Republic of the Philippines

University of Northern Philippines

Tamag, Vigan City
2700 Ilocos Sur

In Partial Fulfillment
of the Requirements for the Course
PA 246 –Administrative Communication and Management Control

A Research Case Study

is

Submitted to:
Mr. Cid Javier
Professor

Submitted by:
LAUREN L. PANEM
MPA Student

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 Barriers to Personal Protective Equipment Use Among Road Workers
in the Department of Public Works and Highways
Ilocos Sur - 2nd District Engineering Office

I. Abstract

Hazards in construction sites come in many forms. Health and safety should not be

neglected as the first thing to consider at work. Proper use of PPE may save a part of your body

or your whole life. According to OSHA, 2004, Personal Protective Equipment or PPE is an

equipment worn to minimize exposure to a variety of hazards. Employers abroad, foreign

employers in the Philippines and some private employers in the country follow Occupational

Safety and Health Administration (OSHA) standards on the use of PPE to ensure safety of

employees. It was an observation that laborers from contractors of DPWH-Ilocos Sur 2 nd

District Engineering Office do not wear proper PPE. It was also observed that some small

construction sites do not observe proper wearing of PPE. It was for this reason that this study

was conducted. Five respondents answered a survey-questionnaire. It found out that

organizational-level barriers and individual-level barriers were the factors to improper PPE use.

Organizational-level barriers included incomplete set of PPE given to the workers, failure to

conduct health and safety orientation and training of workers, low or no enforcement of wearing

proper PPE and lack of health and safety officer to monitor workers in the workplace.

Individual-level barriers were belief that PPE interferes with work, discomfort and

inconvenience, and defective PPE. It was then recommended to improve management

leadership skills by imposing strict enforcement on PPE use, provision of adequate PPEs, and

conducting of orientations and trainings. Also, it was suggested to make PPE as comfortable as

possible and convenient to use and to use multi-hazard protection. Workers must be responsible

enough in using the necessary PPE.

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 Keywords: PPE, health and safety, barriers, construction, hazards

II. Introduction

Potential hazards are present in the workplace; thus, workers should observe safety

first policy and are required to wear Personal Protective Equipment at all times. With all the

job operations, the built-environment construction operation is riskier in many different forms

in every corner and area, such as sharp edges, falling objects, flying sparks, chemicals, noise,

and other myriads that are the causes of potential danger in every situation (Gomeseria, 2019).

Personal Protective Equipment (PPE) is a device designed to create physical barriers between

the worker and workplace hazards to protect the worker against work-related injuries and

illnesses (Honda & Iwata, 2016).

The term PPE seemed not familiar to construction workers until the COVID-19 outbreak

emerged. It has become a famous acronym in the hospital or health care setting when there is a

need to protect the frontline workers from contracting the virus. It was even a global issue due

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to scarce or unavailable supplies. In the context of engineering, PPE includes eye and face

protection (face shields, goggles), head protection (hearing protection, hard hat), feet and legs

protection (work shoes/boots), hands and arm protection (protective gloves, gauntlets, and

sleeving) and whole-body protection (coverall suits) and fall protection (safety belts, harness).

PPE plays a vital role in the safety and health of workers. It can prevent or reduce the chances

of injury from all manner of activities. It can save life. Lee Shelby, a power lineman before,

now a motivational safety speaker, travels around the world to speak for companies about

workplace safety and his favorite topic is “The Importance of PPE”. The reason behind Shelby

is very passionate in reiterating the value of wearing proper PPE is that he lost his two hands

because of failure to wear the proper PPE. He quoted, "There is no job that is worth your life

or limb. There is nothing that is more important than your life."

The projects of the Department of Public Works and Highways (DPWH), be it roads,

bridges, school buildings or hospitals, are designed for the safety and convenience of the people.

The completed 30-lineal meter Baang Bridge in Barangay Cabaroan and 20-lineal meter Tiagan

Bridge in Barangay Tiagan, both in the municipality of San Emilio, Ilocos Sur, with improved

and sturdier structure, now benefit the people by traversing a safer and faster road to Skyline

View Deck and Kakantuban Rock Formation in Quirino, Ilocos Sur. The installation of slope

protection along Suyo-Cervantes Road in Sitio Quinilaoen, Suyo, Ilocos Sur was prioritized to

prevent recurring landslides and lessen or eradicate motorists’ inconvenience. The frequent

overflowing of water that damages communities and farmlands drove the completion of Tablac-

Bagar River Control Project and farmers in Barangay Tablac, Candon, Ilocos Sur are now

reaping benefits from it. Not only the source of livelihood is protected but also the residents.

The ongoing construction of the satellite hospital of Ilocos Training and Regional Medical

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Center (ITRMC) in Candon City, Ilocos Sur is said to provide convenience to patients who are

far from the main ITRMC in San Fernando City, La Union. Safety and convenience of the

projects’ recipients being considered during planning and design should tantamount the health

and safety of the workers during construction. Effective management of employee’s safety and

health protection is a decisive factor in reducing the extent and severity of work-related injuries

and illnesses and their related cost impact. In fact, the creation of an effective safety and health

program forms the basis of good employee protection, which can save time and money, as well

as increase productivity, reduce employee injuries, illnesses and related worker's compensation

costs involved in the building built environmental construction (Gomeseria, 2019).

Occupational Safety and Health Administration (OSHA) states in their regulations that

employers are required to protect employees from workplace hazards such as machines, work

procedures, and hazardous substance that can cause injury through establishing a PPE program.

The health and safety of workers is the highest priority of a management team and they will

continue to assess the workplace in an ongoing process to make sure all current and new risks

are met, and all control measures are maintained or replaced where needed. In 2017, The

Occupational Safety and Health Center (OSHC), a group under the Department of Labor and

Employment (DOLE) that tasks to handle matters pertaining to safety and health at work

established Occupational Safety and Health Standards. The standards enumerated guidelines

that include orientation, instruction and training of construction workers, provision of PPEs,

presence of safety officer on site and availability of emergency health personnel and facilities

in the workplace. Violations against workplace safety and health standards as per OSCH

issuance are evaluated by PCAB or the Philippine Contractors Accreditation Board. Sanctions

and Penalties are enforced under the R.A. 4566 (Constructors Licensing Law).

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 Fortunately, the researcher observed that

other countries like Singapore and Kuwait

follow the standards set by OSHA. Being a

safety officer in his previous employment

abroad, he was tasked to monitor, assess and

eliminate hazardous and unsafe conditions, to

correct unsafe acts of workers, and to conduct a

regular toolbox meeting. However, unluckily, in his home country particularly in his present

employment in the Department of Public Works and Highways (DPWH), he observed that

laborers or workers especially the road and bridge construction workers only use the

reflectorized safety vest and rarely use the hard hats. They only use what is being required

during documentation. On the other hand, there are companies in the Philippines like Javier

Project Managers, a private construction company enforces “No PPE, No Entry”. Any worker

who violates policy imposed by the management

regarding the use of PPE in the workplace has a

corresponding sanction. Their PPE includes

wearing of reflectorized vest, protective gloves,

working boots, earplugs, hard hats, and harness

and because of COVID-19, an additional face

mask and face shield are required. The Health and

Safety Team is responsible in ensuring a safe and

non-hazardous workplace and ensuring stringent

safety measures of the workers. Nevertheless,

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some other local private companies, as an observation, do not enforce such measures resulting

to horrific accidents whether workers obtain light or grave injury or, in worst scenario, death.

Numerous construction-related incidents have been reported. In 2013, three men were

reportedly injured after an overhead meshwork structure gave way. In 2015, two men reportedly

died and 11 more were injured when part of the floor of an on-going construction collapsed. In

Bulacan, a wall fell and killed 11 people. Just recently, a man in Cabugao was in a state of coma

after he accidentally fell from the roof of a covered court currently on construction and the

following day he died.

Labstat Updates of the Department of Labor and Employment published a journal that

focused on the number of cases of occupational injuries and it revealed 3,383 cases of

occupational injuries in the construction industry in 2000. Of the total cases reported in

construction, 2,154 cases or 63.7 percent had no reported lost workdays, which means that the

injuries suffered by workers required only medical treatment or first aid and the workers were

able to return to their work on the same day or the day after the accident. The stepping on,

striking against or struck by objects, excluding falling objects appeared to be the major cause

of injury in construction industry with 493 cases. Injuries from being struck by falling objects

totaled 186 cases while exposure to or contact with harmful substances or radiations reached

132 cases. Injuries due to exposure to or contact with electric current was the least frequent with

only 33 cases. Construction industry had 40 fatalities equivalent to 22.5 percent of the all-

industry total. In 2013, International Labor Organization (ILO) in Manila said young workers

in the Philippines are the most vulnerable to unsafe and unhealthy working conditions.

An Ohio-based research firm conducted a survey and it showed that lack of employers’

enforcement is the main barrier to PPE use. Other barriers the respondents evaluated were "lack

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 of style/comfort," "hampers job performance," "equipment not available or not provided,"

"expense of equipment to employees," "laborers aren't informed on importance of equipment,"

"apathetic" and "inattentive." (Sutcliffe, 2001). The solution to the case of Brian Farmiloe, a

warehouse worker with psoriasis, who refused to wear prescribed safety boots because of his

disease, was dismissal. In situation like this, health and safety prevail over employment law.

This shows the importance of health and safety especially wearing PPE. This research case

study would like to solicit responses or excuses from some laborers from contractors of DPWH-

IS-2nd DEO why they hesitate to use proper PPE and the researcher would like to resolve it to

minimize or eradicate cases of injuries and fatalities related to construction.

III. Research Case Process

The research case process started with the formulation of the most feasible and valid

questions that may require short answers, long answers and enumeration. It was not validated

by an expert. The questions were asked through a survey to five randomly picked key

informants who are all laborers of contractors of the DPWH-IS-2nd DEO. They were written in

the vernacular since most of the laborers were assumed to be high school or vocational

graduates. Retrieval was done on same day survey questionnaire form were distributed.

The following survey questions were used to solicit responses from the respondents:

1. Ania ti ammom maipanggep ti PPE? (What do you know about PPE?)

2. Ania dagiti kita/langa ti PPE a mausar iti “construction? (What are different types

of PPE that are used in construction?)

3. Ania dagiti usar dagiti nadumaduma a klase ti PPE? (What are the uses of the

various types of PPE?)

4. Kasanu kapateg ti panagaramat ti PPE? (How important is the use of PPE?)

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 5. Ania dagiti bambanag ti manglaplapped kenka ti panagusar ti rumbeng a PPE?

(What are the things that hinder you from using proper PPE?)

IV. Case Presentation of Findings and Discussions

With the booming construction industry in the Philippines, construction workers are in

high demand. The Build Build Build Program of the Duterte Administration paved way for

more construction workers. It is just right and proper to protect the construction workers

because without them, projects would not be realized; infrastructures would not be built.

All of the respondents are aware of what PPE is but unfortunately, they fail to mention

all the required various types of PPE needed while on construction site. They are only familiar

with long sleeve shirt, reflectorized vests, hard hats, and hand gloves which are the items

provided for them; two of them added eye goggles; and three of them identified dust mask and

face shield. Overall, they only wear basic PPE which is considered acceptable since they work

in roads and not in high-rise buildings or plants that wearing the proper PPE including safety

boots or shoes and coverall suits is necessary. Moreover, they mentioned they use ordinary

rubber shoes in place of safety boots or shoes. However, rubber shoes are unsafe. The basic

PPE may somehow lessen their exposure to potential dangers in their workplace but complete

and proper PPE may give adequate protection. In terms of the use of PPE, respondent 1

answered protection from injuries; respondent 2 answered protection and safety; respondent 3

answered protection from injury and skin allergy or rashes that may be brought by cement dust;

respondent 4 specified the use of hand gloves to protect hands from heat surfaces, chemicals

and possible injuries and other PPEs protect the body parts intended to protect; and respondent

5 answered protection from accidents. They did not mention the use of reflectorized vest which

is for visibility. On the importance of using PPE, they all answered “it is very important for

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safety and protection”. They were able to give the right responses in terms of use and

importance of PPE but it showed opposite with their actions.

The last question (“Ania dagiti bambanag ti manglaplapped kenka ti panagusar ti

rumbeng a PPE?”: What are the things that hinder you from using proper PPE?) is the highlight

of this study to obtain reasons or barriers of not wearing proper PPE. One respondent voiced

out his dissatisfaction that the office only gives long sleeve, hard hat, reflectorized vest and

hand gloves. He wished to also receive safety boots or shoes because he once experienced foot

injury when accidentally stepped on a protruding nail. He quoted, “Ti laeng it-itedda ket long

sleeve, helmet, vest, ken gloves. Mangted da koma met sapatos a pangtrabaho ta ngamin

napadasakon ti nalansa ti sakana.”. This means that the office falls short on completeness of

PPE given to the workers even though PPEs are allotted with budget for every approved project.

It gives adequate but incomplete set. Two respondents have almost the same responses that

PPEs can only delay work and it is uncomfortable to wear specifically the hard hat. One quoted,

“Maka-delay ti trabaho no agusar ti hard hat. Saanak komportable.” and the other also quoted,

“Saanko kayat aghelme-helmet ta makataktak ti trabaho ta kanayon a matinnag no agdumog

nak.” The other two respondents said respectively, “Saan kami nabagaan ti benepisyo ti PPE.

Saan da kam sitsitaen. Adda ken awan ayos latta.” and “Marigatanak agiggem wenno kumpet

no naka-gloves nak su nga ik-ikkatek. Uray pay jay safety eyeglass, rugak met, saanko met

makita diay trabahuek.” From their responses solicited, they portray that the office again has

shortcomings on orientation and training of workers regarding health and safety measures,

having safety officers to monitor workers in construction site, and enforcement of said

measures. Another barrier is defective PPEs like worn out protection eyeglasses.

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 All the barriers stated by the respondents in this case study was made mention by

Sutcliffe, 2001. Furthermore, based on the responses of the five respondents, barriers to wearing

proper PPE are categorized into two: organizational-level barriers and individual-level barriers.

Organizational-level barriers include incomplete set of PPE given to the workers, failure to

conduct health and safety orientation and training of workers, low or no enforcement of wearing

proper PPE and lack of health and safety officer to monitor workers in the workplace.

Individual-level barriers are belief that PPE interferes with work, discomfort and

inconvenience, and defective PPE. Stubbornness and lack of discipline by the workers could

also be a barrier because they are familiar with the importance of the PPE and yet they

compromise it because of their wrong notions and misconceptions.

V. Solutions and Recommendations

There is a conspicuous difference between being aware of the hazards and being

cautious and between knowledge of something and practice. It’s not because they have done

the work many times before without an accident, that does not guarantee workers that accident

will not occur anymore. Not wearing proper PPE is the most famous culprit of a remarkable

number of injuries and fatalities in numerous construction sites. Hence, health and safety

measures in all construction sites, big or small need to be sustained if already practicing, enforce

if still falling short in the implementation because accidents are unpredictable.

To encourage workers to use proper PPE, management should be committed in

enforcing the consistent use of PPE and should discourage violations. Violators should be

reprimanded and penalized. Nevertheless, how could management enforce using proper PPE

when problem on quality begin with them? So, first and foremost, management should improve

not only the quantity of supply but also the quality. They should include in their budget

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additional purchases of PPE specifically safety boots for all their workers to achieve adequate

protection. They should select materials that are comfortable but does not compromise

protection. Secondly, they should conduct regular orientation and training and involve all the

employees of the Department of Public Works and Highways. Topics should be around

importance of wearing proper PPE and importance of having a safe workplace. The moment

they realize that risk is just around and the moment what could happen if proper PPE is not used

has described, they will understand its importance. Health and Safety officers should be

responsible enough in the monitoring of the workplace and workers’ safety. They should be

examples worth emulating by also wearing proper PPE. Then, enforcement would possibly be

undertaken strictly.

On the other hand, say, the management has done its best job to comply to the standards

set by OSHA and OSHC, provided the necessary PPE, and conducted training; workers should,

in return, do their part by complying. Non-compliance should be a ground for disciplinary

action. There are some tips by Occupational Health and Safety for encouraging wearer

compliance. First one is to ensure its comfort through working with a manufacturer to conduct

a wear trial. In that way wearer can choose item that best works for him. Next one is to make it

convenient. It should be easy to use and whenever possible reduce the number of separate PPE

items needed for good protection. Lastly, choose products that offer multi-hazard protection.

While leaders need to improve management skills to resolve problems on the use of

PPE, workers must take responsibility for giving importance on the use of necessary PPE. There

were so many excuses to disregard the wearing of proper PPE, but there are a lot more reasons

to work free from danger and to stay alive. Think PPE as the last resort of defense.

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 BIBLIOGRAPHY

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Bureau of Labor and Employment Statistics. (2002). Are Our Workplaces Safe: Focus on
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