Is Scaffolding Legal?

Does laying 2x10 across metal scaffolding frames constitute a safe and legal working environment ( I really hope NOT)?  Workers next to our building five stories up were up on this scaffolding with only rope or metal pipe to act as the the blocker to an immediate fall their death.  I could only keep saying to myself, "I could never do that stuff."  How much money would they need to pay you to go up on that stuff....NOT ENOUGH.  I guess I just don't get it, it's not a job I would do.  I don't like heights, and I'd never feel like I was safe.  Plus the scaffolding just seemed so rickety, old and just down CRAZY!!