A second explanation for why there is not a common understanding of safety roles is the apparent conflict between the OSHA text and the behavior of OSHA the agency. Despite the focus on an employer’s safety duties in the text, the agency does occasionally cite entities other than employers for violations associated with construction workers. OSHA does this based on the Multi-Employer Policy that is included in OSHA’s internal Field inspection resources manual. The policy states that entities other than an exposed employee’s employer can be cited if they created the hazard, were tasked with correcting the hazard, or controlled the construction operations. A recent article documented that a substantial increase in the number of OSHA citations of A/Es has occurred since the early 1980s (Korman et al. 1999).