Safety legislations - management support

Sometimes, it becomes very difficult when production people question the safety officer about the basis for particular requirement mentioned in legislations or good practices. For example, 15 meter distance between hot work area and combustibles, or 1.05 m extension of ladder above landing, or 4:1 for vertical to horizontal of a ladder, etc. Though one can explain about flying of sparks / proper support for the person to walk on to the landing / prevent fall of persons as reason for these requirements, still one questions in meeting the requirements exactly. Similarly, testing of equipment in the specified period, say once in four years for pressure vessels. Questions will be like, whether pressure vessel will fail, if not tested after 4 years. Such questions look silly and safety professional will loose control of his patience. Further with his role as advisor, he can't reply authoritatively unless top management supports safety officer. If such support is extended, then whatever safety officer says will be obliged, though production people will be unhappy internally. So, legislations alone will not help in improving safety culture in an organization. Legislations or not,what is required is top management support expressed in public and supported to the core.