Will Fundamental Changes in Chemicals Policy
affect Product Stewardship?
National Product
Stewardship Forum
May 23, 2007
Michael P. Wilson, Ph.D, MPH
Center for Occupational and Environmental Health
University of California, Berkeley
mpwilson@berkeley.edu
University of California, Berkeley
Center for Occupational and Environmental Health
Est. 1978 (AB 3414)
Berkeley, Davis, San Francisco (northern California).
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Toxicology
Epidemiology
Industrial hygiene
Environmental health policy
Occupational & environmental medicine
Occupational nursing
Ergonomics
Labor education
Professional education
2
University of California, Berkeley
Green Chemistry Framework Report
• Assesses problems and opportunities in chemicals policy
• Proposes goals, makes policy recommendations
Commissioned January 2004 by:
• Byron Sher
(Chair, SEQC)
• John Laird
(Chair, ACESTM)
Published March 14, 2006 by UCOP for:
• Joseph Simitian (Chair, SEQC)
• Ira Ruskin
(Chair, ACESTM)
Seven legislative bills, Cal/EPA Green Chemistry Initiative in
2007 (http://coeh.berkeley.edu/news/06_wilson_policy.htm)
University of California, Berkeley
John R. Balmes, MD
School of Medicine, UC San Francisco
Advisory Committee Members
Carl F. Cranor, PhD
Department of Philosophy, UC Riverside
Timothy Malloy, JD
School of Law, UC Los Angeles
S. Katharine Hammond, PhD
School of Public Health, UC Berkeley
Thomas E. McKone, PhD
Lawrence Berkeley National Laboratory
Bill E. Kastenberg, PhD
College of Engineering, UC Berkeley
Dara O’Rourke, PhD
College of Natural Resources, UC Berkeley
Ann Keller, PhD
School of Public Health, UC Berkeley
Julia Quint, PhD
Department of Health Services
Amy D. Kyle, PhD, MPH
School of Public Health, UC Berkeley
Christine Rosen, PhD
Haas School of Business, UC Berkeley
Geoff Lomax, DrPH
Department of Health Services
David J. Vogel, PhD
Haas School of Business, UC Berkeley
4
Hexane-induced peripheral
neuropathy in the vehicle
repair industry, 2000 - 2007
Harrison et al. MMWR, Nov 16,
2001, Vol 50 #5
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6
7
University of California, Berkeley
8h time-weighted average exposure concentration, mg/m3 (n=23)
Toluene
Toluene
Acetone
Acetone
Hexane
Hexane
0
10
20
30
40
50
60
70
80
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University of California, Berkeley
Wilson M, et al. J Occ Env Hyg, May 2007
1989: Cal/EPA targets use of perchloroethylene
in the vehicle repair industry
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Chemical management in the CA vehicle repair industry
Phase-out year
Rationale
1970:
1978:
1980:
1985:
1990:
2002:
Next:
Fire hazard
Ozone depletion
Carcinogen
Ozone depletion
Dioxin emissions
Neurotoxin
Repro toxin
Stoddard solvent
CFCs
Methylene chloride
1,1,1-Trichloroethane
Perchloroethylene
Hexane/acetone blends
1-Bromopropane
10
University of California, Berkeley
Meanwhile, over at the Legislature…
11
University of California, Berkeley
35 chemically-related bills in California, 2005-2006
AB 121 (Vargas)
AB 263 (Chan)
AB 289 (Chan)
AB 319 (Chan)
AB 342 (Baca)
AB 597 (Montanez)
AB 623 (Aanistad)
AB 639 (Aghazarian)
AB 752 (Karnette)
AB 815 (Lieber)
AB 816 (Lieber)
AB 848 (Berg)
AB 908 (Chu)
AB 912 (Ridley-Thomas)
AB 966 (Saldana)
AB 985 (Dunn)
AB 990 (Lieber)
AB 1125 (Pavley)
AB 1337 (Ruskin)
AB 1342 (Assem ESTM)
AB 1344 (Assem ESTM)
AB 1354 (Baca)
AB 1415 (Pavley)
AB 1681 (Pavley)
SB 419 (Simitian)
SB 432 (Simitian)
SB 484 (Migden)
SB 490 (Lowenthal)
SB 600 (Ortiz)
SB 838 (Escutia)
SB 849 (Escutia)
SB 982 (Sen EQ comm)
SB 989 (Sen EQ comm.)
SB 1067 (Kehoe)
SB 1070 (Kehoe)
12
University of California, Berkeley
1)
What are the key chemical issues facing California?
2)
What are the implications of these issues?
3)
How might California respond to those issues?
13
University of California, Berkeley
1)
What are the key chemical issues facing California?
2)
What are the implications of these issues?
3)
How might California respond to those issues?
14
University of California, Berkeley
Policy Leadership by the European Union
- Cosmetics Directive: 2004
- Waste in Electrical and Electronic Equipment (WEEE): 2005
- Restriction on Hazardous Substances (RoHS): 2006
- Registration, Evaluation, Authorization of Chemicals (REACH): 2007
15
University of California, Berkeley
As E.U. moves forward with new policy approaches…
CA RoHS, 2007
Cosmetics,
WEEE,
RoHS,
REACH,
others
China RoHS, 2007
Korea RoHS, 2007
Japan RoHS, 2006
- Competitive disadvantage?
- Dumping ground?
- Uneven playing field in U.S.?
- State action?
- Market shifts?
- Reform pf TSCA, FDCA?
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The University of California, Berkeley
“G.E. Chief Points to ‘Green’ Handicap”
Financial Times
May 10, 2005
Stephanie Kirchgaessner in Washington
“…the deregulatory agenda favored by the U.S. business community –
particularly on environmental issues – is not providing American
companies with a competitive advantage over their European
counterparts.”
Jeffrey Immelt, Chairman and CEO ($1.5 billion/yr Ecomagination)
The University of California, Berkeley
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E.U. initiatives:
• Affecting industrial process at point of design, supply chains
• Translating precautionary principle into law
• Global implications for policy, law, industrial practices
Scientific
suspicion of
harm
Reasonable
grounds for
concern
Balance of
evidence
Proof of risk,
clear cause-andeffect; risks
outweigh
benefits
18
University of California, Berkeley
What we produce,
and how, is
underpinned by
deeper social
factors.
Products,
processes
Chemicals
policy
Principles of conduct; “acceptable”
vs. “unacceptable” harm
Epistemology, political economy
Ethical norms, values
19
University of California, Berkeley
risk assessment
Gather evidence
Evaluate evidence
The
possibility of
harm.
Apply a pre-established
standard
Apply best
judgment
Decide
Unacceptable harm
Acceptable harm
Ethical norms, values
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R - rescue
E - exposure
C - confinement
E - extinguish
O - overhaul
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University of California, Berkeley
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Setting priorities is easiest to
when the outcome is visible
(e.g. structure fires).
Emergency services are
generally well-funded.
Setting priorities is difficult when
the outcome is less visible (e.g.
workplace diseases, climate
change).
Industrial hygiene is poorly funded.
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1980
2002
Climate change action: reflecting changing ethics, values?
Cordillera Blanca glacier, Peruvian Andes
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University of California, Berkeley
Photographs: Bryan Lynas (1980) and Mark Lynas (2002)
75% of U.S. electronic waste goes to Asian countries.
Lianjiang River, Guiyu, China Photos: Basel Action Network 27
University of California, Berkeley
50 million tons of e-waste are discarded annually
(5% of global solid waste) Guiyu, China
University of California, Berkeley
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In New Delhi, 25,000 workers crush & burn
10-20,000 tons of e-waste annually.
University of California, Berkeley
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Electronic waste recovery (recycling) workers, Guiyu, China
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60,000 plastic bags: the number used every 5 seconds in the 34U.S.
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36
37
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426,000 cell phones: the number retired every day in the U.S.
Is end of life important?
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The University of California, Berkeley
Photos: California Environmental Protection Agency
Children’s environmental
health:
• Critical windows of
vulnerability; chemicals
altering gene expression;
endocrine disruption.
• New Pediatric Morbidity:
Asthma, certain cancers,
neurodevelopmental disorders
• Substances in umbilical cord
blood, human fluids, tissues.
Faroe Islands Statement (Los Angeles Times, May 25, 2007)
“Toxic exposures to chemical pollutants during these windows of
increased susceptibility can cause disease and disability in childhood and
across the entire span of human life.”
“These adverse effects have been linked to chemical pollutants at realistic
human exposure levels similar to those occurring from environmental
sources.”
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What is going to change? Key problems with the
federal Toxic Substances Control Act of 1979.
• Data Gap:
– TSCA does not require producers to generate chemical
hazard data for EPA or downstream users.
• Safety Gap:
– TSCA has constrained EPA’s ability to assess and
control chemical hazards.
• Technology Gap:
– TSCA has dampened private sector interest in green
chemistry, which is reflected in research and education.
41
University of California, Berkeley
• Data Gap:
– Pre-1979: no data requirements for 62,000 substances
– Post-1979: PMN process: action by EPA on 3,500
• 67% of PMNs contain no test data
• 85% contain no toxicity data
• 95% contain no ecotoxicity data
• Safety Gap:
– EPA: Rulemaking on 5 substances since 1979
– EPA to GAO in 1994: About 16,000 of concern
• Technology Gap:
– 2005 NAS “Grand Challenges” report
– Chemical industry’s 1996 Vision 2020 report
– Education, research
42
The University of California, Berkeley
Analyses of chemical policy weaknesses in the U.S:
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National Academy of Sciences
U.S. General Accounting Office
Congressional Office of Technology Assessment
Environmental Defense
U.S. EPA
former EPA officials
RAND Science and Technology Institute
U.S. Government Accountability Office
National Academy of Sciences
University of California
1984
1994
1995
1997
1998
2002
2003
2005
2005
2006
43
University of California, Berkeley
1)
What are the key chemical issues facing California?
2)
What are the implications of these issues?
3)
How might California respond to those issues?
44
University of California, Berkeley
The U.S. chemicals market
is flawed, due to
weaknesses of TSCA in:
•
Generating information
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Regulating known hazards
•
Motivating investment in
green chemistry
Function
Performance
Price
Hazards
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University of California, Berkeley
The U.S. chemicals
market, 1979 – 2007.
Function
Performance
Price
Safety
46
University of California, Berkeley
47
The University of California, Berkeley
Courtesy Robert Kavlock, U.S. EPA, NAS Feb 7, 2005
The view from state agencies…
To assess & prioritize chemical
hazards, agencies need four pieces
of information:
Identity
Uses
Sales volume
Hazards
48
University of California, Berkeley
Chemical information available
to state agencies under TSCA,
1979 - 2007
49
University of California, Berkeley
The Technology Gap.
With very few exceptions, one
can earn a Ph.D in chemistry in
the U.S. without demonstrating a
basic understanding of
toxicology…
Sather gate, UC Berkeley
…or the principles of green
chemistry.
University teaching and
research in chemistry
reflect conditions in the
chemicals market…and
its regulation.
50
The University of California, Berkeley
Chemical problems will deepen as chemical production doubles
every 25 years into the future.
400
Production index = 231 in 2022,
where 1997 = 100
300
Production index = 131 today,
where 1997 = 100
200
100
2030
2028
2026
2024
2022
2020
2018
2016
2014
2012
2010
2008
2006
2004
2002
2000
1998
1996
1994
1992
0
51
University of California, Berkeley
California’s chemical problems will deepen along with its expected
growth to 55 million by 2050.
60
55
50
Millions
45
40
35
30
2006 = 36 million
25
20
1990
2000
2010
2020
2030
2040
2050
52
University of California, Berkeley
Source: California Dept of Finance, CA pop. trends, 1990 – 2050
1)
What are the key chemical issues facing California?
2)
What are the implications of these issues?
3)
How might California respond to those issues?
53
University of California, Berkeley
UC Report: California needs…
• A modern, comprehensive chemicals policy…
• that motivates investment in green chemistry:
• the design of chemical products and processes
• to reduce or eliminate substances hazardous to human
health and the environment.
Anastas, P.T. and J. Warner. 1999. Green Chemistry Theory and Practice
54
University of California, Berkeley
UCB chemicals policy report
Barriers to green chemistry
Drivers of green chemistry
Recommendations
Close the Data, Safety & Technology Gaps:
• Improve transparency & accountability in the chemicals
market.
• Improve government capacity to mitigate known hazards.
• Implement other incentives to motivate investment in
green chemistry.
55
University of California, Berkeley
We are entering a new era of chemicals policy:
does this reflect changing ethics, values?
Stage 1: Disposal and dilution
Stage 2: Waste treatment and pollution control
Stage 3: Toxics policy
(chemical-by-chemical approaches)
Stage 4: Chemicals and materials policy
(design, life cycle, transparency, accountability)
56
University of California, Berkeley
A systems approach is needed to produce enduring changes in
the chemical sector. Example: electricity use.
Total electricity use per capita, kWh, 1960 - 2002
14,000
12,000
10,000
8,000
6,000
4,000
United States
California
2,000
2004
2002
2000
1998
1996
1994
1992
1990
1988
1986
1984
1982
1980
1978
1976
1974
1972
1970
1968
1966
1964
1962
1960
0
Courtesy John Wilson, CA Energy Commission
University of California, Berkeley
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Thank you!
University of California, Berkeley