ADMINISTRATIVE REPORT Date: June 6, 1997 C.C. File No. 1306-2 TO: Vancouver City Council FROM: Manager of Building Management and General Manager of Human Resource Services SUBJECT: Asbestos Control Program and Staffing RECOMMENDATION A. THAT Council approve the Asbestos Control Program as ongoing and until such time as it is no longer required under Workers Compensation Board Regulations. B. THAT Council approve the establishment of three regular Asbestos Surveyor/Worker positions replacing the existing temporary positions at no additional cost to the Operating Budget. GENERAL MANAGER'S COMMENTS The General Manager of Corporate Services recommends approval of A and B. COUNCIL POLICY Council establishes regular positions for staffing long term projects and service programs. PURPOSE The purpose of this report is to inform Council about the progress of the Asbestos Control Program and recommend actions to continue to execute the program in an effective manner. BACKGROUND On April 11, 1989, upon WCB (Workers Compensation Board) order, Council approved the Asbestos Control Program with 1989 operating funding of $176,000. Four temporary Asbestos Surveyor/Worker positions were established for the City. Subsequently three additional similar positions were temporarily established for the Park Board Asbestos Control Program. The term of the Program was uncertain especially because the WCB requirements were changing and it was impossible to foretell what level of response would prove to be appropriate and economical in the long run. City staff would survey all City owned and occupied properties to determine and record all asbestos containing building materials, attend to all emergency repairs to minimize the probability of exposure to airborne asbestos fibres by workers, implement a continuous inspection program to ensure that deterioration could be detected as early as possible, and take remedial action by repair or complete removal if required. Funding requests for major remediation projects were submitted annually in the Supplementary Capital Budgets. Requests for major projects such as the Museum/Planetarium, Kerrisdale Library and Queen Elizabeth Theatre were specifically approved by Council. The mission of the Asbestos Control Program was to satisfy WCB requirements and to protect City staff and assets from contamination effectively and efficiently. The standards required and the high costs of remediation were publicly questioned in North America. In March, 1991, Council considered a report from the Medical Health Officer and the Director of Housing and Properties which expressed concerns regarding the justification for increasing expenditures on asbestos control. Council resolved to invite senior WCB representatives in order to get information related to risk assessment and cost/benefit analysis. A meeting was held and medical data and other information were provided. WCB s position was that as a regulatory authority, they were not agreeable to starting discussions about the standards, and the enforcement of law was not a matter for negotiation, especially where worker health and safety was at stake. In 1993, WCB conducted public hearings in preparation for reducing permissible asbestos exposure levels even further. The City made representations objecting to the proposed changes. In 1993, WCB officially reduced the permissible 8-hour exposure level for chrysotile asbestos from 2.0 to 0.1 fibres per cubic centimetre. ASBESTOS CONTROL PROGRAM STATUS The survey of the buildings is complete. Staff produced and distributed to each facility a specific manual listing and describing asbestos containing materials in that facility. The manual gives essential information to contractors and staff regarding the location, type and condition of asbestos containing material. These manuals are used when there are plans to renovate or make changes to the systems or the interior of the facilities. Required quarterly inspections are carried out by the surveyors in order to determine if the condition of asbestos containing materials is stable and safe. In addition staff carry out minor and medium size removal work in civic facilities where risks can be effectively managed, such as the recently renovated areas of the Public Safety Building. Staff perform minor patch and repair, glove bag removal on mechanical piping, reinsulation, project management and conduct awareness and training programs for City staff. Major removal work is tendered, and generally supervised by consultants. At times, staff supervise the contractors for reasons of scheduling, security and coordinating the removal work with concurrent projects. The breakdown of the annual total program costs is as follows: - consulting + sample analysis + air monitoring: $ 55,000 - removal and restoration by contractors: 310,000 - total in-house work done by staff: 150,000 - rent, vehicles, supplies, training, etc.: 35,000 x - total program cost excluding Park Board: $550,000 This breakdown is expected to remain stable for several years. In addition to the regular work staff perform as described above, there is a fluctuating requirement for inspecting properties which the City is considering purchasing, demolishing, redeveloping and attending to other environmental hazards in our properties such as lead paint, PCBs, cable insulation, and others. The components of the program constitute a mix believed to be the most cost effective, flexible and sustainable method of implementation. Thus a high degree of up-to-date expertise in the field is nurtured in-house. During the startup of the program, the staff complement at the City comprised four asbestos surveyor/workers, a half time clerk, and 0.8 FTE assistant program manager. After the program stabilized, one surveyor/worker, the half time clerk and the assistant manager positions were phased out as temporary assignments. FUTURE OF THE PROGRAM Asbestos as a building material cannot be eliminated economically until the structure is ready for demolition. The program must continuously maintain the asbestos containing materials in a safe condition during the remaining lives of existing buildings and those older buildings which are purchased by the City. With the removal work projected to take place due to irreparable asbestos containing materials and planned renovations, we expect the program to continue with minor changes well into the next century. We interpret the present state of WCB regulations and conclude that any accelerated mitigation, including complete removal, is prohibitive in cost. Following the present Council policy, the Asbestos Control Program will continue based on WCB compliance, with suitable internal cost effective adjustments, for a considerable number of years. PERSONNEL IMPLICATIONS Staff in the temporary positions have now been employed for periods up to six years on a temporary basis. As the program is clearly no longer temporary, it is appropriate to regularize the positions and give the incumbents some certainty with respect to their future employment. CONCLUSION This report recommends regularizing three Asbestos Surveyor/Worker positions in the Building Management Business Unit of Corporate Services. There will be no impact on the budget. * * * * *