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HOUSE POST AUDIT AND OVERSIGHT BUREAU
ROOM 146, STATE HOUSE
BOSTON, MA 02133-1053
UMASS/AMHERST 9
JAMES H. FAGAN THOMAS W. HAMMOND, JR.
CHAIRMAN DIRECTOR
COMMITTEE ON (617) 722-2417
POST AUDIT AND OVERSIGHT
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THE LEVERETT SALTONSTALL OFFICE BUILDING
BUREAU OF STATE OFFICE BUILDINGS
"TIME TO LEAVE"
March, 1998
;
$£P2
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Chairman James H. Fagan
Vice Chairman James R. Miceli
MEMBERS OF THE COMMITTEE
Representative Steven Angelo Representative Michael G. Bellotti
Representative Geraldine Creedon Representative Robert S. Hargraves
Representative Louis L. Kafka Representative John A. Locke
Representative John A. Stefanini Representative Steven A. Tolman
Representative Joseph F. Wagner
Bureau Director/General Counsel
Thomas W. Hammond,
Jr.
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TNTRODUCTION:
At the request ofthe House Committee on Post Audit and Oversight, the House
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Post Audit and Oversight Bureau (the Bureau) conducted a preliminary
examination ofthe condition ofthe Leverett Saltonstall Building, the manner in which it
has been maintained, and the implications ofshoddy maintenance ofthe infrastructure
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and systems in the building. The Bureau conducted its preliminary review after
several House members raised concerns about historical maintenance problems and the
effect oflack ofmaintenance on air quality, employee health, productivity, and other
related concerns.
In the course ofits review, the HPAO Bureau was made aware ofthe serious and
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growing asbestos problems in the building. The Bureau found that diminished
maintenance efforts continued to increase the potential for health hazards from the
asbestos within the building. Upon review ofmaterial subpoenaed from an asbestos
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contractor, the Bureau discovered that 1 1th floor air supply ducts had been found
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to contain asbestos material. The Bureau immediately communicated this
information to the Secretary ofAdministration and Finance (A and F) and the Division of
Capital Planning and Operations (DCPO).
In response to the discovery ofrecords indicating asbestos in the 1 1th floor
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ductwork, and in response to the letter attached, the Bureau met with the Secretary
ofAdministration and Finance and raised concerns about all ofthe asbestos located
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within the building. Based upon discussions with the Bureau and the
Committee Chairman, the Secretary agreed to conduct a full test ofthe building to
determine ifany health or safety issues warranted immediate evacuation ofthe building.
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Prior to this initial meeting and subsequent, the Bureau inspected the
building, photographed areas needing maintenance, and met with numerous government
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officials, scientific experts, and Saltonstall employees. These Bureau contacts
included meeting with officials from the Division ofCapital Planning and Operations, the
Bureau ofState Office Buildings (BSOB), and the Office ofAdministration and Finance.
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The Bureau further contacted the Department ofLabor and Workforce
Development, the Division ofOccupational Safety, the Office ofthe Attorney General
Fair Labor and Business Practices, the Massachusetts Coalition for Occupational Safety
and Health, the National Voluntary Laboratory Accreditation Program, the National
Academy ofScience, the Board ofEnvironmental Studies and Toxicology, the United
States Environmental Protection Agency, the Department ofEnvironmental Protection,
the American Board ofIndustrial Hygiene, local colleges and universities, certified
industrial hygienists, and an epidemiologist who formerly taught certification classes for
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asbestos abatement workers. The Bureau also reviewed hundreds ofpages of
documents from the Division ofCapital Planning and Operations and the Bureau ofState
Office Buildings.
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The Secretary ofAdministration and Finance, as part ofthe procedure to re-test
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the Saltonstall building, asked the Bureau to review the proposed test protocol. In
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the course ofits protocol review, the Bureau consulted with various experts
including those referenced above and reviewed state and federal documents relating to
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asbestos and management ofasbestos in the workplace. Further, the Bureau met
with officials and industrial hygienists at the state laboratory in Newton and viewed
microscopic samples ofasbestos, fiberglass, cellulose, and other materials that are present
in many buildings including the Saltonstall building.
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The Bureau is currently awaiting the approval ofthe air test protocol by
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the National Institute for Occupational Safety and Health. The Bureau is also
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awaiting the final development ofwipe tests and other related tests that the Bureau
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has consistently sought to include as part ofprudent, thorough tests. The Bureau
is pleased to have facilitated the comprehensive testing ofthe building. Yet, the
responsibility to oversee and maintain the building lies with DCPO and BSOB. The
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Bureau will, ofcourse, continue to monitor the development ofthe tests, the test
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outcomes, and other related matters. The Bureau will keep the Committee
apprised ofnew information.
FINDINGS: Based on its review, the HPAO Bureau issues the following findings:
* The evacuation ofthe Saltonstall building should be expedited. The Bureau has
been unable to disprove any ofthe serious allegations about widespread potential for
asbestos contamination and in the process ofreviewing the condition ofthe building
under the worst case scenario recommends all employees should be relocated
expeditiously.
* In addition to the serious asbestos problem, the Saltonstall is a sick building. The
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Bureau found ample evidence ofair flow and air quality issues that make it a sick
building apart from the serious problems related to asbestos. At the bare minimum, the
building needs to be totally overhauled with all major systems replaced and all asbestos
removed.
* The Saltonstall building has historically had serious operational, maintenance and
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safety issues that have remained unaddressed. The Bureau found that band-aid
maintenance approach to the building was a contributor to the current poor condition of
the building.
* The history ofvaried health complaints and the building's continued deterioration is
creating substantial worker anxiety regarding workplace health and safety. Increased
worker concerns have not been adequately addressed by BSOB or DCPO. The failure to
provide timely and consistent information has created mistrust and skepticism on the part
ofemployees.
* The building contains aging sprayed-on asbestos fireproofing which was applied
during construction on beams and above ceilings. Some ofthis material has delaminated
and has come to rest on top ofceiling tiles. Because ofthis, impeccable cleaning ofthe
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building by trained personnel using specific methods is required. The Bureau
found however that appropriate methods and standards ofcleanliness have not always
been maintained. Although the HPAO Bureau found that there were some efforts made
as oflate to improve performance, recent wipe samples still detected asbestos on many
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horizontal surfaces despite recent cleanup ofthe same areas. The Bureau is
unable to determine the direct source ofthe asbestos found in the wipe samples. It is
possible that asbestos found in wipe samples could have been released long ago.
* The asbestos fireproofing within the air plenums (spaces for air movement within the
ventilation system) causes routine maintenance to be procedurally burdensome and
costly. Much ventilation maintenance has been foregone to avoid intrusions into the
asbestos containing areas. This poor ventilation has contributed to a number ofthe health
complaints in this building.
* Historically, routine building maintenance was assigned low priority and often times
was deferred. Since recent plans were developed to completely renovate the building,
serious maintenance has been postponed. This deferral ofcritical maintenance poses an
ongoing potential danger to workers due to the potential for breaches ofceiling tiles and
other areas where asbestos could be released.
* Poor air quality continues to be a problem due to the lack ofmaintenance and the
configuration ofoffice space, including the placement ofoffice partitions, which does not
take into account the design ofthe air system within the building. Dampers, vents, and
air supply units are supplying substantially less air than is healthy for building occupants.
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