Health and Safety
Executive / Commission
Local authority circulars
To: Health and Safety Enforcing Authorities
For the attention of: Local Authority Health and Safety Enforcement Managers, Health and Safety Regulators and others
This Local Authority Circular (LAC) provides technical guidance to health and safety regulators and others on the risks from asbestos. The LAC provides guidance to help to respond to enquiries from employers, employees, trade unions and members of the public (MOPs) following exposure or suspected exposure to asbestos. Three attached Information Documents (IDs) may be given to employers (ID (1)) employees and member of the public (ID (2)) and GPs and occupational health professionals (ID (3)).
People who may have been exposed to asbestos are understandably anxious and concerned about the possible effects on their health. Moreover, where incidents involve members of the public or vulnerable sections of the population, widespread publicity and requests for advice may result. This LAC gives health and safety regulators advice on how to deal with such requests consistently.
There is at present no effective post-exposure prophylaxis for the effects of inhaled asbestos fibres, although in smokers the risk of asbestos-induced lung cancer (but not mesothelioma) can be reduced by stopping smoking. There are also no generally available techniques for determining individual lung burdens of asbestos fibres, other than post mortem.
HSE does not advocate routine X-rays for people exposed to asbestos in the majority of such circumstances. (Asbestos-related damage to the lungs takes years to develop and become visible on chest X-rays, and X-ray examinations cannot indicate whether or not asbestos fibres have been inhaled.)
Asbestos incidents arouse concern and anxiety, and often unrealistic expectations of medical tests or even treatment. This should be addressed by offering prompt and reasoned advice, without contributing to unnecessary alarm. The guidance in this circular and the IDs should be sufficient in many cases and is intended to assist those responsible for managing such situations.
In circumstances where cases of exposure to asbestos may have occurred, the following issues should be considered:
When planning and implementing work within the Fit3 programme it is essential to feedback details of activities and outcomes to HSE. This is to allow monitoring of progress towards the Disease Reduction Programme (Cancer Project) objectives and where necessary to refocus work activities and to consider the adequacy of current support. Feedback also provides invaluable information for the Health and Safety Commission/HSE & LA Enforcement Liaison Committee/Local Authority Unit when responding to Ministers and the Local Better Regulation Office (LBRO) on the achievements of the LA/HSE partnership. Please use one or more of the following ways to record your activities and achievements both quantitatively and qualitatively:
Inhalation of asbestos fibres can lead to very serious diseases such as mesothelioma and lung cancer in later life. Much of the current burden of asbestos-related disease (about 4000 deaths per year) is a result of past heavy industrial exposures among those who manufactured and installed asbestos products. However, HSE is now concerned about lower exposures that may still lead to disease, particularly since specific exposure incidents could form part of a pattern of repeated exposure among some workers (such as electricians, plumbers and carpenters), leading to a substantial cumulative exposure.
We are all exposed to a low level of asbestos fibres because asbestos was such a widely used material within buildings, machinery, vehicle brakes and homes until 1999, when most forms of asbestos were banned. However, working directly with asbestos containing materials (ACMs) can give personal exposures to airborne asbestos that are much higher than environmental levels. Repeated exposures of this type will give rise to a substantial cumulative exposure, thereby increasing the risk of developing an asbestos related disease in the future. The aim of the Control of Asbestos Regulations 2006 is to prevent or reduce additional work-related exposure to asbestos fibres.
Information about the current asbestos campaign and practical guidance on controlling exposure (‘Asbestos Essentials Task sheets’) can be found on HSE’s website, along with the following guidance leaflets etc:
All are available from:
HSE Books,
PO Box 1999,
Sudbury,
Suffolk,
CO10 6FS
Tel: 01787 881165 or Fax: 01787 313995
Or download/order from www.hse.gov.uk/asbestos
Following this guidance is not compulsory and you are free to take other action. But if you do follow the guidance you will normally be doing enough to comply with the law. Health and safety regulators seek to secure compliance with the law and may refer to this guidance as illustrating good practice.
Breathing in asbestos fibres released from disturbed or damaged asbestos containing materials (ACMs) can present a real risk of developing serious diseases, including cancer (mesothelioma and lung cancer) and asbestosis. Since these diseases can take decades to develop the majority of the current cases (including 4000 plus deaths per year) are associated with the very high exposures from past industrial processes and installation of asbestos products. The primary concern is now about potentially frequent and regular exposure patterns arising from direct work with ACMs, e.g. during maintenance activities. Such exposures could, over time, lead to a substantial accumulation of fibres in the lungs of some workers (such as electricians, plumbers and carpenters). Your aim should be to ensure that current work with asbestos is either prevented or controlled to prevent asbestos related deaths in the future.
Everyone is continuously exposed to asbestos fibres to some extent because asbestos was such a widely used material within buildings, machinery, vehicle brakes and homes until 1999, when most forms of asbestos were banned. However, working directly with asbestos containing materials (ACMs) can give personal exposures to airborne asbestos that are much higher than environmental levels. Repeated exposures of this type will give rise to a substantial cumulative exposure, thereby increasing the risk of developing an asbestos related disease in the future.
As an employer you must ensure that you comply with the following legal duties to prevent or control exposure to asbestos caused by work activities:
You can find out more about how HSE enforces relevant legislation and the detail of the specific regulations via the HSE’s asbestos webpages: Asbestos - Enforcement
It is often difficult to accurately relate specific asbestos exposures to an increased risk of developing disease in the future. The degree of risk will depend on the total life time cumulative exposure; the type of asbestos involved and the time elapsed since the person was first exposed. The degree of cumulative exposure is dependent on the amount of fibres that are generated by the work activity and how long it lasts. The concentration of fibres in the air will be determined by the force used and extent of the disturbance as well as the ability of the ACM to release fibres. The following are examples of uncontrolled work activities likely to create a significant concentration of fibres in the air, thereby adding to the risk of developing an asbestos related disease:
Any of the work activities listed above could be regarded as Dangerous Occurrences. They should be reported to HSE’s Incident Contact Centre (tel: 0845 3009923) where they take place, or are repeated (without effective controls), for more than the periods of time* outlined below:
* The timescales quoted are related to advice given in the previous version of OC 265/48 which stated that exposure would usually have been insufficient to pose a significant long-term risk to health where Action Levels were not exceeded. The Action Levels at that time were defined in the Control of Asbestos at Work Regulations 2002 as being 48 fibres per millilitre of air in a continuous 12 week period for all forms of asbestos and mixtures of asbestos, except chrysotile alone, and 72 fibres per millilitre of air in a continuous 12 week period where the exposure was solely to chrysotile.
Unless you have a robust asbestos management plan your employees may be disturbing ACMs without knowing it and therefore be more at risk than you think. The pattern of exposure to asbestos is a significant factor in determining the degree of risk. The following examples illustrate the main patterns of exposure and their relative risk:
It is important to remember that the law requires exposure to asbestos to be prevented as far as is reasonably practicable. When it can’t be avoided strict controls must be in place to reduce exposure levels. As an employer, you must ensure that safe working methods are drawn up and followed by employees and contractors.
You may need to seek advice from occupational hygienists or occupational health specialists about the likely exposure levels and associated risks. You should contact HSE’s Infoline service who may be able to give general advice and provide information on the availability of local specialist services.
You are not required to retain health records for those working with asbestos, unless they carry out licensed work. Health records for employees of licence-holders should be retained for 40 years. You are, however, required to inform all those affected about the nature of the incident and what you have done, or are going to do, to prevent a reoccurrence.
Exposed individuals should be informed that if they wish to consult their GP they should ask for a note to be made in their personal medical record of the possible exposure including date(s), duration, type of fibre and likely exposure levels (if known). (Their GP may refer them to a specialist in respiratory medicine but this is not normally considered necessary). Each case should be considered on its merits, but HSE does not normally advocate routine X-rays for persons exposed to asbestos in these circumstances.
Alternatively, or in addition, you may choose to refer employees for counselling. You may wish to select an occupational health service for this purpose. The local office of HSE's Employment Medical Advisory Service may be able to provide information on services in the area. Contact Infoline for further details.
Information about the current asbestos campaign and practical guidance on controlling exposure (‘Asbestos Essentials Task sheets’) can be found on HSE’s website (http://www.hse.gov.uk/asbestos/essentials/index.htm), along with the following guidance leaflets etc:
All are available from:
HSE Books,
PO Box 1999,
Sudbury,
Suffolk,
CO10 6FS.
Tel: 01787 881165 or Fax: 01787 313995
Or download/order from www.hse.gov.uk/asbestos
Breathing in asbestos fibres released from disturbed or damaged asbestos containing materials (ACMs) can present a real risk of developing serious diseases, including cancer (mesothelioma and lung cancer) and asbestosis. Since these diseases can take decades to develop the majority of the current cases (including 4000 plus deaths per year) are associated with the very high exposures from past industrial processes and installation of asbestos products. HSE is now primarily concerned about potentially frequent and regular exposure patterns arising from direct work with ACMs, e.g. during maintenance activities. Such exposures could, over time, lead to a substantial accumulation of fibres in the lungs of some workers (such as electricians, plumbers and carpenters). The aim of all enforcing authorities is to ensure that current work with asbestos is either prevented or controlled to prevent asbestos related deaths in the future.
Everyone is continuously exposed to a low level of asbestos fibres to some extent because asbestos was such a widely used material within buildings, machinery, vehicle brakes and homes until 1999, when most forms of asbestos were banned. However, working directly with asbestos containing materials (ACMs) can give personal exposures to airborne asbestos that are much higher than environmental levels. Repeated exposures of this type will give rise to a substantial cumulative exposure, thereby increasing the risk of developing an asbestos related disease in the future.
To avoid additional exposure caused by work place activities, the law requires:
You can find out more about how HSE enforces relevant legislation via the HSE’s asbestos webpages: Asbestos - Enforcement
It is often difficult to accurately relate specific asbestos exposures to an increased risk of developing disease in the future. The risk of going on to develop disease will depend on a combination of the following factors:
The following are examples of uncontrolled activities likely to create a significant concentration of fibres in the air, thereby adding to the risk of developing an asbestos related disease:
Any of the work activities listed above could be regarded as Dangerous Occurrences. Your employer should report them to HSE’s Incident Contact Centre (tel: 0845 3009923) where they take place, or are repeated (without effective controls), for more than the periods of time* outlined below:
* The timescales quoted are related to advice given in the previous version of OC 265/48 which stated that exposure would usually have been insufficient to pose a significant long-term risk to health where Action Levels were not exceeded. The Action Levels at that time were defined in the Control of Asbestos at Work Regulations 2002 as being 48 fibres per millilitre of air in a continuous 12 week period for all forms of asbestos and mixtures of asbestos, except chrysotile alone, and 72 fibres per millilitre of air in a continuous 12 week period where the exposure was solely to chrysotile.
You may be disturbing ACMs without knowing it and therefore be more at risk than you think. The pattern of your exposure to asbestos is a significant factor in determining the degree of risk. The following examples illustrate the main patterns of exposure and their relative risk:
Highest risk – carrying out licensable asbestos work (i.e. work with asbestos materials that give off fibres easily) without suitable controls;
Remember that the law requires exposure to asbestos to be prevented as far as is reasonably practicable. When it can’t be avoided strict controls must be in place to reduce exposure levels. As an employee, you must follow the right procedures to protect your family, your colleagues and yourself. Giving up smoking will also reduce your risk of developing an asbestos related disease.
If you have been involved in an asbestos incident your employer may arrange for you to seek advice from occupational hygienist or an occupational health specialist about the likely exposure levels and associated risks. You are entitled to information about the nature of the incident from your employer and what they have done, or are going to do, to prevent a reoccurrence.
The law does not require your employer to retain health records for those working with asbestos, unless they carry out work licensed by HSE. Health records for employees of licence-holders should be retained for 40 years.
You may wish to consult your GP so that a note can be made on your personal medical record of the possible exposure including date(s), duration, type of fibre and likely exposure levels (if known). GPs no longer routinely carry out x-ray examinations in relation to asbestos exposure because they can only be used to diagnose disease once it has become established (usually 10-40 years after the exposure). An x-ray will not show any fibres present in your lungs after an exposure to asbestos.
For further information about the law relating to asbestos work contact HSE’s Infoline service on Tel: 0845- 345005.
The Council does not deal with compensation or the claiming of benefits. If you think that you or a member of your family is entitled to benefits relating to an asbestos related disease you should contact Job Centre Plus on tel: 0800 279 2322 or speak to an adviser from an asbestos support group in your area.
Information about the current asbestos campaign and practical guidance on controlling exposure (‘Asbestos Essentials Task sheets’) can be found on HSE’s website (http://www.hse.gov.uk/asbestos/essentials/index.htm), along with the following guidance leaflets etc:
All are available from:
HSE Books,
PO Box 1999,
Sudbury,
Suffolk,
CO10 6FS
Tel: 01787 881165 or Fax: 01787 313995
Or download/order from www.hse.gov.uk/asbestos
This document contains advice following exposure or suspected exposure to asbestos from work activities. People who may have been exposed to asbestos are understandably anxious and concerned about possible effects on their health.
Inhalation of asbestos fibres can eventually lead to a number of diseases, including:
Asbestosis and bronchial carcinoma in particular are more clearly linked to high exposure for long periods. There is usually a long delay between first exposure to asbestos and the first symptoms of disease; this can vary between 10 and 40 years, with mesothelioma having a particularly long latency. Much of the current burden of asbestos-related disease (about 4000 deaths per year) is a result of past heavy industrial exposures among those who manufactured and installed asbestos products. HSE is now primarily concerned about potentially frequent and regular exposure patterns arising from direct work with asbestos containing materials (ACMs), e.g. during maintenance activities. Such exposures could, over time, lead to a substantial accumulation of fibres in the lungs of some workers.
We are all continuously exposed to a low level of asbestos fibres because asbestos was such a widely used material within buildings, machinery, vehicle brakes and homes until 1999, when most forms of asbestos were banned. The aim of the Control of Asbestos Regulations 2006 is to prevent or reduce additional work-related exposure to asbestos fibres. However, working directly with asbestos containing materials (ACMs) can give personal exposures to airborne asbestos that are much higher than environmental levels. Repeated exposures of this type will give rise to a substantial cumulative exposure, thereby increasing the risk of developing an asbestos related disease in the future.
It is unfortunately not uncommon for people to be inadvertently exposed to asbestos fibres during building operations, maintenance work or following damage to asbestos-containing materials. Such incidents understandably cause anxiety about the possible effects, both short and long term, of the exposure. Workers subject to such exposures may consult their GP for advice, and may have unrealistic expectations regarding medical investigations or even treatment. There is at present no effective post-exposure prophylaxis for the effects of inhaled asbestos fibres, although in smokers the risk of asbestos-induced bronchial carcinoma (but not mesothelioma) can be reduced by stopping smoking. There are also no generally available techniques for determining individual lung burdens of asbestos fibres, other than post mortem.
It is often difficult to accurately relate specific asbestos exposures to an increased risk of developing disease in the future. The degree of risk will depend on the total life time cumulative exposure; the type of asbestos involved and the time elapsed since the person was first exposed. The degree of cumulative exposure is dependent on the amount of fibres that are generated by the work activity and how long it lasts. The concentration of fibres in the air will be determined by the force used and extent of the disturbance as well as the ability of the ACM to release fibres. The following are examples of work activities likely to create a significant concentration of fibres in the air and thereby add to the risk of developing an asbestos related disease:
The pattern of exposure to asbestos is a significant factor in determining the degree of risk. The following examples illustrate the main patterns of exposure and their relative risk:
Asbestos-induced radiological changes have a latency almost as long as that for symptom development (ie many years) and therefore a chest X-ray in the early aftermath of even heavy exposure is most unlikely to serve any useful purpose other than acting as a baseline. Similarly, periodic chest X-rays following an inadvertent exposure episode will serve little if any useful purpose in most cases, not least because in the vast majority of cases asbestos-induced disease is irreversible and untreatable by the time it can be diagnosed. However, a holistic view should be taken; clinical judgement may be that in some circumstances a chest X-ray may be of value where there is severe anxiety following asbestos exposure, and that the benefits of this may outweigh the very low level of risk associated with diagnostic X-ray exposures. In such circumstances the benefits and limitations of undertaking a chest X-ray should be explained carefully to the subject.
Further advice on cases of this nature can be obtained from chest physicians with an interest in occupational lung diseases and from medical inspectors of HSE's Employment Medical Advisory Service, who can be contacted via HSE’s central advice point Infoline, Tel: 0845 345005.