History of OSHA - Part 2 - The Early Years of OSHA

Part 1, Part 2, Part 3, Part 4, Part 5, Part 6, Part 7, Part 8

The Occupational Safety and Health Act (OSH Act), signed into law on December 29, 1970, by President Richard M. Nixon, marked a significant milestone in the journey to protect American workers from the hazards of the industrial age. This landmark legislation was the result of nearly a century of efforts from both state and federal governments to address the vulnerabilities faced by employees in various industries.

The OSH Act, also known as the Williams-Steiger Act, was preceded by intense debate among government, business, and organized labor representatives. They grappled with the extent to which federal authority should set and enforce workplace safety and health standards. The Act officially became effective on April 28, 1971, marking the “birthday” of the Occupational Safety and Health Administration (OSHA), the Review Commission, and NIOSH. That same month, George Guenther, the head of the Department of Labor’s (DOL) Bureau of Labor Standards, became the first Assistant Secretary of Labor for Occupational Safety and Health, serving until 1973.

OSHA’s first year was a whirlwind of activity, focused on establishing the organization as a viable force for implementing and enforcing the OSH Act. The initial standards package, published in the Federal Register on May 29, 1971, included many existing federal standards and national consensus standards for general industry, construction, maritime, and other sectors. These new requirements came into effect on August 27, 1971, providing a 90-day grace period for employers to familiarize themselves with the standards and ensure compliance.

At the time Congress considered the OSH Act in 1970, approximately 14,000 occupational fatalities, 2.5 million job-related disabilities, and 300,000 new cases of job-related illnesses were reported each year. To tackle these daunting statistics, OSHA’s leadership focused on recruiting and training an effective compliance officer staff within a decentralized field structure. This structure included 10 regional offices, 49 area offices, and 2 maritime district offices across major cities in the United States.

Efforts to educate employers about compliance requirements were undertaken, with enforcement resources targeted at high hazard industries. OSHA’s start-up phase emphasized a “worst case first” approach, investigating catastrophic accidents and enforcing compliance in the most dangerous and unhealthful workplaces. The first five industries targeted for safety hazards were marine cargo handling, roofing and sheet metal work, meat and meat products, miscellaneous transportation equipment, and lumber and wood products. The agency also focused on five health hazards: asbestos, lead, silica, carbon monoxide, and cotton dust.

To further support these efforts, OSHA established the OSHA Training Institute (OTI) on January 17, 1972. The OTI was created to train OSHA compliance officers and stakeholders on safety and health topics. The first standard promulgated, on June 2, 1972, was for asbestos fibers, lowering the permissible exposure limit (PEL) for employees to 2 fibers per cubic centimeter (cc).

The first three State Plans approved to administer their own OSHA programs were South Carolina, Montana, and Oregon. In the early years, it was expected that the majority of states would form their own state OSH programs.

During these formative years, OSHA’s information management system also began to take shape. All agency case files were paper-based, including complaints and citations. Inspectors transferred inspection notes onto carbon-set logs, which were then bundled by OSHA area offices and mailed each week to the national office. Here, keypunch operators entered the information into punch cards, which were run through the Department of Labor’s mainframe computer system.

The early years of OSHA laid the groundwork for what would become a robust and effective organization committed to improving workplace safety and health across the United States. OSHA’s formative period saw the agency grappling with challenges such as limited resources, resistance from some industries, and the need to develop and refine its processes and protocols.

Despite these challenges, OSHA made considerable progress in a relatively short time. In the 1970s, the agency focused on developing new standards and regulations that would have a lasting impact on workplace safety. For instance, OSHA introduced regulations on hazard communication, ensuring that employees were informed about the risks associated with hazardous chemicals in their workplaces. This “right-to-know” standard was a significant step in empowering workers to make informed decisions about their health and safety.

OSHA also expanded its focus on specific industries that were prone to accidents and illnesses. The agency introduced comprehensive regulations for the construction industry, addressing a wide range of hazards such as falls, electrocution, and exposure to hazardous materials. The construction industry, in particular, witnessed a significant reduction in fatalities and injuries as a result of these efforts.

During this period, OSHA faced criticism from various quarters, with some arguing that the agency’s regulations were too burdensome on businesses and hindered economic growth. However, OSHA strived to strike a balance between protecting workers and supporting businesses by offering compliance assistance and fostering a collaborative approach to workplace safety.

To further promote safe and healthful workplace practices, OSHA launched the Voluntary Protection Programs (VPP) in 1982. The VPP aimed to recognize and partner with businesses that demonstrated a strong commitment to workplace safety and health, fostering a cooperative relationship between employers, employees, and OSHA.

OSHA continued to evolve and adapt to the changing needs of the workforce, expanding its efforts to include ergonomics, workplace violence, and emerging health hazards. In response to the growing concern about the impact of occupational noise exposure, OSHA developed the Hearing Conservation Amendment in 1983, which required employers to implement hearing conservation programs in noisy work environments.

Throughout the 1980s and 1990s, OSHA continued to refine its standards and enforcement strategies, focusing on high-risk industries and leveraging new technology to improve its data collection and analysis capabilities. The agency also expanded its outreach and education efforts, launching the OSHA Consultation Program to provide small businesses with free, confidential advice on workplace safety and health issues.

The early years of OSHA established the foundation upon which the agency would build a legacy of protecting American workers. Today, OSHA continues to adapt and respond to the evolving needs of the workforce, ensuring that workplace safety and health remain a priority in an ever-changing industrial landscape.

Part 1, Part 2, Part 3, Part 4, Part 5, Part 6, Part 7, Part 8

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