{"id":902138,"date":"2024-01-17T15:47:02","date_gmt":"2024-01-17T22:47:02","guid":{"rendered":"https:\/\/www.myconstructionexpert.com\/blog\/?p=902138"},"modified":"2024-01-17T15:47:03","modified_gmt":"2024-01-17T22:47:03","slug":"you-say-tomato-i-say-tomahto-but-when-it-comes-to-the-calosha-appeals-board-they-can-say-it-any-way-they-please","status":"publish","type":"post","link":"https:\/\/www.myconstructionexpert.com\/blog\/you-say-tomato-i-say-tomahto-but-when-it-comes-to-the-calosha-appeals-board-they-can-say-it-any-way-they-please\/","title":{"rendered":"You Say Tomato, I Say Tomahto. But When it Comes to the CalOSHA Appeals Board, They Can Say it Any Way They\u00a0Please"},"content":{"rendered":"\n

Garret Murai | California Construction Law Blog<\/a><\/p>\n\n\n\n

We lawyers do a fair amount of reading. Documents. Court decisions. Passive aggressive correspondence from opposing counsel. As well as statutes, regulations and administrative guidance. And you might be surprised how often words can be ascribed very different meanings depending on who is reading it. Such, I suppose, is the nature of language. When it comes to public agency interpretations of its own regulations, however, you would be well to heed that authors are often the best interpreters of their own works, or at least that\u2019s how the courts tend to view it, as in the next case L & S Framing Inc. v. California Occupational Safety and Health Appeals Board<\/em><\/a>, Case No. C096386 (July 24, 2023).<\/p>\n\n\n\n

The L & S Framing Case<\/h3>\n\n\n\n

Martin Mariano, an employee of L & S Framing, Inc., suffered a brain injury when he fell from the \u201csecond floor\u201d while working on a single family house. What, exactly, this \u201csecond floor\u201d was, was a point of a contention in the legal case that followed.<\/p>\n\n\n\n

The diagram below isn\u2019t to scale, and I\u2019m not sure if it even accurately represents the floor layout, but based on the description in the case this is about as good a representation as I can make:<\/p>\n\n\n

\n
\"Blank<\/figure><\/div>\n\n\n

Basically, while laying a chalk line while on a second floor platform off a staircase, Mariano fell off the side of the side of the platform and landed onto a concrete floor on the first floor where he sustained a brain injury.<\/p>\n\n\n\n

CalOSHA later issued three general citations and one serious accident-related citation to L & S. In its notice to L & S, CalOSHA stated that \u201cthe employer did not provide railings and toe boards meeting the requirement of Article 16 around the Stawell of a story [sic] residential building under construction. As a result, an employee was seriously injured when he fell from the open side of the stairwell and landed approximately 11 feet below onto a concrete floor.\u201d<\/p>\n\n\n\n

Later, in its serious accident-related citation, CalOSHA stated \u201cthe employer did not provide the exposed sides of a stairwell with temporary railings and toeboard as prescribed in Section 1620 [of CalOSHA\u2019s Safety Orders]. As a result, an employee was seriously injured when he fell from the exposed sides of the stairway and landed approximately 11 feet below onto a concrete floor.\u201d The citation also cited a Section 1626(a)(5)<\/strong> of CalOSHA\u2019s Safety Orders.<\/p>\n\n\n\n

The problem, however, is that there is no Section 1626(a)(5). Rather, Section 1626(b)(5)<\/strong> of CalOSHA\u2019s Safety Orders provides that \u201c[u]nprotected sides and edges of stairway landings shall be provided with railings. Design criteria for railings are prescribed in Section 1620 of these safety orders.\u201d<\/p>\n\n\n\n

L & S appealed the citation and hearing was held before an Administrative Law Judge. On the first day of the hearing, the ALJ granted CalOSHA\u2019s request to amend the citation to refer to Section 1626(b)(5) rather than the nonexistent subdivision (a)(5). Later, CalOSHA moved to amend the citation to allege, in the alternative, a violation of Section 1632(b)(1). That section provides that \u201c[f]loor, roof and skylight openings shall be guarded by either temporary railings and toeboards or by covers.\u201d The ALJ denied CalOSHA\u2019s motion.<\/p>\n\n\n\n

Following the trial, CalOSHA again tried to amend the citation, this time to conform to the evidence, to allege a violation of Section 1626(a)(2). That section provides that \u201c[r]ailings and toe boards meeting the requirements of Article 16 of these safety orders shall be installed around stairwells.\u201d The ALJ denied CalOSHA\u2019s request.<\/p>\n\n\n\n

In its decision, the ALJ found that Section 1626(b)(5) was \u201cinapplicable to circumstances,\u201d presumably, because the AJL felt that Mariano hadn\u2019t fallen from a \u201cstairwell landing.\u201d CalOSHA appealed by filing a petition for reconsideration with the Appeals Board.<\/p>\n\n\n\n

In its petition for reconsideration, CalOSHA framed the issues as:<\/p>\n\n\n\n

    \n
  1. \u201cWas the unguarded side from which Mariano fell the side of a stairwell landing?\u201d<\/li>\n\n\n\n
  2. \u201cWas the unguarded side from which Mariano fell the side of a stairwell.\u201d<\/li>\n\n\n\n
  3. \u201cWas the unguarded side from which Mariano fell a floor opening.\u201d<\/li>\n\n\n\n
  4. \u201cDid the ALJ abuse her discretion in denying [CalOSHA\u2019s] motion to amend [the citation].\u201d<\/li>\n\n\n\n
  5. \u201cDid the ALJ abuse her discretion in declining to amend [the citation post-hearing to conform to the evidence].\u201d<\/li>\n<\/ol>\n\n\n\n

    The Appeals Board agreed with the ALJ that the area where Mariano fell was not a stairway landing and therefore concluded that L & S did not violate Section 1626(b)(5). However, the Appeals Board held that the ALJ had erred in not permitting CalOSHA to amend its citation to allege a violation of Section 1632(b)(1) and that Mariano\u2019s fall could be characterized as a fall through a \u201cfloor opening.\u201d Further, the Appeals Board held that the ALJ erred in not permitting CalOSHA to amend its citation post-hearing to allege a violation of Section 1626(a)(2) and that L & S\u2019s definition of \u201cstairwell,\u201d taken from the Construction Dictionary, was too narrow and accepted CalOSHA\u2019s broader definition of the term \u201cstairwell.\u201d<\/p>\n\n\n\n

    Note:<\/strong> The findings of the Appeals Board are interesting, and different than what one would normally expect in a civil appeal, in that the Appeal Board, rather than remanding the case back to the ALJ to determine whether there was a violation of Section 1632(b)(1) (the \u201cfloor opening\u201d citation\u201d) and Section 1626(a)(2) (the \u201cstairwell\u201d citation), found that both of these sections had been violated based on the evidence presented at the hearing.<\/p>\n\n\n\n

    L & S later filed a petition for writ of mandate to the Superior Court. The Superior Court denied the petition and L & S appealed.<\/p>\n\n\n\n

    The Appeal<\/h3>\n\n\n\n

    On appeal, the 3rd District Court of Appeal explained that on an appeal from an order denying a petition for writ of mandate, the Court of Appeal is limited to determining whether \u201c(a) the appeals board acted without or in excess of its powers. (b) the order or decision was procured by fraud. (c) the order or decision was unreasonable. (d) the order or decision was not supported by substantial evidence. (e) if findings of fact are made, such findings of fact support the order or decision under review.\u201d<\/p>\n\n\n\n

    Further, explained the Court of Appeal, under the provisions of the Labor Code:<\/p>\n\n\n\n

    \n

    \u201cNothing . . . shall permit the court to hold a trial de novo, to take evidence, or to exercise its independent judgment on the evidence\u201d [Labor Code \u00a76629] \u201cThe findings and conclusions of the appeals board on questions of fact are conclusive and final and are not subject to review. Such questions of fact shall include ultimate facts and the findings and conclusions of the appeals board.\u201d [Labor Code \u00a76630] \u201cOur function on appeal is the same as that of the trial court in ruling on the petition for the writ. We must determine whether based on the entire record the [Appeals] Board\u2019s decision is supported by substantial evidence and whether it is reasonable. Where the decision involves the interpretation and application of existing regulations, we must determine whether the administrative agency applied the proper legal standard. Since the interpretation of a regulation is a question of law, while the administrative agency\u2019s interpretation is entitled to great weight, the ultimate resolution of legal questions rests with the courts . . . An agency\u2019s expertise with regard to a statute or regulation it is charged with enforcing entitles its interpretation of the statute or regulation to be given great weight unless it is clearly erroneous or unauthorized. The [Appeals] Board is one of those agencies whose expertise we must respect.\u201d However, \u201c[a]n administrative agency cannot alter or enlarge the legislation, and an erroneous administrative construction does not govern the court\u2019s interpretation of the statue.\u201d<\/p>\n<\/blockquote>\n\n\n\n

    With that being said, the Court of Appeal dispensed with the procedural issues summarily. As to CalOSHA\u2019s motion to amend its citation to allege a violation of Section 1626(b)(5), as opposed to non-existent Section 1626(a)(5), the Court held that Government Code section 1107, which is referenced in Labor Code section 6603, \u201ccontemplates amendments to accusations\u201d and, further, that Government Code section 11516, which is also referenced in Labor Code section 6603, \u201cauthorizes amendment of an accusation \u2018after submission of the case for decision.’\u201d<\/p>\n\n\n\n

    Finally, held the Court of Appeal, Labor Code section 386(a) provides that \u201c[t]he Appeal Board may amend the issues on appeal or the Division action after a proceeding a submission for decision\u201d and, thus, \u201cas a general matter, post-submission amendments are authorized.\u201d<\/p>\n\n\n\n

    As to CalOSHA\u2019s motion amend the citation to allege, in the alternative, a violation of Section 1632(b)(1)\u2019s \u201cfloor opening\u201d regulation, the Court of Appeal held that the \u201cmodern practice of courts\u201d to allow claims to be alleged in the alternative and, further, that permitting claims to be alleged in the alternative is consistent with interpretations of the federal Occupational Safety and Health Act. Moreover, held the Court, the timing of CalOSHA\u2019s motion mid-hearing, unless prejudice can be shown, is permissible. And, here, held the Court, there was \u201cno indication of bad faith in the record or any specific allegations in [L & S\u2019s] briefs.\u201d<\/p>\n\n\n\n

    Finally, as to CalOSHA\u2019s post-hearing request to allege a violation of Section 1626(a)(2)\u2019s \u201cstairwell\u201d regulation, the Court of Appeal held that \u201cagain, there is no indication of bad faith\u201d and, further, \u201cthe proposed amendment . . . did not involve any different facts.\u201d Ouch, zero for three. But that wasn\u2019t the end of it.<\/p>\n\n\n\n

    As to the substantive issues, namely, whether Mariano fell from a \u201cfloor opening\u201d under Section 1632(b)(1) or from a \u201cstairwell\u201d under Section 1626(a)(2), the Court of Appeal emphasized that an administrative agency\u2019s interpretation of its own regulation is entitled to deference, and that here the evidence presented at the hearing supported the Appeal Board\u2019s decision that Mariano fell from a \u201cfloor opening\u201d as well as from a \u201cstairwell.\u201d Ouch and ouch.<\/p>\n\n\n\n

    Conclusion<\/h3>\n\n\n\n

    This is one of those cases where I think the contractor made good arguments based on the facts and the law, however, as the Court of Appeal emphasized, an administrative agency\u2019s interpretation of its own regulations is given great weight and deference, so while the contractor\u2019s arguments were (to me) sound the contractor was also fighting an uphill battle.<\/p>\n\n\n\n

    \n\n\n\n

    When one of your cases is in need of a construction expert, estimates, insurance appraisal or umpire services in defect or insurance disputes – please call Advise & Consult, Inc. at 888.684.8305, or email experts@adviseandconsult.net<\/a>.<\/strong><\/p>\n","protected":false},"excerpt":{"rendered":"

    Garret Murai | California Construction Law Blog We lawyers do a fair amount of reading. Documents. Court decisions. Passive aggressive correspondence from opposing counsel. As well as statutes, regulations and administrative guidance. And you might be surprised how often words can be ascribed very different meanings depending on who is reading it. Such, I suppose,… Continue reading You Say Tomato, I Say Tomahto. But When it Comes to the CalOSHA Appeals Board, They Can Say it Any Way They\u00a0Please<\/span><\/a><\/p>\n","protected":false},"author":1,"featured_media":0,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"jetpack_post_was_ever_published":false,"_jetpack_newsletter_access":"","_jetpack_dont_email_post_to_subs":false,"_jetpack_newsletter_tier_id":0,"_jetpack_memberships_contains_paywalled_content":false,"_jetpack_memberships_contains_paid_content":false,"footnotes":"","jetpack_publicize_message":"","jetpack_publicize_feature_enabled":true,"jetpack_social_post_already_shared":true,"jetpack_social_options":{"image_generator_settings":{"template":"highway","enabled":false},"version":2}},"categories":[10895],"tags":[9895,11797],"class_list":["post-902138","post","type-post","status-publish","format-standard","hentry","category-osha-osha","tag-advise-consult","tag-occupational-safety-and-health-administration","entry"],"jetpack_publicize_connections":[],"yoast_head":"\nYou Say Tomato, I Say Tomahto. 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