Opinion ID: 584066
Heading Depth: 2
Heading Rank: 4

Heading: the perc example

Text: 79 OSHA's analysis of perchloroethylene (perc) is a prime example of the problems with OSHA's approach to this rulemaking. Perc is a widely used solvent in the drycleaning and industrial degreasing industries. Id. at 2686. Petitioners, the International Fabricare Institute (IFI) and the Halogenated Solvents Industry Alliance, argue that OSHA's determination that perc presents a significant cancer risk is not supported by substantial evidence. On the other hand, the union argues that the final PEL adopted by OSHA, 25 ppm, 29 though lower than the 50 ppm limit originally proposed, still leaves workers exposed to a significant cancer risk. Indeed, as OSHA recognized, the quantitative risk assessment on which the agency relied showed that even at an exposure level of 10 ppm, an excess risk of 6.4 deaths per 1000 workers would remain, id. at 2687, which by OSHA's own admission is considered significant. OSHA, however, cited feasibility concerns for its decision not to lower the PEL even further. Id. at 2688. If supported by substantial evidence in the record, this would satisfy the requirements of the OSH Act. 80 Although OSHA stated that it does not believe that information in the record at the present time demonstrates that it is feasible to reduce exposures to lower levels, id., OSHA's feasibility analysis for perc is grossly inadequate. For technological feasibility, OSHA limited its discussion to showing that its new PEL of 25 ppm was achievable. OSHA stated that 25 ppm can be achieved with newer equipment and engineering and work practice controls. Id. OSHA also stated that a significant percentage of operations, including smaller operations, have installed the newer equipment, and that the industry as a whole is gradually replacing older equipment with newer equipment. 30 Id.; see also id. at 2811-12. However, there is no explanation or evidence cited in the final rule to support the proposition that an even lower PEL is not technologically feasible. 81 On the other hand, OSHA's economic feasibility determination for perc cannot support either the new PEL of 25 ppm or the agency's decision not to set an even lower PEL. OSHA used the two-digit SIC code, SIC 72--Personal Services, to define the industries affected by the perc standard. This creates two problems. First, drycleaning is the only industry in SIC 72 affected by the perc standard. SIC 72 covers numerous other industries, including funeral services, shoe repairs, barber and beauty shops, and photography studios. See id. at 2763. Nevertheless, OSHA took the costs of compliance with the new perc standard, which would be borne only by the drycleaning industry subsector (SIC code 7216), and compared those costs to the profits and sales of the entire personal services sector (SIC 72). As a result, OSHA must have significantly understated the costs of compliance for the drycleaning industry. Indeed, petitioners claim that the actual economic impact on this industry would be more than ten times OSHA's estimate. 31 82 Moreover, while the drycleaning industry received at least some feasibility analysis for perc, the other major user of that chemical, industrial degreasing operations, received none. This industry is not in SIC 72, which was the only industry sector reviewed for technological or economic feasibility for the new perc standard. Therefore, OSHA clearly has not fulfilled its duty to examine the feasibility of its perc standard for each affected industry. 83 Accordingly, while OSHA has determined that significant risk remains for exposure to perc at a level of 25 ppm, it is not clear from the record that 25 ppm is the lowest feasible level. The union claims that it would be feasible to set the standard lower than 25 ppm, perhaps as low as 10 ppm. Industry, on the other hand, claims that even 25 ppm is not feasible. From the record and final rule as presented, it is impossible for this court to determine which claim is correct.