Recommended Practices for Safety and Health Programs in Construction Download

Occupational Safety and Health Administration www.osha.gov OSHA 3886 October 2016

Recommended Practices for Safety & Health Programs in Construction

DISCLAIMER These practices for safety and health programs for hazards. However, their program may not contain construction worksites are recommendations only. all of the practices recommended in this document. Employers in construction work must have a program Employers will not be cited if their safety and health that includes measures to detect and correct workplace program does not comply with this document.

FOREWORD

FOREWORD Establishing a safety and health program at your job site is one of the most effective ways Resources and Tools to Support of protecting your most valuable asset: your Implementation of These workers. Losing workers to injury or illness, even Recommended Practices for a short time, can cause significant disruption and cost—to you as well as the workers and their OSHA has created a dedicated Web families. It can also damage workplace morale, page to support the implementation productivity, turnover, and reputation. of these practices at www.osha.gov/ safetymanagement. The page includes a Safety and health programs foster a proactive link to these recommended practices as approach to “finding and fixing” job site hazards well as the following: before they can cause injury or illness. Rather than reacting to an incident, management and • Additional resources. Articles and workers collaborate to identify and solve issues information sources related to each core before they occur. This collaboration builds trust, element of the recommended practices, enhances communication, and often leads to plus other topics discussed in the other business improvements. Employers who recommended practices. have implemented safety and health programs, • Tools. Downloadable templates, including many who are in OSHA’s Voluntary worksheets, and reference materials you Protection Programs (VPP) or the Safety and can use as you develop your own safety Health Achievement Recognition Program and health program. (SHARP) for small and medium-sized businesses, have also found that managing for safety results Please visit the recommended practices in higher-quality product or output and higher Web page and explore the resources profits. available. OSHA will update the Web page and add resources and tools as they become These recommended practices reflect current available. conditions in the construction industry:

• New construction techniques, materials, and equipment have come into common use. • An aging workforce and the rise of sedentary lifestyle means that some workers are at • Greater diversity in the construction higher risk for work-related musculoskeletal workforce means that people from different disorders. backgrounds and cultures are working alongside each other, often speaking different languages.

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FOREWORD

• Increased temporary and contract These practices also reflect what we have employment means that traditional learned from best-in-class programs and what relationships between workers and makes them effective. In particular, these employers are shifting, and changes in safety recommended practices place greater programs and policies will be required to emphasis on involving workers, and include a ensure the safety and health of all workers at more robust program evaluation element to worksites characterized by these newer and help drive continuous improvement. These more fluid relationships. practices also stress the need for communication and coordination on worksites involving more than one employer.

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CONTENTS INTRODUCTION.................................................................................................................................................... 2

MANAGEMENT LEADERSHIP........................................................................................................................... 9

WORKER PARTICIPATION. ...............................................................................................................................11

HAZARD IDENTIFICATION AND ASSESSMENT........................................................................................ 15

HAZARD PREVENTION AND CONTROL..................................................................................................... 20

EDUCATION AND TRAINING. ........................................................................................................................ 24

PROGRAM EVALUATION AND IMPROVEMENT. ...................................................................................... 27

COMMUNICATION AND COORDINATION FOR EMPLOYERS ON MULTIEMPLOYER WORKSITES. ............................................................................................................. 30

LIST OF ABBREVIATIONS. ............................................................................................................................. 34

GLOSSARY OF TERMS .................................................................................................................................... 34

www.osha.gov RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS IN CONSTRUCTION 1

INTRODUCTION THESE RECOMMENDED PRACTICES provide The recommended practices emphasize a responsible employers, workers, and worker proactive approach to managing occupational representatives1 with a sound, flexible framework safety and health. Traditional approaches are for addressing safety and health issues on diverse often reactive—that is, actions are taken only construction job sites. They may be used by any after a worker is injured or becomes sick, a construction company or job site, but they will be new standard or regulation is published, or an particularly helpful to small and medium-sized outside inspection finds a problem that must contractors. They also include guidance specifically be fixed. Finding and fixing hazards before they aimed at general contractor employment, staffing cause injury or illness is a far more effective agency employment, and multiemployer work approach. Doing so avoids the direct and situations. These recommended practices have indirect costs of worker injuries and illnesses, been developed solely for the construction and promotes a positive work environment. industry. Separate recommended practices are available for all other industries.

1 Worker participation is vital to the success of the program. In several places in these recommended practices, OSHA refers not just to workers but also to their representatives, such as labor unions or religious or community groups.

INTRODUCTION

These best practices present principles and THE BENEFITS OF IMPLEMENTING approaches to implementing and maintaining THESE RECOMMENDED PRACTICES a safety and health program for the entire construction company. OSHA recognizes that a Responsible employers know that the main goal wide variety of small and large construction job of a safety and health program is to prevent sites exist. Some are short-duration, while others work-related injuries, illnesses, and deaths, as may take years to complete; some sites are well as the suffering and financial hardship these characterized by frequently changing conditions, events can cause for workers, their families, and while other sites’ conditions may change less their employers. often. An effective program emphasizes top-level Employers may find that implementing these ownership, participation by employees, and a recommended practices brings other benefits “find and fix” approach to workplace hazards. as well. The renewed or enhanced commitment The “find and fix” approach to workplace hazards to safety and health and the cooperative refers to the “Hazard Identification” and “Hazard atmosphere between employers and workers Prevention and Control” core elements. Because have been linked to: of the wide variety of site conditions, these two • Improvements in production and quality. core elements should be implemented on a site- • Better employee morale. specific basis in order to effectively detect and correct hazards. • Improved employee recruiting and retention. • A more favorable image and reputation The concept of continuous improvement is (among customers, suppliers, and the central to these recommended practices. As community). with any journey, the first step is often the most challenging. The idea is to begin with a basic program and grow from there. By initially focusing on achieving modest goals, monitoring performance, and evaluating outcomes, you can help your company progress over time along the path to higher levels of safety and health.

A study of small employers in Ohio found that workers’ compensation claims fell dramatically after working with OSHA’s SHARP program to adopt programs similar to those described in these recommended practices.

+

average claims number of claims co st p er c la im (per million average lost time per claim DECREASED DECREASED dollars of payroll)

D EC REASED 52% DECREASED 80% 87% 88% Source: Ohio Bureau of Workers’ Compensation (2011), Ohio 21(d) SHARP Program Performance Assessment.

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IMPLEMENTING a safety & health program

can help employers avoid the INDIRECT COSTS that result from WORKPLACE INCIDENTS such as

TIME due to work training and other LOSS OR LOST stoppages and costs associated with and DAMAGE to material, investigations, REPLACING machinery INJURED and property. WORKERS

These INDIRECT have been estimated 2.7 COSTS to be at least times the DIRECT COSTS Source: Leigh, J.P. (2011), Economic Burden of Occupational Injury and Illness in the United States. Milbank Quarterly, 89:728-772. 2

HOW TO USE THE RECOMMENDED tool can be found on the recommended PRACTICES practices Web page. It can be tailored to your construction site to track your progress and Each section of the recommended practices document how you have implemented (or will describes a core program element (see page 7), implement) each action item. followed by several action items. Each action item is an example of steps that general Seven interrelated elements contractors, subcontractors, managers, supervisors, and workers can take to establish, The seven core elements are interrelated and implement, maintain, and improve safety and are best viewed as part of an integrated system. health programs. A general self-evaluation Actions taken under one core element can

2 The 2.7 multiplier for indirect costs includes some social costs, such as workers’ compensation costs not covered by insurance.

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INTRODUCTION

(and likely will) affect actions needed under one production, quality control, and environmental or more other elements. For example, workers protection or sustainability. must be trained in reporting procedures and hazard identification techniques in order to be The importance of worker effective participants. Thus, the “Education and participation Training” core element supports the “Worker Throughout these recommended practices, Participation” core element. Similarly, setting OSHA emphasizes the importance of worker goals (as described under “Management participation in the safety and health program. Leadership”) will be more effective if you routinely For a program to succeed, workers (and, evaluate your progress in meeting those goals if applicable, their representatives) must (see “Program Evaluation and Improvement”). participate in developing and implementing Progress in each core element is important to every element of the safety and health program. achieve maximum benefit from the program. This emphasis on worker participation is consistent with the OSH Act, OSHA standards, One size does not fit all and OSHA enforcement policies and procedures, While the action items under each core element which recognize the rights and roles of workers are specific, they are not prescriptive. The and their representatives in matters of workplace process described in these recommended safety and health. Several action items described practices can, and should, be tailored to the in these recommended practices rely on needs of each construction company and/or job perspectives, expertise, and input that can come site. Likewise, your safety and health program only from workers and their representatives. can and should evolve. Experimentation, evaluation, and program modification are all part When more than one employer is of the process. You may also experience setbacks involved from time to time. What is important is that you learn from setbacks, remain committed to finding Employers and workers on “multiemployer” out what works best for you, and continue to try worksites should pay particular attention to different approaches. the “Coordination and Communication for Employers on Multiemployer Worksites” section. Injuries and illnesses occur in all construction This section describes actions that controlling trades. The preventive approaches described employers such as general contractors, prime in these recommended practices work equally contractors and construction managers, well for small and large organizations in the subcontractors, and temporary staffing agencies construction industry. Small employers may (and their workers) should take to ensure find that they can best accomplish the actions protection of everyone on the job site. outlined in these recommended practices using informal communications and procedures. Larger employers, who have more complex work processes and hazards, may require a more For tools and resources to help you formal and detailed program. They may also wish implement these recommended practices, to integrate their safety and health program with visit: www.osha.gov/safetymanagement other programs that they are using to manage

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INTRODUCTION

NINE EASY THINGS TO GET YOUR PROGRAM STARTED If these recommended practices appear challenging, here are some simple steps you can take to get started. Completing these steps will give you a solid base from which to take on some of the more structured actions presented in the recommended practices.

1. ALWAYS SET SAFETY AND 5. CONDUCT INSPECTIONS HEALTH AS THE TOP PRIORITY Inspect the job site with workers and ask them to Tell your workers that making sure they finish the identify any activity, piece of equipment, or material day and go home safely is the way you do business. that concerns them. Use checklists and other Assure them that you will work with them to find and resources, such as OSHA’s Construction Industry fix any hazards that could injure them or make them Digest, to help identify problems. sick. 6. COLLECT HAZARD CONTROL 2. LEAD BY EXAMPLE IDEAS Practice safe behaviors yourself and make safety part Talk with workers about ideas on safety improvements of your daily conversations with workers. throughout the project.

3. IMPLEMENT A REPORTING 7. IMPLEMENT HAZARD CONTROLS SYSTEM Assign workers the task of choosing, implementing, Develop and communicate a simple procedure for and evaluating the solutions. workers to report any injuries, illnesses, incidents (including near misses/close calls), hazards, or safety 8. ADDRESS EMERGENCIES and health concerns without fear of retaliation. Identify foreseeable emergency scenarios and develop Include an option for reporting hazards or concerns instructions on what to do in each case. Meet to anonymously. discuss these procedures and post them in a visible location at the job site. 4. PROVIDE TRAINING Train workers on how to identify and control hazards 9. MAKE IMPROVEMENTS using, for example, OSHA’s Hazard Identification Set aside a regular time to discuss safety and health Training Tool. issues, with the goal of identifying ways to improve the program.

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INTRODUCTION

CORE ELEMENTS OF THE RECOMMENDED PRACTICES FOR SAFETY AND HEALTH PROGRAMS IN CONSTRUCTION • Top management demonstrates its commitment to eliminating hazards and to continuously improving workplace safety and health, communicates that commitment to workers, and sets MANAGEMENT program expectations and responsibilities. LEADERSHIP • Managers at all levels make safety and health a core organizational value, establish safety and health goals and objectives, provide adequate resources and support for the program, and set a good example.

• Workers and their representatives are involved in all aspects of the program—including setting goals, identifying and reporting hazards, investigating incidents, and tracking progress. • All workers, including contractors and temporary workers, understand their roles and WORKER responsibilities under the program and what they need to do to effectively carry them out. PARTICIPATION • Workers are encouraged and have means to communicate openly with management and to report safety and health concerns or suggest improvements, without fear of retaliation. • Any potential barriers or obstacles to worker participation in the program (for example, language, lack of information, or disincentives) are removed or addressed.

• Procedures are put in place to continually identify workplace hazards and evaluate risks. • Safety and health hazards from routine, nonroutine, and emergency situations are identified HAZARD and assessed. IDENTIFICATION AND • An initial assessment of existing hazards, exposures, and control measures is followed by periodic inspections and reassessments, to identify new hazards. ASSESSMENT • Any incidents are investigated with the goal of identifying the root causes. • Identified hazards are prioritized for control.

• Employers and workers cooperate to identify and select methods for eliminating, preventing, or controlling workplace hazards. HAZARD • Controls are selected according to a hierarchy that uses engineering solutions first, followed by PREVENTION AND safe work practices, administrative controls, and finally personal protective equipment (PPE). CONTROL • A plan is developed that ensures controls are implemented, interim protection is provided, progress is tracked, and the effectiveness of controls is verified.

• All workers are trained to understand how the program works and how to carry out the responsibilities assigned to them under the program. EDUCATION AND • Employers, managers, and supervisors receive training on safety concepts and their responsibility for protecting workers’ rights and responding to workers’ reports and concerns. TRAINING • All workers are trained to recognize workplace hazards and to understand the control measures that have been implemented.

• Control measures are periodically evaluated for effectiveness. PROGRAM • Processes are established to monitor program performance, verify program implementation, EVALUATION AND and identify program shortcomings and opportunities for improvement. IMPROVEMENT • Necessary actions are taken to improve the program and overall safety and health performance.

• General contractors, contractors, and staffing agencies commit to providing the same level of COMMUNICATION safety and health protection to all employees. AND COORDINATION • General contractors, contractors, subcontractors, and staffing agencies commmunicate the hazards present at the worksite and the hazards that work of contract workers may create on site. FOR EMPLOYERS ON • General contractors establish specifications and qualifications for contractors and staffing agencies. MULTIEMPLOYER • Prior to beginning work, general contractors, contractors, and staffing agencies coordinate on work WORKSITES planning and scheduling to identify and resolve any conflicts that could impact safety or health.

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INTRODUCTION

FOR MORE INFORMATION On-site Consultation Program services are separate from enforcement and do not result in penalties For more information about these recommended or citations. Consultants from state agencies practices, tools to help you implement them, and or universities work with employers to identify related topics, see the recommended practices workplace hazards, provide advice on compliance Web page. This page includes links to many tools with OSHA standards, and help them establish and and resources developed by OSHA and others improve their safety and health programs. that can help employers and workers implement these recommended practices. OSHA will continue to update and add to this resource list.

OSHA’s On-site Consultation Program offers free For free assistance, including help implementing your program, visit: and confidential occupational safety and health www.osha.gov/dcsp/smallbusiness services to small and medium-sized businesses in all or call 1-800-321-6742 (OSHA) states across the country and in several territories, with priority given to high-hazard worksites.

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MANAGEMENT LEADERSHIP MANAGEMENT PROVIDES the leadership, vision, and resources needed to implement an effective safety and health program. Management leadership means that business owners, managers, and supervisors:

• Make worker safety and health a core organizational value.

• Are fully committed to eliminating hazards, protecting workers, and continuously • Visibly demonstrate