LEAD PAINT LAWS AND REGULATIONS IN NEW YORK CITY

LEAD PAINT LAWS AND REGULATIONS IN NEW YORK CITY

Matthew J. Chach?re Northern Manhattan Improvement Corp. Legal Services,

45 Wadsworth Avenue New York, NY 10033. Phone: 212-822-8300 email: matthewchachere@

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Preface - A Toxic Legacy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

I.

Context: An Overview of the Childhood Lead Paint Poisoning Issue . . . . . . . . . . . . . . . 8

A.

The Environmental Toxicity of Lead . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

1.

The Role of Lead Paint. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

2.

The Role of Lead Dust . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

3.

The Health Effects in Children . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

B.

The Scope of the Lead Paint Poisoning Problem . . . . . . . . . . . . . . . . . . . . . . . 12

1.

The Incidence of Childhood Lead Poisoning . . . . . . . . . . . . . . . . . . . 12

2.

The Prevalence of Lead Paint in Housing . . . . . . . . . . . . . . . . . . . . . 14

3.

The Prevalence of Lead Paint in Schools and Day Care Facilities . . . 17

4.

The Social Costs of Lead Poisoning . . . . . . . . . . . . . . . . . . . . . . . . . 18

5.

Liability of Lead Paint industry . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

C.

Measuring Lead Poisoning and Lead Paint. . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

1.

Screening for Lead Poisoning. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

2.

Lead Paint and Dust Detection and Measurement . . . . . . . . . . . . . . . 23

a.

On site XRF Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

b.

Laboratory Analysis of Paint Chips . . . . . . . . . . . . . . . . . . . 25

c.

Lead Dust Measurement . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

II.

Federal Laws. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

A.

The Lead-Based Poisoning Prevention Act of 1971 . . . . . . . . . . . . . . . . . . . . . 26

B.

Title X and the Residential Lead-Based Paint Reduction Act of 1992 . . . . . . . 27

1.

Amendments to the Lead Paint Poisoning Prevention Act . . . . . . . . . 28

2.

Residential Lead-Based Paint Hazard Reduction . . . . . . . . . . . . . . . . 29

3.

Amendments to the Toxic Substances Control Act . . . . . . . . . . . . . . 29

C.

Federal Regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

1.

Worker certification (TSCA ? 402 Regulations) (Subpart L). . . . . . . 31

2.

Identification of Dangerous Levels of Lead (TSCA ? 403

Regulations) (Subpart D) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

3.

Pre-renovation Warnings and Repair and Renovation Regulations

(Subpart E) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

4.

Lead Disclosure (Subpart F) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

a.

Some Practice Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

b.

Impact on Constructive Notice of Lead Hazards . . . . . . . . . 42

5.

HUD Regulations for Federally Owned or Assisted Housing

(24 C.F.R. Part 35) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44

a.

Section 8 Rental Assistance . . . . . . . . . . . . . . . . . . . . . . . . . 45

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III. New York State Laws . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

A.

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

B.

Public Health Law Title X ("Control of Lead Poisoning") of 1970 . . . . . . . . . 47

C.

Lead Poisoning Prevention Act of 1992 Amendments to Title X, and

Implementing Regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48

D.

Recent Amendments to Title X and Implementing Regulations. . . . . . . . . . . . 50

IV. New York City Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50

A.

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50

B.

City Lead Laws through 1998 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50

C.

The Enactment of Local Law 38 of 1999 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

D.

Some Practice Issues under former Local Law 38 . . . . . . . . . . . . . . . . . . . . . . 56

1.

Defenses . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

2.

Non-Multiple dwellings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

3.

Record keeping. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

E.

NYCCELP v. Vallone and the revival of Local Law 1 of 1982 . . . . . . . . . . . . 58

F.

Childhood Lead Poisoning Prevention Act of 2003 (Local Law 1 of 2004,

as amended) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

1.

Definitions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

2.

Applicability: Child of Applicable Age, Building Size/Age . . . . . . 63

3.

Owner's Responsibility to Remediate . . . . . . . . . . . . . . . . . . . . . . . . 64

4.

Owner's Responsibility to Notify and Investigate . . . . . . . . . . . . . . . 64

5.

Turnover requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66

6.

The Presumption of Lead Paint . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67

7.

HPD Inspections. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68

8.

Work Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

a.

Where a violation has not been issued. . . . . . . . . . . . . . . . . 70

b.

Where a Notice of Violation Has Been Issued. . . . . . . . . . . 71

c.

Work performed upon turnover . . . . . . . . . . . . . . . . . . . . . . 71

d.

Dust clearance tests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71

e.

Enforcement; Overlap with federal regulations . . . . . . . . . . 71

9.

HPD Orders to Remediate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72

a.

Notifications of violations . . . . . . . . . . . . . . . . . . . . . . . . . . 72

b.

Time to correct . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72

c.

Certification of Correction . . . . . . . . . . . . . . . . . . . . . . . . . . 73

d.

Final inspection and correction by HPD . . . . . . . . . . . . . . . 73

e.

Removal of violation from HPD's database. . . . . . . . . . . . . 74

f.

Penalties for False Certification . . . . . . . . . . . . . . . . . . . . . . 74

g.

Penalties for Owner's Failure to Correct a Violation . . . . . . 74

h.

Defenses. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 74

10. HPD/DHMH data reporting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75

11. DHMH Inspections When a Child Is Lead Poisoned . . . . . . . . . . . . . 77

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12. Other Amendments relating to the Health sections of the Administrative Code. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79

G.

Regulation of Lead-based Paint in Schools and Day Care Facilities . . . . 80

1.

Presumption . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80

2.

Lead paint restrictions and bans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80

3.

Safe Work Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81

4.

Annual Surveys . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81

5.

Enforcement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 82

APPENDIX . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83

FEDERAL LAW

42 USC ? 4852d . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84

Table 1 - Title X regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86

Table 2: Key Concepts - Federal Lead Regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87

Table 3 - HUD Housing Assistance Programs Covered by Each Subpart of the Regulations Within 24 C.F.R. Part 35 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 88

Table 4 - Summary of Requirements of Part 35 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91

HUD Regulations at 24 C.F.R. Part 35 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93

EPA Regulations at 40 C.F.R. Part 745. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 145

Subpart D -Lead-based Paint Hazards. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 146

Subpart E- Residential Property Renovation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 148

Subpart F - Disclosure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 165

Subpart L - Lead-based Paint Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 171

Subpart Q - State and Indian Tribal Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 201

Federal Lead Disclosure Forms. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 214

Sample Pre-Renovation Forms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 217

STATE LAW

New York Public Health Law, Art. 13, Title 10 (Control of Lead Poisoning) . . . . . . . . . . . . . . 219

NY Code of Rules and Regulations, Title 10, Part 67 (Lead Poisoning Prevention and Control) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 225

CITY LAW

Table 5 - Major New York City Laws on Lead Poisoning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 236

A Chronology of Legal Developments on Childhood Lead Poisoning in New York City . . . . . 237

Flow Chart -- NY Health Code ? 173.13(d) violations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 239

Flow Chart -- Former NYC Local Law 38 violations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 240

Flow Chart -- NYC Childhood Lead Poisoning Prevention Act (Local Law 1 of 2004) violations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 241

NYC Childhood Lead Poisoning Prevention Act - Outline . . . . . . . . . . . . . . . . . . . . . . . . . . . . 242

New York City Childhood Lead Poisoning Prevention Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . 246

HPD Rules for NYC Childhood Lead Poisoning Prevention Act (28 RCNY Chapter 11) . . . . . 276

NYC Health Code ? 173.13 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 298

NYC Health Code ? 173.14 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 299

Lead Laws and Regulations - Page 3

NYC Health Code Article 43 (School Based Programs for Children Ages Three through Five) (excerpts) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 310

NYC Health Code Article 45 (General Provisions Governing Schools and Children's Institutions (excerpts). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 312

NYC Health Code Article 47 (Child Care Programs and Family Shelter-based Drop-off Child Supervision Programs) (excerpts) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 313

New York City Local Law 1 of 2004 Forms. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 317 DHMH Pamphlet for Local Law 1 of 2004. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 317 Lease Commencement Forms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 319 Annual Notice (child inquiry) Forms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 321 HPD Suggested Annual Inspection Forms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 325 HPD Suggested "Work that Disturbed Paint" Form. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 328 DHMH Pre-Notification Form for Work > 100 ft? or Window Replacement . . . . . . . . . . . . . . . 329 DHMH Instructions for Abating Lead Paint . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 331 Sample Elevated Blood Lead report, DHMH Inspection report and Commissioner's Order

to Abate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 340 Sample Private Inspection Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 346 Table 6 - Comparison of NYC Safe Work Practice regs with federal RRP regs. . . . . . . . . . . . . 349 Glossary of Abbreviations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 356

- Revision as of June 29, 2021 NOTE: This compendium originated as materials prepared for a series of continuing legal education programs in the early 2000s, primarily for legal services providers and trial lawyers, and has continued to be updated and expanded as the author found the need (or time!). The current version was prepared to take into account the significant changes in New York City's laws since the last version in August 2018. No warranty of accuracy regarding the contents, either express or implied, is made, and the author would greatly appreciate hearing of any errors (including dead URL links), corrections, amendments, or suggestions.

Lead Laws and Regulations - Page 4

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Preface - A Toxic Legacy

The poisonous qualities of lead ingested by humans has long been known. Dioscerides, in the 2nd Cent. B.C., said that "Lead makes the mind give way." Ben Franklin in 1763 noted symptoms among printers who worked with lead type. Mathieu Orfila, considered a founder of the science of toxicology, wrote in 1817 that "If we were to judge of the interest excited by any medical subject by the number of writings to which it has given birth, we could not but regard the poisoning by lead as the most important to be known of all those that have been treated of, up to the present time." Charles An 1897 advertisement for non-poisonous, lead-free paint. Dickens, in The Uncommercial Traveler (1861) described widespread poisoning from local lead mill on the Isle of Dogs.

The potential for toxic exposure of children to lead from paint was recognized by the late 19th century. Indeed, an article published in a medical journal by an Australian doctor in 1897 (Turner) diagnosed lead poisoning in children, followed by a series of reports by another Australian, H. Lockhart Gibson, beginning with A Plea for Painted Railings and Painted Walls of Rooms as the Source of Lead Poisoning Among Queensland Children. 23 Australian Medical Gazette 149-53 (1904). In 1914, Drs. Kenneth Blackfan and Henry Thomas at Johns Hopkins Hospital in Baltimore diagnosed a case of a child who died from lead poisoning after chewing the lead paint on his crib railing. Thomas, Blackfan, Recurrent Meningitis, Due to Lead, in a Child of Five Years, 8 Am. J. of Diseases of Children 377 (Nov. 1, 1914). By 1914, a Paint Manufacturers' Assoc. paper noted that

tons of corroded white lead... applied to the walls and ceilings of school rooms and hospitals. Gradual disintegration of such paint would result in formation of dried particles of white lead dust. The presence of such dust in the atmosphere of a room

Lead Laws and Regulations - Page 5

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