United States
Environmental Protection
Agency
Office of
Air and Radiation
(ANR-445)
Office of Research and
Development
(RD-672)
August 1989
oEPA Indoor Air Facts
No. 6
Report to Congress on
Indoor Air Quality
Introduction and Background
In August 1989, the Environmental Protection Agency
(EPA) submitted a report to Congress that describes the
Agency's indoor air activities and recommends an ap-
propriate Federal response to the problem of indoor air
pollution. The Report to Congress on Indoor Air
Quality was required by Title IV of the Superfund
Amendments and Reauthorization Act (SARA) of 1986.
The Office of Air and Radiation (OAR) and the Office of
Research and Development (ORD) prepared the report
with assistance from other EPA offices and other.
Federal agencies.
Tide IV of SARA (the "Radon Gas and Indoor Air
Research Act of 1986") directs the Environmental
Protection Agency to establish an indoor air quality
research program, to coordinate with other public and
private organizations, and to disseminate information on
indoor air quality issues to the public. It also requires
EPA to submit two reports to Congress. In 1987, EPA
submitted the report required by Section 403(d). The
report contained the Agency's overall indoor air quality
policy objectives and a near-term plan for implementing
SARA Title IV. Section 403(e) requires EPA to sub-
mit a report two years after enactment of SARA that
describes the activities carried out under SARA Title IV
and that makes "appropriate" recommendations. This
fact sheet summarizes the §403(e) report
Organization of the Report
The Report to Congress on Indoor Air Quality consists
of an executive summary and three volumes. The
Executive Summary and Recommendations briefly
describes the entire report and presents the recom-
mendations. Volume I, Federal Programs Addressing
Indoor Air Quality, details the activities being carried
out at eight Federal agencies, including EPA. Volume
II, Assessment and Control cf Indoor Air Pollution,
summarizes the current level of knowledge and uncertain-
ties about pollutants, sources, modeling and monitoring
methods, concentrations, exposures, health effects,
existing standards, codes and legislation, economic
impacts, and policy issues. Volume III, Indoor Air
Research Needs Statement, is an interagency work-
group assessment of the major gaps and research needs
in the indoor air field. More detail is given below.
Executive Summary
At this time, indoor air research and policy programs
have not sufficiently characterized indoor air quality
problems and solutions to be able to define the approp-
riate long-term Federal role regarding the need for, or
desirability of, regulatory approaches to indoor air qual-
ity problems. Nevertheless, sufficient evidence exists
to conclude that indoor air pollution represents a major
portion of the public's exposure to air pollution and
may pose serious acute and chronic health risks. Conse-
quently, EPA makes the following recommendations:
1.	Research to better characterize exposure and health
effects of chemical contaminants and pollutant mixtures
commonly found indoors should be greatly expanded.
2.	A research program to characterize and develop
mitigation techniques for biological pollutants in indoor
air should be developed.
3.	Research to identify and characterize key indoor air
pollution sources and to evaluate appropriate mitigation
strategies should be greatly expanded.
4.	A program is needed to develop and promote, in
conjunction with appropriate private sector organ-
izations, guidelines covering ventilation, as well as
other building design, operation, and maintenance
practices, for ensuring that indoor air quality is
protective of public health.
5.	A national program of technical assistance and infor-
mation dissemination, similar in scope to the Agency's
radon program, is needed to inform the public about
risks and mitigation strategies, and to assist State and
local governments and the private sector in solving in-
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door air quality problems. Such a program should
include an indoor air quality clearinghouse.
6. The Federal government should undertake an effort to
characterize the nature and pervasiveness of the health
impacts associated with indoor air quality problems in
commercial and public buildings, schools, health carc
facilities, and residences, and should develop and pro-
mote recommended guidelines for diagnosing and
controlling such problems.
Volume I - Federal Programs
Addressing Indoor Air Quality
The Indoor Air Division within the Office of Air and
Radiation is responsible for implementing Lhe indoor air
policy and program development provisions of SARA.
Some of the chief indoor air activities which the OAR
has completed include: cosponsoring an indoor air qual-
ity policy forum; conducting a survey of private sector
diagnostic and mitigation services; publishing, in co-
operation with the Consumer Product Safely Commis-
sion (CPSC), an indoor air quality booklet for lhe gen-
eral public (The Inside Story: A Guide to Indoor Air
Quality) and a directory of State indoor air contacts; and
compiling a chart of Federal indoor air quality activities
and contacts.
Projects underway in the Indoor Air Division include
the development of a manual on work place policies
related to environmental tobacco smoke, a manual on
preventing indoor air quality problems in new or
remodelled buildings, and an introductory indoor air
quality course for State and local officials. In its
coordination role, EPA takes the lead in co-chairing the
Interagency Committee on Indoor Air Quality (CIAQ)
with the CPSC, the Department of Energy, and the
Department of Health and Human Services.
The Office of Research and Development is responsible
for carrying out the research responsibilities mandated
by SARA. Some of the major accomplishments of
EPA's indoor air research program include: completion
of an information assessment identifying the hazards of
indoor environments; preliminary identification of ad-
verse health effects from exposure to the emissions
from kerosene and other unventcd space heaters; measur-
ing emissions from selected indoor sources in small
chambers and a test house; and assessing the effective-
ness of selected air cleaning technologies. Health
effects research has focused on environmental tobacco
smoke and mixtures of volatile organic compounds.
ORD has also completed several studies designed to
assess the exposure of individuals to major indoor air
pollutants, including carbon monoxide and volatile or-
ganic compounds; additional research on pesticides and
particulates is underway. Along with other Federal agen-
cies, EPA is investigating complaints of indoor air pol-
lution in the Library of Congress Madison building and
the EPA Headquarters buildings.
Among the actions EPA has taken to address specific
pollutant problems under SARA or several other stat-
utes (e.g. the Toxic Substances Control Act (TSCA),
the Federal Insecticide, Fungicide, and Rodenticide Act
(FIFRA), and the Safe Drinking Water Act (SDWA) are
the following:
Radon. Under the Radon Action Program, EPA has
gathered information on the extent of the radon prob-
lem, developed cost effective methods for reducing radon
levels in existing structures and for preventing radon
entry in new construction, and issued many publications
to help citizens and professionals. EPA is also develop-
ing standards for radon and other radionuclides in drink-
ing water and cooperating with other Federal agencies in
a number of radon-related activities.
Asbestos. The asbestos program at EPA has grown
from a technical assistance program into a major nation-
al program that encompasses the full range of regula-
tory, grant, and technical assistance activities. While
the primary focus of the asbestos program has been in
the nation's schools, the program has begun to address
asbestos problems in commercial and public buildings
and in homes.
Environmental Tobacco Smoke. Reports pub-
lished by the Surgeon General and the National Re-
search Council of the National Academy of Sciences
conclude that exposure to environmental tobacco smoke
(ETS) is a cause of lung cancer in healthy non-smokers
and is responsible for other health effects. Accordingly,
EPA has undertaken activities related to ETS, including
research, risk assessment, and public information.
Formaldehyde. EPA has designated formaldehyde for
priority attention under TSCA. EPA is currently invest-
igating the need for, and potential nature of, additional
Federal regulations affecting formaldehyde emissions
from pressed wood products (particleboard, hardwood
plywood paneling, and medium density fiberboard.)
Chlorinated Solvents. An interagency workgroup,
chaired by EPA, is examining the risks from four chlor-
inated solvents: methylene chloride, perchloroethylcne,
trichlorcthylene, and 1,1,1-trichloroethane. The objec-
tive is to determine appropriate control options for use
by EPA or other agencies.
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Pesticides. Under FIFRA, EPA has taken a variety of
measures to reduce exposure to harmful pesticides in the
indoor air, including the removal of the cyclodienes
(e.g., chlordane, heplachlor, aldrin, and dieldrin) from
the market Pesticide manufacturers are also being re-
quired to submit information about any human health
effects from the so-called "inert" ingredients which are
used as solvents or carriers for the toxic ingredients.
Other Federal agencies that have important programs to
address indoor air quality issues include the CPSC, the
Department of Energy, the Department of Health and
Human Services, the General Services Administration,
the Tennessee Valley Authority, the Occupational
Safety and Health Administration, and the Department
of Transportation. Indoor air activities of these agencies
are also summarized in the report to Congress.
Volume II - Assessment and Control of
Indoor Air Pollution
Indoor air pollution is addressed from two perspectives.
The first is an examination of indoor air pollution on a
pollutant-by-pollutant basis, identifying key pollutants,
sources, exposures, and risks. The second is an examin-
ation of the impact of the design, operation and mainte-
nance of buildings on the health, comfort, and produc-
tivity of building occupants.
Part I of Volume II characterizes building systems in
the United States and their impact on indoor air pollu-
tant levels, and assesses the nature and magnitude of the
potential health risks and costs resulting from indoor air
pollution. Among the major conclusions drawn from
this part of the report arc the following:
•	Biological contaminants, an important dimension of
indoor air quality, can be the principal indoor air prob-
lem in some buildings. They can spread infectious dis-
eases, can cause or aggravate allergic responses to air-
borne allergens, and can result in death, as with Legion-
naire's disease.
•	There may be additive or synergistic effects from multi-
ple chemical contaminants at levels below thresholds
known to cause health effects. Exposure to combina-
tions of indoor air pollutants may generate acute
reactions in some people.
•	Sick building syndrome, building-related illnesses, and
multiple chemical sensitivity arc issues of potentially
great significance but are poorly understood.
•	Risk estimates are not available for most pollutants,
but available estimates for radon, environmental tobacco
smoke, and volatile organic compounds demonstrate
that indoor air pollution is among the nation's most
important environmental health problems.
•	Environmental tobacco smoke is particularly toxic,
and may account for a significant number of cancer
mortalities per year.
•	The potential economic impact of indoor air pollution
is quite high; preliminary estimates place potential im-
pacts at tens of billions of dollars per year. Such im-
pacts include direct medical costs and lost earnings due
to major illness, as well as increased employee sick
days and lost productivity while on the job.
•	Labor costs may be 10 to 100 times greater per square
foot of office space than energy and other environmental
control costs. Where productivity is an important
consideration, remedial actions to improve indoor air
quality arc likely to be cost effective even if they require
expensive retrofit.
Part II of Volume II provides information on methods
and strategics to control indoor air pollution and sum-
marizes the key Federal legislative authorities and some
of the policy options that might be considered as indoor
air programs in the Federal government are developed.
Among the perspectives that emerge from this part of
the report are the following:
•	Source control is the most direct and dependable
control option, and may be the only effective control
option when strong pollutant sources are present How-
ever, where problems result from multiple sources, or
where the sources of the problems are not known,
source control may not be economically or technically
feasible. In these cases, increased ventilation or air
cleaning may be the only viable options.
•	Low outdoor air ventilation rates designed to conserve
energy can result in significant indoor air quality prob-
lems. Adequate outdoor air ventilation is a necessary
component to an effective indoor air pollution control
strategy, but adequate-ventilation docs not guarantee
adequate indoor air quality.
•	Air cleaning can complement but not replace the need
for adequate outdoor air ventilation.
•	Air cleaning and ventilation cannot be relied on as sole
control strategics for environmental tobacco smoke.
•	Control strategies involving source control, ventila-
tion control, and air cleaning should be integrated into
building design, operation and maintenance procedures.
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•	Individuals can exercise a high degree of control over
their own indoor environment, particularly in residential
settings, and may reduce their exposure to indoor air pol-
lutants at little or no cost. Making informed choices
concerning the types of products and materials purchased
and their use, properly caring for and maintaining poten-
tial sources such as combustion devices, and appropriate-
ly balancing indoor air quality and energy concerns in
ventilation practices are examples of decisions and
actions that can significantly improve indoor air quality.
•	Standardized protocols for investigating and solving
indoor air quality problems need to be developed.
•	The Clean Air Act cannot be used to regulate the
quality of the air indoors.
•	Many Federal agencies have the explicit legal author-
ity to regulate products and/or activities that affect in-
door air quality. Existing authorities are limited for the
most part to specific products or environments.
•	SARA Title IV provides EPA with direct authority to
conduct an indoor air research, coordination, and informa-
tion dissemination program, but does not enhance
EPA's regulatory authority with respect to indoor air
quality beyond existing authorities under TSCA,
FIFRA, and SDWA.
•	Significant potential exists for cooperative, coordin-
ated indoor air quality control programs at the Federal
and Slate levels and in the private sector. Current
programs at all levels of government and the private
sector arc generally fragmented and underfunded.
•	Due to the variety of indoor air pollutant sources and
control measures and the many types of indoor environ-
ments, many policy options are available including
developing public information and technical assistance
programs, establishing pollutant-specific or product-
specific standards or guidelines, and providing guidance
on identifying and correcting indoor air quality problems
in existing buildings or preventing problems in new
construction. Each of these may be implemented in
either a regulatory or nonregulatory manner.
Volume III - IAQ Research Needs
Prepared by an interagency workgroup of the CIAQ
under the sponsorship of EPA's Office of Research and
Development, the statement of major indoor air research
needs is divided into seven categories: risk assessment
methods; exposure assessment and modeling needs;
source-specific needs; control techniques; building sys-
tem research; crosscutting research; and technology trans-
fer. The report contains a table summarizing the major
indoor air research needs including relative priorities. To
undertake the projects set forth in this assessment would
require a combined effort of the Federal and State govern-
ments and the private sector.
Indoor Air Quality Publications for the'
Public, Developed Under SARA Title IV
The Inside Story: A Guide to Indoor Air Quality. EPA
and CPSC, 1988.
Directory of State Contacts on Indoor Air Quality. EPA
and the Public Health Foundation, 1988.
Indoor Air Fact Sheet Series:
Indoor Air Facts #1: EPA and Indoor Air Quality.
EPA,1987
#2: Indoor Air Quality Implementation Plan. EPA,
1987
til: Ventilation and Air Quality in Offices. EPA,
1988
#4: Sick Buildings. EPA, 1988
#5: Environmental Tobacco Smoke. EPA, 1989
#6: Report to Congress on Indoor Air Quality.
EPA, 1989
#7: Residential Air Cleaners. EPA, 1990
Project Summaries: Indoor Air Quality in Public
Buildings. Volumes I and II. EPA, 1988.
The Total Exposure Assessment Methodology (TEAM)
Study. Project Summary. EPA, 1987.
Residential Air-Cleaning Devices: A Summary of
Available Information. EPA, 1990.
These publications and the full report can be ordered
from the EPA Public Information Center, 401 M
Street, SW, Mail Code PM-211B, Washington, DC
20460.
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