OSHA withdraws workplace noise rule interpretation after opposition

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Indiana Lawyer Focus

When it comes to workplace injury, most envision a dangerous fall or an equipment or structural malfunction leading to broken bones, pulled muscles, strained backs or head injuries. But one often overlooked and potentially devastating injury is hearing loss resulting from high noise levels in a workplace.

The issue isn’t one that Indiana lawyers specializing in worker safety and employment law have missed. Recent news reports have put noise-level issues on the forefront and tie them into a larger discussion of how the federal occupational safety agency writes or changes rules dictating how attorneys advise their clients.

“This was a real significant issue for those lawyers who deal with OSHA, because if they pushed this through to change the workplace noise interpretation then that could change the game for everyone else,” said Fort Wayne attorney Mark Kittaka, a partner at Barnes & Thornburg.

Attorneys representing the business and worker sides differ on whether this would be a beneficial change, but they do say that what is happening in the workplace safety arena warrants more review by everyone.

Earlier this year, the U.S. Department of Labor’s Occupational and Safety Health Administration (OSHA) withdrew its proposed change to workplace noise standards that would have toughened employers’ requirements on those workplace noise situations by clarifying the phrase “feasible administration or engineering controls” within its rule.

If adopted, the proposal would have essentially resulted in employers having to adopt increased safety measures to protect the hearing of employees rather than just providing them with ear protection gear, such as ear phones.

The administration contended that if something was feasibly possible, even cutting-edge technology that might not be widely available, then it could be required under the new interpretation.

Employers and attorneys mulling what that new interpretation would have meant found it could have resulted in high-cost building modifications or equipment changes in how work is actually done in these sites. Some would have cost more than what it costs to buy hearing protection to help shield workers from the noise, they said.

OSHA first published its new interpretation of the noise rule terminology in the Federal Register in October 2010, and in December it extended the public comment period for three months. Federal officials contended this wasn’t a rule change but rather simply a new interpretation, while opponents in the business community argued it circumvented the administrative rule-making process and had the potential to go beyond just hearing loss issues in the workplace.

“This wasn’t going through the formal rule-making process and wasn’t really a change in regulation that’s out there, it was just an interpretation of an existing rule that could have been expanded greatly and been huge in workplace compensation and employment law,” Kittaka said. “That’s a crazy difficult standard for feasibility and would impair companies, but if they can do this for hearing loss compensation then that standard could be applied to many others OSHA issues.”

Almost immediately after the proposal was published, it sparked criticism from various industrial and trade groups who viewed it as a costly measure that would require them to make extensive and unnecessary changes – possibly requiring noise-dampening equipment or other expensive technologies. Employers argued this would likely hit the economy hard because some businesses would have to lay off employees or possibly close.

OSHA explained that the noise proposal was a result of concern about continued high levels of hearing loss among workplace employees. This is despite statistics that Indiana lawyers say show the number has decreased by a third between 2004 and 2009.

“The numbers just don’t show that this should be a concern, and so the question is why they would make this change on something at a time when these injuries are getting better statistically,” Kittaka said.

Now, the federal agency is exploring how to address the hearing loss issue without incurring these types of significant costs.

Though the proposal has been scrapped, Hoosier attorneys worry that it could return in some form or that it’s part of a larger push to revise the broader rule-making process.

Kittaka said the big concern is that OSHA is overreaching and that can be bad for the economy.

Carmel attorney John Daly, who handles construction site law and teaches OSHA courses, said he sees the point of trying to eliminate the potential of hearing loss claims in the first place.

“If you can design out a hazard, that’s the best way to go because you can avoid it all together down the road,” he said. “You’re not just adapting and responding to it. The rub is what’s ‘feasible’ and that’s where the employers say it’s too expensive … and that’s where you move to the battleground. It’s not like this was some radical decision, because in reality a problem is that workers just don’t wear the ear protections they’re given.”

Daly’s professional experience has made him aware of other issues impacting workplace injury as a result of using hearing equipment. In some cases, employees couldn’t communicate adequately or handle a situation to prevent an injury, as they might have been able to do without ear protection.

“You can tell which way the political winds are blowing based on how much emphasis is placed on interpreting the rules,” Daly said. “That’s what happened here. The thing about OSHA is that they have police duties, but can’t be everywhere and have to come in and enforce after the fact rather than trying to prevent this from the start. That’s where you need contractors and employers to know the rules and enforce them.”

His law partner, Matt Golitko, chair of Indiana Trial Lawyers Association’s workers’ compensation section, said these types of hearing loss claims are so few that it didn’t seem like it should be a priority for the federal agency. In his 11 years of practicing workers’ compensation at high volume, he’s had less than five of these. Those clients suffering from workplace hearing injuries are employed at places such as factories and loud construction sites, he said.

“Generally speaking, anytime we can eliminate the risk of injury to an employee, that has a benefit to everyone,” Golitko said. “If we take those issues away, you’ll have even fewer hearing loss claims and that would in turn have a good effect on an employer’s rates with insurance companies.

“But whether it would play out that way in reality, because of the costs that would be involved here, is a different question. Indiana is still one of the best places to have a business because our worker compensation laws are as good here as anywhere in the country.”•


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  1. Especially I would like to see all the republican voting patriotic good ole boys to stop and understand that the wars they have been volunteering for all along (especially the past decade at least) have not been for God & Jesus etc no far from it unless you think George Washington's face on the US dollar is god (and we know many do). When I saw the movie about Chris Kyle, I thought wow how many Hoosiers are just like this guy, out there taking orders to do the nasty on the designated bad guys, sometimes bleeding and dying, sometimes just serving and coming home to defend a system that really just views them as reliable cannon fodder. Maybe if the Christians of the red states would stop volunteering for the imperial legions and begin collecting welfare instead of working their butts off, there would be a change in attitude from the haughty professorial overlords that tell us when democracy is allowed and when it isn't. To come home from guarding the borders of the sandbox just to hear if they want the government to protect this country's borders then they are racists and bigots. Well maybe the professorial overlords should gird their own loins for war and fight their own battles in the sandbox. We can see what kind of system this really is from lawsuits like this and we can understand who it really serves. NOT US.... I mean what are all you Hoosiers waving the flag for, the right of the president to start wars of aggression to benefit the Saudis, the right of gay marriage, the right for illegal immigrants to invade our country, and the right of the ACLU to sue over displays of Baby Jesus? The right of the 1 percenters to get richer, the right of zombie banks to use taxpayer money to stay out of bankruptcy? The right of Congress to start a pissing match that could end in WWIII in Ukraine? None of that crud benefits us. We should be like the Amish. You don't have to go far from this farcical lawsuit to find the wise ones, they're in the buggies in the streets not far away....

  2. Moreover, we all know that the well heeled ACLU has a litigation strategy of outspending their adversaries. And, with the help of the legal system well trained in secularism, on top of the genuinely and admittedly secular 1st amendment, they have the strategic high ground. Maybe Christians should begin like the Amish to withdraw their services from the state and the public and become themselves a "people who shall dwell alone" and foster their own kind and let the other individuals and money interests fight it out endlessly in court. I mean, if "the people" don't see how little the state serves their interests, putting Mammon first at nearly every turn, then maybe it is time they wake up and smell the coffee. Maybe all the displays of religiosity by American poohbahs on down the decades have been a mask of piety that concealed their own materialistic inclinations. I know a lot of patriotic Christians don't like that notion but I entertain it more and more all the time.

  3. If I were a judge (and I am not just a humble citizen) I would be inclined to make a finding that there was no real controversy and dismiss them. Do we allow a lawsuit every time someone's feelings are hurt now? It's preposterous. The 1st amendment has become a sword in the hands of those who actually want to suppress religious liberty according to their own backers' conception of how it will serve their own private interests. The state has a duty of impartiality to all citizens to spend its judicial resources wisely and flush these idiotic suits over Nativity Scenes down the toilet where they belong... however as Christians we should welcome them as they are the very sort of persecution that separates the sheep from the wolves.

  4. What about the single mothers trying to protect their children from mentally abusive grandparents who hide who they truly are behind mounds and years of medication and have mentally abused their own children to the point of one being in jail and the other was on drugs. What about trying to keep those children from being subjected to the same abuse they were as a child? I can understand in the instance about the parent losing their right and the grandparent having raised the child previously! But not all circumstances grant this being OKAY! some of us parents are trying to protect our children and yes it is our God given right to make those decisions for our children as adults!! This is not just black and white and I will fight every ounce of this to get denied

  5. Mr Smith the theory of Christian persecution in Indiana has been run by the Indiana Supreme Court and soundly rejected there is no such thing according to those who rule over us. it is a thought crime to think otherwise.