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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,
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
Figure 2: Air Quality Non-Attainment Areas in EPA Region 9
Figure 3: Ozone – Violations of the 8-hr Air Quality Standard, 2006-2008
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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?
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
Causal Loop Diagrams and applicable Archetypes:
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership Institute
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.
2009–2010 Fellow Project National Environmental Public Health Leadership 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.