Comprehensive and Workable Plan for the Abatement of Lead-Based Paint in Privately Owned ...

229 Pages·1998·7.74 MB·English

Comprehensive andworkable Plan for
the Abatement of Lead-Based Paint in
Privately Owned Housing
Report to Congress
U.S. Department of Housing and Urban Development
Washington, DC
December 7,1990
ACKNOWLEDGMENTS
Direction of the Study
John C. Weicher, Assistant Secretary for Policy Development and Research,
U.S. Department of Housing and Urban Development (HUD)
James W. Stimpson, Deputy Assistant Secretary for Research, HUD
Ronald J. Morony, Director, Divison of Innovative Technology, HUD
Principal Authors
Stevenson Weitz, HUD
Robert P. Clickner, Westat, Inc.
Anthony Blackburn, Speedwell, Inc.
David Buches, Aspen Systems Corp.
Research Team and Contracts
Research was carried out by the cooperative efforts of seven firms working closely with staff of
HUD and the U.S. Environmental Protection Agency (EPA). Key members of the research team
include:
Westat. Inc.
Stephen K. Dietz
Robert P. Clickner
Victoria Albright
Frankie Robinson
Leigh Blackstone
Sharon Beauskjour
S~eedwellI.n c. Amen Svstems Cor~.
Anthony Blackburn Michael Shea Kenneth Trimble
David Buches Charles McCartney
Midwest Research Research Triangle
Dewberrv and Davis Institute Institute
Dennis Harris Paul C. Constant Stephen R. Williams
Charles Woods Stanley R. Spurlin Kerrie E. Boyle
Mark Montgomery Kay Turman William F. Gutknecht
John D. Neefus
Ellen S. Stutts
Comprehensive andworkable Plan for
the Abatement of Lead-Based Paint in
Privately Owned Housing
Report to Congress
U.S. Department of Housing and Urban Development
Washington, DC
December 7,1990
ACKNOWLEDGMENTS
Direction of the Study
John C. Weicher, Assistant Secretary for Policy Development and Research,
U.S. Department of Housing and Urban Development (HUD)
James W. Stimpson, Deputy Assistant Secretary for Research, HUD
Ronald J. Morony, Director, Divison of Innovative Technology, HUD
Principal Authors
Stevenson Weitz, HUD
Robert P. Clickner, Westat, Inc.
Anthony Blackburn, Speedwell, Inc.
David Buches, Aspen Systems Corp.
Research Team and Contracts
Research was carried out by the cooperative efforts of seven firms working closely with staff of
HUD and the U.S. Environmental Protection Agency (EPA). Key members of the research team
include:
Westat. Inc.
Stephen K. Dietz
Robert P. Clickner
Victoria Albright
Frankie Robinson
Leigh Blackstone
Sharon Beauskjour
S~eedwellI.n c. Amen Svstems Cor~.
Anthony Blackburn Michael Shea Kenneth Trimble
David Buches Charles McCartney
Midwest Research Research Triangle
Dewberrv and Davis Institute Institute
Dennis Harris Paul C. Constant Stephen R. Williams
Charles Woods Stanley R. Spurlin Kerrie E. Boyle
Mark Montgomery Kay Turman William F. Gutknecht
John D. Neefus
Ellen S. Stutts
The national survey of lead-based paint in housing was conducted for HUD by Westat, Inc., in
affiliation with Dewberry and Davis and KTA-Tator, under Contract HC-5848. Analyses were
conducted by Westat, Inc., in affiliation with Speedwell, Inc., and Aspen Systems Corp., under the
same contract, Policy recommendations were prepared by HUD. Laboratory services for the
survey were provided by Midwest Research Institute, under an interagency agreement between
HUD and EPA (HUD No. 90-03). Research Triangle Institute prepared the initial design of the
national survey under contract to HUD (HC-5796).
The abatement demonstration study was conducted for HUD by Dewberry and Davis, in affiliation
with Speedwell, Tracor Technology, and KTA-Tator under Contract HC-5831.
HUDIEPA Interag~ncyT ask Force on Lead-Based Paint
Task Force participants contributed to the report in many ways, including assistance in designing
the research, formulating proposed Federal actions, and reviewing numerous drafts.
Department of Housing and Urban Development
Office of Policy Development and Research
Ronald J. Morony, Co-Chair
Ellis G. Goldman
Stevenson Weitz
Office of Public and Indian Housing
Janice D. Rattley
Carolyn J. Newton
Environmental Protection Agency
Office of the Administrator
Renate Kimbrough, M.D.
Office of Toxic Substances
Joseph Merenda, Co-Chair
David Schutz
Phil Robinson
Joseph Breen
Cynthia Stroup
Office of Research and Development
Lester Grant
Robert Elias
Ronnie Levin
Centers for Disease Control
Henry Falk, M.D.
Sue Binder, M.D.
Department of Health and Human Services
Office of Maternal and Child Health
Jane S. Lin-Fu
Agency for Toxic Substances and Disease Registry
Chebryll Carter
National Institute of Environmental Health Sciences
Kathryn R. Mahaffey
Donald Ryan
National Institute for Occupational Safety and Health
Larry J. Elliott
Ralph D. Zumwalde
Consumer Product Safety Commission
Sandra Eberle
National Institute of Standards and Technology
Mary McKnight
Occupational Safety and Health Administration
Max Gabis
In addition to the individuals listed above, the authors appreciate the assistance of numerous other
parties: Ellis G. Goldman, coordinator of HUD's lead-based paint research program and a major
contributor to the report, and Paul Burke, Donald Bradley, Elena Van Meter, Ronald Sepanik,
David Engel, Nelson Carbonell, and Dorothy Allen, of HUD; Brad Schultz, John Schwemberger,
Karen Hogan, Sarah Shapley, Ben Lim, and David Kling, of EPA; Robert Bornschein, Scott Clark,
and Paul Succop, of the University of Cincinnati Medical Center; Katherine Farrell, Pat McLaine,
Susan Guyaux, Vance Morris, and Polly Harrison, of the State of Maryland; James Keck, John
McCauley, Jim McCabe, Elias Dorsey, Rudy Janssen, and Charlotte Pinning, of the City of
Baltimore; Paul Hunter, Brad Prenney, Mary Jean Brown, Marsha Hunter, Mark Matulef, Evelyne
Swagerty, and Patricia Circoni, of the State of Massachusetts; Sean O'Brien, of the County of
Barnstable, MA; Donna Rodriquez and Ron Dupuis, of the Lynn (MA) Housing Authority;
Carmen Torres, of the Merrimack Valley Lead Poisoning Prevention Program; and Anne Ogden,
of the Lawrence (MA) Housing Authority; and Stephanie Pollack, of the Conservation Law
Foundation of New England.
CONTENTS
Chapter Page
EXECUTIVE SUMMARY ...................................................................................x..v
LEAD IN THE ENVIRONMENT ........................................................... xvi
EXTENT OF LEAD-BASED PAINT IN HOUSING .......................... xvii
THE COST OF ABATING LEAD-BASED PAINT ............................. xix
CURRENT GOVERNMENTAL AND PRIVATE SECTOR
ACTIVITIES ................................................................................................. xx
A COMPREHENSIVE PLAN ................................................................... xxi
Updating HUD Lead-Based Paint
Regulations. ..................................................................................... xxiii
Addressing Hazards in Other Federally-Owned Housing ....... xxiii
Expanded Information and Education
Effort ............................................................................................... xxiii
Research and Demonstration Activities ..................................... xxiii
Capacity Building and Local Program
Development ................................................................................... xxv
Financial Assistance for Lead-Based Paint Abatement ........... xxv
EXISTING FEDERAL RESOURCES .................................................... xxv
THE CONTRIBUTION OF THE PUBLIC HOUSING
ABATEMENT PROGRAM ..................................................................... xxvi
FEDERAL EXPENDITURES AND RESOURCES ........................... xxvii
THE CHANGING NATURE OF THE LEAD-BASED PAINT
PROBLEM ...................................................................................................x. xvii
1. INTRODUCTION ..................................................................................................... 1-1
PAINT PRODUCTION HISTORY ......................................................... 1-1
LEGISLATIVE AND REGULATORY HISTORY ............................. 1-2
RESPONSES RECENT STATUTORY DIRECTIVES
Testing Technology ........................................................................1. -4
National Hazards Estimate. ........................................................... 1-5
Technical Guidelines on Testing and
Abatement ......................................................................................1. -5
CONTENTS (cont.)
1. (cont.)
Abatement Demonstration ............................................................ 1-6
In-Place Management of Lead-Based Paint
Hazards ............................................................................................1 -8
Comprehensive and Workable Plan for
Abatement in Public Housing ...................................................... 1-8
INTERAGENCY CONSULTATION ..................................................... 1-8
ORGANIZATION OF THE REPORT ................................................... 1-9
2 . LEAD IN THE ENVIRONMENT: AN OVERVIEW ................................ 2-1
TOXIC EFFECTS ........................................................................................ 2-1
EFFECTS OF LOW-LEVEL EXPOSURE ............................................ 2-3
REDUCTIONS IN THE EXPOSURE LEVEL OF CONCERN. ...... 2-5
ESTIMATES OF THE NUMBER OF CHILDREN EXPOSED ...... 2-5
DISTRIBUTION OF EXPOSED CHILDREN ..................................... 2-7
SOURCES AND PATHWAYS OF LEAD IN THE HUMAN
ENVIRONMENT. ........................................................................................ 2-10
Air ...................................................................................................... 2-11
Water ................................................................................................. 2-11
Food ................................................................................................... 2-13
Surface Dust and Soil ..................................................................... 2-13
THE CONTRIBUTION OF LEAD-BASED PAINT TO LEAD
POISONING ................................................................................................2..- 16
Ingestion of Lead-Based Paint ...................................................... 2-17
The Cincinnati Study of Pathways Between
Paint Lead and Blood Lead .......................................................... 2-17
Effects of Housing Condition ........................................................2 -19
Isotope Ratio Analysis .................................................................... 2-20
Effects of Refinishing ..................................................................... 2-21
Effects of Lead-Based Paint Abatement ..................................... 2-21
SUMMARY AND CONCLUSIONS ....................................................... 2-24
3 . THE EXTENT OF LEAD-BASED PAINT IN HOUSING .............................. 3-1