respirators does not fall into obsolescence. Given that conscientiousness among employees is such a critical element in the formula for success of a respirator program, OSHA could reasonably find that the Industry's suggested alternative of screening employees to determinewho needed retesting would not serve its goal of preventing misuse and ensur[ing] a reasonable amount of recall and performance on the part of the respirator user. 63 Fed. Reg. at 1261. We see no basis for disturbing OSHA's factual conclusions and policy decisions in this regard.