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OSHA DOCKET OFFICER
JUL 3000
DATE
Final Report
TIME.
ECONOMIC ANALYSIS OF THE PROPOSED REVISIONS TO THE OSHA ASBESTOS STANDARDS FOR CONSTRUCTION AND GENERAL INDUSTRY
Contract Number J-9-F-8-0033 Task Order 4, Option Year 1
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Prepared for: U.S. Department of Labor Occupational Safety and Health Administration Office of Regulatory Analysis 200 Constitution Avenue, NW Washington, D.C. 20210
Prepared by: CONSAD Research Corporation 121 North Highland Avenue Pittsburgh, Pennsylvania 15206
27 July 1990
contain an eight-hour TWA permissible exposure limit (PEL) of 0.1 f/cc (in the current rule, the PEL is 0.2 f/cc), as well as the existing requirements for engineering controls, work practices, personal protective equipment, and a variety of ancillary measures for controlling occupational exposure to asbestos.
To meet its requirements under Executive Order 12291, the Regulatory Flexibility Act, and other legislation, and to supplement the existing information regarding the nature, duration, and frequency of asbestos exposure, OSHA, prior to the promulgation of the 1986 asbestos standards, contracted for detailed analyses of asbestos exposure and of the effectiveness, technological feasibility, compliance costs, and economic and environmental effects of regulatory alternatives for controlling asbestos exposure. Separate studies were conducted for construction and asbestos removal in general industry and for primary and secondary asbestos fabrication and use. These studies were performed by CONSAD Research Corporation and Research Triangle Institute (RTI), respectively (CONSAD, 1984 and 1985; RTI, 1984 and 1985), and were used by OSHA in its regulatory impact analysis of the 1986 asbestos standard (OSHA, 1986) and in its analysis of the excursion limit requirements (53 FR 35610).
The purpose of this current study is to conduct certain necessary analyses pursuant to Executive Order 12291 and the Regulatory Flexibility Act and to prepare an economic and technological profile that examines the effectiveness, technological feasibility, compliance costs, and economic effects of OSHA's proposed revisions to the asbestos standards for
1.3
controlling asbestos exposure in primary and secondary asbestos
manufacturing, in construction, and during asbestos removal
projects in general industry.
Exposure to asbestos in general industry occurs during the
various production phases in primary and secondary manufacturing,
as well as during automative brake and clutch repair and ship
repair. Exposure to asbestos during construction work and during
asbestos removal projects in general industry occur in several
activities including: new construction, asbestos abatement,
demolition, general building renovation and remodeling, and routine
maintenance in commercial/residential buildings and in general
industry.
The scope of this study covers all of these activities where
exposure to asbestos can occur. More specifically, the overall
study objectives were:
o To examine the key provisions contained in OSHA's proposed asbestos standards;
o To determine the number of affected workers in the primary and secondary asbestos manufacturing and use sectors, as well as the number of construction workers and workers in firms in selected general industry sectors affected, and the frequencies, levels, and duration of their exposures to asbestos in each of the basic activities described above;
o To determine current control practices and analyze the technological feasibility and direct costs of compliance of the various control practices that can be used to comply with OSHA's proposed asbestos standards; and
o To evaluate the indirect costs and economic impacts of OSHA's proposed asbestos standards on the primary and secondary asbestos manufacturing and use sectors, and the construction industry and firms in selected general industry sectors, including effects on small businesses.
1.4
Tabic Z.1: Conswptlon of Asbestos, 1980 * 1989 (thousand Mtrfe tons)
industry Group
1980
1984
Construction Products
Roofing Products
26.5
7.1
Asbestos-C--nt Pipe Asbestos-C**nt Sheet Floor Tile Costings and Sealants
144.0 7.9
90.2 10.9
37.0 12.1 46.4 21.6
insulation
8.9 2.8
subtotal
288.4
127.0
1989
17.5 7.9 3.0 0.0 4.3 0.0 32.7
Other Products Friction Products Textile Products Gaskets and Packing Paper Products Plastic Products Miscellaneous Products
Subtotal
43.7 1.9 12.3 0.5 1.5 10.4 70.3
48.4 1.5 13.2 1.7 1.1
33.1 99.0
12.1 0.1 4.3 1.0 0.5 1.3 19.3
Total Asbestos Consumption
358.7
226.0
52.0
Source: U.S. Department of Interior, 1980, 1984, and 1989 Mineral* Yearbook (USOOt, 1960b, 1984b, 1990).
2.3
T a b )* 2 7 : C u rra n t O c c u p a tio n a l E xposura to. Aabaatoa O urinp R outine M alntananca Work in Ganara) In d u e try , by A c tiv ity '
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'Table 2.8: Summary of Representative Exposure Levels, Absent Respiratory Protection, by Construction Activity
J
Construction Activity
New Construction
A/C Pipe Installation A/C Sheet Installation Roofing Felt Installation
Asbestos Abatement and Demolition
Removal
Encapsulation Demolition
Renovaticn/Remodelinq
Drywall Demolition Remove Built-Up Roofing Remove Flooring Products
Routine Maintenance: Caaoercial/Residential
' Remove/Repair/Replace Ceiling Tiles Repair HVWZ or Lighting Other Work Above Drop Ceiling Repair Boilers Repair Plumbing Repair Roofing Repair Drywall Repair Flooring
Routine Maintenance: General Industry
Gasket Removal and Installation Removal/Repair of Boiler Insulation Removal/Repair of Pipe Insulation Miscellaneous Maintenance Activities
Representative TWA Exposure Levels, Absent Respiratory Protection fFibers/Cubic Centimeter)
0.02 to 0.06 < 0.15 N.D. to 0.6
< 0.01 to < 8 (pipe insulation) < 0.01 to < 25 (spray-applied) 0.03 to 0.28 < 0.01 to 11
0.15 to 11 N.D. to 0.2 O.02 to 0.04
0.02 to 1.4 0.01 to 2.8 0.01 to 2.8 0.04 to 0.53 0.04 to < 0.1 N.D. to 0.3 O.02 to 1.4 0.02 to 0.04
< 0.1 < 0.01 to 8 < 0.01 to < 0.1 < 0.01 to 2.8
N.D. = Net detectable.
Source: CCNSAD (1984, Chapter 3; and 1985, Chapter 4).
t 2.19
installation and pipe insulation repair) if no longer classified as
small-scale-, short-duration projects, will also now require the use
of half-mask supplied air respirators (again assuming employers
will choose the most cost-effective approach).^
Moreover,
demolition projects and drywall removal renovation projects will
now require full facepiece supplied air respirators rather than
half-mask supplied air respirators.. Table 2.9 summarizes the
projected number of workers exposed to asbestos levels below and
above 0.1 f/cc without the use of respiratory protection.
In sum, most construction activities will generally require
respiratory protection in order to comply with the 0.1 f/cc PEL.
Excep.tions^i.n.clude: A/C pipe installation projects; plumbing
repairs in commercial/residential buildings; floor repairs
(including floor maintenance activities) in commercial/residential
buildings; and pipe insulation repair and gasket removal and
installation projects in general industry if classified as small-
scale, short-duration projects.
The other incremental controls necessary to comply with OSHA's
proposed asbestos standard (with a PEL of 0.1 f/cc), compared to
the current asbestos standard (with a PEL of 0.2 f/cc), include
(depending upon the construction activity);
The removal of asbestos flooring products and these routine maintenance projects in general industry will require respiratory protection because regulated areas are required, not because exposures are expected to be above a PEL of 0.1 f/cc.
2.22
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2.27
* Raprssants ra a u lta n t axposura (a va ls nhan ra s p lra to ry p ro ta c tlo n Is nacassary.
* Thass a s t1 m s te a o f th a num bars o f M orKara p o t e n t i a l l y oxposad to a s b a s to s do n o t In c lu d e th o a a w o rk e rs a s tlm a ta d by OSHA In I t s r e g u la to r y Im pact a n a ly s ts (OSHA, 1886) to bo n a g llg tb ly axposad d u rin g v a ry s m a ll-s c a la , a h o rt-d u ra tlo n Jabs. * E a ttm a ta d a r ith m e tic mssn s ig h t- h o u r ttm a w e ig h te d a va rsg a (TWA) f l b a r axposura la v a ) ( I n f / c c ) .
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* R aprasants ra e u lta n t axpoaura la v a la whan ra m p lra to ry p ro ta c tio n la nacaaaary. * Thaaa a a ttm a ta a o f th a nonbara o f w o rk a ra p o t a n t l a l l y axpoaad to asbaatoa do n o t In c lu d a th o a a w o rka ra e s tim a te d by OSHA in t t a r e g u la to r y Im pact a n a ly a la (OSHA, 19B6) to ba n e g lig ib ly aapoaed d u rin g v e ry a m a t1 -a ca la , a h o rt-d u ra tlo n jo b a .
* * E at Im atad a r ith m e tic mean e ig h t- h o u r tim e w e ig h te d average (TWA) f i b e r exposure la v a l ( I n f / c c ) .
E s tim a te d a r ith m e tic mean e ig h t- h o u r tim e w e ig h te d average (TWA) f ib e r exposure le v e l ( I n f / c c ) . * * * * E ffe c tiv e fib e r exposure le v e ls re fle c t use o f re s p ira to ry p ro te c tio n , necessary fo r com pliance w ith the excursion lim it, by 50 percent of
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4.0 REFERENCES 49
A.F. Meyer and Associates, Inc., Vinyl Asbestos Floor Tile Study Routine Buffing and Stripping Operations, prepared for WRC-TV, Washington, DC, November 6, 1989 (Exhibit 1-109) (A.F. Meyer and Associates, 1989).
Anderson, P.H., M.A. Grant, R.G. Mclnnes, and W.J. Farino, Analysis of Fiber Release from Certain Asbestos Products, prepared for GCA Corporation for the Chemical Control Division, Office of Toxic Substances, U.S. Environmental Protection Agency, 1982 (Anderson, et al., 1982).
Asbestos Information Association (AIA), personal communication with Kenneth Nyquist, June 1990 (AIA, 1990).
Asbestos Information Association/North America (AIA/NA), Advance Written Testimony and Documentary Evidence regarding Proposed Standard for Occupational Exposure to Asbestos, given before the U.S. Department of Labor, Occupational Safety and Health Administration, Washington, DC (Exhibit 91-16); Tab G, Lloyd Ambler (A/C Pipe Manufacturing); Tab I, Alfred E. Netter (A/C Sheet Manufacturing); Tab J, Marsden C. Hutchins (Paper, Gasket Manufacturing); Take K, Eric S. Wormser (Roof Coatings); Tab O, Joseph C. Jackson (A/C Pipe Installation); and Tab P, Sherrel A. Mercer (A/C Pipe Installation).
Breen, J.J., c. Stroup, E.A. Dutrow, and J. Blake, "Evaluating
Asbestos_ Exposures in Buildings," Proceedings of an APCA International Specialty Conference, Asbestos - Its Health Risks, Analysis, Regulation and Control, Atlantic city, NJ, November 1986, pp. 71-78 (Exhibit 1-23) (Breen, et al., 1986).
CONSAD Research Corporation, Economic Analysis of the Proposed Revision to the OSHA Standard Covering Occupational Exposure ~to Asbestos and Nonasbestiform Fibers, Final Report, Contract Number J-9-F-0052, February 2, 1989 (CONSAD, 1989).
CONSAD Research Corporation, Economic and Technological Profile Related to OSHA*a Revised Permanent Asbestos Standard for the Construction Industry and Asbestos Removal and Routine Maintenance Projects in General Industry, Final Report, Contract Number J-9-F4-0024, December 31, 1985 (CONSAD, 1985).
49Exhibit numbers used in this chapter of the report refer to reports contained in either the original asbestos docket (H-033C) or, if preceded with a 1 or 3, the asbestos remand docket (H-033E).
4.1