MEMORANDUM FOR: REGIONAL ADMINISTRATORS THROUGH: THOMAS GALASSI Acting Deputy Assistant Secretary FROM: PATRICK J. KAPUST Acting Directr, Directrate f Enfrcement Prgrams DATE: Octber 19, 2017 SUBJECT: Interim Enfrcement Guidance fr the Respirable Crystalline Silica in Cnstructin Standard, 29 CFR 1926.1153 This memrandum prvides interim enfrcement guidance t Cmpliance Safety and Health Officers (CSHOs) fr enfrcing 29 CFR 1926.1153, Respirable Crystalline Silica. The Respirable Crystalline Silica in Cnstructin standard establishes a new 8-hur time weighted average (TWA) permissible expsure limit (PEL) f 50 µg/m 3, and an actin level (AL) f 25 µg/m 3. As yu knw, OSHA has been enfrcing the Respirable Crystalline Silica in Cnstructin standard since September 23, 2017. Hwever, fr the first 30 days, OSHA ffered cmpliance assistance in lieu f enfrcement fr thse emplyers wh were making gd faith effrts t cmply with the new cnstructin standard. Effective Octber 23, 2017, OSHA will fully enfrce all apprpriate prvisins f the Silica in Cnstructin standard. This memrandum will serve as interim enfrcement guidance while the standard's cmpanin cmpliance directive is prceeding thrugh the review prcess. It will expire when the cmpliance directive becmes effective and available t the field. This memrandum highlights sme f the requirements f 29 CFR 1926.1153, but des nt prvide guidance n all f the standard's prvisins. The attachments prvide inspectin and citatin guidance; as well as flw charts t assist with evaluating emplyers' cntrl methds. Please cnsult the Office f Health Enfrcement when yu need further infrmatin r guidance n 29 CFR 1926.1153, Respirable Crystalline Silica. Further, due t the new requirements in 29 CFR 1926.1153, Respirable Crystalline Silica, OSHA has revked CPL 03-00-007, Natinal Emphasis Prgram - Crystalline Silica. Hwever, the inspectin prcedures fr bth General Industry and Maritime will remain unchanged until the cmpliance date fr these industries begins n June 23, 2018. Overview The final rule n Occupatinal Expsure t Respirable Crystalline Silica, published n March 25, 2016, established a new PEL f 50 µg/m 3 fr all cvered industries. It als required ther emplyee prtectins, such as perfrming expsure assessments, using expsure cntrl methds, using respiratry prtectin, ffering medical surveillance, develping hazard cmmunicatin infrmatin, and keeping silica-related recrds. The rule included tw standards: ne fr Cnstructin - 29 CFR 1926.1153; and ne fr General Industry and Maritime - 29 CFR 1910.1053, bth f which became effective n June 23, 2016.
Under the cnstructin standard, all bligatins were t cmmence n June 23, 2017, except fr requirements fr sample analysis in 29 CFR 1926.1153(d)(2)(v), which cmmence n June 23, 2018. The cnstructin standard has a number f unique features, which warranted develpment f additinal guidance materials. As yu are aware, OSHA delayed enfrcing this standard until September 23, 2017, t prvide training t cmpliance fficers and cnduct utreach t the regulated cmmunity. Additinally, fr the first 30 days, OSHA ffered cmpliance assistance in lieu f enfrcement fr thse emplyers wh were making gd faith effrts t cmply. Outreach t emplyers and trainings fr CSHOs and ther field staff has already been cnducted, and additinal educatinal materials are currently being develped. As a reminder, the September 23, 2017, enfrcement date applied nly t cnstructin, the requirements fr General Industry/Maritime are set t cmmence n June 23, 2018. If yu have any questins, please cntact Audrey Prfitt r Sven Rundman in the Office f Health Enfrcement at 202-693-2190. Attachment A: Enfrcement Guidance General Infrmatin Attachments 29 CFR 1926.1153, Respirable Crystalline Silica applies t all ccupatinal expsures t respirable crystalline silica in cnstructin wrk, except where emplyee expsure will remain belw 25 micrgrams per cubic meter f air (25 µg/m 3 ) as an 8-hur TWA under any freseeable cnditins. The exemptin is based n ttal respirable crystalline silica expsures frm all surces and must take int accunt all cnditins that may add r cntribute t the emplyee's verall expsure levels. 29 CFR 1926.1153, Respirable Crystalline Silica establishes an 8-hur TWA PEL f 50 µg/m 3 and an AL f 25 µg/m 3. The standard als cntains a unique, flexible ptin fr emplyers whse emplyees are engaged in the cnstructin tasks listed in Table 1 at 29 CFR 1926.1153(c)(1). If the emplyer fully and prperly implements the engineering cntrls, wrk practices, and respiratry prtectin listed in Table 1, it is nt required t cnduct expsure assessments r therwise cmply with a PEL fr emplyees engaged in thse tasks. The emplyer must cmply with paragraph (d) (the PEL, expsure assessment, and methds f cmpliance requirements) fr emplyees wh are engaged in tasks nt listed n Table 1 r where it has nt fully and prperly implemented the engineering cntrls, wrk practices, and respiratry prtectin listed in Table 1 fr all emplyees engaged in listed tasks. Inspectin Guidance - Specified Expsure Cntrl Methds [paragraph (c)] and Alternative Expsure Cntrl Methds [paragraph (d)] General Infrmatin
CSHOs shuld be prepared t cllect persnal breathing zne samples n the first day f the inspectin. When sampling is warranted, CSHOs must perfrm air mnitring in accrdance with the OSHA Technical Manual (OTM), Sectin II, Chapter 1, and OSHA sampling methd ID-142. CSHOs may cntact the SLTC Labratry thrugh the reginal ffice if they need guidance n develping a sampling strategy fr unusual wrksite cnditins. CSHOs must review the emplyer's written silica Expsure Cntrl Plan (ECP) and ther relevant prgrams (e.g., respiratry prtectin prgram, hazard cmmunicatin prgram, etc.) as part f the investigatin. If the emplyer has cnducted an expsure assessment, CSHOs shuld als review the assessment t determine what levels might be expected befre entering the wrk area. As nted abve, emplyers are nt required t assess the expsures f emplyees engaged in Table 1 tasks if the emplyer has fully and prperly implemented the engineering cntrls, wrk practices, and respiratry prtectin listed in Table 1 fr the emplyees engaged in thse tasks. CSHOs shuld interview affected emplyees, including the cmpetent persn, as part f the verall assessment f the emplyer's implementatin f its ECP. Fr Emplyers Fllwing Table 1 [paragraph (c)] Where the cnstructin emplyer is fully and prperly implementing the engineering cntrls, wrk practices, and respiratry prtectins specified in Table 1 fr each emplyee engaged in listed tasks, there is n requirement fr the CSHO t cllect persnal air samples fr thse tasks. Fully and prperly implementing the cntrls specified in Table 1 includes fllwing the requirements f paragraph (c)(2) relating t means f exhaust, water flw rates, and enclsed cabs. Where the cnstructin emplyer: (1) has emplyees perfrming a task r using equipment that is nt listed in Table 1; r (2) has nt fully and prperly implemented the engineering cntrls, wrk practices, and respiratry prtectin listed in Table 1 fr all emplyees engaged in Table 1 tasks, CSHOs must cllect persnal air samples t measure the 8-hur TWA fr the silica peratins likely t exceed the PEL. Fr Tasks Nt Listed in Table 1 r Where the Emplyer Has Nt Fully and Prperly Implemented the Engineering Cntrls, Wrk Practices, and Respiratry Prtectin Described in Table 1 fr All Emplyees Engaged in Listed Tasks [paragraph (d)] These cnstructin emplyers must cmply with paragraph (d) f the standard, including the PEL, expsure assessment, and methds f cmpliance requirements. CSHOs must review the emplyer's air mnitring recrds, r ther data the emplyer used t assess expsures. See Expsure Assessment ptins belw.
CSHOs must cllect persnal samples t measure the 8-hur TWA fr the silica peratins likely t exceed the PEL. Expsure Assessment Optins Under 29 CFR 1926.1153(d)(2) Emplyers must assess the expsure f each emplyee wh is r may be ptentially expsed t respirable crystalline silica at r abve the AL using either the perfrmance ptin r the scheduled mnitring ptin. Perfrmance Optin Prvides sme flexibility; the burden is n the emplyer t demnstrate that the data fully cmplies with the requirements. Allws emplyers t assess the 8-hur TWA expsure fr each emplyee n the basis f any cmbinatin f air mnitring data r bjective data sufficient t accurately characterize emplyee expsures t respirable crystalline silica. Data must reflect wrker expsures n each shift, each classificatin, and in each wrk area. Objective data means infrmatin - such as air mnitring data frm industry-wide surveys, r calculatins based n the cmpsitin f a substance - demnstrating emplyee expsure t respirable crystalline silica assciated with a particular prduct r material, r a specific prcess, task, r activity. T qualify as bjective, the data must reflect wrkplace cnditins clsely resembling, r with a higher expsure ptential, than the prcesses, types f material, cntrl methds, wrk practices, and envirnmental cnditins present in the emplyer's current peratins. Emplyers may use histrical mnitring data as bjective data if it meets these requirements. Emplyers must cmply with remaining assessment prvisins where applicable (e.g., emplyee ntificatin f results, bservatin f mnitring). Nte: The requirements fr methds f sample analysis in paragraph (d)(2)(v) are the nly exceptin t the September 23, 2017, cmpliance date. These requirements begin n June 23, 2018. Emplyers may characterize emplyee expsure within a particular range (e.g., emplyee expsure is between the AL and the PEL). Scheduled Mnitring Optin Requires bth initial and peridic mnitring. Emplyers must perfrm initial mnitring as sn as wrk begins t determine expsure levels and where t implement cntrl measures.
Emplyers must cnduct peridic mnitring at specified intervals based n mst recent mnitring results. Mnitring must assess the 8-hur TWA expsure fr each emplyee n the basis f ne r mre persnal breathing zne air samples that reflect the expsures n each shift, each jb classificatin, and wrk area. Where several emplyees perfrm the same tasks n the same shift and in the same wrk area, the emplyer may sample a representative grup f emplyees t meet this requirement. Representative sampling must be f the emplyee(s) wh are expected t have the highest expsure t respirable crystalline silica. Discntinuing the air mnitring requirements is based n mnitring results. See 29 CFR 1926.1153(d)(2)(iii)(B) & (E). Methds f Cmpliance [paragraph (d)(3)] Requires emplyers t use engineering and wrk practice cntrls t reduce and maintain emplyee expsures t respirable crystalline silica t r belw the PEL, unless the emplyer can demnstrate that such cntrls are nt feasible. Where cntrls are nt sufficient t reduce emplyee expsure t r belw the PEL, the emplyer must: Use cntrls t reduce emplyee expsure t the lwest feasible level and supplement them with the use f respiratry prtectin. Nte: The respirable crystalline silica standards d nt prhibit emplyers frm rtating emplyees t different jbs t achieve cmpliance with the PEL. Other Silica Cnstructin Standard Prvisins Respiratry Prtectin [paragraph (e)] Fr tasks nt listed in Table 1 r where the emplyer has nt fully and prperly implemented the Table 1 cntrls, respiratry prtectin is required where expsures exceed the PEL. Fully and prperly implementing the engineering cntrls, wrk practices, and respiratry prtectin listed in Table 1 fr an emplyee engaged in a listed task includes ensuring that emplyees are using respiratry prtectin as specified in Table 1. If Table 1 requires respiratry prtectin when the anticipated task duratin exceeds fur hurs, emplyees engaged in the task must wear the respiratr during the entire perid f time they are perfrming the task, nt just the perid f time that exceeds fur hurs. Fr the purpse f determining task duratin, the duratin begins when the emplyee first puts the tl r equipment int peratin, and cntinues until the tl/equipment is n lnger in use. Fr tasks cnducted n an intermittent basis during a shift separated by extended intervals, d nt include the time interval between Table 1 tasks in the task duratin.
Where the standard requires the use f respiratry prtectin, emplyers must institute a respiratry prtectin prgram in accrdance with 29 CFR 1910.134. Husekeeping Practices [paragraph (f)] The paragraph prhibits dry sweeping and dry brushing where such activities culd cntribute t emplyee expsures t respirable crystalline silica, unless wet sweeping, HEPA-filtered vacuuming, r ther methds that minimize the likelihd f expsure are nt feasible (i.e., the ther cleaning methds wuld nt be effective, wuld cause damage, r wuld create a hazard in the wrkplace). The emplyer bears the burden f shwing that the alternative methds are nt feasible. Using sweeping cmpunds (e.g., nn-grit, il- r waxed-based) is an acceptable dust suppressin husekeeping methd. The use f cmpressed air fr cleaning is allwed where the cmpressed air is used in cnjunctin with a ventilatin system that effectively captures the dust clud created by the cmpressed air, r where n alternative methd is feasible. The emplyer's expsure cntrl plan must include the descriptin f the husekeeping measures. Written Expsure Cntrl Plan (Cmpetent persn) [paragraph (g)] Emplyers must establish and implement a written expsure cntrl plan (ECP) that cntains certain specified elements. The emplyer must designate a cmpetent persn t make frequent and regular inspectins f jb sites, materials, and equipment t implement the written ECP. The cmpetent persn must: Be capable f identifying existing and freseeable respirable crystalline silica hazards in the wrkplace; Have authrizatin t take prmpt crrective measures t eliminate r minimize identified hazards; and Have the knwledge and ability necessary t fulfill his r her respnsibilities. While the standard des nt require emplyers t list the name f the cmpetent persn in the written ECP (because it culd change daily), cnstructin emplyees must be able t identify the designated cmpetent persn. Medical Surveillance [paragraph (h)] Emplyers must make medical examinatins available t emplyees wh will be required t wear a respiratr fr 30 r mre days a year accrding t 29 CFR 1926.1153, Respirable Crystalline Silica. The 30-day trigger applies per emplyer (expsures with previus emplyers d nt cunt tward the 30-day ttal).
Any partial day f respiratr use (even if fr nly ne hur r less) is cnsidered ne day f respiratr use fr the purpses f medical surveillance requirements. The emplyer must make the initial (baseline) medical examinatin available within 30 days after initial assignment (unless the emplyee has received a medical examinatin in accrdance with the standard within the past three years). The medical pinin prvided t the emplyer must cntain nly the date f the exam, a statement frm the physician r ther licensed health care prfessinal (PLHCP) that the exam met the requirements f the standard, and any limitatins n the emplyee's use f respiratrs. If the emplyee has prvided the PLHCP with written authrizatin, then the written medical pinin fr the emplyer must als cntain the fllwing: (1) any recmmended limitatins n the emplyee's cntinued expsure t silica; and (2) any PLHCP recmmendatin that the emplyee shuld be referred t a specialist. Cmmunicatin f Hazards [paragraph (i)] Required fr all emplyees wh are r culd freseeably be expsed t respirable crystalline silica at r abve the AL f 25 µg/m 3 as an 8-hur TWA. Requires emplyers t include respirable crystalline silica in their hazard cmmunicatin prgram; ensure that emplyees have access t labels n cntainers f crystalline silica and related safety data sheets; and train their emplyees as specified in the Hazard Cmmunicatin Standard (HCS), 29 CFR 1910.1200, and paragraph (i)(2) f 29 CFR 1926.1153, Respirable Crystalline Silica. 29 CFR 1910.1200 (HCS) applies and CSHOs shuld cite emplyers fr hazard cmmunicatin deficiencies where emplyees are expsed r ptentially expsed t respirable crystalline silica at levels belw the AL. Citatin Guidance Tasks Listed in Table 1 Where the emplyer has fully and prperly implemented the engineering cntrls, wrk practices, and respiratry prtectins specified in Table 1, the CSHO will nt cite the emplyer fr any PEL r expsure assessment vilatin. Where the emplyer has nt fully and prperly implemented the engineering cntrls, wrk practices, and respiratry prtectins specified in Table 1 and the emplyer has nt cnducted an expsure assessment under 29 CFR 1926.1153(d), the CSHO will cite 29 CFR 1926.1153(c) and (d)(2) as a gruped vilatin, alng with citing any ther nted deficiencies (e.g., respiratry prtectin, hazard cmmunicatin) as separate vilatins. The CSHO will cite deficiencies in the emplyer's assessment under paragraph (d)(2) as a gruped vilatin with 29 CFR 1926.1153(c), alng with citing any ther nted deficiencies (e.g., respiratry prtectin, hazard cmmunicatin).
Where the emplyer has nt fully and prperly implemented the engineering cntrls, wrk practices, and respiratry prtectins specified in Table 1, and sampling shws expsure ver the PEL, the CSHO will cite 29 CFR 1926.1153(c) and (d)(1) as a gruped vilatin. Where the emplyer has nt fully and prperly implemented the engineering cntrls, wrk practices, and respiratry prtectins specified in Table 1 but the emplyer has cnducted an expsure assessment under 29 CFR 1926.1153(d): If CSHO sampling shws an verexpsure and the emplyer has nt instituted all feasible engineering and wrk practice cntrls r adequately prtected emplyees via an effective respiratry prtectin prgram, the CSHO will cite the verexpsure as a vilatin f 29 CFR 1926.1153(d)(1) and (d)(3) gruped with 29 CFR 1926.1153(c). If, in the CSHO's pinin, the emplyer's expsure data may nt be representative (e.g., new r different peratins are ccurring in the wrkplace that d nt clsely resemble the peratins represented in the emplyer's expsure data), the CSHO shuld als cite 29 CFR 1926.1153(d)(2), as apprpriate, and grup with 29 CFR 1926.1153(c). Where apprpriate, cite any ther deficiencies. If CSHO sampling shws an ver expsure and the emplyer has instituted all feasible engineering and wrk practice cntrls and emplyees are adequately prtected via an effective respiratry prtectin prgram, then the CSHO will nt cite the emplyer fr a PEL vilatin. Tasks Nt Listed In Table 1 If CSHO sampling shws an verexpsure and the emplyer has nt instituted all feasible engineering and wrk practice cntrls r adequately prtected emplyees via an effective respiratry prtectin prgram, the CSHO will cite the verexpsure as a vilatin f 29 CFR 1926.1153(d)(1). Deficiencies in any f the requirements fr engineering and wrk practice cntrls and respiratry prtectin must fllw the citatin prcedures fr cmbining and gruping vilatins in CPL 02-00-160, Field Operatins Manual (FOM). The CSHO shuld cite 29 CFR 1926.1153(e)(1)(ii)(C) when the emplyer did nt prvide necessary respiratry prtectin where engineering and wrk practice cntrls were nt sufficient t reduce expsures t r belw the PEL. If, in the CSHO's pinin, the emplyer's expsure data may nt be representative (e.g., new r different peratins are ccurring in the wrkplace that d nt clsely resemble the peratins represented in the emplyer's expsure data), the CSHO shuld cite 29 CFR 1926.1153(d)(2). If the emplyer vilates any ther prvisin f 29 CFR 1926.1153, Respirable Crystalline Silica, the CSHO must issue the citatin(s) in accrdance with the FOM. Expsure Variability If a CSHO btains a sample shwing expsures abve the PEL, but has reasn t think, based n the emplyer's air mnitring data, that the results may be due t unpreventable expsure
variability, then the Area Directr may cnsider whether t cnduct a fllw-up inspectin in lieu f issuing a citatin. The CSHO will cmpare the emplyer's expsure data with CSHO sampling results t determine whether the emplyer's data are representative. T be representative, the emplyer's samples must have been btained under cnditins that clsely resemble r have a higher expsure ptential than CSHO samples. The CSHO shuld cnfer with the Area Directr regarding whether re-sampling is apprpriate. The burden is n the emplyer t demnstrate that the CSHO's samples are nt representative f nrmal expsure levels. CSHO Prtectin CSHOs must use apprpriate PPE fr ptential hazard expsures. They must nt enter a respirable crystalline silica-regulated area, r ther area where expsures are likely t exceed the PEL, unless it is abslutely necessary and then nly if using apprpriate PPE. Fr inspectin and air sampling activities, CSHOs shuld use remte peratins when practical. CSHOs shuld be cnservative abut time spent in areas where high cncentratins f silica exist r are suspected. Attachment B: Flw Charts fr Evaluating Cnstructin Emplyer Methds f Cntrlling Expsure t Respirable Crystalline Silica Flwchart A: Specified Expsure Cntrls fr Table 1 Tasks If emplyees are perfrming Table 1 tasks, and the emplyer has nt implemented cntrls, and has nt cnducted an expsure assessment, then the emplyer is in vilatin f paragraphs (c) and (d). Fr each emplyee with ccupatinal expsure t respirable crystalline silica (RCS), CSHOs shuld cnsider the fllwing questins. 1. Is any emplyee perfrming a task listed in Table 1? If Yes, g t Q2. If N, evaluate cmpliance with 29 CFR 1926.1153(d) - see Flwchart B. 2. Are the engineering cntrls and wrk practices listed fr that Table 1 task in use? If Yes, g t Q3. If N, evaluate cmpliance with 29 CFR 1926.1153(d) - see Flwchart B. 3. Are the engineering cntrls fully and prperly implemented? If Yes, g t Q4. If N, evaluate cmpliance with 29 CFR 1926.1153(d) - see Flwchart B. 4. Is the emplyee wearing the required level f respiratry prtectin? If Yes, emplyer is in cmpliance with Table 1. If N, evaluate cmpliance with 29 CFR 1926.1153(d) - see Flwchart B. Nte 1: CSHOs shuld repeat Flwchart A fr each emplyee engaged in a Table 1 task. Nte 2: T determine whether the engineering cntrls, wrk practices, and respiratry prtectin specified in Table 1 are fully and prperly implemented, CSHOs shuld cnsult 29 CFR 1926.1153(c)(2), which cntains additinal requirements fr tasks perfrmed indrs r in an enclsed area, and fr cntrl measures invlving wet methds r an enclsed cab r bth.
Flwchart B: Alternative Expsure Cntrl Methds 1. Are wrkers perfrming tasks with freseeable expsure t RCS at r abve the actin level? (Nte that the use f engineering cntrls t maintain expsure t belw the AL indicates that the standard cvers the peratin.) If Yes, g t Q2. If N, the standard des nt apply t expsures belw the AL. 2. Has the emplyer cnducted an expsure assessment fr each emplyee wh may be expsed at r abve the AL? If Yes, g t Q3. If N, the emplyer is nt in cmpliance with paragraph (d)(2). Cnduct expsure mnitring. 3. Is the expsure assessment representative f current cnditins? If Yes, g t Q4. If N, the emplyer is nt in cmpliance with paragraph (d)(2). Cnduct expsure mnitring. 4. Des the emplyer's expsure assessment shw that emplyees are expsed at r belw the PEL? If Yes, there is n need t cnduct expsure mnitring. If N, cnduct expsure mnitring and g t Q5.
5. Des the CSHO's expsure mnitring shw emplyee expsure at r belw the PEL? If Yes, the emplyer is in cmpliance with paragraph (d)(1). If N, g t Q6. 6. Has the emplyer implemented all feasible cntrls t reduce RCS expsure t at r belw the PEL? If Yes, g t Q7. If N, the emplyer is nt in cmpliance with paragraphs (d)(1) and (d)(3). 7. If respiratry prtectin is required, are wrkers wearing the required level f respiratry prtectin? If Yes, the emplyer is in cmpliance with paragraph (d)(3). If N, the emplyer is nt in cmpliance with paragraphs (d)(1), (d)(3), and (e).