OSHA Speeches
Safety and Health Challenges in the 21st Century.
OSHA Speeches -
Table of Contents
- Record Type: Speech
- Subject: Safety and Health Challenges in the 21st Century.
- Information Date: 05/23/2000
- Presented To: American Industrial Hygiene Conference and
Exposition
- Speaker: Jeffress , Charles N.
"This document was published prior to the publication of OSHA's final
rule on Ergonomics Program (29 CFR 1910.900, November 14, 2000), and
therefore does not necessarily address or reflect the provisions set forth
in the final standard."
Charles N. Jeffress American Industrial Hygiene
Conference and Exposition Orlando, Fla. May 23,
2000
- In the early 1900s, the following classified ad appeared in the London Times: "Men wanted for hazardous journey. Low
wages, bitter cold, long hours of complete darkness. Safe return
doubtful. Honour and recognition in the event of success. Signed E.
Shackleton."
- The next morning 5,000 men were lined up outside the Times' offices ready to sign on for the dangerous
mission, whatever it might be. Ernest Shackleton was seeking crew
members for an expedition to reach the South Pole on a ship called the
Endurance.
- As safety and health professionals, our mission for the 21st Century
is not to lead men and women into hazardous territory on a
once-in-a-lifetime journey to achieve a moment of glory. Rather, we want
to sustain every day a quality of life for working Americans that brings
them home whole and healthy every night. Our mission doesn't draw
huge crowds overnight. But our numbers are expanding and public support
for our efforts is strong.
- Though Shackleton never reached the South Pole, he achieved fame for
his explorations because he executed so well his carefully thought out
plan. He proved himself exceptionally adept in finding creative,
life-saving solutions for impossible situations.
- As we face the third millennium, OSHA also has a plan, a strategic
plan, to guide us. Like Shackleton, we are prepared to modify that plan
as we go along to achieve our objectives. Our goals are simple: We want
to reduce injuries and illnesses, create safety-conscious workplace
cultures and secure public confidence in the agency.
- AIHA shares these goals, and as we consider our joint mission of
prevention for the 21st Century, I want to talk about where we are
today. Then I want to share with you some thoughts on where we need to
go.
- Let me just say that we do appreciate all the support that we have
received from AIHA–on the budget, on partnerships, on safety and health
programs and many other issues. Thank you for your ongoing
encouragement.
- The good news is that injury and illness rates are down by 22
percent since President Clinton took office. Fatalities on the job have
declined to an all-time low. We're seeing the results of our efforts to
maximize our resources. And this has been achieved while the economy has
boomed, production has been at an all-time high, and 3 million new jobs
have been created.
- Beginning in 1995, OSHA pledged to help reduce injury and illness
rates by 20 percent in 50,000 workplaces where we intervened. And more
than 50,000 of you following our actions met that milestone, based on
data submitted to us and BLS. I congratulate you, and we pledge to move
on to 50,000 more. We've refined our inspection targeting program to
zero in on the companies with the highest injury rates. And we're making
the impact we hoped for.
- This year, we'll inspect about 4,000 sites under our Site Specific
Targeting Program. These are sites that have 14 or more injuries per 100
workers–that's more than four times the average rate for businesses in
the U.S.
- In addition to these 4,000, about 9,000 others received a letter
from me this spring advising them that they reported injury and illness
rates for 1998 more than twice the national average. I encouraged them
to address safety and health problems in their workplaces and to get
help if they need it–from private consultants like many of you here,
from the OSHA consultation program, from insurance companies, or from
others in their industry. I believe that knowing they are on OSHA's
list, they may be motivated to address their problems.
- Partnerships are also making a difference. We started in 1993 with
Maine 200, tried a national approach and have now evolved into a series
of local partnerships, with 63 active today. Partnership is a different
way of working that makes enormous sense. Each partnership is tailored
by our area offices to hazards in their local area. We have
industry-specific partnerships, hazard-based partnerships and
geographically-centered partnerships. Our agreements focus on solving
problems. They provide another avenue to reach employers and employees
to encourage them to adopt effective safety and health programs and to
share strategies for eliminating common hazards that result in injuries
and illnesses.
- The grandmother of OSHA partnerships, of course, is the Voluntary
Protection Program–our premier partnership recognizing worksites doing
an outstanding job with occupational safety and health. Many of you come
from one of the more than 600 workplaces that fly a VPP flag. Since
1993, VPP has increased five-fold as more employers and employees want
the public to know about their excellence in taking care of their
business.
- VPP represents the vanguard of our efforts to change workplace
cultures to make worker safety and health and top priority. These sites
not only serve as models; many are also mentors for other companies.
- Most employers want to do the right thing, but they are not always
sure what they need to do. About 90 percent of employers in the U.S.
have 20 or fewer employees. Most have no full-time safety and health
staff. They need help in establishing safety and health programs and
access to information to help them find and fix hazards.
- Over the past six years, OSHA has employed new avenues to assist
employers and employees who need guidance. Information available on our
website has dramatically increased from fewer than 2,000 pages in 1995
to some 40,000 today. We have 16 expert and technical advisor software
programs on our site to walk employers and workers through standards to
help them focus on what to do to avoid injury or illness.
- Last month, we announced a new workers' page on our site, similar to
our small business page, which draws together information of particular
interest to workers. For the first time, workers can file complaints
electronically–and over the past month more than 400 have done so.
- We have doubled the funding for our Susan Harwood training grants
over the past four years. We've begun to explore possibilities for
distance learning through the OSHA Training Institute. We've hired 44
compliance assistance specialists for our area offices who are devoting
their time to helping employers get the training they need. We've
expanded OSHA's capabilities. But we are just at the beginning of what
we can and should do to assist employers and employees. Many
opportunities lie ahead. OSHA seeks to become respected as much for our
education as for our enforcement.
- Enforcement, partnerships and outreach are all critical elements of
a balanced approach to occupational safety and health. However, any of
these activities can be handled by other people, and in some states they
are.
- There's's only one thing, though, that no one else can do. Federal
OSHA has the unique responsibility for setting mandatory national safety
and health standards for the workplace. Others can do voluntary
standards, but only OSHA can mandate national rules of behavior. That
imposes on us both the duty to write standards well and also the task of
keeping up with the hazards in the workplace. This is a tough job, and
we're not there yet.
- Our standards writing process is improving. Our standards are being
written in everyday language. We've been successful in employing teams
to move the process along more quickly within the agency. But that's not
enough.
- The system is overloaded, and it needs major changes. We can address
only a few major rulemakings while hundreds of smaller things are left
undone. We cannot fulfill our mandate without changes to the current
process.
- That said, OSHA expects to promulgate five final rules this
year–ergonomics, recordkeeping, tuberculosis, personal protective
equipment and steel erection. As you know, we've just completed our
nine-week hearing on ergonomics. My thanks to those of you who were
among the nearly 1,000 who testified or more than 7,000 who submitted
comments. We appreciate your participation and your willingness to work
with us to develop an effective standard. For the first time, many of
you were able to participate electronically, and I hope this heralds a
new era of participation in OSHA rulemaking.
- Ergonomics is OSHA's top priority because work-related
musculoskeletal disorders affect about 1.8 million workers each year,
including 600,000 injuries serious enough to cause workers to miss work.
This is not something we can ignore. Many employers have instituted
ergonomics programs and found them effective in preventing injuries as
well as beneficial to the bottom line.
- We're now accepting post-hearing comments and briefs from hearing
participants. In all, we'll spend eight months receiving public input on
our proposal before the record closes this summer.
- We are serious about listening to all those who participate in the
rulemaking. But we are equally serious about acting. To ignore
musculoskeletal disorders simply because the damage is not visible or
the issue is controversial would be irresponsible on our part. We know
we must address this occupational problem. The only question remaining
is how best to do so. Our final standard will incorporate the best ideas
we receive throughout the rulemaking process.
- Another major effort–our recordkeeping rule–is in the final stages
of review. Since it and our ergonomics proposal may affect one another,
we are giving the recordkeeping rule extra review. When it is published,
we will provide you sufficient time for training your recordkeeping
staff.
- I'd like to turn now to the future. Where do we go from here?
- When it comes to enforcement, we're moving in the right direction.
Our inspections are better targeted, and we're finding more violations
as a result. To a certain extent, the future for enforcement is more of
the same–continually improving our targeting system, developing a better
system for construction.
- For partnerships, we are exploring ways to involve third parties
more effectively. As you know, I've opposed ceding OSHA inspection
authority to third parties as Senator Enzi would like to do. But his
goal–extending OSHA's reach and impact–is a worthy one. Third parties
can play a greater role in partnerships and we gave several examples in
place. Look for more in this area.
- As I said earlier, we have much more to do in education and
outreach. We are positioned for major growth, thanks to the foundation
we have built, the support of Congress and leaps in technology.
- The President's budget for next year includes a $12-million increase
for outreach and education, including more staffers dedicated to
compliance assistance. This will enable OSHA to complete the foundation
we've begun, putting a compliance assistance specialist in every area
office. Then virtually every business covered by federal OSHA will have
someone nearby to call for help.
- We also plan to make training available via distance learning. We're
looking into using satellite-delivered training to provide live course
broadcasts to OSHA staff and to the public. Our strategy is to
capitalize on the existing satellite infrastructure. Beyond that, we
will need to move to webcasts, which you can receive at a computer on
your desk. That way we can deliver training to many more employees and
dramatically increase the live training we can offer employers and
workers while minimizing the cost.
- Another approach is computer-based training using CD-ROMs, DVDs and
the Internet. We're now piloting an effort using a form of
computer-based training that combines the best of both worlds. Students
benefit from the direction and expertise of a live instructor. And they
also receive individualized computer training.
- In addition, we need to find ways to make greater use of the
knowledge and materials developed by our Susan Harwood grantees. There's
a wealth of material that needs to be further disseminated so that more
employers and employees can benefit from it. We need to make it
available so we can multiply the impact of those grants.
- I think it's clear that the area that really demands change is
standard-setting. We've been trying to speed the pace of standards
development through our internal processes. We've made progress, and I'm
pleased with that.
- But we need to recognize that just improving our internal process is
not going to fix the increasing difficulties in the way OSHA standards
are promulgated. Our capacity is limited to two or three major
rulemakings each year, if we are lucky. Given the long list of issues
that both labor and business want us to address, that's nowhere near
sufficient. It is impossible to keep up with the complexity of the
modern workplace and the speed of change as new chemicals, new processes
and new machinery are introduced.
- OSHA dedicates about 5 percent of its resources to
standard-setting–$15 million. We have about 100 people who spend half
their time developing new standards and half their time interpreting and
responding to questions about existing standards. In contrast, EPA
devotes 40% of its resources to standard-setting. And EPA has 10 times
the staff and 20 times the budget that OSHA does. A serious question for
OSHA's future is whether or not to dedicate more of the agency's
resources to standard-setting.
- We must find a way to address new hazards at a reasonable pace
supported by a reasonable level of science and reasonable assessments of
feasibility. And we don't have the climate of collegiality we need for
that. The current ergonomics debate is less about the science of
ergonomics and more about whether the government will apply a reasonable
judgment in enforcing whatever standard is adopted. Too many trade and
business groups have adopted the view that you can't trust OSHA and that
they never met a regulation they liked. The nay-sayers in the business
community are drowning out those of you who would like to engage in how
to write standards well.
- Even voluntary standard-setting groups are finding their own efforts
to be more contentious and controversial within the business community.
This is a problem that you in the business community must address. OSHA
will work in partnership with you, but as long as the only voices heard
on Capitol Hill from the business community are those who want to STOP
OSHA, progress will be difficult. I commend AIHA on trying to speak out,
but AIHA needs corporate voices to speak up loud in support.
- Part of the problem for OSHA in rulemaking is the incredible
documentation required for an OSHA standard. As you know, the ergonomics
proposal is only 10 ½ pages long, but the supporting explanation and
analyses run more than 1,000 pages. We have to develop the legal
analysis to weather inevitable court challenges. The more analysis, the
more time for each rulemaking.
- A legislative solution that changes the way OSHA establishes rules
sounds attractive. But short of NAM and the AFL-CIO storming the Hill
hand-in-hand, it is difficult to see that happening. In recent years,
Congress has imposed new rules of its own, which tend to make rulemaking
more difficult and complicated rather than more expeditious.
- So we're at a stalemate. The standard-setting process is limping
along. We're hobbled by inadequate resources, a litigious society and a
lack of consensus among labor and management on the need for new
regulations.
- All of us who have a long-term interest and investment in worker
safety and health want to see this change. We must overcome the
adversarial climate, and we may need to convince the Congress that we
need modifications to streamline the way OSHA sets standards. That's
going to be a tough sales job.
- However, the good news is that the public commitment to safety and
health remains high. Corporate and employee attention to safety and
health remains high, as evidenced by the falling injury and illness
rates.
- At the turn of the last century, Ernest Shackleton envisioned
planting a Union Jack on the South Pole. At the beginning of the 21st
Century, our vision is not to brave dangers but to reduce them for every
American in every workplace. Working with AIHA members as our partners,
we have the team we need to accomplish that mission, and send every
worker home safe and sound in the years ahead.
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