Opinion ID: 1895323
Heading Depth: 1
Heading Rank: 3

Heading: the standard applied in this case

Text: In this case the Mobile Home Builders challenge the factual basis of Sec. Ind. 14.03. They specifically challenge the selection of the .4 ppm standard for formaldehyde concentration in the ambient air and the NIOSH P and CAM 125 test for measuring compliance with the standard. They contend that their right to substantive due process was violated because DILHR adopted a rule which is not reasonably related to the benefit sought to be attained, safe and sanitary design and construction of mobile homes. Whether Sec. Ind. 14.03 violates the Mobile Home Builders' due process rights is a question of law which we will review de novo, without deference to the lower courts. State v. Nordness, 128 Wis. 2d 15, 381 N.W.2d 300 (1986). We have reviewed the agency record and evidence admitted at trial and conclude that there are facts of record which support DILHR's adoption of the .4 ppm standard as the maximum level of formaldehyde permitted in the ambient air of mobile homes and the NIOSH P and CAM 125 test procedures. In this case the governmental objective DILHR is directed to implement is clearly expressed in the agency's enabling statute. Section 101.92(1), Stats., authorizes DILHR to adopt rules for the safe and sanitary design and construction of mobile homes. ... We conclude there are facts of record that reasonably support DILHR's choice of the .4 ppm standard and the NIOSH P and CAM 125 test procedures. Thus, the rule is reasonably related to the legitimate governmental objective of safe and sanitary design and construction of mobile homes and therefore does not violate the Mobile Home Builder's due process rights. In this case the agency rulemaking record alone consists of 25 volumes of 10,000-12,000 pages. The record indicates that the agency thoroughly reviewed available medical and scientific evidence and alternative resolutions of the problem. The rule underwent extensive public hearing and review by the appropriate legislative committees. See Formaldehyde Report and Standard: Proposed Final Indoor Ambient Air Quality Standards For Mobile Homes, prepared by DILHR, October 1980; Formaldehyde Report and Standard: Proposed Final Amendments to Indoor Ambient Air Quality Standards for Mobile Homes, prepared by the DILHR, March 1982 [hereinafter 1982 Formaldehyde Report ]. DIHLR's rationale for adopting the .4 ppm standard and the NIOSH P and CAM 125 test procedure is clearly documented. We will review the facts which support each choice in turn. The basis for the relatively low .4 ppm standard is that formaldehyde is an irritant at low levels. This means that eye, nose and throat discomfort is experienced by persons exposed to formaldehyde. As we review the record we find sufficient reliable expert testimony to the effect that the eyes, nervous and olfactory systems of the human body may be irritated at concentrations lower than .4 ppm. The State Medical Society advocated a .1 ppm standard and other medical doctors urged a .1-.2 ppm level based on research that a substantial number of people experienced irritation at these low levels and a concern that formaldehyde has a potential for inducing tumors in animals and humans. The National Academy of Science reports in the record also indicate that many persons experience adverse irritant effects from low levels of formaldehyde exposure, e.g., .25-.5 ppm. The record also contains the results of tests by several government health agencies of residential dwellings constructed with materials containing formaldehyde. The results indicate that residents experienced symptoms, e.g., eye, nose and throat irritation, at very low formaldehyde concentrations. For example, in tests conducted by the Connecticut Department of Health and Consumer Protection, symptoms occurred in 37 percent of the 224 residents when formaldehyde levels were below .5 ppm. Committee on Aldehydes, Board on Toxicology and Environmental Health Hazards, Assembly of Life Sciences National Research Council, Formaldehyde and Other Aldehydes, 200-01 (1981). We do not deny that there is evidence in the record to the effect that the threshold level of irritation in humans is higher than the .4 ppm standard selected by DILHR. The record indicates that DILHR pursued a middle ground in selecting the .4 ppm standard. The record contains some evidence that would support a lower standard and some that would support a higher standard. When reasonable minds are divided on the question of which standard to select the choice of the agency will be upheld. Kachian, 44 Wis. 2d at 7-8. We also find support in the record for the NIOSH P and CAM 125 test selected by DILHR to measure compliance with the .4 ppm standard. DILHR acknowledged that there are differences of opinion in the scientific community concerning the appropriate test procedure to measure compliance with the .4 ppm standard. But the fact experts disagree does not invalidate DILHR's choice. Id. The Formaldehyde Institute, which represents a significant number of companies from the industry, testified it had no objections to use of the test method and procedures specified in the rule. The Weyherhauser Company specifically testified the NIOSH P test method is a reliable test for measuring formaldehyde at the .4 ppm level and below. DILHR also considered the alternative test methods available for determining formaldehyde concentrations. It selected the NIOSH P and CAM 125 test method because there was evidence and testimony that it has been widely utilized by government and industry with substantial success. 1982 Formaldehyde Report, supra p. 24 at 17-23. Thus, from our review of the record we conclude DILHR had a reasonable basis for its selection of the NIOSH P and CAM 125 test. It appears from the record that all the evidence was carefully reviewed by the agency. It is the agency decision we must review. We will not independently weigh the evidence or determine whether the agency made the best choice. Our task is simply to ascertain whether their choice is reasonably supported by any facts in the record. We conclude that it is and therefore affirm. By the Court. The decision of the court of appeals is affirmed.