• Publication Date:
  • Publication Type:
  • Fed Register #:
  • Standard Number:
  • Title:
    Injury and Illness Prevention Program
[Federal Register: June 22, 2010 (Volume 75, Number 119)][Proposed Rules]               [Page 35360-35362]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]



Occupational Safety and Health Administration

29 CFR Part 1910

Injury and Illness Prevention Program

AGENCY: Occupational Safety and Health Administration (OSHA), Labor.

ACTION: Notice of additional stakeholder meetings.


SUMMARY: OSHA invites interested parties to participate in two 
stakeholder meetings on Injury and Illness Prevention Programs, in 
addition to those meetings announced on May 4, 2010. OSHA recently 
conducted two stakeholder meetings in East Brunswick, NJ, on June 3, 
2010, and in Dallas, TX, on June 10, 2010. OSHA has closed registration 
on a third meeting in Washington, DC, to be held on June 29, 2010. More 
stakeholders expressed interest in participating in the Washington, DC 
meeting than could be accommodated. Therefore, OSHA is issuing this 
notice to announce an additional meeting in Washington, DC, as well as 
a meeting in Sacramento, CA. OSHA plans to use the information gathered 
at these meetings in developing an Injury and Illness Prevention 
Program proposed rule. The discussions will be informal and will 
provide the Agency with the necessary information to develop a rule 
that will help employers reduce workplace injuries and illnesses 
through a systematic process that proactively addresses workplace 
safety and health hazards.

DATES: Dates and locations for the stakeholder meetings are:
     July 20, 2010, 8:30 a.m. to 4:30 p.m., in Washington, DC.
     August 3, 2010, 8:30 a.m. to 4:30 p.m., in Sacramento, CA.
The deadlines for confirmed registration at each meeting are July 6, 
2010 and July 20, 2010 respectively.


I. Registration

    Submit your notice of intent to participate in one of the scheduled 
meetings by one of the following methods:
     Electronic. Register at https://www2.ergweb.com/projects
/conferences/osha/register-osha-I2P2.htm (follow the instructions online).
     Facsimile. Fax your request to: (781) 674-2906, and label 
it "Attention: OSHA Injury and Illness Prevention Program Stakeholder 
Meeting Registration."
     Regular mail, express delivery, hand (courier) delivery, 
and messenger service.
Send your request to: Eastern Research Group, Inc., 110 Hartwell 
Avenue, Lexington, MA 02421; Attention: OSHA Injury and Illness 
Prevention Program Stakeholder Meeting Registration.

II. Meetings

    Specific information on the location of each meeting can be found 
on the Injury and Illness Prevention Program Web site at

FOR FURTHER INFORMATION CONTACT: Information regarding this notice is 
available from the following sources:
     Press inquiries. Contact Jennifer Ashley, Director, OSHA 
Office of Communications, Room N-3647, U.S. Department of Labor, 200 
Constitution Avenue, NW., Washington, DC 20210; telephone: (202) 693-
     General and technical information. Contact Michael 
Seymour, OSHA Directorate of Standards and Guidance, Room N-3718, U.S. 
Department of Labor, 200 Constitution Avenue, NW., Washington, DC 
20210, telephone: (202) 693-1950.
     Copies of this Federal Register notice. Electronic copies 
are available at http://www.regulations.gov. This Federal Register 
notice, as well as news releases and other relevant information, also 
are available on the OSHA Web page at http://www.osha.gov.


I. Background

    Over the past 30 years, the occupational safety and health 
community has used various names to describe systematic approaches to 
reducing injuries and illnesses in the workplace. OSHA has voluntary 
Safety and Health Management Program guidelines, consensus and 
international standards use the term "Safety and Health Management 
Systems," and OSHA's State plan States use terms such as "Injury and 
Illness Prevention Programs" and "Accident Prevention Programs." In 
this notice, OSHA uses the term "Injury and Illness Prevention 
Programs." Regardless of the title, the common goal of these 
approaches is to help employers reduce workplace injuries and illnesses 
through a systematic process that proactively addresses workplace 
safety and health hazards.

OSHA's History With Safety and Health Programs

    The Occupational Safety and Health Act (29 U.S.C. 651 et seq.) (the 
Act) in Section 17, paragraph (j), provides the Occupational Safety and 
Health Review Commission (OSHRC) the authority to assess civil 
penalties giving due consideration to the good faith of the employer. 
Based on this paragraph of the Act, OSHA developed a policy of reducing 
penalties for employers who have violated OSHA standards but who have 
demonstrated a good faith effort to provide a safe and healthy 
workplace to their employees. The Agency has long recognized the 
implementation of a safety and health program as a way of demonstrating 
good faith. Similarly, in its first decision, the OSHRC held that good 
faith compliance efforts are gauged primarily by the presence of 
effective safety and health programs (Nacirema Operating Co., 1 O.S.H. 
Cas. (BNA) 1001 (Rev. Comm'n 1972)).
    Over the years, OSHA established a number of initiatives to 
encourage employers to develop and implement employee safety and health 
programs. OSHA's Small Business Consultation Program, which offers 
small businesses with exemplary safety and health programs an 
opportunity for recognition under their Safety and Health Achievement 
Recognition Program (SHARP) and the Agency's Voluntary Protection 
Programs (VPP) are two examples of such initiatives. The Agency 
established the VPP to recognize companies in the private sector with 
outstanding records in the area of employee safety and health. It 
became apparent that many of these worksites, which had higher levels 
of compliance, fewer serious hazards, and injury and illness rates 
markedly below industry averages, were relying on safety and health 
programs to produce these results.
    Based on the growing support for safety and health programs, OSHA 
issued the Safety and Health Program Management Guidelines in 1989 (54 
FR 3908). These guidelines reflect the best management practices of 
successful companies and encourage employers to institute and maintain 
a program which provides systematic policies, procedures, and practices 
that are adequate to recognize and protect their employees from 
occupational safety and health hazards. The guidelines identify four 
major elements of an effective program: management commitment and 
employee involvement; worksite analysis; hazard prevention and 
controls; and safety and health training.

OSHA's Previous Rulemaking Effort

    In October of 1995, OSHA held the first series of stakeholder 
meetings to discuss preliminary ideas for a Safety and Health Program 
rule and the significant issues raised by such a rule. Many small 
businesses and organizations representing small businesses attended the 
stakeholder meetings. Staff members from the Office of Advocacy of the 
Small Business Administration (SBA) were also present at the 
stakeholder meetings. In all, OSHA interacted with hundreds of 
stakeholders, including employers, employees, employee representatives, 
trade associations, State and local government personnel, safety and 
health professionals, Advisory Committees, and other interested 
    In 1998, OSHA developed a draft proposed rule that required 
employers in general industry and maritime workplaces to establish 
safety and health programs. The program in the draft proposed rule had 
five core elements, including: Management leadership and employee 
participation; hazard identification and assessment; hazard prevention 
and control; information and training; and evaluation of the program's 
effectiveness. In developing the draft proposed rule, OSHA worked 
extensively with stakeholders from labor, industry, safety and health 
organizations, State governments, trade associations, insurance 
companies, and small businesses.
    On October 20, 1998, OSHA convened a Small Business Regulatory 
Enforcement Fairness Act (SBREFA) Panel for the draft Safety and Health 
Program proposed rule. The Panel provided small entity representatives 
(SERs) with initial drafts of the rule, a summary of the rule, the 
Initial Regulatory Flexibility Analysis, a summary of the benefits and 
costs of the rule as it affected firms in the small entity 
representative's industry, OSHA's draft enforcement policy for the 
rule, and a list of issues of interest to panel members.
    The SBREFA Panel held teleconferences and received written comments 
from the SERs. The comments, and the Panel's responses to them, formed 
the principal basis for the Panel's report. The Panel's report provided 
background information on the draft proposed rule and the types of 
small entities that would be subject to the proposed rule, described 
the Panel's efforts to obtain the advice and recommendations of 
representatives of those small entities, summarized the comments 
received from those representatives, and presented the findings and 
recommendations of the Panel.
    A proposed Safety and Health Program rule was never published, and 
the rulemaking effort was removed from the Regulatory Agenda on August 
15, 2002. However, the effort in the 1990s showed the interest of OSHA, 
the States, employers, employees, OSHA's advisory committees, and 
others in a systematic process that proactively addresses workplace 
safety and health hazards. It demonstrated that OSHA was not alone in 
believing that these processes work to save lives and to prevent 
injuries and illnesses in the workplace.

Safety and Health Management System Consensus Standards

    Recently, consensus standards have been developed that address 
safety and health management systems. The American Industrial Hygiene 
Association published a voluntary consensus standard, ANSI/AIHA Z10--
2005 Occupational Safety and Health Management Systems, based on the 
"Plan-Do-Check-Act" cycle. The Z10 standard places an emphasis on 
continual improvement and systematically eliminating the underlying 
root cause of hazards. In addition, the Occupational Health and Safety 
Assessment Series (OHSAS) Project Group, which is an international 
association of government agencies, private industries, and consulting 
organizations, developed OHSAS 18001--2007 Occupational Health and 
Safety Management Systems in response to customer demand for a 
recognized occupational health and safety management system standard 
against which their management systems could be assessed and certified. 
The OHSAS 18001 is published by the British Standards Institute.

II. Stakeholder Meetings

    OSHA conducted stakeholder meetings in East Brunswick, NJ, on June 
3, 2010, and in Dallas, TX, on June 10, 2010, announced in the Federal 
Register on May 4, 2010, at 75 FR 23637) . A third meeting will be held 
in Washington, DC, on June 29, 2010. Due to high demand for 
participation in the first three meetings, and to provide an 
opportunity for those unable to attend one of the prior meetings, OSHA 
has decided to conduct additional stakeholder meetings in Washington, 
DC, and Sacramento, CA.
    The stakeholder meetings will provide OSHA with current information 
and views from a wide range of interests. The meetings will be 
conducted as a group discussion. To facilitate as much group interaction
 as possible, formal presentations will not be permitted.
 OSHA believes the stakeholder meeting discussion 
should center on major issues such as:
     Possible regulatory approaches
    Scope and application of a rule
    --Covered industries
    --Covered employers (size, high/low injury rates)
    --Covered hazards
    --Relationship to existing OSHA requirements
    Organization of a rule
    --Regulatory text
    --Mandatory or voluntary appendices
    --Other standards incorporated by reference
     The role of consensus standards
     Economic impacts
     Any additional topics as time permits
    In addition, OSHA is interested in receiving feedback on the 
following specific questions:
     In light of the ANSI Z10 standard, the OHSAS 18001 
standard, and OSHA's 1989 guidelines, what are the advantages and 
disadvantages of addressing through rulemaking a systematic process 
that proactively addresses workplace safety and health hazards?
     Based on OSHA's experience, the Agency believes that an 
Injury and Illness Prevention Program rule would include the following 
    1. Management duties (including items such as establishing a 
policy, setting goals, planning and allocating resources, and assigning 
and communicating roles and responsibilities);
    2. Employee participation (including items such as involving 
employees in establishing, maintaining and evaluating the program, 
employee access to safety and health information, and employee role in 
incident investigations);
    3. Hazard identification and assessment (including items such as 
what hazards must be identified, information gathering, workplace 
inspections, incident investigations, hazards associated with changes 
in the workplace, emergency hazards, hazard assessment and 
prioritization, and hazard identification tools);
    4. Hazard prevention and control (including items such as what 
hazards must be controlled, hazard control priorities, and the 
effectiveness of the controls);
    5. Education and training (including items such as content of 
training, relationship to other OSHA training requirements, and 
periodic training); and
    6. Program evaluation and improvement (including items such as 
monitoring performance, correcting program deficiencies, and improving 
program performance).
    Are these the appropriate elements? Which elements are essential 
for an effective approach? Should additional elements be included?
     How can OSHA ensure that small business employers are able 
to implement and maintain an effective Injury and Illness Prevention 
     Should an OSHA Injury and Illness Prevention Program rule 
apply to every business or should it be limited in some way based on an 
employer's size, industry, incident rates, and/or hazard indices?
     To what extent should OSHA rely on existing consensus 
standards in developing a rule?
     How can OSHA use State experience with injury and illness 
prevention in developing a rule?
     What mechanisms have been found to be effective for 
enabling employees to participate in safety and health in the 
     Given the variety of names used to describe processes to 
reduce injuries and illnesses in the workplace, what is the most 
appropriate name for OSHA to describe this topic?

III. Public Participation

    Approximately 50 participants will be accommodated in each meeting, 
and eight hours will be allotted for each meeting. Members of the 
general public may observe, but not participate in, the meetings on a 
first-come, first-served basis as space permits. OSHA staff will be 
present to take part in the discussions. Logistics for the meetings are 
being managed by Eastern Research Group (ERG), which will provide a 
facilitator and compile notes summarizing the discussion; these notes 
will not identify individual speakers. ERG also will make an audio 
recording of each session to ensure that the summary notes are 
accurate; these recordings will not be transcribed. The summary notes 
will be available on OSHA's Web page at http://www.osha.gov.
    Specific information on the location of each meeting can be found 
on the Injury and Illness Prevention Program Web site at 
https:// www2.ergweb.com/projects/conferences/osha/register-osha-I2P2.htm.
    To participate in one of the stakeholder meetings, or be a 
nonparticipating observer, you may submit a notice of intent 
electronically, by facsimile, or by hard copy. To encourage as wide a 
range of viewpoints as possible, OSHA will confirm participants as 
necessary to ensure a fair representation of interests and to 
facilitate gathering diverse viewpoints. To receive a confirmation of 
your participation 1 week before the meeting, register by the date 
listed in the DATES section of this notice. However, registration will 
remain open until the meetings are full. Additional nonparticipating 
observers that do not register for the meeting will be accommodated as 
space permits. See the ADDRESSES section of this notice for the 
registration Web site, facsimile number, and address. To register 
electronically, follow the instructions provided on the Web site. To 
register by mail or facsimile, please indicate the following:
     Name, address, phone, fax, and e-mail
     Meeting location you would like to attend
     Organization for which you work
     Organization you represent (if different)
     Stakeholder category: government, industry, standards-
developing organization, research or testing agency, union, trade 
association, insurance, consultant, or other (if other, please specify)
     Industry sector (if applicable)
    Electronic copies of this Federal Register notice, as well as news 
releases and other relevant documents, are available on the OSHA Web 
page at: http://www.osha.gov.

IV. Authority and Signature

    This document was prepared under the direction of David Michaels, 
PhD, MPH, Assistant Secretary of Labor for Occupational Safety and 
Health, U.S. Department of Labor, pursuant to sections 4, 6, and 8 of 
the Occupational Safety and Health Act of 1970 (29 U.S.C. 653, 655, 
657), 29 CFR part 1911, and Secretary's Order 5-2007 (72 FR 31160).

    Signed at Washington, DC, on June 17, 2010.
David Michaels,
Assistant Secretary of Labor for Occupational Safety and Health.
[FR Doc. 2010-15041 Filed 6-21-10; 8:45 am]