Asbestos Worker Protection; Asbestos-Containing Materials in Schools; Proposed Rule
Federal RegisterNov 1, 1994
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 763
[OPPTS-62125; FRL-3801-3]
RIN: 2070-AC66
Asbestos Worker Protection; Asbestos-Containing Materials in
Schools; Proposed Amendment
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: EPA is proposing to amend the Asbestos Abatement Projects;
Worker Protection Rule (EPA WPR), by incorporating revised Occupational
Safety and Health Administration (OSHA) asbestos workplace standards
issued since the EPA WPR was promulgated in 1987. The proposed rule
would generally extend the coverage provided under the 1986 OSHA
Asbestos Standard for Construction to State and local government
employees who are not covered by OSHA- or EPA-approved State plans.
(The EPA WPR now applies solely to asbestos abatement projects). EPA
also proposes to extend coverage provided under the OSHA Asbestos
Standard for General Industry for automotive brake and clutch repair.
The proposed revisions to the EPA WPR do not include final amendments
to the OSHA asbestos standards published in the Federal Register of
August 10, 1994. EPA intends to expedite additional rulemaking that
would extend provisions of the new amendments to the OSHA asbestos
standards as they apply to the public sector worker population covered
by the EPA WPR. The proposed rule would also clarify that State and
local government employees include prisoners and students employed in
State and local government construction, or vehicular maintenance work
where asbestos exposure may be encountered in the workplace. EPA also
proposes to delegate authority to grant or deny State exclusions under
the WPR to EPA Regional Administrators, and to add compliance and
enforcement requirements for State exclusions. In addition, EPA is
proposing to amend the Asbestos-Containing Materials in Schools Rule
(Asbestos in Schools Rule), issued under Title II of the Toxic
Substances Control Act (TSCA), the Asbestos Hazard Emergency Response
Act (AHERA), by deleting certain worker protection provisions extended
through the Asbestos in Schools Rule, under the EPA WPR, and by
incorporating all worker protection provisions in the EPA WPR.
DATES: Written comments must be received by EPA no later than January
3, 1995. If a person requests time for oral comment by January 3, 1995,
EPA will hold an informal hearing in Washington, DC. If a hearing is
requested, the exact time and location of the hearing will be published
in the Federal Register.
ADDRESSES: Comments should be submitted in triplicate to: TSCA Docket
Receipts (7407), Office of Pollution Prevention and Toxics,
Environmental Protection Agency, Rm. E-G99, 401 M St., SW., Washington,
DC 20460, Attention: OPPTS-62125.
Comments containing confidential business information (CBI) should
be submitted in triplicate to: TSCA Document Receipt (7407), Office of
Pollution Prevention and Toxics, Environmental Protection Agency, E-
G99, 401 M St., SW., Washington, DC 20460, Attention: OPPTS-62125. A
sanitized copy of comments for which confidentiality claims are made
must be provided in triplicate to the TSCA Nonconfidential Information
Center (NCIC), also know as, the TSCA Public Docket Office. Unit XIV of
this preamble contains additional information about CBI claims.
FOR FURTHER INFORMATION CONTACT: Susan B. Hazen, Director,
Environmental Assistance Division (7408), Office of Pollution
Prevention and Toxics, Rm. E-545, 401 M St., SW., Washington, DC 20460,
Telephone: (202) 554-1404, TDD: 202-554-0551.
SUPPLEMENTARY INFORMATION:
I. Authority
Section 6(a) of TSCA authorizes EPA to regulate a chemical
substance or mixture if EPA finds that the manufacturing, processing,
distribution in commerce, use, or disposal of the substance or mixture,
or any combination of these activities, presents, or will present, an
unreasonable risk of injury to health or the environment. Among the
requirements that EPA may impose are those in section 6(a)(5) and
6(a)(6). Section 6(a)(5) of TSCA authorizes EPA to prohibit or
otherwise regulate any manner or method of commercial use of a chemical
substance or mixture. Section 6(a)(6) of TSCA authorizes EPA to
prohibit or otherwise regulate any manner or method of disposal of a
chemical substance or mixture, or any article containing that substance
or mixture, by any person who uses or disposes of it for commercial
purposes.
The asbestos present in public buildings, or in vehicles or other
products owned and maintained in public buildings, was sold as a
commercial product. Therefore, construction work or brake repair is
commercial activity, subject to section 6(a)(5) of TSCA. The removal of
asbestos is considered disposal for commercial purposes subject to
section 6(a)(6).
Section 203 of TSCA (TSCA Title II, AHERA), requires EPA to
promulgate regulations for inspection of, and appropriate response to,
asbestos-containing materials in schools that are under the authority
of local educational agencies.
Sections 6 and 203 of TSCA authorize EPA to promulgate regulations
to protect State and local government employees who engage in asbestos
work activities who are not otherwise covered under OSHA's Asbestos
Standard for the Construction Industry (29 CFR 1926.58), OSHA's
Asbestos Standard for General Industry (20 CFR 1910.1001), or OSHA-
approved State plans that implement OSHA regulations.
II. Background
In 1987, EPA promulgated the Asbestos Abatement Projects; Worker
Protection Rule (EPA WPR), which extended to State and local government
employees engaged in asbestos abatement projects the provisions of the
revised OSHA Asbestos Standard for Construction. The 1987 WPR, which
replaced the 1986 WPR, provided additional coverage to State and local
government abatement workers by incorporating the revised asbestos
workplace standard permissible exposure limit (PEL) of 0.2 fibers/cubic
centimeters of air (0.2 f/cc), averaged over an 8-hour day, among other
revisions.
In the 1987 WPR, EPA retained, in Secs. 763.120, 763.124, 763.125,
and 763.126, the same language concerning the scope of the WPR,
reporting requirements, enforcement, and inspections as in the 1986
WPR. However, in the 1987 WPR, EPA replaced Sec. 763.121 of the 1986
WPR and established new requirements for the protection of State and
local government asbestos abatement workers, and in Sec. 763.122,
provisions for States to be excluded from the WPR if States had
regulations that are at least as stringent as the WPR.
The OSHA Asbestos Standards were challenged in a lawsuit in 1987.
In 1988, the U.S. Court of Appeals for the District of Columbia upheld
the OSHA standard in most respects, but remanded several issues (BCTD,
AFL-CIO v. Brock, 838 F.2d 1258 (D.C. Cir., 1988)). In partial
response, on September 14, 1988 (53 FR 35629), OSHA issued an amendment
which established a short-term exposure (or excursion) limit and other
minor changes. On December 20, 1989 (54 FR 52024), OSHA issued an
amendment to the Asbestos Standard in response to three of the Court
remand issues that: (1) Rescinded OSHA's ban on the spraying of
asbestos; (2) clarified when construction employers must resume
periodic monitoring; and (3) deferred clarification of the small-scale,
short-duration exemption in the construction industry to a later
rulemaking.
On February 5, 1990 (55 FR 3724), OSHA issued another amendment to
the OSHA Asbestos Standards in response to the second group of court
remand issues that: (1) Expanded its ban on workplace smoking and
increased training requirements covering the availability of smoking
control programs; (2) strengthened warning signs and label
requirements; and (3) explained how and why OSHA's respirator
requirements reduced employee risk below that remaining at the PEL.
OSHA has published a proposed rule (55 FR 29712, July 20, 1990) to
address the remaining remand issues.
III. Relationship of the EPA WPR to the OSHA Asbestos Standard for
Construction
EPA first issued its Worker Protection Rule in 1986 to apply to
asbestos abatement projects using State and local government employees
not covered by the OSHA Asbestos Standard for Construction or by OSHA-
approved State plans. The EPA WPR was revised in 1987, generally
incorporating and applying provisions of the 1986 OSHA Asbestos
Standard for Construction to State and local government employees
engaged in asbestos abatement projects.
However, the 1987 EPA WPR differs from the OSHA Asbestos Standard
for Construction in several areas, discussed in this unit and in unit
V. of this preamble, as a result of EPA's more limited scope of
coverage and/or EPA's own assessment of the relative merits of various
methods for controlling hazards to workers.
OSHA's 1986 Asbestos Standard for Construction applies generally to
all ``construction work'' where asbestos is present, as defined under
29 CFR 1910.12(b) and 1926.58(a). In contrast, EPA's 1987 WPR applies
only to asbestos abatement projects using State and local government
employees who are not otherwise covered by the OSHA Asbestos Standard
for Construction, or under OSHA- or EPA-approved State plans. Unlike
the OSHA Asbestos Standard for Construction, the 1987 EPA WPR defines
``asbestos abatement projects'' as any activity involving the removal,
enclosure, or encapsulation of friable asbestos material. The
activities included in the definition of ``asbestos abatement
projects'' are a subset of the definition of ``construction work'' in
the OSHA Asbestos Standard for Construction.
The 1987 EPA WPR also differs from OSHA's Asbestos Standard for
Construction in retaining the 1986 reporting requirements for asbestos
abatement projects covered by this proposed rule. Under Sec. 763.124,
employers, with certain exceptions, must notify EPA that they intend to
undertake an asbestos abatement project covered by the rule at least 10
days before they begin abatement, except one that involves less than
either 3 linear or 3 square feet of friable asbestos material, or an
emergency project. EPA considers these requirements necessary to
monitor compliance with the general provisions of the rule. OSHA has
proposed certain notification requirements under its proposed revision
to the Asbestos Standard for Construction (55 FR 29712, July 20, 1990).
The revisions would require a notification, comparable to that
presently required under the EPA WPR, by any employer planning to
perform any work covered by the OSHA Asbestos Standard for
Construction.
The definition of ``asbestos'' in the 1986 EPA WPR, and retained in
the 1987 WPR, differs from that defined in the OSHA asbestos standard.
The definition of ``asbestos'' in the OSHA standard does not
distinguish between the asbestiform and nonasbestiform varieties of
minerals. The definition in the EPA WPR applies only to the asbestiform
varieties of the asbestos minerals and is consistent with definitions
of asbestos adopted by EPA in other regulations, including an Advance
Notice of Proposed Rulemaking (ANPR), published in the Federal Register
of October 17, 1979 (44 FR 60061), Notice of Proposed Rulemaking,
published January 29, 1986 (51 FR 3738), and in the Final Rule,
published July 12, 1989 (54 FR 29460), Asbestos: Manufacture,
Importation, Processing, and Distribution in Commerce Prohibitions.
The 1987 WPR also differs from the OSHA Asbestos Standard for
Construction (29 CFR 1926.58), in that several appendices to the OSHA
standard were omitted.
The proposed revisions to the EPA WPR do not include final
amendments to the OSHA asbestos standards published in the Federal
Register of August 10, 1994 (59 FR 40963). EPA intends to expedite
additional rulemaking to extend provisions of the new amendments to the
OSHA asbestos standards that would be applicable to the public sector
worker population covered by the EPA WPR.
IV. Relationship of the Asbestos in Schools Rule to the EPA WPR
The current (1987) EPA WPR covers State and local government
employees, including employees of public schools, who are involved in
asbestos abatement projects (40 CFR 763.121(b)). The Asbestos in
Schools Rule, issued under the authority of AHERA, extends coverage of
the WPR to employees of public school systems when they are performing
operations, maintenance and repair (O&M) activities (40 CFR 763.91
(b)). Private school employees, performing asbestos abatement and O&M
work are covered by OSHA's Asbestos Standard for Construction, as are
other private sector employees.
Since public school employees would be covered directly under the
EPA WPR, as well as all other public sector employees, Appendix B to
Subpart E of the Asbestos in Schools Rule (40 CFR 763.80) would be
moved from Subpart E and incorporated in the WPR as Appendix G to
Subpart G. Appendix B to Subpart E is comparable to Appendix G of the
OSHA Asbestos Standard for Construction (Work Practices and Engineering
Controls for Small-Scale, Short-Duration Asbestos Renovation and
Maintenance Activities - Non-mandatory).
V. Extended Training Requirements of the Asbestos Model
Accreditation Plan (MAP) Under the Asbestos School Hazard Abatement
Reauthorization Act of 1990 (ASHARA)
AHERA required States to adopt, through an EPA-established Model
Accreditation Plan (MAP), minimum training requirements for persons
performing asbestos inspections, preparing management plans, designing
asbestos abatement plans, or conducting asbestos abatement projects in
schools. The Asbestos School Hazard Abatement Reauthorization Act of
1990, (ASHARA), amended AHERA to require EPA to revise the MAP, expand
the scope of training, and extend certain of the training and
accreditation requirements that apply to schools to public and
commercial buildings. This requirement took effect on November 28,
1992. Thus, some State and local government employees covered by the
EPA WPR for abatement projects currently need training specified by the
MAP.
In order to avoid duplication of training, EPA will consider MAP
contractor/supervisor accreditation sufficient to meet the training
requirements for competent persons specified in Sec. 763.121(e)(6)(iii)
of the regulatory text, and MAP worker training sufficient for
compliance with the employee training requirements specified in
Sec. 763.121(k)(3).
Interested parties are encouraged to consult the Federal Register
of February 3, 1994 (59 FR 5236), or EPA Docket OPPTS-62107A, for more
information on the expansion of asbestos MAP training and accreditation
requirements to workers in public and commercial buildings.
VI. Proposed Amendments to 1987 EPA WPR
This unit of the Preamble discusses proposed revisions to the 1987
EPA WPR. The major changes include:
Adopting provisions from the current OSHA Asbestos
Standards to add an excursion limit to regulate short-term exposure to
asbestos, delete the ban on spray application of asbestos-containing
materials, expand the regulation of smoking activities, and provide
information about smoking cessation programs.
Deleting exemptions from initial air monitoring and
labeling based upon certain conditions.
Expanding covered work activities from asbestos abatement
work to construction work and to brake and clutch repair workers.
Adding appendices to govern work practices for
construction and brake and clutch repair work.
Correcting the scope of the exemption triggers associated
with small-scale, short duration operations.
Delegating authority and modifying procedures for
approving State plans governing asbestos worker protection.
Each of these proposed changes is discussed in detail in unit A.
below.
A. Incorporation of Additional Provisions Under the OSHA Asbestos
Standard for Construction
This proposed amendment to the EPA WPR would add the same Excursion
Limit of 1.0 fibers per cubic centimeter of air (f/cc) (averaged over a
sampling period of 30 minutes) as issued under the OSHA PELs for
occupational exposure to asbestos in the Asbestos Standard for General
Industry (29 CFR 1910.1001) and in the Asbestos Standard for
Construction (29 CFR 1926.58). The excursion limit will be codified in
a new paragraph (c)(2), Excursion Limit, under Sec. 763.121(c),
``Permissible Exposure Limits (PELs).''
Requirements would be added in Sec. 763.121 in the following
paragraphs when concentrations of asbestos exceed the excursion limit:
Sec. 763.121 (e) Regulated Areas, (f) Exposure Monitoring, (g) Methods
of Compliance, (h) Respiratory Protection, (i) Protective Clothing, (j)
Hygiene Facilities and Practices, (k) Communication of Hazards to
Employees, (m) Medical Surveillance, and (n) Recordkeeping.
In addition, as consistent with the changes adopted by OSHA (54 FR
52024, December 20, 1989), this proposed amendment would clarify
``resumption of monitoring requirements in the construction industry''
and add a new provision for ``additional monitoring'' under
Sec. 763.121(f).
Section 763.121(e)(6)(iii)(A) would be revised to state that
training shall be provided by an EPA- or State- approved training
provider, or an equivalent course.
Section 763.121(g)(2) Prohibitions would be amended by deleting
paragraph (iii) prohibiting the spray application of asbestos-
containing materials. In its 1986 Asbestos Standard, OSHA banned the
spray application of asbestos-containing products (29 CFR
1910.1001(f)(1)(vii) and 1926.58(g)(2)(iii)). This provision, however,
was remanded to OSHA by the D.C. Circuit Court on October 30, 1989.
OSHA subsequently amended the regulatory text of the 1986 standard by
deleting the prohibition on the spray application of asbestos-
containing products (54 FR 52024, December 20, 1989). Based on the
rulemaking record of the 1986 standard, OSHA concluded that deleting
this prohibition would not significantly increase the risk to workers.
The PEL and excursion limit in the rule apply to all asbestos
operations, including spraying.
In addition, certain spray applications of asbestos-containing
materials are regulated under the EPA National Emission Standard for
Hazardous Air Pollutants (NESHAP). The asbestos NESHAP, which was
issued on April 6, 1973, prohibits the spray application of materials
that contain more than 1 percent asbestos on buildings, structures,
pipes, and conduits (40 CFR 61.146 (a)). Paragraph 61.146 (b) of the
standard requires no visible emissions from spray application of
materials that contain more than 1 percent asbestos on equipment and
machinery.
Under Sec. 763.121(j) Hygiene Facilities and Practices, paragraph
(j)(3) Smoking in work areas would be added which prohibits smoking in
work areas where workers are occupationally exposed to asbestos because
of activities in that work area (55 FR 3724, February 5, 1990).
Under Sec. 763.121(k) Communication of hazards, requirements would
be added to provide information about smoking cessation programs and
materials. Under Sec. 763.121(m), a statement would be required that
the employee has been informed by a physician of the increased risk of
lung cancer attributable to the combined effect of smoking and asbestos
exposure.
Subpart G would be amended to incorporate a new Appendix J -
``Smoking Cessation Program Information for Asbestos Non-Mandatory.''
Appendix J was added to 29 CFR 1926.58 - OSHA's Asbestos Standards for
General Industry and for Construction - in the February 5, 1990 (55 FR
3724) amendment to the rule.
B. Proposed Deletion of Certain Exemptions From Initial Monitoring and
Label Requirements
Sections 763.121 of the WPR and 1926.58 of the OSHA Asbestos
Standard for Construction, paragraphs (f)(2) Initial Monitoring and
(k)(2) Labels, provide for certain exemptions from initial monitoring
and label requirements. EPA is considering deleting certain of these
exemptions.
Section 763.121(f)(2)(i) specifies that each employer who has a
workplace or work operation covered by this subpart, except as provided
for in paragraphs (f)(2)(ii) and (iii), shall perform initial
monitoring at the initiation of each asbestos job to determine
accurately the airborne concentrations of asbestos to which employees
may be exposed.
Section 763.121(f)(2)(ii) exempts an employer from initial
monitoring requirements provided that the employer may demonstrate that
employee exposures are below the action level by means of objective
data demonstrating that the product or material containing asbestos
cannot release airborne fibers in concentrations exceeding the action
level under those work conditions having the greatest potential for
releasing asbestos. EPA is considering whether to delete this exemption
and seeks comment on whether this exemption should be retained or
deleted.
EPA is not aware of objective criteria and therefore seeks comments
on criteria that would be needed to demonstrate a product will not
release asbestos fibers in excess of the action level under any
reasonably foreseeable conditions of use, handling, storage, disposal,
processing, or transportation. The lack of criteria to determine what
constitutes ``objective data,'' such as testing requirements, by a
manufacturer to demonstrate low fiber release potential from a product
that will not exceed the action level, makes it more difficult to
enforce this provision.
In any case, EPA would retain Sec. 763.121(f)(2)(iii) which exempts
employers from initial monitoring requirements of paragraph (f)(2)(1)
based upon earlier monitoring results. This exemption is available if
the employer has data from monitoring previous asbestos jobs that
closely resemble the current operation. EPA believes that this
exemption, provides more direct guidance to the regulated community,
and provides more reliable data for the purposes of compliance with the
provisions of the exemption.
Under the WPR, Sec. 763.121(k)(2)(vi)(A) and (k)(2)(vi)(B),
employers are exempt from the label requirements specified in paragraph
(k)(2)(i), provided that manufacturers can demonstrate that, during any
reasonably foreseeable use, handling, storage, disposal, processing, or
transport, no airborne concentrations of asbestos fibers in excess of
the action level will be released, or that asbestos is present in a
product or material in concentrations less than 0.1 percent by weight.
EPA is considering whether to delete the exemption provisions at
Secs. 763.121(k)(2)(vi)(A) and (k)(2)(vi)(B) and seeks public comments
on this proposal. EPA believes that exemption from requirements for
labeling by manufacturers may lead State and local government employers
subject to the rule to mistakenly assume that the material is incapable
of releasing asbestos fibers and that initiation of workplace
monitoring for asbestos exposure is unnecessary. If the product is not
properly labeled, there is an increased risk that the asbestos-
containing material may not be handled in accordance with prescribed
work practices for operation and maintenance and other related asbestos
work activities.
If EPA deletes the exemptions at Sec. 763.121(f)(2)(ii) and
Sec. 763.121(k)(2)(vi)(A) and (k)(2)(vi)(B), the requirement under
Sec. 763.121(n)(1)(i) through (n)(1)(iii), recordkeeping of objective
data for exempted operations, would also be deleted. However, employers
would, under Sec. 763.121(n)(2)(i) through (n)(2)(iii), continue to be
required to retain accurate records of the data from earlier monitored
jobs that the employer relied on for exemption.
C. Extended Scope of Coverage
The EPA WPR presently applies solely to asbestos abatement
projects. The proposed amendment to the WPR would, under
Sec. 763.120(a), extend the scope of coverage to all asbestos
``construction work,'' as defined under the OSHA Asbestos Standard for
Construction, 29 CFR 1910.12(b). ``Construction work'' includes work
for construction, alteration and/or repair, including painting and
decorating, as specified in 29 CFR 1926.58(a). ``Construction work,''
as defined in 29 CFR 1910.12(b) includes, but is not limited to, (1)
Demolition or salvage of structures where asbestos is present; (2)
removal or encapsulation of materials containing asbestos; (3)
construction, alteration, repair, maintenance, or renovation of
structures, substrates, or portions thereof, that contain asbestos; (4)
installation of products containing asbestos; (5) asbestos spill/
emergency cleanup; and (6) transportation, disposal, storage, or
containment of asbestos on the site or location at which construction
activities are performed.
Section 763.120 would be amended by revising paragraph (a), and by
adding paragraphs (b), (c), and (d). Section 763.120(a) would establish
requirements that State and local government employers subject to the
EPA WPR must follow to protect employees during construction work where
asbestos is present and during automotive brake and clutch repair and
service operations. Section 763.120(b) would establish work practices
and controls that employers may follow in special circumstances as an
alternative to complying with all the requirements of Sec. 763.121.
Appendices F and G contain alternative practices and controls for
certain types of construction work. Appendix K contains alternatives
for brake and clutch work. These alternatives are designed to achieve
employee exposure to asbestos below the action level of 0.1 f/cc. If an
employer utilizes the work practices and controls as specified in the
appropriate appendix, and achieves an exposure below the action level,
then the employer would be able to avoid the regulatory burdens under
Sec. 763.121 that are triggered by exposures to asbestos that exceed
the rule's action level or PEL. Section 763.120(c) specifies
applicability under the EPA WPR. Section 763.120(d) extends protections
established in this part to all State and local government employees,
including employees who are prisoners or students, of all State and
local governments subject to the EPA WPR.
In light of the proposed extended scope of coverage under the WPR,
Sec. 763.121(b) Definitions would be amended by adding definitions for
``automotive brake repair operations,'' as defined in the OSHA Asbestos
Standard for General Industry (29 CFR 1910.1001), and ``construction
work,'' as defined in the OSHA Asbestos Standard for Construction (29
CFR 1910.12(b) and specified in 29 CFR 1926.58(a)). The definition for
``asbestos abatement project'' would be deleted, since asbestos
abatement activities are incorporated within the definition of
``construction work.'' The definition of ``friable asbestos material''
would also be deleted from the EPA WPR because the scope of coverage
would be expanded to cover all asbestos construction activities
involving all asbestos-containing materials and would not be limited to
abatement work involving ``removal, enclosure, or encapsulation of
friable asbestos material.'' Removal of friable asbestos-containing
material also would be deleted from the definition of ``emergency
project.''
D. Incorporation of Appendix F to 29 CFR 1910.1001 the OSHA Asbestos
Standard for General Industry--as Appendix K to Subpart G
The 1986 OSHA Asbestos Standard for General Industry regulates
brake and clutch repair operations under 29 CFR 1910.1001 and Appendix
F to the standard. EPA would extend the same protections by
incorporating them into the regulatory requirements of Sec. 763.121 and
Appendix K.
Workplace practices specified in proposed Appendix K to the EPA WPR
are intended as employer guidance for reducing employee exposures to
asbestos during automotive brake and clutch repair operations to levels
below the action level of 0.1 fiber per cubic centimeter (0.1 f/cc) of
air. Employers who follow the recommended work practices in Appendix K
and who achieve employee workplace exposures below the action level,
would be able to avoid the burden that might be imposed by complying
with such requirements as medical surveillance, recordkeeping,
training, respiratory protection, and regulated areas, that are
triggered when employee exposures exceed the action level or PEL.
E. Incorporation of Appendices F, H, I, and J to 29 CFR 1926.58 of the
OSHA Asbestos Standard for the Construction Industry in Subpart G
The following appendices to the OSHA Asbestos Standard for
Construction would be incorporated in subpart G as Appendices F, H, I
and J: Appendix F (Work Practices and Engineering Controls for Major
Asbestos Removal, Renovation, and Demolition Operators - Non-
Mandatory), Appendix H (Substance Technical Information for Asbestos,
Non-Mandatory), Appendix I (Medical Surveillance Guidelines for
Asbestos, Non-Mandatory), and Appendix J (Smoking Cessation Program
Information for Asbestos - Non-Mandatory).
Minor revisions would be made to current Appendices A, B, C, D, and
E to the EPA WPR and to new Appendices H and I to the EPA WPR. New
Appendix F to the EPA WPR, which is comparable to Appendix F to the
OSHA Asbestos Standard for Construction, would include several
revisions. The paragraphs which describe work practices would be re-
ordered. Figures depicting equipment and diagrams would also be
deleted, and Demolition and Clearance checklists would be relabeled as
Tables A and B. In addition, procedures outlined in the section,
Cleaning the Work Area, under Appendix F, would be revised to conform
to the procedures for cleaning the work area contained in Appendix A to
part 763, subpart E, of the Asbestos in Schools Rule.
F. Incorporation of Appendix B to Subpart E as Appendix G to Subpart G
of the EPA WPR
This proposed amendment would delete Appendix B from the Asbestos
in Schools Rule and incorporate it, with minor changes, in the EPA WPR
as Appendix G to Subpart G, because public school employees would now
be covered directly under the EPA WPR for all ``construction work,'' as
defined in the OSHA Asbestos Standard for Construction. This Appendix
is comparable to Appendix G to 29 CFR 1926.58 - the OSHA Asbestos
Standard for Construction.
Since the EPA WPR would extend coverage to all public sector
employees (not just public school employees) engaged in small-scale,
short-duration operations involving asbestos, Appendix G provides, in
one place, provisions that all public sector employers subject to the
EPA WPR, including local education agency employers, shall comply with
if they wish to be exempt from the negative-pressure enclosure,
competent person, clearance, and decontamination area requirements,
specified in Sec. 763.121(e)(6), (j)(1)(i)(B), and (j)(2)(i) for small-
scale, short-duration operations. Based on the OSHA record, the use of
the work practices and engineering controls described in Appendix G are
capable of reducing employee exposures to asbestos to levels below the
rule's action level of 0.1 f/cc for workers engaged in small-scale,
short-duration activities.
Finally, EPA proposes several minor revisions to the Appendix: (1)
Language referring specifically to the Asbestos in Schools Rule would
be deleted because the Appendix would apply to all construction work in
public sector workplaces, not just to work in schools; and (2) language
exempting employers from compliance with Sec. 763.121(f)(2)(i) for
small-scale, short-duration operations would be revised to correct a
transcription error in the original Appendix B to the Asbestos in
Schools Rule. When Appendix B was printed, the letter ``f'' was
inadvertently substituted for ``j'', thus modifying the applicability
of the exemption. The proposal would remove the incorrect reference to
paragraph (f), and exempt employers that complied with the provisions
of the proposed Appendix G from certain hygiene facility and practices
requirements in Sec. 763.121(j)(1)(i)(B) and (j)(2)(i).
VII. Proposed Amendment to the Asbestos in Schools Rule
EPA is proposing to amend the Asbestos in Schools Rule by deleting
Sec. 763.91(b) which extends coverage of the EPA WPR to employees of
local education agencies who perform operations, maintenance and repair
(O&M) activities. The Asbestos in Schools Rule would also be amended by
deleting Appendix B and incorporating it as Appendix G to the EPA WPR.
Since the proposesd EPA WPR would provide coverage for all
construction work directly to employees of local education agencies,
extension of coverage through Sec. 763.91(b) would no longer be
necessary. Section 763.91 (b) would refer readers to the WPR.
VIII. Exclusions for States
Section 763.122 - Exclusions for States - would also be amended to
delegate authority from the EPA Administrator to the EPA Regional
Administrators the authority to grant or deny State exclusions from the
EPA WPR. In addition, the criteria for granting State exclusions would
be expanded to require State Compliance and Enforcement Plans, and to
clarify that EPA can rescind exclusions to States when State plans lack
enforcement provisions.
States that currently have EPA-approved State Worker Protection
Plans would have 6 months, or such other reasonable time as suggested
by the particular State and approved by the applicable Regional
Administrators, to make their regulations comparable to or more
stringent than this revised part, and to submit their regulations to
the appropriate EPA Regional Administrator for review. If States do not
revise their regulations and submit them to EPA within such reasonable
time after promulgation of the rule, State and local government
employees in such States shall automatically be covered by the revised
EPA WPR.
IX. Future Revisions to this Proposed Rule and Exclusions for
States
EPA may make future amendments to the EPA WPR in order to apply
coverage provided in future revisions to the OSHA Standards, or as
other issues are identified by EPA.
X. Reporting
The present EPA WPR requires that employers must notify EPA at
least 10 days before they commence any asbestos abatement project which
involves greater than 3 linear feet, or 3 square feet of friable
asbestos material. As proposed, employers would be required to notify
EPA before they begin any ``asbestos construction work'' of 3 linear
feet or greater, or 3 square feet or greater. The scope of required
reporting would reflect the expanded scope of coverage under the WPR
and would require reporting of all ``construction work'' where asbestos
is present, except exempted small-scale operations or emergency
projects, rather than the present reporting requirements limited to
asbestos abatement projects.
XI. Regulatory Assessment
TSCA requires EPA to consider and publish a statement with respect
to the effects on human health and the environment and the magnitude of
exposure (section 6(c)(1)(B)). In developing the 1986 WPR and revised
1987 EPA WPR, EPA considered the requirements imposed by section
6(c)(1) of TSCA in order to determine whether asbestos exposure
presents an unreasonable risk. Specifically, it considered the effects
of asbestos on health and the environment. It also considered the
benefits of the substance and the availability of substitutes and the
reasonably ascertainable economic consequences of the EPA WPR. EPA
incorporates the regulatory assessments made for the previous EPA WPR
(51 FR 15724 and 52 FR 5618) and assesses in this document only the
incremental changes introduced by this rule.
A. Health Effects and Magnitude of Exposure to Asbestos
1. Health effects. EPA classifies asbestos as a Group A carcinogen,
i.e., a human carcinogen (sufficient evidence in human epidemiological
studies supported by evidence of carcinogenic effects in several animal
species). (USEPA/ORD Airborne Asbestos Health Assessment Update, EPA/
600/884/003F, June 1986. See also, USEPA/ORD: The Risk Assessment
Guidelines of 1986, EPA/600/8-87/045, August 1987), the Annual Report
on Carcinogens, National Toxicology Program, U.S. Department of Health
and Human Services.)
In the preamble to the 1986 WPR (51 FR 15722, April 25, 1986), EPA
reviewed the serious adverse human health effects associated with the
use of asbestos, and incorporated that analysis in the 1987 WPR. This
proposed rule incorporates that analysis and supporting documentation
as well. The studies reviewed and incorporated in the 1986 WPR Docket
(Docket No. OPPTS-62044A) include the ``Report to the U.S. Consumer
Product Safety Commission'' (CPSC) by the Chronic Hazard Advisory Panel
on Asbestos, ``Health Effects and Magnitude of Exposure'' in EPA's
``Support Document for Final Rule of Friable Asbestos-Containing
Materials in School Buildings,'' and the ``Report of the National
Research Council Committee on Nonoccupational Health Risks of
Asbestiform Fibers.''
EPA finds that exposure to asbestos poses risk of adverse health
effects. The effects of asbestos exposure have been examined in
numerous human epidemiology studies and animal studies. Diseases
associated with exposure to asbestos that have been identified include
lung cancer, mesothelioma, gastrointestinal cancer, and cancers of
other organs, as well as asbestosis, a disabling fibrotic lung disease.
A detailed discussion of specific diseases associated with asbestos
exposure, the estimated exposure to workers, and cancer risk
extrapolation, is found in the preamble to the 1986 EPA WPR.
2. Magnitude of exposure. The current (1987) EPA WPR covers State
and local government employees in the 27 States that do not have OSHA-
approved State plans who are engaged in asbestos abatement projects
only. The proposed WPR would expand the scope of coverage to include
all construction and brake repair work where asbestos is encountered in
public sector workplaces by State and local government employees in
those States covered by the EPA WPR.
In the 1986 WPR, EPA estimated that asbestos abatement workers
would be exposed to asbestos during abatement work, that other State
and local public employees, including public school employees, public
hospital staff, and State and local government office workers, would be
exposed during abatement, and that other occupants and visitors would
be exposed after abatement. These estimates are contained in the EPA
support document for the 1986 Rule - ``Asbestos Abatement Rules: A
Preliminary Cost-Effectiveness Analysis. Revised Draft Report May,
1986'' (Docket No. OPPTS-62044A). EPA found that the risk to State and
local government abatement workers would be reduced by the protection
provided by the WPR (51 FR 15722, April 25, 1986).
In the 1987 EPA WPR, EPA found that the revised rule would further
reduce risk to public sector asbestos abatement workers because of the
reduction in the PEL from 2.0 f/cc to 0.2 f/cc, and because of the
requirement for additional work practices and protective equipment. (52
FR 5619, February 25, 1987).
The incremental impact of this proposed rule is presented in the
Regulatory Impact Analysis (RIA) proposed for this rule (Asbestos
Worker Protection Rule Regulatory Impact Analysis, Revised Draft
Report. July 23, 1993. Contract #68-D2-0064). In the RIA, the number of
State and local government employees engaged in construction work and
brake and clutch repair in the 27 States that would be covered by the
extended scope of coverage of this proposed rule is based on estimated
``full-time equivalents'' (FTEs) rather than actual numbers of
employees. For example, two workers exposed to asbestos in their work
activities one-half year each would total one FTE. The RIA assumes that
public sector workers are not engaged in asbestos-related construction
work and brake repair on a full-time basis and, thus, are not exposed
to asbestos full-time in the workplace.
EPA examined three kinds of worker exposures: (1) Those associated
with building maintenance work, (2) those associated with building
renovation work, and (3) those associated with brake and clutch repair
work. To simplify the construction sector analysis, EPA grouped several
maintenance tasks together. Tasks involving work on lighting, heating
ventilation, and air-conditioning systems were combined in this way, as
were boiler/furnace repair and plumbing repair. Exposure estimates for
these tasks were also grouped together.
To estimate the magnitude of exposure to employees affected by this
proposed rule, EPA first estimated the number of buildings and motor
vehicles owned by State and local governments in those 27 States
without OSHA-approved State plans. EPA then estimated the frequency
with which various kinds of projects involving asbestos exposure would
be conducted, and the person-hours required per project. Finally, for
construction work, EPA used these estimates of the number of projects
and person-hours needed per project to estimate the number of FTEs
associated with each type of project in buildings owned by State and
local governments on an annual basis in the States covered by the EPA
WPR. For brake and clutch repair, EPA derived the estimated number of
public sector brake and clutch repair workers affected by using the
following assumption. The ratio which exists between the number of
workers exposed in automobile repair nationwide (b) and the number of
private brake and clutch repairs performed (c) was assumed to be the
same as the ratio between the number of public sector brake and clutch
repair workers (x) and the number of brake and clutch repairs performed
on government vehicles (a): (x/a = b/c).
The estimated number of FTE's in the 27 States that would be
covered by the proposed EPA WPR are: 1,227 to 1,910 FTEs for
maintenance activities, 2,022 FTEs for renovation work, and 9,692 FTEs
for brake and clutch repair.
Because public sector workers in the 27 states without OSHA-
approved state plans are not covered under existing regulations,
monitoring data are not available on the exposure levels for this
specific worker population under unregulated conditions. For this
analysis, therefore, EPA assumes that the individual baseline asbestos
exposure levels for state and local government employees are those
estimated by OSHA in 1986 for private-sector workers conducting the
same kinds of work under OSHA's 1986 2.0 f/cc PEL. OSHA's estimates are
based on a variety of sources but rely principally on personal exposure
monitoring data from OSHA's Integrated Management Information System
(IMIS) and on sampling conducted for OSHA under contract.
Because public sector worker exposure to asbestos in the states
covered by the EPA WPR is not controlled under existing regulations for
construction work, other than abatement work, or for brake and clutch
repair, actual exposures may exceed the level estimated in the RIA for
this proposed rule. EPA assumes that present, unregulated, exposure
levels exceed the PEL proposed in this document. In that case, state
and local employers would be required to comply with the work practices
proposed in the amendments to the EPA WPR once the rule is issued in
order to reduce employee exposures to below the PEL and action level.
The rule's benefits would result from the use of the work practices
required by this proposed rule, which would reduce exposure levels
below the proposed PEL to the levels indicated in the next paragraph.
Although EPA believes exposures are higher, the benefits are measured
only for the incremental decrease in exposure from the exposure levels
estimated by OSHA in its 1986 asbestos standard, and not for the full
reduction from present, unregulated, exposure levels. Accordingly, the
true magnitude of exposure is not reflected in the benefits, which are,
therefore, understated.
The baseline exposure levels estimated by OSHA in 1986 and used in
this proposed rule to calculate benefits are as follows. Baseline
exposure levels for maintenance work are estimated to range from 0.02
f/cc for flooring repair to 0.75 f/cc for drywall repair. Exposure
levels for maintenance work under this proposed rule would range from
0.001 f/cc to 0.02 f/cc. Baseline exposure levels for renovation work
range from 0.12 f/cc for built-up roofing to 0.34 f/cc for drywall
demolition. Exposure levels for renovation work under this proposed
rule would range from 0.0012 f/cc to 0.034 f/cc. The baseline exposure
level for brake and clutch repair work is 0.06 f/cc, and exposures
would be reduced to 0.015 f/cc by following the work practices in this
proposed rule.
B. Benefits of Asbestos Products and Availability of Substitutes
EPA has considered both the benefits of asbestos for the uses
regulated by the proposed rule and the availability of substitutes for
those uses. EPA has concluded that the benefits of asbestos for such
uses are minimal, and that there are substitutes available for those
uses.
When EPA first promulgated the WPR in 1986, and later amended it in
1987, it concluded that the benefits of asbestos-containing products
affected by the rule were minimal (51 FR 15722, April 25, 1986 and 52
FR 5618, February 25, 1987). EPA noted that the 1986 and 1987 rules
applied only to asbestos abatement projects where persons had already
decided to remove, enclose, or encapsulate friable asbestos-containing
material (ACM). In such situations, EPA presumed that the persons had
already determined that there were little or no benefits in using the
ACM in its present condition.
EPA continues to believe that the proposed regulation would have
little or no impact on any benefits associated with the uses of
asbestos that are affected by the proposed revisions to the WPR. This
is particularly true where the provisions concern work associated with
the removal, enclosure, or encapsultation of ACM. Persons directing
those activities presumably have decided that there are no benefits to
continued use of the asbestos. The same reasoning applies to most other
construction activities that would be governed by the resided WPR such
as demolition and asbestos spill or emergency cleanup, as well as the
transportation, disposal, storage, or containment that is associated
with those activities or with asbestos abatement projects. It also
applies to the removal of asbestos used in brakes and clutches. In all
of those activities, the persons are getting rid of the ACM, and
therefore have apparently decided that there are few, if any, benefits
to the continued use of asbestos.
Even where the proposed rule would regulate the installation of
asbestos-containing products during construction, EPA believes that
there are few impacts on the benefits from such uses of asbestos. This
proposed rule would not prevent anyone from using the products. The
proposed rule would require some expenditures to comply with the
additional safety practices, but as discussed in unit XII of this
preamble, such costs are very small when considered in the context of
existing State and local government expenditures for building
maintenance.
EPA also believes that there are substitutes available for the
asbestos uses that would be regulated by the revised WPR. In its 1986
rulemaking, OSHA concluded that the extensive tort litigation in the
area of occupational exposure to asbestos and the awareness of the
health effects associated with asbestos exposure had provided a strong
incentive for producers and users of asbestos products to utilize
substitutes. OSHA estimated that approximately 50 to 75 percent of
producers of phenolic molding compounds have substituted other
materials such as clay or fiberglass for asbestos. OSHA concluded that
similar success had been achieved in the production of floor tile,
where non-asbestos fibers and petrochemicals were being used, and in
friction materials. OSHA noted that roofing felts, pipeline felts, and
asphalt coatings have all been produced using fiberglass in place of
asbestos fibers.
OSHA further noted that, in the past, the price of substitute
materials had been much higher than the price of asbestos, but that the
``full price'' of using asbestos, which includes the potential cost of
control methods, tort litigation, etc., had increased significantly.
OSHA concluded, therefore, that the difference between the cost of
using asbestos and the cost of using other substitute materials had
diminished greatly and in many instances had disappeared entirely (see
preamble to the 1986 OSHA Asbestos Standards - Availability of
Substitutes - 51 FR 22651, June 20, 1986).
Inasmuch as the proposed EPA WPR neither proscribes nor prescribes
the use of asbestos or substitutes for asbestos, the rule would have
little, if any, impact on the availability of asbestos or require the
use substitutes. However, persons who use ACM would be subject to the
work practice requirements specified in this proposed rule in order to
ensure that worker exposures do not exceed the PEL and action level.
C. Economic Effects of the Proposed Rule
Section 6(c)(1)(D) of TSCA requires EPA to determine the
``reasonably ascertainable economic consequences of the proposed rule
after consideration of the effect on the national economy, small
business, technological innovation, the environment, and public
health.'' Based on the Regulatory Impact Analysis (RIA) developed in
support of this proposed rulemaking action, EPA projects that the
economic effects on State and local governments would be minimal and
that the benefits to employees of State and local governments would be
significant in terms of risk reduction.
EPA estimates that the total annualized cost to State and local
governments of compliance with the proposed rule would range from $15.4
to $17.3 million. The annualized cost would be $3.1 million to $4.8
million for the maintenance sector, $11.8 million for the renovation
sector, and $0.6 to 0.8 million for the brake and clutch repair sector.
Costs are presented as a range because of uncertainties in the number
and frequency with which repairs will have to be made in the
maintenance and brake and clutch repair sectors. EPA believes that
these are high estimates of the actual annual compliance costs that
will be incurred in future years, because, as States and localities
make repairs that involve asbestos, many will decide to replace the ACM
with a substitute.
When these costs are considered in the context of state and local
government budgets dedicated to building maintenance, the costs of the
proposed rule are very small. The incremental compliance costs for the
proposed rule in both the maintenance and renovation sectors would
cause 0.21 to 0.24 percent increase in the costs of State and local
government spending for building upkeep. States covered by the EPA WPR
are already required to comply with worker protection requirements for
public sector workers engaged in asbestos abatement projects. Such a
minimal change in the cost of building maintenance is unlikely to have
any significant impact on State and local government budgets.
Costs were also measured in terms of cost per cancer case avoided.
The cost per case avoided was calculated by dividing the social cost of
the rule by the number of cases potentially prevented by the rule over
the next 30 years. Compliance with the proposed rule was estimated to
prevent between 61 and 67 asbestos-related cancer deaths over 30 years
at a social cost of $15,442,787 to $17,331,401 millon per year. Taking
the mid-point of the benefits and cost ranges, for the rule as a whole,
the average annualized cost per case avoided would be $5.1 million. In
the maintenance sector, the cost per case avoided is estimated to be
$5.6 million; in the renovation sector, the cost per case avoided is
estimated at $7.1 million; and in the brake and clutch repair sector,
the cost per case avoided is estimated to be between $0.7 and $0.9
million.
EPA believes the cost per case avoided is overstated in the
maintenance and renovation sectors, because not all benefits are
counted. The estimates do not account for the cancer cases that the
proposed rule is likely to prevent among other building occupants and
bystanders who are located in the vicinity of the asbestos maintenance
and renovation projects covered by the proposed rule.
D. Evaluation of Other Statutes
Under section 6(c) of TSCA, EPA may not promulgate a rule under
section 6(a) of TSCA if EPA determines that a risk of injury to health
or the environment could be eliminated or reduced to a sufficient
extent by actions taken under another statute administered by EPA,
unless EPA finds it is in the public interest to protect against the
risk by action under TSCA. EPA has analyzed other statutes administered
by EPA and concludes that no other law administered by EPA will
satisfactorily eliminate or reduce the risks to State and local
government workers.
Under section 9(a) of TSCA, EPA is required to review other Federal
authorities not administered by EPA to determine whether action under
those authorities may prevent or reduce a given risk. This amendment
would extend coverage only to persons not covered by other Federal
laws. The only statute not administered by EPA that could reduce risks
from workplace exposure to asbestos is the Occupational Safety and
Health (OSH) Act, administered by OSHA. However, the OSH Act does not
apply to State and local government employees. The OSH Act does provide
that a state can implement its own state worker protection plan,
subject to approval by the Secretary of Labor. Twenty-three States and
two U.S. territories have implemented State plans. Twenty-seven States
do not have OSHA-approved State plans. EPA has determined that there is
no statute administered by another Federal agency that can prevent or
reduce the risk of asbestos exposure presented to public sector
employees not covered by the OSHA Asbestos Standards or by State plans
during asbestos-related construction and brake and clutch repair work.
EPA's analysis of this issue is in the preamble to the 1986 EPA WPR (51
FR 15722).
XII. Finding of Unreasonable Risk
TSCA section 6 requires EPA to weigh the benefits against the costs
of the proposed rule. To fulfill this requirement, EPA prepared an RIA
to assess the costs and benefits of the proposed rule.
In the RIA, the benefits of the proposed rule were estimated in
terms of the number of deaths from lung cancer, mesothelioma, and
gastrointestinal cancers attributable to asbestos exposure that would
be prevented by the new, lower exposures to asbestos due to the
proposed rule. EPA used the models developed by Nicholson for OSHA and
EPA to estimate the relative and absolute risks of lung cancer and
mesothelioma cases, respectively. A detailed discussion of the data
inputs for the health model is found in Appendix C of the RIA.
EPA estimates that 69 to 75 asbestos-related deaths would occur
among unprotected public sector workers engaged in construction work
and brake and clutch repair over the course of 30 years in the absence
of the proposed EPA WPR, and that 61 to 67 of these deaths would be
avoided under the proposed rule.
EPA believes that the estimated benefits are understated. The true
magnitude of risk reduction is not reflected in the estimated benefits,
because the benefits of risk reduction are measured only for the
incremental decrease in exposure from the exposure levels estimated by
OSHA in its 1986 asbestos standard, and not for the full reduction from
present, unregulated exposure levels. Exposures to persons other than
workers in areas where asbestos-related work activities are being
conducted are also not quantified.
EPA weighed the costs and benefits of extending coverage for
asbestos-related construction work and brake and clutch repair to State
and local government workers. EPA believes that the benefits of 61 to
67 cancer cases avoided in the unprotected public sector worker
population outweigh the estimated annualized cost per case avoided of
$5.1 million.
EPA believes, therefore, that unregulated exposure to asbestos in
construction and brake and clutch repair work in public sector
workplaces presents an unreasonable risk of injury to human health.
XIII. Enforcement
Section 15 of TSCA makes it unlawful to fail or refuse to comply
with any provision of a rule promulgated under section 6 of TSCA.
Therefore, failure to comply with the rule would be a violation of
section 15 of TSCA. In addition, section 15 of TSCA makes it unlawful
for any person to: (1) Fail or refuse to establish and maintain records
as required by the rule; (2) fail or refuse to permit access to or
copying of records, as required by TSCA; or (3) fail or refuse to
permit entry or inspection as required by section 11 of TSCA.
Violators may be subject to both civil and criminal liability.
Under the penalty provision of section 16 of TSCA, any person who
violates section 15 could be subject to a civil penalty of up to
$25,000 for each violation. Each day of operation in violation of the
rule could constitute a separate violation. Knowing or willful
violations of the rule could lead to the imposition of criminal
penalties of up to $25,000 for each day of violation and imprisonment
for up to 1 year. In addition, other remedies are available to EPA
under sections 7 and 17 of TSCA, such as seeking an injunction to
restrain violations of the rule.
XIV. Confidentiality
All comments will be placed in the public record unless the
commentater claims that they contain confidential business information
(CBI), and the comments are clearly labeled as containing claimed CBI
when they are submitted. Because of the need to expedite this process,
CBI claims should be accompanied by comments substantiating the claim
as described in 40 CFR 2.204(e)(4). While a part of the record, CBI
comments will be treated in accordance with 40 CFR part 2. A sanitized
version of all comments subject to CBI claims should be submitted to
EPA for the public file.
It is the responsibility of the commentater to comply with 40 CFR
part 2 so that all materials claimed as confidential may be properly
protected. This includes, but is not limited to, clearly indicating on
the face of the comment (as well as on any associated correspondence)
that information claimed to be CBI is included, or marking
``CONFIDENTIAL,'' ``TSCA CBI,'' or a similar designation on the face of
each document or attachment in the comment which contains the claimed
CBI. EPA will consider the failure to clearly identify the claimed
confidential status on the face of the comment as a waiver of any such
claim and will make such information available to the public without
further notice to the commentater or business.
XV. Request for Comments
EPA is requesting comment on the proposed rule only to the extent
that it would amend or change the existing regulations. EPA is not
soliciting comments on provisions of the existing regulations that
would not be changed by this proposal. Some provisions of the existing
rule and appendices are reproduced here for clarity and to facilitate
understanding of how the changes and amendments fit within the existing
regulatory scheme. The existing appendices are reproduced in their
entirety because these appendices, along with the new appendices
incorporated in the rule, are moved from Sec. 763.121(p) and recodified
as Appendices to 40 CFR part 763, Subpart G.
XVI. Rulemaking Record
EPA has established a record for this rulemaking under document
control number OPPTS-62125. A public version of the record and an index
of documents in the record are available to the public in the TSCA
Nonconfidential Information Center (NCIC), also known as, the TSCA
Public Docket Office from noon and to 4 p.m., Monday through Friday,
except legal holidays. TSCA NCIC is located in Rm. E-G102, 401 M St.,
SW., Washington, DC.
The record includes information considered by EPA in developing
this proposed rule, including the following categories of information:
(1) Federal Register notices cited in this document, (2) support
documents, and (3) other referenced documents.
The record also incorporates by reference the rulemaking record for
the 1987 EPA WPR final rule (Docket Number OPPTS-62050) which includes
the dockets for the 1986 OSHA Asbestos Standard, and the 1986 EPA WPR.
XVII. Support Document
USEPA, OPPT, OPPTS. Asbestos Worker Protection Rule. Regulatory
Impact Analysis. Revised Draft Report, January 13, 1993. Revised July
23, 1993. Prepared by ICF, Inc., Contract Number 68-D2-0064.
XVIII. References
(1) USEPA, ORD, OHEA. Airborne Asbestos Health Assessment Update.
EPA/600/8-84/003F, June 1986.
(2) USEPA, OPTS, OTS. Toxic Substances; Asbestos Abatement
Projects; Worker Protection; Final Rule (51 FR 15722, April 25, 1986).
(3) USEPA, 1987. Asbestos Abatement Projects; Worker Protection;
Final Rule (52 FR 5618, February 25, 1987).
(4) USEPA, 1987. Asbestos-Containing Materials in Schools; Final
Rule and Notice. Part 763 (amended) subpart E, 52 FR 41926, October 30,
1987.
(5) USDOL, OSHA. 20 CFR Parts 1910 and 1926 ``Occupational Exposure
to Asbestos, Tremolite, Anthophyllite, and Actinolite,'' Final Rules
(June 20, 1986, 51 FR 22612).
(6) USDOL, OSHA. 29 CFR Parts 1910 and 1926 ``Asbestos, Tremolite,
Anthophyllite, and Actinolite''; Final Rules. Preamble. (September 14,
1988, 53 FR 35610).
(7) USDOL, OSHA. 29 CFR Parts 1910 and 1926 ``Occupational Exposure
to Asbestos, Tremolite, Anthophyllite, and Actinolite,'' Final Rule;
Partial Response to Court Remand. Preamble. (December 20, 1989, 54 FR
52024).
(8) USDOL, OSHA. 29 CFR Parts 1910 and 1926 ``Occupational Exposure
to Asbestos,'' Final Rule; Partial Response to Court Remand. Preamble.
(February 5, 1990, 55 FR 3724).
(9) USDOL, OSHA. 29 CFR Parts 1910 and 1926 ``Occupational Exposure
to Asbestos, Tremolite, Anthophyllite and Actinolite; Proposed Rule''
(July 20, 1990, 55 FR 29712).
XIX. Regulatory Assessment Requirements
A. Executive Order 12866
Under Executive Order 12866 (58 FR 51735, October 4, 1993), the
Agency must determine whether the regulatory action is ``significant''
and therefore subject to review by the Office of Management and Budget
(OMB) and the requirements of the Executive Order. Under section 3(f),
the order defines a ``significant regulatory action'' as an action that
is likely to result in a rule: (1) Having an annual effect on the
economy of $100 million or more, or adversely and materially affecting
a sector of the economy, productivity, competition, jobs, the
environment, public health or safety, or State, local or tribal
governments or communities (also referred to as ``economically
significant''); (2) creating serious inconsistency or otherwise
interfering with an action taken or planned by another agency; (3)
materially altering the budgetary impacts of entitlement, grants, user
fees, or loan programs or the rights and obligations of recipients
thereof; or (4) raising novel legal or policy issues arising out of
legal mandates, the President's priorities, or the principles set forth
in this Executive Order.
EPA has determined that the proposed amendment to the EPA WPR will
not have an effect on the economy of $100 million annually. EPA has
prepared an RIA as part of this rulemaking which estimates that the
economic impact of the proposed rule to State and local governments
would not be significant. EPA estimates that the overall costs of the
proposed rule to the 27 State and local governments would be about
$15.4 to $17.3 million per year over 30 years and would constitute only
a very small percentage of these entities' budgets. The compliance
costs for the proposed rule in both the maintenance and renovation
sectors would cause a 0.21 to 0.24 percent increase in the costs of
State and local government spending for building upkeep.
A copy of the RIA has been included in the administrative record
for this rule, and is available for public inspection, as outlined in
Unit XVI of this Notice.
B. Executive Order 12875
Executive Order 12875 (58 FR 58093, October 28, 1993) requires the
Agency to consult with representatives of affected State, local, and
tribal governments prior to the formal promulgation of a regulation
containing a proposed unfunded mandate. Through the Forum on State and
Tribal Toxics Action (FOSTTA), EPA briefed the States that are affected
by the EPA WPR, seeking comments on the proposed WPR amendments. The
Forum is a mechanism for State and tribal officials to cooperate in
addressing toxics-related issues and to improve communication and
coordination between States, tribes, and the EPA. FOSTTA has forged a
communication network linking the States and tribes and EPA's Office of
Prevention, Pesticides and Toxic Substances (OPPTS) and the Office of
Enforcement and Compliance Assurance (OECA) on a variety of toxics-
related issues. EPA met with members of the FOSTTA Coordinating
Committee at a meeting on February 27, 1994, to discuss the provisions
of the EPA WPR. The National Conference of State Legislatures (NCSL),
through FOSTTA, provided EPA with a summary of findings from a survey
of asbestos programs in States without OSHA-approved State plans.
Information regarding EPA's consultation with States (i.e.,the EPA
briefing paper submitted to the FOSTTA membership, FOSTTA Coordinating
Committee Meeting Agenda, and NCSL survey summary) has been included in
the administrative record for this proposed rule and is available for
public inspection in the Docket for the EPA WPR.
The proposed EPA WPR would require State and local governments to
comply with additional worker protection provisions to protect State
and local government workers from exposure to asbestos. The Regulatory
Impact Analysis (RIA), developed to support this rulemaking, concluded
that while the proposed rule may affect a substantial number of State
and local government entities, the costs of additional worker
protection requirements under this proposed rule would not have a
significant impact on State and local government budgets, even on those
portions of local government budgets that are devoted to building
maintenance (see unit XIX.C. of this preamble). In addition, the
proposed regulatory text provides, at Sec. 763.122, Exclusions for
States, that EPA may grant exclusions from the EPA WPR requirements to
States that develop their own State worker protection plans.
C. Regulatory Flexibility Act
Under the Regulatory Flexibility Act, (5 U.S.C. 605(b)), EPA must
prepare a Regulatory Flexibility analysis for all regulations that will
have a significant impact on a substantial number of small entities.
The Act defines ``small entities'' as including small governmental
jurisdictions and further defines small governmental jurisdictions as
the governments of cities, towns, townships, villages, school
districts, or special districts that have populations of fewer than
50,000. Because the proposed rule will affect governmental
jurisdictions in the 27 States covered by the EPA WPR that engage in
construction work or brake and clutch repair work, the proposed rule
can reasonably be expected to affect a substantial number of small
governmental entities. However, the costs of the proposed rule
represent only 0.21 to 0.24 percent of costs expended by State and
local governments for building upkeep. Thus, the costs of the proposed
rule will not have a significant impact even on those portions of local
government budgets that are devoted exclusively to building
maintenance. As a result, the Agency concludes that the proposed rule
will not have a significant impact on a substantial number of small
governmental jurisdictions and that a full Regulatory Flexibility
Analysis is therefore, unnecessary. A discussion of EPA's economic
analysis of this proposed amendment to the WPR appears in Unit XI of
this preamble.
Therefore, pursuant to section 605(b) of the Regulatory Flexibility
Act, 5 U.S.C. 605(b), the Administrator certifies that this proposed
rule will not have a significant economic impact on a substantial
number of small entities.
D. Paperwork Reduction Act
The information collection requirements in this proposed rule have
been submitted for approval, as a revision to OMB control number 2070-
0072, to the Office of Management and Budget (OMB) under the Paperwork
Reduction Act, 44 U.S.C. 3501 et seq. An Information Collection Request
document has been prepared by EPA (ICR No. 1246.04), and a copy may be
obtained from Sandy Farmer, Information Policy Branch (2136), U.S.
Environmental Protection Agency, 401 M St., SW., Washington, DC 20460
or by calling (202) 260-2740.
This collection of information is estimated to have a public
reporting burden averaging 1 hour per response, and to require 24.02
hours per recordkeeper annually. This includes time for reviewing the
collection of information. The collection activities for this rule
include: (1) Read and interpret rule; (2) respirator program, and (3)
exposure monitoring activities; (4) training program; (5) medical
surveillance reporting and recordkeeping; (6) employee and agency
access; and (7) report project initiation. The total annual burden
hours is 52,042, and represents an incremental burden-hour increase of
4,160 hours over the total annual reporting burden for the 1987 EPA
WPR.
Send comments regarding the burden estimate or any other aspect of
this collection of information, including suggestions for reducing this
burden, to the Chief, Information Policy Branch (2136), U.S.
Environmental Protection Agency, 401 M St., SW., Washington, DC 20460;
and to the Office of Information and Regulatory Affairs, Office of
Management and Budget, Washington, DC 20503, marked ``Attention: Desk
Officer for EPA.'' The final rule will respond to any OMB or public
comments on the information collection requirements contained in this
proposed rule.
List of Subjects in 40 CFR Part 763
Environmental protection, Asbestos, Asbestos in schools (AHERA),
Hazardous substances, Reporting and recordkeeping requirements, State
and local governments, Worker protection.
Dated: October 14, 1994.
Carol M. Browner.
Administrator.
Therefore, it is proposed that 40 CFR part 763 be amended as
follows:
Part 763--[AMENDED]
1. The authority citation for part 763 would continue to read as
follows:
Authority: 15 U.S.C. 2605 and 2607(c).
2. Section 763.91(b) is revised to read as follows:
Sec. 763.91 Operations and maintenance.
* * * * *
(b) Worker protection. See Subpart G of this part.
* * * * *
3. The subpart heading for subpart G is revised to read as follows:
``Asbestos Worker Protection.''
Appendix B to Subpart E [Redesignated]
4. Appendix B to Subpart E is redesignated as Appendix G to Subpart
G of this part, and Appendix B to Subpart E is reserved.
5. Section 763.120 is revised to read as follows:
Sec. 763.120 Scope.
(a) This part establishes requirements that State and local
government employers must follow to protect employees from occupational
exposure to asbestos during construction work where asbestos is
present, and during automotive brake and clutch repair and service
operations. Some of these requirements apply only to construction work,
and do not apply to brake and clutch operations. Requirements that
apply only to construction work are contained in Sec. 726.121(d) which
governs communications on multi-employer worksites, and
Sec. 726.121(e)(6), (i)(4), and (j)(2) which govern asbestos removal,
demolition, and renovation operations.
(b) Appendix F of this subpart (Work Practices and Engineering
Controls for Major Asbestos Removal, Renovation, and Demolition
Operations), Appendix G of this subpart (Work Practices and Engineering
Controls for Small-Scale, Short-Duration Asbestos Renovation and
Maintenance Activities), and Appendix K of this subpart (Work Practices
and Engineering Controls for Automotive Brake Repair Operations) are
designed to provide guidelines to assist employers in complying with
the requirements of this rule. These appendices recommend specific work
practices and engineering controls that State and local government
employers may follow to reduce employee exposures to asbestos in the
workplace. Employers who use the recommended work practices and
controls and who achieve employee exposures below the action level of
0.1 fibers cubic centimeter will be able to avoid certain burdens that
would be imposed by complying with requirements triggered when employee
exposures to asbestos exceed the rule's action level or permissible
exposure limit.
(c) The requirements in this subpart apply only to State and local
government employers that are not subject to the asbestos standards of
OSHA, 29 CFR 1910.1001 or 29 CFR 1926.58, a State asbestos standard
that OSHA has approved under section 18 of the Occupational Safety and
Health Act, or a State asbestos plan that EPA has determined is
comparable to, or more stringent than, this part.
(d) The protections established in this part extend to employees,
including employees who are prisoners or students, of all State and
local governments that are subject to the requirements of this subpart.
6. Section 763.121 is amended by removing from paragraph (b) the
definitions for ``asbestos abatement project'' and ``friable asbestos
material,'' by alphabetically inserting the definitions for
``automotive brake and clutch repair operations'' and ``construction
work,'' and by revising the definitions for ``emergency project,'' by
revising paragraphs (c), (e)(1) and (e)(2), by redesignating and
revising paragraph (e)(6)(iii)(A) as (e)(6)(iii), by deleting paragraph
(e)(6)(iii)(B), by adding paragraph (e)(7), by revising paragraphs
(f)(1)(ii), (f)(1)(iii), (f)(2)(ii), (f)(2)(iii), and (f)(4), by
revising the introductory text of paragraph (g)(1)(i), revising
(g)(1)(ii), by removing paragraph (g)(2)(iii), by revising paragraphs
(g)(3), (h)(1)(iii), (h)(3)(i), (i)(1), (i)(2)(i), (i)(2)(ii), and
(j)(1)(iii), by adding paragraph (j)(2)(vii) and paragraph (j)(3), by
revising paragraph (k)(1)(i), by adding paragraph (k)(1)(iii), by
revising paragraph (k)(3)(i), by adding paragraphs (k)(3)(iii)(I),
(k)(3)(iii)(J) and (k)(4)(iii), by revising paragraph (m)(1)(i), by
adding paragraph (m)(4)(i)(D), by revising paragraphs (n)(1)(i), by
redesignating paragraph (o) as paragraph (q) and revising it, by adding
a new paragraph (o), by redesignating paragraph (p) as paragraph (r)
and revising it to read as follows:
Sec. 763.121 Regulatory requirements.
* * * * *
(b) Definitions.
* * * * *
Automotive brake and clutch repair operations means repair,
cleaning and replacement of asbestos-containing clutch plates and brake
pads, shoes, and linings and removal of asbestos-containing residue
from brake drums or clutch housing that has been deposited as brakes
and clutches wear.
* * * * *
Construction work means work for construction, alteration, and/or
repair, including painting and decorating, and includes (but is not
limited to) the following construction activities:
(1) Demolition or salvage of structures where asbestos is present;
(2) Removal or encapsulation of materials containing asbestos;
(3) Construction, alteration, repair, maintenance, or renovation of
structures, substrates, or portions thereof, that contain asbestos;
(4) Installation of products containing asbestos;
(5) Asbestos spill/emergency cleanup, and
(6) Transportation, disposal, storage, or containment of asbestos
or products containing asbestos on the site or location at which
construction activities are performed.
* * * * *
Emergency project means a project involving the removal, enclosure,
or encapsulation of asbestos-containing material that was not planned,
but results from a sudden unexpected event.
* * * * *
(c) Permissible exposure limits (PELS).--(1) Time-weighted average
limit (TWA). The employer shall ensure that no employee is exposed to
an airborne concentration of asbestos in excess of 0.2 fibers/cubic
centimeter (f/cc) of air as an 8-hour TWA as determined by the method
prescribed in Appendix A of this section, or by an equivalent method.
(2) Excursion limit. The employer shall ensure that no employee is
exposed to an airborne concentration of asbestos in excess of 1.0 (1 f/
cc) of air as averaged over a sampling period of 30 minutes.
(3) Alternative voluntary method. The employer may utilize exposure
limits based on Transmission Electron Microscopy (TEM) Analytical
Method following the method contained in part 763 Appendix A to Subpart
E. In order to achieve limits comparable to the number of fibers
counted by Phase Contrast Microscopy (PCM), the corresponding exposure
limit, by TEM for the PEL of 0.2 f/cc, is 1.3 structures/cubic
centimeter (s/cc) for an 8-hour TWA. The corresponding exposure limit,
by TEM for the excursion limit of 1.0 f/cc as averaged over a sampling
period of 30 minutes, is 6.7 s/cc averaged over the 30-minute excursion
period.
* * * * *
(e) Regulated areas.--(1) General. The employer shall establish a
regulated area in work areas where airborne concentrations of asbestos
exceed or can reasonably be expected to exceed the TWA and/or excursion
limit prescribed in paragraph (c) of this section.
(2) Demarcation. The regulated area shall be demarcated in any
manner that minimizes the number of persons within the area and
protects persons outside the area from exposure to airborne
concentrations of asbestos in excess of the TWA and/or excursion limit.
* * * * *
(6) * * *
(iii) In addition to the qualifications specified in paragraph (b)
of this section, the competent person shall be trained in all aspects
of asbestos abatement, the contents of this subpart, the identification
of asbestos and its removal procedures, and other practices for
reducing the hazard. Such training shall be obtained in a comprehensive
course, such as a course conducted by an EPA or State-approved training
provider, or an equivalent course.
(7) For small-scale, short-duration operations, the employer who
complies with the provisions of Appendix G of this subpart is not also
required to comply with paragraphs (e)(6) and (j)(1)(i) and (j)(2)(i)
of this section.
(f) * * *
(1) * * *
(ii) Determinations of employee exposure shall be made from
breathing zone air samples that are representative of the 8-hour TWA
and 30-minute short-term exposures of each employee.
(iii) Representative 8-hour TWA employee exposures shall be
determined on the basis of one or more samples representing full-shift
exposure for employees in each work area. Representative 30-minute
short-term employee exposures shall be determined on the basis of one
or more samples representing 30-minute exposures associated with
operations that are most likely to produce exposures above the
excursion limit for employees in each work area.
(2) * * *
(ii) The employer may demonstrate that employee exposures are below
the action level by means of objective data demonstrating that the
product or material containing asbestos cannot release airborne fibers
in concentrations exceeding the action level under those work
conditions having the greatest potential for releasing asbestos.
(iii) Where the employer has monitored each asbestos job for the
TWA, and where the employer has monitored after [insert date 60 days
after date of publication of the final rule] for the excursion limit,
and the data were obtained during work operations conducted under
workplace conditions closely resembling the processes, type of
material, control methods, work practices, and environmental conditions
used and prevailing in the employer's current operations, the employer
may rely on such earlier monitoring results to satisfy the requirements
of paragraph (f)(2)(i) of this section.
* * * * *
(4) Termination of monitoring. (i) If the periodic monitoring
required by paragraph (f)(3) of this section reveals that employee
exposures, as indicated by statistically reliable measurement, are
below the action level and/or excursion limit, the employer may
discontinue monitoring for those employees whose exposures are
represented by such monitoring.
(ii) Additional monitoring. Notwithstanding the provisions of
paragraph (f)(4)(i) of this section, the employer shall institute the
exposure monitoring required under paragraph (f)(3) of this section
whenever there has been a change in process, control equipment,
personnel or work practices that may result in new or additional
exposures above the action level and/or excursion limit or when the
employer has any reason to suspect that a change may result in new or
additional exposures above the action level and/or excursion limit.
(iii) Exception: When all employees within a regulated area are
equipped with supplied-air respirators operated in the positive-
pressure mode, the employer may dispense with the monitoring required
by this paragraph.
* * * * *
(g) * * *
(1) * * *
(i) The employer shall use one or any combination of the following
control methods to achieve compliance with the TWA and/or excursion
limit prescribed by paragraph (c) of this section: * * *
(ii) Wherever the feasible engineering and work practice controls
described in this paragraph are not sufficient to reduce employee
exposure to or below the TWA and/or excursion limit prescribed in
paragraph (c) of this section, the employer shall use them to reduce
employee exposure to the lowest levels attainable by these controls and
shall supplement them by the use of respiratory protection that
complies with the requirements of paragraph (h) of this section.
* * * * *
(3) Employee rotation. The employer shall not use employee rotation
as a means of compliance with the TWA and/or excursion limit prescribed
in paragraph (c) of this section.
(h) * * *
(1) * * *
(iii) In work situations where feasible engineering and work
practice controls are not yet sufficient to reduce exposure to or below
the TWA and/or excursion limit.
* * * * *
(3) * * *
(i) Where respiratory protection is used, the employer shall
institute a respirator program in accordance with the OSHA standard for
respiratory protection (29 CFR 1910.134(b), (d), (e), and (f)).
* * * * *
(i) * * *
(1) General. The employer shall provide and require the use of
protective clothing, such as coveralls or similar whole body clothing,
head coverings, gloves, and foot coverings for any employee exposed to
airborne concentrations of asbestos that exceed the TWA and/or
excursion limit prescribed in paragraph (c) of this section.
(2) * * *
(i) The employer shall ensure that laundering of contaminated
clothing is done so as to prevent the release of airborne asbestos in
excess of the TWA and/or excursion limit prescribed in paragraph (c) of
this section.
(ii) Any employer who gives contaminated clothing to another person
for laundering shall inform such person of the requirement in paragraph
(i)(2)(i) of this section to effectively prevent the release of
airborne asbestos in excess of the TWA and/or excursion limit
prescribed in paragraph (c) of this section.
* * * * *
(j) * * *
(1) * * *
(iii) Whenever food or beverages are consumed at the worksite and
employees are exposed to airborne concentrations of asbestos in excess
of the TWA and/or excursion limit, the employer shall provide lunch
areas in which the airborne concentration of asbestos is below the
action level and/or excursion limit.
* * * * *
(2) * * *
(vii) For small-scale, short-duration operations, the employer who
complies with the provisions of Appendix G of subpart G is not also
required to comply with paragraphs (e)(6), (j)(1)(i) and (j)(2)(i) of
this section.
(3) Smoking in work areas. The employer shall ensure that employees
do not smoke in work areas where they are occupationally exposed to
asbestos because of activities in that work area.
(k) * * *
(1) * * *
(i) Warning signs that demarcate the regulated area shall be
provided and displayed at each location where airborne concentrations
of asbestos may be in excess of the TWA and/or excursion limit
prescribed in paragraph (c) of this section. Signs shall be posted at
such a distance from such a location that an employee may read the
signs and take necessary protective steps before entering the area
marked by the signs.
* * * * *
(iii) The employer shall ensure that employees working in, and
contiguous to, regulated areas comprehend the warning signs required to
be posted by paragraph (k)(1)(i) of this section. Means to ensure
employee comprehension may include the use of foreign languages,
pictographs, and graphics.
* * * * *
(3) * * *
(i) The employer shall institute a training program for all
employees who are exposed to airborne concentrations of asbestos at or
above the action level and/or excursion limit and shall ensure their
participation in the program.
* * * * *
(iii) * * *
(I) The names, addresses and phone numbers of public health
organizations which provide information, materials and/or conduct
programs concerning smoking cessation. The employer may distribute the
list of such organizations contained in Appendix J to Subpart G, to
comply with this requirement.
(J) The requirements for posting signs and affixing labels and the
meaning of the required legends for such signs and labels.
(4) * * *
(iii) The employer shall inform all employees concerning the
availability of self-help smoking cessation program material. Upon
employee request, the employer shall distribute such material,
consisting of NIH Publication No. 89-1647, or equivalent self-help
material, which is approved or published by a public health
organization listed in Appendix J to Subpart G.
* * * * *
(m) * * *
(1) * * *
(i) Employees covered. The employer shall institute a medical
surveillance program for all employees engaged in work involving levels
of asbestos at or above the action level and/or excursion limit for 30
or more days per year, or who are required by this section to wear
negative pressure respirators.
* * * * *
(4) * * *
(i) * * *
(D) A statement that the employee has been informed by the
physician of the increased risk of lung cancer attributable to the
combined effect of smoking and asbestos exposure.
* * * * *
(n) * * *
(1) * * *
(i) Where the employer has relied on data from earlier monitoring
that demonstrates that products made from or containing asbestos are
not capable of releasing asbestos fibers in concentrations at or above
the action level and/or excursion limit under the expected conditions
of processing, use, or handling, to exempt such operations from the
initial monitoring requirements under paragraph (f)(2) of this section,
the employer shall establish and maintain an accurate record of data
from earlier monitoring reasonably relied on in support of the
exemption.
* * * * *
(o) Asbestos brake and clutch repair and service operations. The
employer of employees engaged in asbestos brake and clutch repair and
service operations is subject to all the provisions in this section
except for paragraphs (d), (e)(6), (i)(4), and (j)(2).
(p) Compressed air. Compressed air shall not be used to remove
asbestos in brake and clutch repair operations, unless the compressed
air is used in conjunction with a ventilation system designed to
capture the dust cloud created by the compressed air.
(q) Effective date. These amendments shall become effective [insert
date 60 days after date of publication of the final rule].
(r) Appendices. (1) Appendices A, C, D, and E to this subpart are
mandatory.
(2) Appendix B to this subpart is informational and is not intended
to create any additional obligations not otherwise imposed or to
detract from any existing obligations.
(3) Appendix F to this subpart is nonmandatory and is intended to
provide guidelines to assist employers in complying with the
requirements of Sec. 763.121.
(4) Appendix G to this subpart is nonmandatory. Employers wishing
to be exempted from the requirements of Sec. 763.121(e)(6),
(j)(1)(i)(B), and (j)(2)(i) shall instead comply with provisions of
this Appendix for small-scale operations to achieve employee exposures
below the rule's action level.
(5) Appendices H, I, and J to this subpart are nonmandatory and are
not intended to create any additional obligations not otherwise
imposed, or to detract from any existing obligations.
(6) Appendix K to this subpart is nonmandatory. Employers wishing
to be exempted from the requirements of Sec. 763.121 that are triggered
by employee exposures above the action level or PEL during brake and
clutch repair operations may instead comply with the provisions of this
Appendix.
Appendices A-E to Sec. 763.121 [Redesignated]
7. By redesignating Appendices A through E to Sec. 763.121 as
Appendices A through E to Subpart G.
8. Section 763.122 is revised to read as follows:
Sec. 763.122 Exclusions for States.
(a) Application procedures for existing plans. States that
currently have EPA-approved State Asbestos Worker Protection Plans have
6 months from [effective date of rule] or such other reasonable time as
suggested by the particular State and approved by EPA to make their
regulations comparable to or more stringent than this part, and to
submit their regulations to EPA for review. If in such reasonable time
after [effective date of rule], these States have not so revised their
regulations and submitted them to EPA, State and local government
employers in such States shall be subject to the requirements of this
part.
(1) Upon request from a State Governor, and after notice and
comment, EPA may exclude that State from the requirements of this
subpart in accordance with paragraphs (b), (c), and (d) of this
section.
(2) All requirements of the subpart shall apply until an exclusion
is granted under this section.
(b) Request. Each request by a Governor to exclude a State from
requirements of this subpart shall be sent with three complete copies
of the request to the Regional Administrator for the EPA Region in
which the State is located and shall include:
(1) A copy of the State statutes, regulations, and provisions
relating to its asbestos worker protection program.
(2)(i) The name of the State agency that is, or will be,
responsible for administering and enforcing the State's asbestos worker
protection laws, the names and job titles of responsible officials in
that Agency and the phone numbers where the officials can be contacted.
(ii) In the event that more than one agency is or will be
responsible for administering and enforcing these laws, a description
of the functions performed by each agency, identification of the lead
agency, how the program will be coordinated by the lead agency to
ensure consistency and effective administration of the program within
the State, the names and job titles of responsible officials in the
agencies and the phone numbers where the officials can be contacted.
The lead agency will serve as the central contact point for the EPA.
(3) Detailed reasons, supporting papers, and the rationale for
concluding that the State's asbestos worker protection program
provisions for which the request is made are at least as stringent as
the requirements of this subpart.
(4) A discussion of any special situations, problems, and needs
pertaining to the exclusion request accompanied by an explanation of
how the State intends to handle them.
(5) A statement of the resources that the State intends to devote
to the administration and enforcement of the State's asbestos worker
protection laws.
(6) Copies of any specific or enabling State statutes (enacted and
pending enactment) and regulations (promulgated and pending
promulgation) and regulations relating to the request, including
provisions for assessing criminal and/or civil penalties.
(7) Assurance from the Governor, the Attorney General, or the legal
counsel of the lead Agency that the lead Agency or other cooperating
agencies have the legal authority necessary to carry out the
requirements relating to the request.
(c) General notice. (1) Within 60 days after receipt of a request
for an exclusion, EPA will determine the completeness of the request.
If EPA does not request further information within the 60-day period,
the request will be deemed complete.
(2) EPA will publish a notice in the Federal Register that
announces receipt of the request, describes the information submitted
under paragraph (b) of this section, and solicits written comment from
interested members of the public.
(3) If, during the comment period, EPA receives a written objection
to a Governor's request, it will publish a notice of the objection in
the Federal Register. Each comment must include the name and address of
the person submitting the comment.
(d) Criteria. EPA may exclude a State from the requirements of this
subpart if:
(1) The State's lead agency and other cooperating agencies have the
legal authority necessary to ensure that the State's program of
asbestos worker protection is at least as stringent as that provided
for in this subpart.
(2) The State has an enforcement mechanism to allow it to implement
the program described in the exclusion request.
(3) The lead Agency and any cooperating agencies have or will have
qualified personnel to carry out the provisions relating to the
exclusion request.
(4) The State will devote adequate resources to the administration
and enforcement of its provisions relating to the exclusion request.
(5) When specified by EPA, the State gives satisfactory assurances
that necessary steps, including specific actions it proposes to take
and a time schedule for their accomplishment, will be taken within a
reasonable time to conform with applicable criteria under paragraph
(d)(2) through (d)(4) of this section.
(e) Decision. EPA will publish a notice in the Federal Register
announcing its decision to grant or deny a Governor's request for
exclusion from the requirements of this subpart. The notice will
include EPA's reasons and rationale for granting or denying the
Governor's request.
(f) Modifications. When any substantial change is made in the laws
governing asbestos worker protection, or in the administration or
enforcement of a State program in a State that was excluded under this
section, a responsible official in the lead agency shall submit such
changes to EPA.
(g) Reports. The lead agency in each State that has been granted an
exclusion by EPA from requirements of this subpart shall submit a
report to the Regional Administrator for the Region in which the State
is located at least once every 12 months to include the following
information:
(1) A summary of the State's implementation and enforcement
activities during the last reporting period relating to the exclusion
under this section, including enforcement actions taken.
(2) Any changes in the administration or enforcement of the State
program implemented during the last reporting period.
(3) Other reports as may be required by EPA to carry out effective
oversight of any exclusion granted from this rule's requirements.
(h) Oversight. EPA may periodically evaluate the adequacy of a
State's implementation and enforcement of and resources devoted to
carrying out requirements relating to the exclusion. This evaluation
may include, but is not limited to, site visits to State or local
facilities where asbestos worker protection provisions should be in
place, without prior notice to the State.
(i) Informal Conference. (1) EPA may request that an informal
conference be held between appropriate State and EPA officials when EPA
has reason to believe that a State has failed to:
(i) Substantially comply with the terms of any provision under this
section.
(ii) Meet the criteria under paragraph (d) of this section,
including the failure to carry out enforcement activities, or act on
violations of the State program.
(2) EPA will:
(i) Specify to the State those aspects of the State's program
believed to be inadequate.
(ii) Specify to the State the facts that support the belief of
inadequacy.
(3) If EPA finds, on the basis of information submitted by the
State at the informal conference, that deficiencies did not exist or
were corrected by the State, no further action is required.
(4) Where EPA finds that deficiencies in the State program exist, a
plan to correct the deficiencies shall be negotiated between the State
and EPA. The plan shall detail the deficiencies found in the State
program, specify the steps the State has taken or will take to remedy
the deficiencies, and establish a schedule for each remedial action to
be initiated.
(j) Rescission. (1) If the State fails to meet with EPA, or fails
to correct deficiencies raised at the informal conference, EPA will
deliver to the Governor of the State and a responsible official in the
lead Agency, a written notice of its intent to rescind the exclusion.
(2) EPA will publish in the Federal Register a notice that rescinds
the exclusion, describes those aspects of the State's program
determined to be inadequate, and specifies the facts that support the
findings of inadequacy.
9. In Sec. 763.124, paragraphs (a), (b)(2), (b)(3), (c), and (d)
are revised to read as follows:
Sec. 763.124 Reporting.
(a) Employers subject to this rule must submit a report on their
proposed project activities to the Regional Asbestos Coordinator for
the EPA Region in which the asbestos construction project is located at
least 10 days before they begin any asbestos construction project,
except ``small-scale, short-duration'' projects, or ``emergency
projects,'' as defined in Sec. 763.121(b). Employers must report any
emergency project subject to this rule as soon as possible but in no
case more than 48 hours after the project begins. A list of EPA
Regional Offices is given under Sec. 1.7 (b) of this chapter.
(b) * * *
(2) The location, including street address, of the asbestos
construction work project.
(3) The scheduled starting and completion dates for the asbestos
construction work project.
(c) The report must be received at least 10 days before the
asbestos construction work project begins unless the report is for an
emergency project. In such a case, the report must be received as soon
as possible but in no case more than 48 hours after the project begins.
(d) Employers do not have to report under this section if EPA
receives a notice under the National Emission Standard for Asbestos,
Sec. 61.146 of this chapter for construction work projects exceeding
160 square feet or 260 linear feet, at least 10 days before they begin
an asbestos construction work project and that notice clearly indicates
that employees covered by this rule will perform some or all of the
asbestos construction work.
10. In Sec. 763.125, paragraphs (a) and (e) are revised to read as
follows:
Sec. 763.125 Enforcement.
(a) Failure to comply with any provision of this subpart is a
violation of section 15 of the Act (15 U.S.C. 2614).
* * * * *
(e) EPA may seek to enjoin an asbestos construction work project
that is in violation of this subpart, or take actions under the
authority of section 7 or 17 of the Act (15 U.S.C. 2606 or 2616).
11. Section 763.126 is revised to read as follows:
Sec. 763.126 Inspections.
EPA may conduct inspections under section 11 of the Act (15 U.S.C.
2610) to ensure compliance with this subpart.
12. By revising newly redesignated Appendices A, B, C, E, and G to
Subpart G, revising the title of newly redesignated Appendix D to
Subpart G, and adding Appendices F and H through K to Subpart G to read
as follows:
Appendix A to Subpart G--EPA/OSHA Reference Method--Mandatory
This mandatory appendix specifies the procedure for analyzing
air samples for asbestos and specifies quality control procedures
that must be implemented by laboratories performing the analysis.
The sampling and analytical methods described below represent the
elements of the available monitoring methods essential to achieve
adequate employee exposure monitoring while allowing employers to
use methods that are already established within their organizations.
All employers who are required to conduct air monitoring under
Sec. 763.121(f) are required to utilize analytical laboratories that
use this procedure, or an equivalent method for collecting and
analyzing samples.
Sampling and Analytical Procedure
1. The sampling medium for air samples shall be mixed cellulose
ester filter membranes. These shall be designated by the
manufacturer as suitable for asbestos counting. See below for
rejection of blanks.
2. The preferred collection device shall be the 25-mm diameter
cassette with an open-faced 50-mm electrically conductive extension
cowl. The 37-mm cassette may be used if necessary, but only if
written justification for the need to use the 37-mm filter cassette
accompanies the sample results in the employee's exposure monitoring
record.
3. An air flow rate between 0.5 liter/min and 2.5 liters/min
shall be selected for the 25-mm cassette. If the 37-mm cassette is
used, an air flow rate between 1 liter/min and 2.5 liters/min shall
be selected.
4. Where possible, a sufficient air volume for each air sample
shall be collected to yield between 100 and 1,300 fibers per square
millimeter on the membrane filter. If a filter darkens in appearance
or if loose dust is seen on the filter, a second sample shall be
started.
5. Ship the samples in a rigid container with sufficient packing
material to prevent dislodging the collected fibers. Packing
material that has a high electrostatic charge on its surface (e.g.,
expanded polystyrene) cannot be used because such material can cause
loss of fibers to the sides of the cassette.
6. Calibrate each personal sampling pump before and after use
with a representative filter cassette installed between the pump and
the calibration devices.
7. Personal samples shall be taken in the ``breathing zone'' of
the employee (i.e., attached to or near the collar or lapel near the
worker's face).
8. Fiber counts shall be made by positive phase contrast using a
microscope with an 8 to 10 X eyepiece and a 40 to 45 X objective for
a total magnification of approximately 400 X and a numerical
aperture of 0.65 to 0.75. The microscope shall also be fitted with a
green or blue filter.
9. The microscope shall be fitted with a Walton-Beckett eyepiece
graticule calibrated for a field diameter of 100 micrometers
( 2 micrometers).
10. The phase-shift detection limit of the microscope shall be
about 3 degrees measured using the HSE phase shift test slide as
outlined below.
a. Place the test slide on the microscope stage and center it
under the phase objective.
b. Bring the blocks of grooved lines into focus.
Note: The slide consists of seven sets of grooved lines (ca. 20
grooves to each block) in descending order of visibility from sets 1
to 7, seven being the least visible. The requirements for asbestos
counting are that the microscope optics must resolve the grooved
lines in set 3 completely, although they may appear somewhat faint,
and that the grooved lines in sets 6 and 7 must be invisible. Sets 4
and 5 must be at least partially visible but may vary slightly in
visibility between microscopes. A microscope that fails to meet
these requirements has either too low or too high a resolution to be
used for asbestos counting.
c. If the image deteriorates, clean and adjust the microscope
optics. If the problem persists, consult the microscope
manufacturer.
11. Each set of samples taken will include 10 percent blanks or
a minimum of 2 blanks. The blank results shall be averaged and
subtracted from the analytical results before reporting. Any samples
represented by a blank having a fiber count in excess of 7 fibers/
100 fields shall be rejected.
12. The samples shall be mounted by the acetone/triacetin method
or a method with an equivalent index of refraction and similar
clarity.
13. Observe the following counting rules.
a. Count only fibers equal to or longer than 5 micrometers.
Measure the length of curved fibers along the curve.
b. In the absence of other information, count all particles as
asbestos that have a length-to-width ratio (aspect ratio) of 3:1 or
greater.
c. Fibers lying entirely within the boundary of the Walton-
Beckett graticule field shall receive a count of 1. Fibers crossing
the boundary once, having one end within the circle, shall receive
the count of one-half (\1/2\). Do not count any fiber that crosses
the graticule boundary more than once. Reject and do not count any
other fibers even though they may be visible outside the graticule
area.
d. Count bundles of fibers as one fiber unless individual fibers
can be identified by observing both ends of an individual fiber.
e. Count enough graticule fields to yield 100 fibers. Count a
minimum of 20 fields; stop counting at 100 fields regardless of
fiber count.
14. Blind recounts shall be conducted at the rate of 10 percent.
Quality Control Procedures
1. Intralaboratory program. Each laboratory and/or each company
with more than one microscopist counting slides shall establish a
statistically designed quality assurance program involving blind
recounts and comparisons between microscopists to monitor the
variability of counting by each microscopist and between
microscopists. In a company with more than one laboratory, the
program shall include all laboratories and shall also evaluate the
laboratory-to-laboratory variability.
2. Interlaboratory program. Each laboratory analyzing asbestos
samples for compliance determination shall implement an
interlaboratory quality assurance program, that as a minimum,
includes participation of at least two other independent
laboratories. Each laboratory shall participate in round robin
testing at least once every 6 months with at least all the other
laboratories in its interlaboratory quality assurance group. Each
laboratory shall submit slides typical of its own work load for use
in this program. The round robin shall be designed and results
analyzed using appropriate statistical methodology.
3. All individuals performing asbestos analysis must have taken
the NIOSH course for sampling and evaluating airborne asbestos dust
or an equivalent course.
4. When the use of different microscopes contributes to
differences between counters and laboratories, the effect of the
different microscope shall be evaluated and the microscope shall be
replaced, as necessary.
5. Current results of these quality assurance programs shall be
posted in each laboratory to keep the microscopists informed.
Appendix B to Subpart G--Detailed Procedure for Asbestos Sampling and
Analysis--Non-Mandatory
This appendix contains a detailed procedure for sampling and
analysis and includes those critical elements specified in Appendix
A of this section. Employers are not required to use this procedure,
but they are required to use Appendix A of this section. The purpose
of Appendix B of this section is to provide a detailed step-by-step
sampling and analysis procedure that conforms to the elements
specified in Appendix A of this section. Since this procedure may
also standardize the analysis and reduce variability, EPA encourages
employers to use this appendix.
Technique: Microscopy, Phase Contrast.
Analyte: Fibers (manual count).
Sample Preparation: Acetone/triacetin method.
Calibration: Phase-shift detection limit about 3 degrees.
Range: 100 to 1,300 fibers/mm\2\ filter area.
Estimated Limit of Detection: 7 fibers/mm\2\ filter area.
Sampler: Filter (0.8-1.2 m mixed cellulose ester
membrane, 25-mm diameter).
Flow Rate: 0.5 L/min to 2.5 L/min (25-mm cassette); 1.0 L/min to
2.5 L/min (37-mm cassette).
Sample Volume: Adjust to obtain 100 to 1,300 fibers/mm\2\.
Shipment: Routine.
Sample Stability: Indefinite.
Blanks: 10% of samples (minimum 2).
Standard Analytical Error: 0.25.
Applicability: The working range is 0.02 f/cc (1920-L air
sample) to 1.25 f/cc (400-L sample). The method gives an index of
airborne asbestos fibers but may be used for other materials such as
fibrous glass by inserting suitable parameters into the counting
rules. The method does not differentiate between asbestos and other
fibers. Asbestos fibers less than ca. 0.25 m diameter will
not be detected by this method.
Interferences: Any other airborne fiber may interfere since all
particles meeting the counting criteria are counted. Chain-like
particles may appear fibrous. High levels of nonfibrous dust
particles may obscure fibers in the field of view and raise the
detection limit.
Reagents:
1. Acetone.
2. Triacetin (glycerol triacetate), reagent grade.
Special Precautions: Acetone is an extremely flammable liquid
and precautions must be taken not to ignite it. Heating of acetone
must be done in a ventilated laboratory fume hood using a flameless,
spark-free heat source.
Equipment:
1. Collection device: 25-mm cassette with 50-mm electrically
conductive extension cowl with cellulose ester filter, 0.8 to 1.2 mm
pore size and backup pad.
Note: Analyze representative filters for fiber background before
use and discard the filter lot if more than 5 fibers/100 fields are
found.
2. Personal sampling pump, greater than or equal to 0.5 l/min,
with flexible connecting tubing.
3. Microscope, phase contrast, with green or blue filter, 8 to
10X eyepiece, and 40 to 45X phase objective (total magnification ca.
400X); numerical aperture=0.65 to 0.75.
4. Slides, glass, single-frosted, pre-cleaned, 25 x 75 mm.
5. Cover slips, 25 x 25 mm, No. 1\1/2\ unless otherwise
specified by microscope manufacturer.
6. Knife, #1 surgical steel, curved blade.
7. Tweezers.
8. Flask, Guth-type, insulated neck, 250 to 500 mL (with single-
holed rubber stopper and elbow-jointed glass tubing, 16 to 22 cm
long).
9. Hotplate, spark-free, stirring type; heating mantle; or
infrared lamp and magnetic stirrer.
10. Syringe, hypodermic, with 22-gauge needle.
11. Graticule, Walton-Beckett type with 100 m diameter
circular field at the specimen plane (area=0.00785 mm\2\), (Type G-
22).
Note: The graticule is custom-made for each microscope.
12. HSE/NPL phase contrast test slide, Mark II.
13. Telescope, ocular phase-ring centering.
14. Stage micrometer (0.01 mm divisions).
Sampling
1. Calibrate each personal sampling pump with a representative
sampler in line.
2. Fasten the sampler to the worker's lapel as close as possible
to the worker's mouth. Remove the top cover from the end of the cowl
extension (open face) and orient face down. Wrap the joint between
the extender and the monitor's body with shrink tape to prevent air
leaks.
3. Submit at least two blanks (or 10 percent of the total
samples, whichever is greater) for each set of samples. Remove the
caps from the field blank cassettes and store the caps and cassettes
in a clean area (bag or box) during the sampling period. Replace the
caps in the cassettes when sampling is completed.
4. Sample at 0.5 L/min or greater. Do not exceed 1 mg total dust
loading on the filter. Adjust sampling flow rate, Q (L/min), and
time to produce a fiber density, E (fibers/ mm\2\), of 100 to 1,300
fibers/m\2\ [3.85 x 10\4\ to 5 x 10\5\ fibers per 25-mm filter with
effective collection area (Ac=385 mm\2\)] for optimum counting
precision (see step 21 below). Calculate the minimum sampling time,
tminimum (min) at the action level (one-half of the current
standard), L (f/cc) of the fibrous aerosol being sampled:
(Ac)(E)
t minimum = --------------------------
(Q)(L) 103
5. Remove the field monitor at the end of sampling, replace the
plastic top cover and small end caps, and store the monitor.
6. Ship the samples in a rigid container with sufficient packing
material to prevent jostling or damage.
Note: Do not use polystyrene foam in the shipping container
because of electrostatic forces which may cause fiber loss from the
sample filter.
Sample Preparation
Note: The object is to produce samples with a smooth (nongrainy)
background in a medium with a refractive index equal to or less than
1.46. The method below collapses the filter for easier focusing and
produces permanent mounts which are useful for quality control and
interlaboratory comparison. Other mounting techniques meeting the
above criteria may also be used, e.g., the nonpermanent field
mounting technique used in P & CAM 239.
7. Ensure that the glass slides and cover slips are free of dust
and fibers.
8. Place 40 to 60 ml of acetone into a Guth-type flask. Stopper
the flask with a single-hole rubber stopper through which a glass
tube extends 5 to 8 cm into the flask. The portion of the glass tube
that exits the top of the stopper (8 to 10 cm) is bent downward in
an elbow that makes an angle of 20 to 30 degrees with the
horizontal.
9. Place the flask in a stirring hotplate or wrap in a heating
mantle. Heat the acetone gradually to its boiling temperature (ca.
58 deg.C).
Caution. The acetone vapor must be generated in a ventilated
fume hood away from all open flames and spark sources. Alternate
heating methods can be used, providing no open flame or sparks are
present.
10. Mount either the whole sample filter or a wedge cut from the
sample filter on a clean glass slide.
a. Cut wedges of ca. 25 percent of the filter area with a
curved-blade steel surgical knife using a rocking motion to prevent
tearing.
b. Place the filter or wedge, dust side up, on the slide. Static
electricity will usually keep the filter on the slide until it is
cleared.
c. Hold the glass slide supporting the filter approximately 1 to
2 cm from the glass tube port where the acetone vapor is escaping
from the heated flask. The acetone vapor stream should cause a
condensation spot on the glass slide ca. 2 to 3 cm in diameter. Move
the glass slide gently in the vapor stream. The filter should clear
in 2 to 5 sec. If the filter curls, distorts, or is otherwise
rendered unusable, the vapor stream is probably not strong enough.
Periodically wipe the outlet port with tissue to prevent liquid
acetone dripping onto the filter.
d. Using the hypodermic syringe with a 22-gauge needle, place 1
to 2 drops of triacetin on the filter. Gently lower a clean 25-mm
square cover slip down onto the filter at a slight angle to reduce
the possibility of forming bubbles. If too many bubbles form or the
amount of triacetin is insufficient, the cover slip may become
detached within a few hours.
e. Glue the edges of the cover slip to the glass slide using a
lacquer or nail polish.
Note: If clearing is slow, the slide preparation may be heated
on a hotplate (surface temperature 50 deg.C) for 15 min. to hasten
clearing. Counting may proceed immediately after clearing and
mounting are completed.
Calibration and Quality Control
11. Calibration of the Walton-Beckett graticule. The diameter,
dc (mm), of the circular counting area and the disc diameter
must be specified when ordering the graticule.
a. Insert any available graticule into the eyepiece and focus so
that the graticule lines are sharp and clear.
b. Set the appropriate interpupillary distance and, if
applicable, reset the binocular head adjustment so that the
magnification remains constant.
c. Install the 40 to 45 X phase objective.
d. Place a stage micrometer on the microscope object stage and
focus the microscope on the graduated lines.
e. Measure the magnified grid length, Lo (um), using the
stage micrometer.
f. Remove the graticule from the microscope and measure its
actual grid length, La (mm). This can best be accomplished by
using a stage fitted with verniers.
g. Calculate the circle diameter, dc (mm), for the Walton-
Beckett graticule:
La x D
dC = --------------------------
Lo
h. Check the field diameter, D (acceptable range 100 mm
2 mm) with a stage micrometer upon receipt of the
graticule from the manufacturer. Determine field area (mm\2\).
12. Microscope adjustments. Follow the manufacturer's
instructions and also the following:
a. Adjust the light source for even illumination across the
field of view at the condenser iris.
Note: Kohler illumination is preferred, where available.
b. Focus on the particulate material to be examined.
c. Make sure that the field iris is in focus, centered on the
sample, and open only enough to fully illuminate the field of view.
d. Use the telescope ocular supplied by the manufacturer to
ensure that the phase rings (annular diaphragm and phase-shifting
elements) are concentric.
13. Check the phase-shift detection limit of the microscope
periodically.
a. Remove the HSE/NPL phase-contrast test slide from its
shipping container and center it under the phase objective.
b. Bring the blocks of grooved lines into focus.
Note: The slide consists of seven sets of grooves (ca. 20
grooves to each block) in descending order of visibility from sets 1
to 7. The requirements for counting are that the microscope optics
must resolve the grooved lines in set 3 completely, although they
may appear somewhat faint, and that the grooved lines in sets 6 to 7
must be invisible. Sets 4 and 5 must be at least partially visible
but may vary slightly in visibility between microscopes. A
microscope which fails to meet these requirements has either too low
or too high a resolution to be used for asbestos counting.
c. If the image quality deteriorates, clean the microscope
optics and, if the problem persists, consult the microscope
manufacturer.
14. Quality control of fiber counts.
a. Prepare and count field blanks along with the field samples.
Report the counts on each blank. Calculate the mean of the field
blank counts and subtract this value from each sample count before
reporting the results.
Note 1: The identity of the blank filters should be unknown to
the counter until all counts have been completed.
Note 2: If a field blank yields fiber counts greater than 7
fibers/100 fields, report possible contamination of the samples.
b. Perform blind recounts by the same counter on 10 percent of
filters counted (slides relabeled by a person other than the
counter).
15. Use the following test to determine whether a pair of counts
on the same filter should be rejected because of possible bias. This
statistic estimates the counting repeatability at the 95 percent
confidence level. Discard the sample if the difference between the
two counts exceeds 2.77 (F)sr where F=average of the two fiber
counts and sr=relative standard deviation, which should be
derived by each laboratory based on historical in-house data.
Note: If a pair of counts is rejected as a result of this test,
recount the remaining samples in the set and test the new counts
against the first counts. Discard all rejected paired counts.
16. Enroll each new counter in a training course that compares
performance of counters on a variety of samples using this
procedure.
Note: To ensure good reproducibility, all laboratories engaged
in asbestos counting are required to participate in the Proficiency
Analytical Testing (PAT) Program and should routinely participate
with other asbestos fiber counting laboratories in the exchange of
field samples to compare performance of counters.
Measurement
17. Place the slide on the mechanical stage of the calibrated
microscope with the center of the filter under the objective lens.
Focus the microscope on the plane of the filter.
18. Regularly check phase-ring alignment and Kohler
illumination.
19. The following are the counting rules:
a. Count only fibers longer than 5 um. Measure the length of
curved fibers along the curve.
b. Count only fibers with a length-to-width ratio equal to or
greater than 3:1.
c. For fibers that cross the boundary of the graticule field, do
the following:
(1) Count any fiber longer than 5 um that lies entirely within
the graticule area.
(2) Count as \1/2\ fiber any fiber with only one end lying
within the graticule area.
(3) Do not count any fiber that crosses the graticule boundary
more than once.
(4) Reject and do not count all other fibers.
d. Count bundles of fibers as one fiber unless individual fibers
can be identified by observing both ends of a fiber.
e. Count enough graticule fields to yield 100 fibers. Count a
minimum of 20 fields. Stop at 100 fields regardless of fiber count.
20. Start counting from one end of the filter and progress along
a radial line to the other end, shift either up or down on the
filter, and continue in the reverse direction. Select fields
randomly by looking away from the eyepiece briefly while advancing
the mechanical stage. When an agglomerate covers ca. \1/6\ or more
of the field of view, reject the field and select another. Do not
report rejected fields in the number of total fields counted.
Note: When counting a field, continuously scan a range of focal
planes by moving the fine focus knob to detect very fine fibers
which have become embedded in the filter. The small-diameter fibers
will be very faint but are an important contribution to the total
count.
Calculations
21. Calculate and report fiber density on the filter, E (fibers/
mm2); by dividing the total fiber count, F; minus the mean
field blank count, B, by the number of fields, n; and the field
area, Af (0.00785 mm2 for a properly calibrated Walton-
Beckett graticule):
(F/nf) - (B/nb)
E = ---------------------- fibers/mm2
Af
where:
nf--number of fields in submission sample
nb--number of fields in blank sample
22. Calculate the concentration, C (f/cc), of fibers in the air
volume sampled, V (L), using the effective collection area of the
filter, Ac (385 mm2 for a 25-mm filter):
(E)(Ac)
C = ---------------------------
V(103)
Note: Periodically check and adjust the value of Ac, if
necessary.
Appendix C to Subpart G--Qualitative and Quantitative Fit Testing
Procedures--Mandatory
Qualitative Fit Test Protocols
I. Isoamyl Acetate Protocol
A. Odor Threshold Screening. 1. Three 1-liter glass jars with
metal lids (e.g. Mason or Bell jars) are required.
2. Odor-free water (e.g. distilled or spring water) at
approximately 25 deg.C shall be used for the solutions.
3. The isoamyl acetate (IAA) (also known as isopentyl acetate)
stock solution is prepared by adding 1 cc of pure IAA to 800 cc of
odor-free water in a 1-liter jar and shaking for 30 seconds. This
solution shall be prepared new at least weekly.
4. The screening test shall be conducted in a room separate from
the room used for actual fit testing. The two rooms shall be well
ventilated but shall not be connected to the same recirculating
ventilation system.
5. The odor test solution is prepared in a second jar by placing
0.4 cc of the stock solution into 500 cc of odor-free water using a
clean dropper or pipette. Shake for 30 seconds and allow to stand
for two to three minutes so that the IAA concentration above the
liquid may reach equilibrium. This solution may be used for only one
day.
6. A test blank is prepared in a third jar by adding 500 cc of
odor-free water.
7. The odor test and test blank jars shall be labeled 1 and 2
for jar identification. If the labels are put on the lids they can
be periodically peeled, dried off, and switched to maintain the
integrity of the test.
8. The following instructions shall be typed on a card and
placed on the table in front of the two test jars (i.e. 1 and 2):
``The purpose of this test is to determine if you can smell banana
oil at a low concentration. The two bottles in front of you contain
water. One of these bottles also contains a small amount of banana
oil. Be sure the covers are on tight, then shake each bottle for two
seconds. Unscrew the lid of each bottle, one at a time, and sniff at
the mouth of the bottle. Indicate to the test conductor which bottle
contains banana oil.''
9. The mixtures used in the IAA odor detection test shall be
prepared in an area separate from where the test is performed, in
order to prevent olfactory fatigue in the subject.
10. If the test subject is unable to identify correctly the jar
containing the odor test solution, the IAA qualitative fit test may
not be used.
11. If the test subject correctly identifies the jar containing
the odor test solution, the test subject may proceed to respirator
selection and fit testing.
B. Respirator selection. 1. The test subject shall be allowed to
pick the most comfortable respirator from a selection including
respirators of various sizes from different manufacturers. The
selection shall include at least five sizes of elastomeric half
facepieces, from at least two manufacturers.
2. The selection process shall be conducted in a room separate
from the fit-test chamber to prevent odor fatigue. Prior to the
selection process, the test subject shall be shown how to put on a
respirator, how it should be positioned on the face, how to set
strap tension, and how to determine a ``comfortable'' respirator. A
mirror shall be available to assist the subject in evaluating the
fit and positioning of the respirator. This instruction may not
constitute the subject's formal training on respirator use, as it is
only a review.
3. The test subject should understand that the employee is being
asked to select the respirator which provides the most comfortable
fit. Each respirator represents a different size and shape and, if
fitted properly and used properly, will provide adequate protection.
4. The test subject holds each facepiece up to the face and
eliminates those which obviously do not give a comfortable fit.
Normally, selection will begin with a half-mask and if a good fit
cannot be found, the subject will be asked to test the full
facepiece respirators. (A small percentage of users will not be able
to wear any half-mask.)
5. The more comfortable facepieces are noted; the most
comfortable mask is donned and worn at least five minutes to assess
comfort. All donning and adjustments of the facepieces shall be
performed by the test subject without assistance from the test
conductor or other person. Assistance in assessing comfort can be
given by discussing the points of #6 below. If the test subject is
not familiar with using a particular respirator, the test subject
shall be directed to don the mask several times and to adjust the
straps each time to become adept at setting proper tension on the
straps.
6. Assessment of comfort shall include reviewing the following
points with the test subject and allowing the test subject adequate
time to determine the comfort of the respirator:
Positioning of mask on nose.
Room for eye protection.
Room to talk.
Positioning mask on face and cheeks.
7. The following criteria shall be used to help determine the
adequacy of the respirator fit:
Chin properly placed.
Strap tension.
Fit across nose bridge.
Distance from nose to chin.
Tendency to slip.
Self-observation in mirror.
8. The test subject shall conduct the conventional negative and
positive-pressure fit checks (e.g., see ANSI Z88.2-1980). Before
conducting the negative- or positive-pressure test, the subject
shall be told to ``seat'' the mask by rapidly moving the head from
side-to-side and up and down, while taking a few deep breaths.
9. The test subject is now ready for fit testing.
10. After passing the fit test, the test subject shall be
questioned again regarding the comfort of the respirator. If it has
become uncomfortable, another model of respirator shall be tried.
11. The employee shall be given the opportunity to select a
different facepiece and be retested if the chosen facepiece becomes
increasingly uncomfortable at any time.
C. Fit test. 1. The fit test chamber shall be similar to a clear
55 gallon drum liner suspended inverted over a 2 foot diameter
frame, so that the top of the chamber is about 6 inches above the
test subject's head. The inside top center of the chamber shall have
a small hook attached.
2. Each respirator used for the fitting and fit testing shall be
equipped with organic vapor cartridges or offer protection against
organic vapors. The cartridges or masks shall be changed at least
weekly.
3. After selection, donning, and properly adjusting a
respirator, the test subject shall wear it to the fit testing room.
This room shall be separate from the room used for odor threshold
screening and respirator selection, and shall be well ventilated, as
by an exhaust fan or lab hood, to prevent general room
contamination.
4. A copy of the following test exercises and rainbow passage
shall be taped to the inside of the test chamber:
Test Exercises
i. Breathe normally.
ii. Breathe deeply. Be certain breaths are deep and regular.
iii. Turn head all the way from one side to the other. Inhale on
each side. Be certain movement is complete. Do not bump the
respirator against the shoulders.
iv. Nod head up-and-down. Inhale when head is in the full up
position (looking toward ceiling). Be certain motions are complete
and made about every second. Do not bump the respirator on the
chest.
v. Talking. Talk aloud and slowly for several minutes. The
following paragraph is called the Rainbow Passage. Reading it will
result in a wide range of facial movements, and thus be useful to
satisfy this requirement. Alternative passages which serve the same
purpose may also be used.
vi. Jogging in place.
vii. Breathe normally.
Rainbow Passage. When the sunlight strikes raindrops in the air,
they act like a prism and form a rainbow. The rainbow is a division
of white light into many beautiful colors. These take the shape of a
long round arch, with its path high above, and its two ends
apparently beyond the horizon. There is, according to legend, a
boiling pot of gold at one end. People look, but no one ever finds
it. When a man looks for something beyond reach, his friends say he
is looking for the pot of gold at the end of the rainbow.
5. Each test subject shall wear the respirator for at least 10
minutes before starting the fit test.
6. Upon entering the test chamber, the test subject shall be
given a 6 inch by 5 inch piece of paper towel or other porous
absorbent single ply material, folded in half and wetted with three-
quarters of one cc of pure IAA. The test subject shall hang the wet
towel on the hook at the top of the chamber.
7. Allow two minutes for the IAA test concentration to be
reached before starting the fit-test exercises. This would be an
appropriate time to talk with the test subject, to explain the fit
test, the importance of cooperation, the purpose for the head
exercises, or to demonstrate some of the exercises.
8. Each exercise described in #4 above shall be performed for at
least one minute.
9. If at any time during the test, the subject detects the
banana-like odor of IAA, the test has failed. The subject shall
quickly exit from the test chamber and leave the test area to avoid
olfactory fatigue.
10. If the test is failed, the subject shall return to the
selection room and remove the respirator, repeat the odor
sensitivity test, select and put on another respirator, return to
the test chamber, and again begin the procedure described in c(4)
through c(8) above. The process continues until a respirator that
fits well has been found. Should the odor sensitivity test be
failed, the subject shall wait about 5 minutes before retesting.
Odor sensitivity will usually have returned by this time.
11. If a person cannot pass the fit test described above wearing
a half-mask respirator from the available selection, full facepiece
models must be used.
12. When a respirator is found that passes the test, the subject
breaks the faceseal and takes a breath before exiting the chamber.
This is to assure that the reason the test subject is not smelling
the IAA is the good fit of the respirator facepiece seal and not
olfactory fatigue.
13. When the test subject leaves the chamber, the subject shall
remove the saturated towel and return it to the person conducting
the test. To keep the area from becoming contaminated, the used
towels shall be kept in a self-sealing bag so there is no
significant IAA concentration buildup in the test chamber during
subsequent tests.
14. At least two facepieces shall be selected for the IAA test
protocol. The test subject shall be given the opportunity to wear
them for one week to choose the one which is more comfortable to
wear.
15. Persons who have successfully passed this fit test with a
half-mask respirator may be assigned the use of the test respirator
in atmospheres with up to 10 times the PEL of airborne asbestos. In
atmospheres greater than 10 times, and less than 100 times the PEL
(up to 100 ppm), the subject must pass the IAA test using a full
face negative pressure respirator.
16. The test shall not be conducted if there is any hair growth
between the skin and the facepiece sealing surface.
17. If hair growth or apparel interfere with a satisfactory fit,
then they shall be altered or removed so as to eliminate
interference and allow a satisfactory fit. If a satisfactory fit is
still not attained, the test subject must use a positive-pressure
respirator such as powered air-purifying respirators, supplied air
respirator, or self-contained breathing apparatus.
18. If a test subject exhibits difficulty in breathing during
the tests, she or he shall be referred to a physician trained in
respirator diseases or pulmonary medicine to determine whether the
test subject can wear a respirator while performing her or his
duties.
19. Qualitative fit testing shall be repeated at least every six
months.
20. In addition, because the sealing of the respirator may be
affected, qualitative fit testing shall be repeated immediately when
the test subject has a:
(1) Weight change of 20 pounds or more.
(2) Significant facial scarring in the area of the facepiece
seal.
(3) Significant dental changes; i.e., multiple extractions
without prosthesis, or acquiring dentures.
(4) Reconstructive or cosmetic surgery, or
(5) Any other condition that may interfere with facepiece
sealing.
D. Recordkeeping. A summary of all test results shall be
maintained in each office for 3 years. The summary shall include:
(1) Name of test subject.
(2) Date of testing.
(3) Name of the test conductor.
(4) Respirators selected (indicate manufacturer, model, size and
approval number).
(5) Testing agent.
II. Saccharin Solution Aerosol Protocol
A. Respirator selection. Respirators shall be selected as
described in section IB (respirator selection) above, except that
each respirator shall be equipped with a particulate filter.
B. Taste threshold screening. 1. An enclosure about head and
shoulders shall be used for threshold screening (to determine if the
individual can taste saccharin) and for fit testing. The enclosure
shall be approximately 12 inches in diameter by 14 inches tall with
at least the front clear to allow free movement of the head when a
respirator is worn.
2. The test enclosure shall have a three-quarter inch hole in
front of the test subject's nose and mouth area to accommodate the
nebulizer nozzle.
3. The entire screening and testing procedure shall be explained
to the test subject prior to conducting the screening test.
4. During the threshold screening test, the test subject shall
don the test enclosure and breathe with mouth open with tongue
extended.
5. Using a DeVilbiss Model 40 Inhalation Medication Nebulizer or
equivalent, the test conductor shall spray the threshold check
solution into the enclosure. This nebulizer shall be clearly marked
to distinquish it from the fit test solution nebulizer.
6. The threshold check solution consists of 0.83 gram of sodium
saccharin, USP in water. It can be prepared by putting 1 cc of the
test solution (see C.7 below) in 100 cc of water.
7. To produce the aerosol, the nebulizer bulb is firmly squeezed
so that it collapses completely, then is released and allowed to
expand fully.
8. Ten squeezes of the nebulizer bulb are repeated rapidly and
then the test subject is asked whether the saccharin can be tasted.
9. If the first response is negative, ten more squeezes of the
nebulizer bulb are repeated rapidly and the test subject is again
asked whether the saccharin can be tasted.
10. If the second response is negative, ten more squeezes are
repeated rapidly and the test subject is again asked whether the
saccharin can be tasted.
11. The test conductor will take note of the number of squeezes
required to elicit a taste response.
12. If the saccharin is not tasted after 30 squeezes (Step 10),
the saccharin fit test cannot be performed on the test subject.
13. If a taste response is elicited, the test subject shall be
asked to take note of the taste for reference in the fit test.
14. Correct use of the nebulizer means that approximately 1 cc
of liquid is used at a time in the nebulizer body.
15. The nebulizer shall be thoroughly rinsed in water, shaken
dry, and refilled at least every four hours.
C. Fit Test. 1. The test subject shall don and adjust the
respirator without assistance from any person.
2. The fit test uses the same enclosure described in IIB above.
3. Each test subject shall wear the respirator for at least 10
minutes before starting the fit test.
4. The test subject shall don the enclosure while wearing the
respirator selected in section IB above. This respirator shall be
properly adjusted and equipped with a particulate filter.
5. The test subject may not eat, drink (except plain water), or
chew gum for 15 minutes before the test.
6. A second DeVilbiss Model 40 Inhalation Medication Nebulizer
is used to spray the fit test solution into the enclosure. This
nebulizer shall be clearly marked to distinquish it from the
screening test solution nebulizer.
7. The fit test solution is prepared by adding 83 grams of
sodium saccharin to 100 cc of warm water.
8. As before, the test subject shall breathe with mouth open and
tongue extended.
9. The nebulizer is inserted into the hole in the front of the
enclosure and the fit test solution is sprayed into the enclosure
using the same technique as for the taste threshold screening and
the same number of squeezes required to elicit a taste response in
the screening. (See B.8 through B.10 above).
10. After generation of the aerosol, read the following
instructions to the test subject. The test subject shall perform the
exercises for one minute each.
i. Breathe normally.
ii. Breathe deeply. Be certain breaths are deep and regular.
iii. Turn head all the way from one side to the other. Be
certain movement is complete. Inhale on each side. Do not bump the
respirator against the shoulders.
iv. Nod head up-and-down. Be certain motions are complete.
Inhale when head is in the full up position (when looking toward the
ceiling). Do not bump the respirator on the chest.
v. Talking. Talk aloud and slowly for several minutes. The
following paragraph is called the Rainbow Passage. Reading it will
result in a wide range of facial movements, and thus be useful to
satisfy this requirement. Alternative passages which serve the same
purpose may also be used.
Rainbow Passage. When the sunlight strikes raindrops in the air,
they act like a prism and form a rainbow. The rainbow is a division
of white light into many beautiful colors. These take the shape of a
long round arch, with its path high above, and its two ends
apparently beyond the horizon. There is, according to legend, a
boiling pot of gold at one end. People look, but no one ever finds
it. When a man looks for something beyond his reach, his friends say
he is looking for the pot of gold at the end of the rainbow.
vi. Jogging in place.
vii. Breathe normally.
11. At the beginning of each exercise, the aerosol concentration
shall be replenished using one-half the number of squeezes as
initially described in C.9.
12. The test subject shall indicate to the test conductor, if at
any time during the fit test, the taste of saccharin is detected.
13. If the saccharin is detected, the fit is deemed
unsatisfactory and a different respirator shall be tried.
14. At least two facepieces shall be selected by the saccharin
solution aerosol test protocol. The test subject shall be given the
opportunity to wear them for one week to choose the one which is
more comfortable to wear.
15. Successful completion of the test protocol shall allow the
use of the half mask tested respirator in contaminated atmospheres
up to 10 times the PEL of asbestos. In other words this protocol may
be used to assign protection factors no higher than ten.
16. The test shall not be conducted if there is any hair growth
between the skin and the facepiece sealing surface.
17. If hair growth or apparel interfere with a satisfactory fit,
then they shall be altered or removed so as to eliminate
interference and allow a satisfactory fit. If a satisfactory fit is
still not attained, the test subject must use a positive-pressure
respirator such as powered air-purifying respirators, supplied air
respirator, or self-contained breathing apparatus.
18. If a test subject exhibits difficulty in breathing during
the tests, she or he shall be referred to a physician trained in
respirator diseases or pulmonary medicine to determine whether the
test subject can wear a respirator while performing her or his
duties.
19. Qualitative fit testing shall be repeated at least every six
months.
20. In addition, because the sealing of the respirator may be
affected, qualitative fit testing shall be repeated immediately when
the test subject has a:
(1) Weight change of 20 pounds or more.
(2) Significant facial scarring in the area of the facepiece
seal.
(3) Significant dental changes; i.e., multiple extractions
without prosthesis, or acquiring dentures.
(4) Reconstructive or cosmetic surgery, or
(5) Any other condition that may interfere with facepiece
sealing.
D. Recordkeeping. A summary of all test results shall be
maintained in each office for 3 years. The summary shall include:
(1) Name of test subject.
(2) Date of testing.
(3) Name of test conductor.
(4) Respirators selected (indicate manufacturer, model, size and
approval number).
(5) Testing agent.
III. Irritant Fume Protocol
A. Respirator selection. Respirators shall be selected as
described in section IB above, except that each respirator shall be
equipped with a high-efficiency cartridge.
B. Fit test. 1. The test subject shall be allowed to smell a
weak concentration of the irritant smoke to familiarize the subject
with the characteristic odor.
2. The test subject shall properly don the respirator selected
as above, and wear it for at least 10 minutes before starting the
fit test.
3. The test conductor shall review this protocol with the test
subject before testing.
4. The test subject shall perform the conventional positive-
pressure and negative-pressure fit checks (see ANSI Z88.2 1980).
Failure of either check shall be cause to select an alternate
respirator.
5. Break both ends of a ventilation smoke tube containing
stannic oxychloride, such as the MSA part #5645, or equivalent.
Attach a short length of tubing to one end of the smoke tube. Attach
the other end of the smoke tube to a low-pressure air pump set to
deliver 200 milliliters per minute.
6. Advise the test subject that the smoke can be irritating to
the eyes and instruct the subject to keep the eyes closed while the
test is performed.
7. The test conductor shall direct the stream of irritant smoke
from the tube towards the faceseal area of the test subject. The
person conducting the test shall begin with the tube at least 12
inches from the facepiece and gradually move to within one inch,
moving around the whole perimeter of the mask.
8. The test subject shall be instructed to do the following
exercises while the respirator is being challenged by the smoke.
Each exercise shall be performed for one minute.
i. Breathe normally.
ii. Breathe deeply. Be certain breaths are deep and regular.
iii. Turn head all the way from one side to the other. Be
certain movement is complete. Inhale on each side. Do not bump the
respirator against the shoulders.
iv. Nod head up-and-down. Be certain motions are complete and
made every second. Inhale when head is in the full up position
(looking toward ceiling). Do not bump the respirator against the
chest.
v. Talking. Talk aloud and slowly for several minutes. The
following paragraph is called the Rainbow Passage. Repeating it
after the test conductor (keeping eyes closed) will result in a wide
range of facial movements, and thus be useful to satisfy this
requirement. Alternative passages which serve the same purpose may
also be used.
Rainbow Passage. When the sunlight strikes raindrops in the air,
they act like a prism and form a rainbow. The rainbow is a division
of white light into many beautiful colors. These take the shape of a
long round arch, with its path high above, and its two ends
apparently beyond the horizon. There is, according to legend, a
boiling pot of gold at one end. People look, but no one ever finds
it. When a man looks for something beyond his reach, his friends say
he is looking for the pot of gold at the end of the rainbow.
vi. Jogging in place.
vii. Breathe normally.
9. The test subject shall indicate to the test conductor if the
irritant smoke is detected. If smoke is detected, the test conductor
shall stop the test. In this case, the tested respirator is rejected
and another respirator shall be selected.
10. Each test subject passing the smoke test (i.e. without
detecting the smoke) shall be given a sensitivity check of smoke
from the same tube to determine if the test subject reacts to the
smoke. Failure to evoke a response shall void the fit test.
11. Steps B4, B9, B10 of this fit test protocol shall be
performed in a location with exhaust ventilation sufficient to
prevent general contamination of the testing area by the test
agents.
12. At least two facepieces shall be selected by the irritant
fume test protocol. The test subject shall be given the opportunity
to wear them for one week to choose the one which is more
comfortable to wear.
13. Respirators successfully tested by the protocol may be used
in contaminated atmospheres up to ten times the PEL of asbestos.
14. The test shall not be conducted if there is any hair growth
between the skin and the facepiece sealing surface.
15. If hair growth or apparel interfere with a satisfactory fit,
then they shall be altered or removed so as to eliminate
interference and allow a satisfactory fit. If a satisfactory fit is
still not attained, the test subject must use a positive-pressure
respirator such as powered air-purifying respirators, supplied air
respirator, or self-contained breathing apparatus.
16. If a test subject exhibits difficulty in breathing during
the tests, she or he shall be referred to a physician trained in
respiratory diseases or pulmonary medicine to determine whether the
test subject can wear a respirator while performing her or his
duties.
17. Qualitative fit testing shall be repeated at least every six
months.
18. In addition, because the sealing of the respirator may be
affected, qualitative fit testing shall be repeated immediately when
the test subject has a:
(1) Weight change of 20 pounds or more,
(2) Significant facial scarring in the area of the facepiece
seal,
(3) Significant dental changes; i.e., multiple extractions
without prosthesis, or acquiring dentures,
(4) Reconstructive or cosmetic surgery, or
(5) Any other condition that may interfere with facepiece
sealing.
C. Recordkeeping. A summary of all test results shall be
maintained in each office for 3 years. The summary shall include:
(1) Name of test subject.
(2) Date of testing.
(3) Name of test conductor.
(4) Respirators selected (indicate manufacturer, model, size and
approval number).
(5) Testing agent.
Quantitative Fit Test Procedures
1. General
a. The method applies to the negative-pressure nonpowered air-
purifying respirators only.
b. The employer shall assign one individual who shall assume the
full responsibility for implementing the respirator quantitative fit
test program.
2. Definitions
a. ``Quantitative Fit Test'' means the measurement of the
effectiveness of a respirator seal in excluding the ambient
atmosphere. The test is performed by dividing the measured
concentration of challenge agent in a test chamber by the measured
concentration of the challenge agent inside the respirator facepiece
when the normal air purifying element has been replaced by an
essentially perfect purifying element.
b. ``Challenge Agent'' means the air contaminant introduced into
a test chamber so that its concentration inside and outside the
respirator may be compared.
c. ``Test Subject'' means the person wearing the respirator for
quantitative fit testing.
d. ``Normal Standing Position'' means standing erect and
straight with arms down along the sides and looking straight ahead.
e. ``Fit Factor'' means the ratio of challenge agent
concentration outside with respect to the inside of a respirator
inlet covering (facepiece or enclosure).
3. Apparatus
a. Instrumentation. Corn oil, sodium chloride or other
appropriate aerosol generation, dilution, and measurement systems
shall be used for quantitative fit test.
b. Test chamber. The test chamber shall be large enough to
permit all test subjects to perform freely all required exercises
without distributing the challenge agent concentration or the
measurement apparatus. The test chamber shall be equipped and
constructed so that the challenge agent is effectively isolated from
the ambient air yet uniform in concentration throughout the chamber.
c. When testing air-purifying respirators, the normal filter or
cartridge element shall be replaced with a high-efficiency
particulate filter supplied by the same manufacturer.
d. The sampling instrument shall be selected so that a strip
chart record may be made of the test showing the rise and fall of
challenge agent concentration with each inspiration and expiration
at fit factors of at least 2,000.
e. The combination of substitute air-purifying elements (if
any), challenge agent, and challenge agent concentration in the test
chamber shall be such that the test subject is not exposed in excess
of PEL to the challenge agent at any time during the testing
process.
f. The sampling port on the test specimen respirator shall be
placed and constructed so that there is no detectable leak around
the port, a free air flow is allowed into the sampling line at all
times and so there is no interference with the fit or performance of
the respirator.
g. The test chamber and test set-up shall permit the person
administering the test to observe one test subject inside the
chamber during the test.
h. The equipment generating the challenge atmosphere shall
maintain the concentration of challenge agent constant within a 10
percent variation for the duration of the test.
i. The time lag (interval between an event and its being
recorded on the strip chart) of the instrumentation may not exceed 2
seconds.
j. The tubing for the test chamber atmosphere and for the
respirator sampling port shall be the same diameter, length and
material. It shall be kept as short as possible. The smallest
diameter tubing recommended by the manufacturer shall be used.
k. The exhaust flow from the test chamber shall pass through a
high-efficiency filter before release to the room.
l. When sodium chloride aerosol is used, the relative humidity
inside the test chamber shall not exceed 50 percent.
4. Procedural Requirements
a. The fitting of half-mask respirators should be started with
those having multiple sizes and a variety of interchangeable
cartridges and canisters such as the MSA Comfo II-M, North M,
Survivair M, A-O M, or Scott-M. Use either of the tests outlined
below to assure that the facepiece is properly adjusted.
(1) Positive-pressure test. With the exhaust port(s) blocked,
the negative-pressure of slight inhalation should remain constant
for several seconds.
(2) Negative-pressure test. With the intake port(s) blocked, the
negative-pressure of slight inhalation should remain constant for
several seconds.
b. After a facepiece is adjusted, the test subject shall wear
the facepiece for at least 5 minutes before conducting a qualitative
test by using either of the methods described below and using the
exercise regime described in 5.a., b., c., d. and e.
(1) Isoamyl acetate test. When using organic vapor cartridges,
the test subject who can smell the odor should be unable to detect
the odor of isoamyl acetate squirted into the air near the most
vulnerable portions of the facepiece seal. In a location which is
separated from the test area, the test subject shall be instructed
to close her/his eyes during the test period. A combination
cartridge or canister with organic vapor and high-efficiency filters
shall be used when available for the particular mask being tested.
The test subject shall be given an opportunity to smell the odor of
isoamyl acetate before the test is conducted.
(2) Irritant fume test. When using high-efficiency filters, the
test subject should be unable to detect the odor of irritant fume
(stannic chloride or titanium tetrachloride ventilation smoke tubes)
squirted into the air near the most vulnerable portions of the
facepiece seal. The test subject shall be instructed to close her/
his eyes during the test period.
c. The test subject may enter the quantitative testing chamber
only if she or he has obtained a satisfactory fit as stated in 4.b.
of this Appendix.
d. Before the subject enters the test chamber, a reasonably
stable challenge agent concentration shall be measured in the test
chamber.
e. Immediately after the subject enters the test chamber, the
challenge agent concentration inside the respirator shall be
measured to ensure that the peak penetration does not exceed 5
percent for a half-mask and 1 percent for a full facepiece.
f. A stable challenge agent concentration shall be obtained
prior to the actual start of testing.
g. Respirator restraining straps may not be overtightened for
testing. The straps shall be adjusted by the wearer to give a
reasonably comfortable fit typical of normal use.
5. Exercise Regime
Prior to entering the test chamber, the test subject shall be
given complete instructions as to her/his part in the test
procedures. The test subject shall perform the following exercises,
in the order given, for each independent test.
a. Normal Breathing (NB). In the normal standing position,
without talking, the subject shall breathe normally for at least one
minute.
b. Deep Breathing (DB). In the normal standing position the
subject shall do deep breathing for at least one minute pausing so
as not to hyperventilate.
c. Turning head side to side (SS). Standing in place the subject
shall slowly turn his/her head from side between the extreme
positions to each side. The head shall be held at each extreme
position for at least 5 seconds. Perform for at least three complete
cycles.
d. Moving head up and down (UD). Standing in place, the subject
shall slowly move his/her head up and down between the extreme
position straight up and the extreme position straight down. The
head shall be held at each extreme position for at least 5 seconds.
Perform for at least three complete cycles.
e. Reading (R). The subject shall read out slowly and loud so as
to be heard by the test conductor the `rainbow passage' at the end
of this unit.
f. Grimace (G). The test subject shall grimace, smile, frown,
and generally contort the face using the facial muscles. Continue
for at least 15 seconds.
g. Bend over and touch toes (B). The test subject shall bend at
the waist and touch toes and return to upright position. Repeat for
at least 30 seconds.
h. Jogging in place (J). The test subject shall jog in place for
at least 30 seconds.
i. Normal Breathing (NB). Same as exercise a.
Rainbow Passage. When the sunlight strikes raindrops in the air,
they act like a prism and form a rainbow. The rainbow is a division
of white light into many beautiful colors. These take the shape of a
long round arch, with its path high above, and its two ends
apparently beyond the horizon. There is, according to legend, a
boiling pot of gold at one end. People look, but no one ever finds
it. When a man looks for something beyond reach, his friends say he
is looking for the pot of gold at the end of the rainbow.
6. Termination of Test
The test shall be terminated whenever any single peak
penetration exceeds 5 percent for halfmasks and 1 percent for full
facepieces. The test subject may be refitted and retested. If two of
the three required tests are terminated, the fit shall be deemed
inadequate.
7. Calculation of Fit Factors
a. The fit factor determined by the quantitative fit test equals
the average concentration inside the respirator.
b. The average test chamber concentration is the arithmetic
average of the test chamber concentration at the beginning and the
end of the test.
c. The average peak concentration of the challenge agent inside
the respirator shall be the arithmetic average peak concentrations
for each of the nine exercises of the test which are computed as the
arithmetic average of the peak concentrations found for each breath
during the exercise.
d. The average peak concentration for an exercise may be
determined graphically if there is not a great varia
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