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.
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