06/12/2018 - HCS pictogram labeling of DOT-39 Non-Refillable Cylinders

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OSHA Hazard Communication Letters of Interpretation

Thank you for your letter clarifying the Air-Conditioning, Heating, and Refrigeration Institute 's (AHRI) concerns regarding the Occupational Safety and Health Administration 's (OSHA) Hazard Communication Standard [ILPI: Original HCS 2012 context · Current HCS] (HCS) (29 CFR 1910.1200) and the labeling requirements, as it applies to the heating, ventilation, air-conditioning, and refrigeration (HVACR) industry. Your letter was forwarded to OSHA for response.

Background: The refrigerants manufactured and distributed by AHRI 's members are contained within specially designed single-use cylinders, referred to as “Department of Transportation (DOT)-39 Non-Refillable Cylinders.” The cylinders are manufactured to meet DOT 's specification requirements and must be contained in a strong, non-bulk outer package (i.e., in the instance presented, a cardboard box) when transported. See 49 CFR 173; 178.

In the follow-up meeting on February 8, 2018, you further described the complexity involved in printing HCS [ILPI: Original HCS 2012 context · Current HCS]-compliant pictograms (i.e., a red square frame set at a point with a black hazard symbol on a white background) directly on the cylinders. In addition, you indicated that the cylinder is intended to remain in the cardboard box throughout its life cycle, from the time prior to filling the cylinder until it is emptied and recycled. The cardboard box includes a statement not to remove the cylinder from the box.

Question 1: May refrigerant manufacturers label the cylinder with a single-color pictogram?

In the promulgation of the HCS 2012 [ILPI: Original HCS 2012 context · Current HCS], OSHA reviewed numerous studies discussing the use of color on labels. The studies showed that there is substantial benefit in the use of color on labels that consistently show red is commonly associated with a high level of hazard—the highest of any color. (77 FR 17574, 17581 (March 26, 2012)). Therefore, OSHA decided to require all pictograms on labels to have red borders for the following reasons:

The HCS [ILPI: Original HCS 2012 context · Current HCS] does not require the pictogram to be printed directly onto the cylinder; refrigerant manufacturers may comply with the HCS labeling requirements by adding adhesive stickers of the HCS-compliant pictogram to the cylinder.[1] Alternatively, refrigerant manufacturers may affix a tag directly to the cylinder with all of the information required by 29 CFR 1910.1200(f)(1) [ILPI: Original HCS 2012 context · Current HCS].

We note that in the February 8, 2018, meeting, AHRI asked whether refrigerant manufacturers may label the cardboard box instead of the cylinder. If the cylinder is affixed to the cardboard box such that it cannot be removed, then OSHA would consider the cardboard box to be a “tag,” and would not require HCS [ILPI: Original HCS 2012 context · Current HCS] labeling on the cylinder itself. Therefore, the refrigerant manufacturer must assure that all required HCS labeling information is contained on the cardboard box. Likewise, OSHA expects all instructions for use to be included on the cardboard box.

AHRI also indicated that there are circumstances where the cylinder can be separated from the cardboard box during use. For example, where the cylinder contains instructions for use that are not on the outer package, it is foreseeable that a user would remove the cylinder from the box. When this is the case, the refrigerant manufacturer must ensure that the cylinder itself, as the immediate container, includes all required HCS [ILPI: Original HCS 2012 context · Current HCS] labeling information, which can be made by printing on the cylinder, applying an adhesive sticker, or attaching a tag.

Response: No. While the GHS permits an adopting country to allow black border pictograms on packages not being exported (i.e., shipped only within the U.S.), OSHA chose not to adopt this particular provision of GHS for the reasons explained in the response to question 1. In addition, both the European Chemicals Agency's (ECHA 's) Classification Labeling and Packaging (CLP) and Canada 's Workplace Hazardous Materials Information System (WHMIS), both aligned with the GHS, require the use of red border pictograms on all products.

Question 3: Will OSHA reopen the HCS [ILPI: Original HCS 2012 context · Current HCS] rulemaking to permit suppliers to use their discretion in determining whether to use single-color or multi-color pictograms?

Response: OSHA does not currently have any plans to reopen the HCS [ILPI: Original HCS 2012 context · Current HCS] rulemaking to permit suppliers to use their discretion whether to use single-color or multi-color pictograms. Please note, however, that OSHA has identified an update to the Hazard Communication Standard in the Spring 2018 Regulatory Agenda, and AHRI is encouraged to participate in that rulemaking process.

Please note, OSHA 's requirements are set by statute, standards, and regulations. OSHA 's letters of interpretation do not create new or additional requirements, but rather, they explain these requirements and how they apply to particular circumstances. This letter constitutes OSHA 's interpretation of the requirements discussed. From time to time, letters are affected when the Agency updates a standard, a legal decision impacts a standard, or changes in technology affect the interpretation. To ensure that you are using the correct information and guidance, please consult OSHA 's website at http://www.osha.gov. If you have further questions, please feel free to contact the Office of Health Enforcement at (202) 693-2190.

Thank you for your interest in occupational safety and health. We hope you find this information helpful.

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OSHA Hazard Communication Letters of Interpretation