Developing a Strategy for Addressing Air Quality … · 2011-12-09 · Developing a Strategy for...

2009–2010 Fellow Project National Environmental Public Health Leadership Institute

Developing a Strategy for Addressing Air Quality Impacts in the San Joaquin Valley

2009 - 2010

Environmental Public Health Leadership Institute Fellow:

Debbie Lowe Liang; MPH

Environmental Scientist; Environmental Justice Program, US Environmental Protection

Agency, 75 Hawthorne Street (CED-1), San Francisco, CA 94015, (415) 947-4155,

[email protected]

Mentor:

Roger Perales; MPH, RS

Faculty Associate, Department of Family and Community Medicine

Assistant Director, South Texas Environmental Education and Research (STEER)

UTHSCSA – Laredo Campus Extension

Acknowledgements:

This project has been developed jointly with Ken Israels, Kathleen Stewart, Richard

Grow, Matthew Lakin and Mike Bandrowski from EPA’s Air Division and Deldi Reyes

from EPA’s Environmental Justice Program.


EXECUTIVE SUMMARY:

Communities in the San Joaquin Valley (SJV) in California face significant public health risks

from unhealthful levels of ozone and fine particles. According to a 2006 study conducted by the

Institute for Economic and Environmental Studies at Cal State Fullerton, achieving the federal

standards for ozone and particulate matter would result in 23,300 fewer asthma attacks and

188,000 fewer days of school absence for SJV residents each year. Calculations by the

California Air Resources Board show that there are 2400 annual premature deaths associated

with exposure to ambient PM2.5 levels above the standard. EPA has a number of staff who are

engaged in ongoing work to improve air quality in this region. However, because of the

significant public health risks in the San Joaquin Valley, EPA is undergoing an effort to examine

the issue more holistically and explore additional opportunities, approaches, partnerships as well

as geographic areas where we could focus efforts to reduce the air quality impacts.

The first step in this process will be to assess what air quality related work EPA staff are already

engaged in, where and what type of additional work is needed, and what types of resources EPA

could contribute to reducing air quality impacts. The second step will be to gather information

from key external stakeholders to get their perspectives on the issue, find out what air quality

related work they are engaged in, and get their input on what additional work could be done.

Key stakeholders include the local air district, environmental justice organizations, air quality

coalitions, academic institutions, state and county health departments, industry, foundations, etc.

The third step will use all the information gathered to analyze the current system, determine

what is working well, and identify gaps in the collective efforts of EPA and key stakeholders.

All of this information will be used to develop a strategy for reducing air quality impacts in the

San Joaquin Valley. After sharing the draft strategy with stakeholders, EPA will finalize the

strategy and begin implementing it to supplement existing efforts to (or to further EPA’s efforts

to) reduce air quality impacts in the San Joaquin Valley.

INTRODUCTION/BACKGROUND:

The San Joaquin Valley (SJV) has some of the worst air quality in the nation. SJV typically

competes with the Los Angeles basin for the most number of days recorded over the 8-hour

ozone standard and SJV and Los Angeles are the only two areas in the nation that exceed the

PM-2.5 (particulate matter) 24-hour standard.

SJV is particularly vulnerable to air pollution formation because of its topography, climate, and

growing population. The SJV is surrounded by mountain ranges on three sides: the Sierra

Nevada to the east, the Coastal Range to the west, and the Tehachapi to the south. These

mountains trap airborne pollutants near the Valley floor where people live and breathe. The

fourth side is open to the Sacramento Valley and the San Francisco Bay, and prevailing winds

cause the SJV to be impacted by air pollution transport from the Bay Area.


Figure 1: San Joaquin Valley includes the following California counties: San Joaquin, Stanislaus, Merced,

Madera, Fresno, Kings, Tulare, and portions of Kern County.

The SJV is currently home to more than 3 million people and is the fastest growing region in

California with bedroom communities encroaching from Sacramento and the Bay Area in the

north and Los Angeles in the south. More people equals more cars and more activities that

contribute to poor air quality. The SJV is a major north/south transportation corridor on the West

Coast with two major freeways, I-5 and Highway 99, and heavily utilized rail routes.

Industrial activity includes oil refining, oil and natural gas production, electricity generation,

glass manufacturing, and food processing. However, its most significant economic activity is

agricultural production. The SJV has over 2.5 million dairy cattle and 25,000 farms which use

more than 4,500 diesel irrigation engines to provide the water to irrigate over four million acres

of crops in this arid region.


In the summer, the SJV often experiences triple digit temperatures, and receives no cloud cover

or rainfall, leading to significant ozone formation. In the winter, an inversion layer can settle in

for weeks at a time creating the noxious “Tule Fog” and trapping primary and secondary

particulate matter on the valley floor.

The San Joaquin Valley Air Pollution Control District is made up of eight counties: San Joaquin,

Stanislaus, Merced, Madera, Fresno, Kings, Tulare and the Valley portion of Kern. This area

consists of approximately 24,000 square miles and has a population of approximately 3,632,000

(US Census 2006 estimate). In order to more effectively address the Valley’s significant air

quality problems, the District was unified 15 years ago; previously the counties had been

represented by their own air pollution control agencies. 1

The SJV air basin is classified by the US Environmental Protection Agency (EPA) as a serious

nonattainment area for both ozone and PM2.5. Adverse effects clearly associated with ozone

range from school absences and hospitalizations to symptoms that limit normal daily activity.

PM2.5 exposure is tied to a range of effects from premature death and the onset of chronic

bronchitis to work loss days and respiratory symptoms.

Between 1990 and 2004 ambient ozone levels in the San Joaquin Valley exceeded the

healthbased 8hour National Ambient Air Quality Standard (NAAQS) between 80 to 135 days

per year. Ozone levels are typically elevated in the summer months, so this suggests that air is

unhealthful on most summer days. Not only are the NAAQS frequently violated, but between

2001 and 2004 the maximum 8hour concentration was 65% above the standard. In much of

California ozone levels have fallen steadily over a period of years, but this is not the case in the

San Joaquin Valley.

While the region has achieved reductions in coarser particle (PM10) levels, concentrations of the

more dangerous fine particles PM2.5 remain unhealthful. To meet the maximum 24 hour

standard levels must fall by more than 10%, and annual average concentrations must fall by

nearly 30%.

Valleywide, the economic benefits of meeting the federal PM2.5 and ozone standards average

nearly $1,000 per person per year, or a total of more than $3 billion. This gain represents the

following:

325 fewer new cases of chronic bronchitis

188,400 fewer days of reduced activity in adults

260 fewer hospital admissions

23,300 fewer asthma attacks

188,000 fewer days of school absence

3,230 fewer cases of acute bronchitis in children


Figure 2: Air Quality Non-Attainment Areas in EPA Region 9

Figure 3: Ozone – Violations of the 8-hr Air Quality Standard, 2006-2008


Figure 4: Violations of the 24-hr PM 2.5 Air Quality Standard, 2006-2008

3,000 fewer work loss days

More than 17,000 fewer days of respiratory symptoms in children2

In addition, according to calculations by the California Air Resources Board, there are 2400

annual premature deaths associated with exposure to ambient PM2.5 levels above 5 µg/m3.

3

Problem Statement:

Given that even with our best efforts it will take many years for air quality standards to be

achieved in the San Joaquin Valley, how can we reduce the air quality impacts in the interim?


Behavior Over Time Graph:

This graphic illustrates some of the air quality challenges in the San Joaquin Valley. The increasing population translates into more

cars and more activities that contribute to poor air quality. Also, in the current economy, the resources for many organizations are

decreasing. This project seeks to identify ways to overcome these challenges.


Causal Loop Diagrams and applicable Archetypes:


10 Essential Environmental Health Services:

This project focuses on the Diagnose and Investigate category of the 10 Essential Environmental

Health Services. Using information from the internal and external needs assessment, EPA will

critically evaluate the current system, diagnose any problems, and investigate potential

enhancements, partnerships, collaborations and strategies for better addressing the air quality

impacts in the San Joaquin Valley. Depending on the outcomes from this analysis, the strategy

may also address these additional Essential Environmental Health Services: Inform, Educate,

Empower; Mobilize Community Partnerships, and Develop Policies.

Figure 5: 10 Essential Environmental Health Services

National Goals Supported

This project supports:

CDC Health Protection Goal for Healthy Communities by promoting safe and high-

quality air in communities.

Healthy People 2010 Objective to improve outdoor air quality by (1) reducing the

proportion of persons exposed to air that does not meet the U.S. Environmental

Protection Agency's health-based standards for harmful air pollutants; and (2) reducing

toxic air emissions to decrease the risk of adverse health effects caused by airborne

toxics.


CDC’s Strategy for Revitalizing Environmental Public Health Goal 2 (Support Research)

and Goal 6 (Create Strategic Partnerships) by developing effective approaches to address

existing needs, engaging community involvement, developing strategic interventions, and

building partnerships among various agencies, organizations, and entities that are

engaged in air quality related work in the San Joaquin Valley.


Project Logic Model:

Activities

Resources/Inputs

Short & Long Term Outcomes, Impacts.

Outputs

Learning

Air Division staff learn more

about challenges in SJV

Management support/buy in

reaffirms EPA’s commitment

to SJV air-related issues as a

priority

Results

Reduced air

quality

impacts

Effective

community

engagement

Information/data

Answers to needs assessment

questions

List of ongoing work in the SJV

List of ongoing partnerships

Presentations

for seminar

Questions for

facilitated

discussion

Facilitator

Stakeholder

list for external

needs

assessment

Process and

questions for

external needs

assessment

GIS skills,

time, expertise

for GIS

analysis

Reports

Internal needs assessment

External needs assessment

Gap and opportunity analysis

Final strategy

Behavior

EPA refines its

role in SJV with

more emphasis on

where we are

successful and

could add value

(i.e. additional

opportunities,

partnerships, or

geographic areas)

Internal Needs Assessment

Seminar for Air Division staff

Facilitated discussions among Air

Division staff

Input from other EPA staff

engaged in air-related work in SJV

(pesticides program, NEPA, etc.)

External Needs Assessment

Input from key stakeholders

engaged in air-related work in SJV

via interviews, workshops or other

means

Analysis

Evaluation of needs assessment

data to identify gaps and

opportunities

GIS analysis as needed

Learning

All stakeholders have:

Better understanding of

ongoing activities in San

Joaquin Valley

Better understanding of each

organization’s opportunities,

challenges, and capacity to

address air related issues

Strategy

Develop draft strategy

Seek stakeholder input on draft

strategy

Finalize and implement strategy

Communications/outreach


PROJECT OBJECTIVES/DESCRIPTION/DELIVERABLES:

Program Goal: The EPA Air Program’s goal for the San Joaquin Valley is to help bring

the area into attainment with federal air quality standards, and to reduce air quality

related impacts. Many stakeholders are engaged in air quality related work in SJV, and

this project represents one of the ways that EPA is contributing to the collective efforts of

all stakeholders to achieve this goal.

Health Problem: The San Joaquin Valley is in non-attainment of the federal PM2.5 and

ozone standards, which results in adverse health impacts for residents of the San Joaquin

Valley.

The adverse health impacts of not attaining the federal standards for ozone and PM2.5 in

San Joaquin Valley are estimated in the background section of this report, and include

2400 premature deaths and 23,300 asthma attacks per year.

Outcome Objective: Reduction in the number of air quality related adverse health

impacts.

Determinant: Year to year progress in improvement in air quality could be measured by

tracking the population weighted ambient concentrations of PM2.5 and ozone and the

associated estimated health impacts associated with those concentrations. However, the

EPA Air Program’s long-term goal of clean, healthy air can be measured by attaining the

National Ambient Air Quality Standards for PM2.5 and ozone.

Impact Objective: The EPA Air Program’s objective is to attain the National Ambient

Air Quality Standard for PM2.5 by 2015 and attain the National Ambient Air Quality

standard for ozone by 2023. These dates are mandated by the Clean Air Act.

Contributing Factors: Topography (surrounding mountains trap air pollutants near the

Valley floor where people live and breathe), climate (hot, summer temperatures promote

the formation of ozone, tule fog traps particulate matter in the winter), growing

population, increasing traffic, and decreasing resources for many organizations.

Process Objectives:

1. By April 2010, EPA will complete the internal needs assessment.

2. By September 2010, EPA will complete the external needs assessment.

3. By December 2010, EPA will complete its analysis of gaps and opportunities and

develop a draft strategy plan for reducing air quality impacts.

4. By March 2011, EPA will have sought input from external stakeholders on the

draft action plan and begin implementing it.

Because of the dynamic nature of this project, these dates are subject to change.


METHODOLOGY:

EPA is undertaking an effort to explore if there might be additional opportunities,

approaches, partnerships or geographic areas where we might better focus our efforts to

reduce air quality impacts in the San Joaquin Valley.

This process will begin with an assessment of EPA’s internal activities to inventory the

air related activities in the SJV, determine where and what type of additional work is

needed, and brainstorm what tools and resources EPA could contribute towards these

issues. The internal process kicked-off with a seminar to give an overview of the

technical issues for SJV air quality and discuss the overall process that will be used for

developing the strategy. The data for the internal needs assessment will be collected via

a series of facilitated discussions with staff who are directly engaged in air quality work

in the SJV. The seminar and the first facilitated discussion were held in December 2009.

Additional facilitated discussions are planned for early 2010. After the facilitated

discussions, we will determine what additional activities will be needed to complete the

internal needs assessment.

The external needs assessment will collect information from key stakeholders including

the local air district, local health departments, key industries, environmental justice

organizations, air quality coalitions, academic institutions, foundations, etc. via

workshops, interviews or other means. The internal needs assessment and discussions

with key stakeholders will help inform how best to conduct the external needs

assessment.

After the internal and external needs assessment have been completed, the next step will

be to analyze the information by examining opportunities and resources, and seeing

where there are gaps in the collective efforts of EPA and key stakeholders to reduce air

quality impacts.

As needed, technical assessment will be used to inform the analysis and support the

strategy development. For example, if the analysis shows that more efforts are needed to

achieve diesel reductions, a technical assessment could map current diesel concentrations

to determine the most critical geographic areas to be focusing on.

The final steps in the process involve developing a draft strategy, getting input from key

stakeholders on the strategy, and then finalizing the strategy and implementing it.

This is a dynamic project and we intend to learn from each step in this process, taking full

advantage of the input we receive to improve the process and collect data in a way which

best engages our key stakeholders. As such, the steps in this process and the projected

dates are subject to change.


EXPECTED OUTCOMES:

Out of this process, EPA expects that all key stakeholders will have a better

understanding of ongoing activities in the San Joaquin Valley, and a better understanding

of each organization’s opportunities, challenges, and capacity to address air related

issues.

EPA expects to use this information to refine our role in San Joaquin Valley with more

emphasis on where we are successful and could add value to the collective efforts of

stakeholders engaged in work in the SJV.

This project represents one of the ways in which EPA will contribute to the ongoing

collective efforts of stakeholders in San Joaquin Valley who are working towards the

long-term goals of reduced air quality impacts and effective community engagement.

LEADERSHIP DEVELOPMENT OPPORTUNITIES:

Debbie Lowe Liang, MPH

My year in the Environmental Public Health Leadership Institute has been a great

experience for me. I’ve met some amazing people who are engaged in emerging

environmental health issues all over the nation, and I feel very fortunate to be able to add

them to my professional network. I especially appreciate the opportunity to work with a

mentor who is a past graduate of the program. He has been insightful and supportive

throughout the entire year to help me and the others on my team both develop our

leadership skills and make progress on our projects. I’ve learned more about myself and

which areas I need to work on to become a better leader. While I’ve made significant

progress in this area, working with my EPHLI coach, I recognize that I have additional

work to do and I’ve asked someone in my organization who has leadership qualities I

admire to continue to work with me on developing my leadership skills. He happily

agreed and we’ve already developed a plan for this coming year. The EPHLI staff are

always helpful and responsive, and have been a pleasure to work with over the year. I am

grateful for the opportunity to have participated in the EPHLI program and look forward

to continuing to network with my cohort and other cohorts though the EPHLI alumni

program.


ABOUT THE EPHLI FELLOW

Debbie Lowe Liang is an environmental scientist at the US Environmental Protection

Agency (EPA), Region 9 in San Francisco. She is currently working in the Environmental

Justice Program, which works to better protect public health and the environment for the

most vulnerable and most heavily impacted communities.

Her current work is geographically focused on the San Joaquin Valley in California and

Hawaii and includes:

• Awarding environmental justice grants, and providing technical assistance and other

support to build capacity in environmental justice communities

• Integrating EJ into enforcement, cleanups, rulemaking, and permitting to these communities

• Collaborating with the EPA headquarters, other regional offices, and partners to address

environmental justice concerns

• Participating in community events, conferences, and federal, state, and local government

meetings that address environmental justice

• Sharing lessons learned and tools by promoting networking among partners in community

organizations and our state, tribal, local, and federal partners

• Responding to the environmental justice concerns raised by various communities

• Engaging on research on community vulnerabilities

Debbie received her Masters in Public Health from UC Berkeley, where she conducted

research on schistosomiasis in rural China. She also holds a Masters in Environmental

Engineering from the University of Southern California, and a BA from UC Berkeley in

Environmental Sciences.

Debbie also spent a year in China studying mandarin Chinese at the Beijing Foreign

Language Institute.


REFERENCES

1. US EPA, 2007 State Review Framework Report for the State of California, Clean

Water Act Compliance and Enforcement Activities. January 25, 2008. Accessed at:

www.epa.gov/oecaerth/resources/reports/srf/srf-rd1-rev-ca.pdf on January 7, 2010.

2. Hall JV, Brajer V, Lurmann, F, The Health and Related Economic Benefits of

Attaining Healthful Air in the San Joaquin Valley. California State Fullerton: Institute for

Economic and Environmental Studies. 2006. Accessed at:

http://business.fullerton.edu/centers/iees/reports/SJVFinalReport.pdf on January 3, 2010.

3. California Environmental Protection Agency, Air Resource Board, Methodology for

Estimating Premature Deaths Associated with Long-term Exposure to Fine Airborne

Particulate Matter in California, 2008. Accessed at

http://www.arb.ca.gov/research/health/pm-mort/PMmortalityreportFINALR10-24-08.pdf on January 3, 2010.

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