Utility Contractor Safety Manual

What Should a Utility Contractor Safety Manual Include?

The contents of a Utility Contractor Safety Manual should reflect the types of utility work the company actually performs.

An underground water and sewer contractor may have different hazards than a telecommunications contractor installing conduit or a contractor working near electrical distribution systems. Companies performing excavation, directional boring, tunneling, or utility repair may require additional programs specific to those operations.

The manual should begin with the company’s Core Construction Safety Programs and then include additional programs based on the company’s utility construction activities, equipment, and exposures.

Core Safety Programs for Utility Contractors

A comprehensive Utility Contractor Safety Manual may include core programs addressing:

• Accident and Incident Investigation.
• Emergency Action Plan.
• Fire Prevention.
• First Aid.
• Hand and Power Tool Safety.
• Hazard Communication.
• Housekeeping.
• Job Safety Analysis (JSA/JHA).
• Manual Lifting and Material Handling.
• Personal Protective Equipment.
• Slips, Trips and Falls.
• Walking-Working Surfaces.
• Electrical Safety.
• Ladder and Stairway Safety.

The manual should also establish responsibilities for management, supervisors, employees, competent and qualified persons, hazard identification, workplace inspections, safety training, hazard correction, incident reporting, recordkeeping, and periodic review of the company’s safety programs.

Excavation and Trenching

Excavation and trenching are among the most significant hazards encountered by underground utility contractors.

Utility installations may require employees to enter trenches and excavations for pipe, conduit, vault, manhole, structure, and other underground work.

Excavation and Trenching procedures should address:

• Competent-person responsibilities.
• Soil classification.
• Protective systems.
• Sloping and benching.
• Shoring and shielding.
• Access and egress.
• Spoil placement.
• Underground installations.
• Water accumulation.
• Hazardous atmospheres.
• Mobile equipment.
• Falling loads.
• Adjacent structures.
• Traffic exposure.
• Daily and changing-condition inspections.

Employees should not enter an excavation until applicable hazards have been evaluated and required protective measures are in place.

Underground Utility Identification and Damage Prevention

Before excavation or other ground-disturbing work begins, the estimated location of underground utility installations should be determined as required.

Potential underground installations may include:

• Electrical lines.
• Natural-gas lines.
• Water lines.
• Sewer lines.
• Storm drains.
• Fuel lines.
• Telecommunications.
• Fiber-optic lines.
• Other underground systems.

Applicable utility companies or owners should be contacted before excavation begins.

As work approaches the estimated location of an underground installation, its exact location should be determined using safe and acceptable means.

Existing underground installations should be protected, supported, or removed as necessary while the excavation remains open.

Employees should immediately report unidentified lines, conduit, piping, cables, or structures discovered during excavation.

Utility Locating and Verification

Utility markings and available plans are important components of damage prevention, but employees should not assume that markings alone eliminate the possibility of encountering underground installations.

Work planning should consider:

• Available utility records.
• Surface markings.
• Private utilities.
• Abandoned utilities.
• Utility depth.
• Changes in utility direction.
• Previous construction.
• Visible utility features.
• Tolerance zones.
• Appropriate locating equipment.
• Safe excavation methods.

Where exact utility locations must be established before mechanical excavation or boring, potholing, vacuum excavation, hand digging, or other appropriate verification methods may be used.

Directional Boring and Horizontal Directional Drilling

Horizontal directional drilling and other boring methods allow utilities to be installed with less surface excavation, but they can create serious hazards when underground installations are not accurately identified.

Before boring begins, the contractor should evaluate the proposed bore path and identify existing utilities that could be affected.

Safety planning should address:

• Utility locating.
• Verification of utility locations.
• Bore path.
• Entry and exit pits.
• Drilling-fluid hazards.
• Rotating equipment.
• Equipment setup.
• Traffic exposure.
• Electrical hazards.
• Struck-by and caught-between hazards.
• Communication between employees.

Employees should remain clear of rotating drill components and other hazardous equipment areas.

Working Near Energized Utilities

Utility contractors may perform work near energized electrical systems, gas lines, pipelines, telecommunications systems, and other active utilities.

The hazards associated with existing utilities should be identified before work begins.

Where energized electrical lines or equipment are present, appropriate procedures should address employee qualification, approach distances, equipment clearances, protective measures, and coordination with the utility owner.

Employees should not assume a utility is de-energized or abandoned unless its status has been appropriately verified.

Overhead Power Lines

Cranes, excavators, dump trucks, loaders, drilling equipment, aerial lifts, and other equipment can contact overhead electrical lines.

Before equipment is operated, overhead electrical hazards should be identified and appropriate controls established.

Controls may include:

• Maintaining required clearances.
• De-energizing and grounding lines where appropriate.
• Relocating lines.
• Barricades.
• Warning signs.
• Dedicated spotters where required.
• Limiting equipment movement.
• Employee training.

Employees should treat overhead lines as energized unless they have been properly confirmed otherwise.

Electrical Safety

Utility construction may expose employees to temporary electrical systems, underground electrical installations, generators, extension cords, portable tools, energized equipment, and damaged electrical systems.

Electrical procedures should address applicable requirements for:

• Ground-Fault Circuit Interrupters.
• Temporary power.
• Extension cords.
• Portable electrical equipment.
• Generators.
• Electrical panels.
• Wet locations.
• Damaged electrical equipment.
• Work near energized electrical systems.

Only employees appropriately trained and qualified should perform electrical work requiring such qualification.

Water, Sewer and Wastewater Utility Construction

Water and sewer contractors may install or repair water mains, sewer lines, storm drains, manholes, lift stations, valves, and related systems.

Potential hazards include:

• Excavation cave-ins.
• Water accumulation.
• Hazardous atmospheres.
• Sewage and biological materials.
• Hydrogen sulfide.
• Confined spaces.
• Heavy equipment.
• Traffic.
• Lifting and rigging.
• Stored pressure.
• Contaminated materials.

Work procedures should address the actual systems and exposures encountered by employees.

Confined Spaces

Utility construction can involve numerous confined spaces, including:

• Manholes.
• Sewers.
• Storm drains.
• Vaults.
• Tanks.
• Pits.
• Lift stations.
• Utility structures.
• Other enclosed or restricted spaces.

Potential hazards may include oxygen deficiency, toxic gases, flammable atmospheres, engulfment, hazardous energy, restricted access, and other physical hazards.

Where confined-space requirements apply, procedures may need to address:

• Identification and evaluation.
• Atmospheric testing.
• Ventilation.
• Entry permits.
• Attendants.
• Communication.
• Hazard isolation.
• Rescue provisions.
• Employee training.

Employees should not enter permit-required confined spaces unless applicable entry procedures have been established and they are trained and authorized to perform the work.

Hazardous Atmospheres

Utility work may expose employees to hazardous atmospheres in excavations, manholes, sewers, vaults, tanks, and other locations.

Potential atmospheric hazards may include:

• Oxygen deficiency.
• Hydrogen sulfide.
• Methane.
• Carbon monoxide.
• Flammable gases or vapors.
• Other toxic contaminants.

Atmospheric testing should be performed where required based on the work and potential hazards.

Ventilation, respiratory protection, entry controls, and other protective measures should be established as necessary.

Employees should not enter an area containing a hazardous atmosphere unless appropriate controls and entry requirements have been satisfied.

Hydrogen Sulfide

Hydrogen sulfide may be encountered in sewer systems, wastewater facilities, pits, manholes, tanks, and other locations where organic material decomposes.

Employees should understand that hydrogen sulfide can be extremely hazardous and that odor should not be relied upon to determine whether the gas is present.

Where hydrogen sulfide exposure may occur, procedures should address:

• Hazard assessment.
• Atmospheric testing.
• Ventilation.
• Alarm levels.
• Employee training.
• Respiratory protection where required.
• Emergency response.

Employees should not enter areas with uncontrolled hazardous concentrations.

Heavy Equipment and Mobile Equipment

Utility construction frequently involves excavators, backhoes, loaders, skid-steer loaders, trenchers, drilling equipment, compactors, forklifts, telehandlers, dump trucks, and other mobile equipment.

Safety procedures should address:

• Equipment inspection.
• Operator authorization.
• Seat-belt use.
• Backing.
• Blind spots.
• Spotters.
• Equipment stability.
• Travel routes.
• Swing-radius hazards.
• Pedestrian exposure.
• Attachments.
• Loading and unloading.
• Maintenance and repair.

Employees on foot should remain clear of equipment operating zones unless communication and appropriate controls have been established.

Backhoes, Loaders and Excavators

Backhoes and excavators are commonly used for utility installation and repair.

Operators should inspect equipment before use and understand the hazards associated with digging, lifting, swinging, traveling, and working near excavations.

Employees should remain outside the swing radius and should not position themselves between operating equipment and fixed objects.

Equipment should be positioned to avoid undermining excavation walls and creating additional hazards for employees working in or near the excavation.

Traffic Control and Work Zones

Utility construction frequently occurs in or adjacent to streets, roads, intersections, shoulders, sidewalks, and other areas exposed to vehicle traffic.

Traffic-control procedures should address:

• Advance warning.
• Signs.
• Cones and channelizing devices.
• Barricades.
• Flaggers where required.
• Work-zone setup.
• High-visibility clothing.
• Equipment movement.
• Pedestrian protection.
• Safe access for workers and vehicles.

Traffic-control measures should reflect the location, roadway conditions, duration of work, traffic volume, and work being performed.

Working Around the Public

Utility contractors often perform work in residential neighborhoods, commercial areas, public streets, sidewalks, and other locations where members of the public may be nearby.

The work area should be controlled to prevent unauthorized entry and protect the public from:

• Excavations.
• Open manholes.
• Equipment.
• Falling materials.
• Tools.
• Traffic.
• Utility hazards.
• Stored materials.

Barricades, fencing, signs, covers, attendants, traffic-control devices, or other controls should be used as appropriate.

Cranes, Rigging and Material Handling

Utility contractors may use cranes, excavators, boom trucks, hoists, and other equipment to handle pipe, manholes, vaults, trench boxes, pumps, equipment, and other heavy materials.

Applicable procedures should address:

• Equipment capacity.
• Rigging inspection.
• Load weight.
• Qualified riggers and signal persons where required.
• Communication
• Suspended loads.
• Employee positioning.
• Tag lines where appropriate.
• Ground conditions.
• Overhead electrical hazards.

Employees should not position themselves beneath suspended loads or between loads and fixed objects.

Pipe, Conduit and Material Handling

Pipe, conduit, precast structures, trench shields, and other utility materials may be heavy, long, unstable, or difficult to handle.

Materials should be stored and handled to prevent rolling, shifting, or falling.

Work planning should consider:

• Material weight.
• Length and shape.
• Mechanical lifting.
• Rigging.
• Pinch points.
• Hand placement.
• Stacking.
• Chocking.
• Travel routes.
• Final placement.

Employees should remain clear of loads that could roll, swing, shift, or fall.

Silica Exposure

Utility construction may involve cutting, drilling, chipping, crushing, or disturbing concrete, masonry, asphalt, mortar, and other silica-containing materials.

Where employees perform silica-generating tasks, applicable procedures should address:

• Engineering controls.
• Water-delivery systems.
• Dust collection.
• Work practices.
• Respiratory protection where required.
• Housekeeping.
• Employee training.
• Exposure-control responsibilities.

The controls used should reflect the actual task and applicable silica requirements.

Hand and Power Tools

Utility employees may use saws, drills, grinders, jackhammers, compactors, pneumatic tools, hydraulic tools, and other portable equipment.

Tools should be appropriate for the task, inspected as necessary, maintained in safe condition, and operated according to manufacturer instructions.

Applicable procedures should address:

• Guarding.
• Flying particles.
• Noise.
• Silica dust.
• Electrical hazards.
• Hydraulic and pneumatic pressure.
• Vibration.
• Cutting hazards.
• Required PPE.

Defective equipment should be removed from service.

Lockout/Tagout and Hazardous Energy

Utility repair and maintenance may expose employees to electrical, mechanical, hydraulic, pneumatic, pressure, thermal, gravity, chemical, or other hazardous-energy sources.

Employees may need to isolate pumps, valves, electrical systems, pipelines, mechanical equipment, or other systems before work begins.

Applicable procedures should address:

• Identification of energy sources.
• Shutdown.
• Isolation.
• Lockout/tagout.
• Stored energy.
• Verification.
• Coordination with utility owners or host employers.
• Safe restoration to service.

Employees should not rely solely on operating controls or assume that an inactive system is safely isolated.

Welding, Cutting and Hot Work

Utility construction may involve welding, cutting, brazing, or other hot work on pipe, structural components, equipment, or other materials.

Hot-work procedures should address:

• Combustible materials.
• Fire extinguishers.
• Fire watches where required.
• Compressed-gas cylinders.
• Ventilation.
• PPE.
• Fumes and gases.
• Confined spaces.
• Hot-work permits where applicable.

Piping, tanks, or equipment that contained flammable, combustible, toxic, or pressurized materials should be evaluated before hot work begins.

Personal Protective Equipment

PPE should be selected according to the hazards associated with the utility work.

Depending on the operation, PPE may include:

• Hard hats.
• Safety glasses.
• Goggles.
• Face shields.
• Work gloves.
• Protective footwear.
• High-visibility clothing.
• Hearing protection.
• Respiratory protection.
• Electrical protective equipment.
• Fall-protection equipment.
• Protective clothing.

PPE requirements should be reassessed when work activities or conditions change.

Respiratory Protection

Utility employees may encounter dust, silica, welding fumes, sewer gases, chemicals, contaminated soil, and other airborne hazards.

Where respiratory hazards are present, the contractor should evaluate employee exposure and implement applicable engineering controls, work practices, ventilation, and respiratory protection.

Where respirators are required, the company’s Respiratory Protection Program should address applicable medical evaluations, fit testing, respirator selection, use, inspection, maintenance, and employee training.

Heat Stress, Cold Stress and Severe Weather

Utility employees frequently work outdoors and may be exposed to heat, cold, rain, wind, lightning, and other environmental conditions.

Safety procedures should address applicable environmental hazards and may include:

• Hydration.
• Rest periods.
• Shade or cooling.
• Acclimatization.
• Protective clothing.
• Employee monitoring.
• Cold-weather protection.
• Severe-weather response.
• Lightning.
• Emergency procedures.

Weather conditions should also be considered when evaluating excavation stability, water accumulation, traffic conditions, and equipment operation.

Driving and Fleet Safety

Utility contractors may operate service trucks, pickups, dump trucks, trailers, and other vehicles between jobsites.

Driving and Fleet Safety procedures may address:

• Driver qualification.
• Seat-belt use.
• Distracted driving.
• Vehicle inspection.
• Backing.
• Parking.
• Trailer towing.
• Load securement.
• Accident reporting.
• Vehicle maintenance.

Drivers should consider changing work-zone and jobsite conditions when entering, leaving, or maneuvering around utility projects.

Job Safety Analysis for Utility Construction

A Job Safety Analysis (JSA/JHA) can help utility contractors identify hazards and establish controls before specific work begins.

Utility-construction JSAs may address tasks such as:

• Excavation and trenching.
• Underground utility installation.
• Utility locating.
• Directional boring.
• Backhoe or excavator operation.
• Manhole entry.
• Sewer work.
• Pipe installation.
• Concrete cutting.
• Crane and rigging operations.
• Loading and unloading.
• Traffic control and flagging.
• Work near overhead power lines.
• Electrical work.
• Hot work.
• Confined-space entry.

The JSA should reflect the actual task, utility system, equipment, and jobsite conditions rather than being treated as a generic checklist.

Additional Safety Programs for Utility Contractors

Not every utility contractor requires the same safety programs.

Depending on the company’s operations, additional programs may include:

• Aerial and Boom Lift Safety.
• Arc Flash/NFPA 70E.
• Backhoe and Loader Safety.
• Barriers and Signage.
• Bloodborne Pathogens.
• Cold Stress.
• Compressed Gas Cylinders.
• Confined Space.
• Crane Safety.
• Directional Boring.
• Driving and Fleet Safety.
• Drug and Alcohol Programs.
• Electrical Safety.
• Excavation, Trenching and Shoring.
• Fall Protection.
• Fatigue Management.
• Fire Prevention.
• Flammable and Combustible Liquids.
• Forklift Safety.
• Hearing Conservation.
• Heat Stress Prevention.
• Heavy Equipment and Mobile Equipment.
• Hydrogen Sulfide.
• Lockout/Tagout.
• Overhead Power Line Safety.
• Respiratory Protection.
• Rigging and Material Handling.
• Scaffolding
• Silica Exposure.
• Spill Prevention and Response.
• Traffic Control and Flagger Safety.
• Underground Utilities.
• Vehicle Maintenance.
• Welding, Cutting and Hot Work.
• Working Around the Public.
• Working Alone.
• Working Near Water.
• Other programs applicable to the company’s utility operations.

The objective is not to include every possible safety program. Programs should be selected because they reasonably apply to the company’s employees, utility activities, equipment, materials, and workplace exposures.

Water and Sewer Utility Contractors

Water and sewer contractors may require additional emphasis on excavation and trenching, confined spaces, hazardous atmospheres, sewage exposure, hydrogen sulfide, heavy equipment, pipe handling, traffic control, and water accumulation.

Contractors performing this work should select safety programs based on the actual systems and environments their employees encounter.

A separate Water and Sewer Contractor Safety Manual may also be appropriate when the company’s work is primarily limited to those operations.

Telecommunications and Communications Utility Contractors

Contractors installing underground telecommunications, fiber-optic, or communications infrastructure may perform excavation, trenching, directional boring, conduit installation, vault work, pulling operations, and work near existing utilities.

Applicable safety programs may include:

• Excavation and Trenching.
• Underground Utilities.
• Directional Boring.
• Confined Space.
• Traffic Control.
• Heavy Equipment.
• Electrical Safety.
• Material Handling.
• Hand and Power Tools.

The manual should reflect whether employees perform underground, aerial, or both types of telecommunications work.

Utility Contractors Working at Customer or Host Facilities

Utility contractors may perform construction, repair, or maintenance at facilities controlled by another employer or utility owner.

Before work begins, relevant safety information should be exchanged where necessary.

This may include:

• Energized utilities.
• Hazardous-energy procedures.
• Confined spaces.
• Hazardous chemicals.
• Emergency procedures.
• Restricted areas.
• Required PPE.
• Permit requirements.
• Traffic-control requirements.
• Facility-specific rules.

Utility contractors should also communicate hazards created by their work when those hazards could affect the host employer, public, or other contractors.

Utility Construction Toolbox Talks

Utility work can change substantially as crews move between excavation, installation, equipment operation, roadway work, and other activities.

Toolbox talks can reinforce safety procedures and address hazards relevant to current operations.

Useful utility-construction toolbox-talk topics may include:

• Trenching and excavation.
• Underground utilities.
• Competent-person inspections.
• Heavy equipment.
• Traffic control.
• Confined spaces.
• Overhead power lines.
• PPE.
• Rigging.
• Silica exposure.
• Hand and power tools.
• Heat stress.
• Driving safety.

Toolbox talks supplement required safety training but do not replace training specifically required by applicable OSHA standards.

Utility Safety Manual vs. Site-Specific Safety Plan

A Utility Contractor Safety Manual establishes the company’s overall safety policies, programs, and procedures.

A Site-Specific Safety Plan (SSSP) applies relevant requirements to a particular utility project or worksite.

For example, the company safety manual may contain Excavation and Trenching, Underground Utilities, Confined Space, Heavy Equipment, Traffic Control, Electrical Safety, and PPE procedures. Project-specific planning can then address the actual utility locations, excavations, protective systems, equipment, traffic conditions, confined spaces, emergency arrangements, and other conditions unique to the project.

The company safety manual therefore provides the foundation for project-specific utility construction planning.

Building a Utility Contractor Safety Manual

A practical Utility Contractor Safety Manual should reflect the work the company’s employees actually perform.

When determining which programs to include, consider:

• Water utility construction.
• Sewer and wastewater construction.
• Storm-drain construction.
• Electrical utility construction.
• Telecommunications and fiber-optic installation.
• Underground piping.
• Excavation and trenching.
• Directional boring.
• Tunneling or underground construction.
• Confined spaces.
• Heavy equipment.
• Cranes and rigging.
• Traffic and roadway work.
• Work near energized utilities.
• Overhead power lines.
• Hazardous atmospheres.
• Public exposure.
• Applicable OSHA requirements.
• Customer and contractor-prequalification requirements.

Selecting programs according to actual operations produces a safety manual that addresses the contractor’s real hazards without filling the manual with unrelated safety programs.

Customized Safety Manuals for Utility Contractors

Utility contractors can request a customized Construction Safety Manual containing the Core Safety Programs and additional programs applicable to their utility construction, installation, repair, equipment, hazards, and workplace environments.

Programs can be selected according to the company’s actual work, allowing the manual to address water, sewer, storm drainage, electrical, telecommunications, underground utility, directional boring, or other applicable operations without including large numbers of unrelated safety programs.

Individual safety programs can also be selected when a utility contractor needs to add or update a particular program within an existing manual.