Stigma as a multispatial-scale process: Revisiting the worst US Superfund sites

Areas immediately adjacent to 16 of the first US national priority (NPL) hazardous waste sites that also had pre-superfund emergency actions were examined to measure local stigma. Four decades after their NPL designation, I found marked variation in these areas’ social, public health and environmental attributes. About one-third of these small areas fit the stereotype of stressed areas with environmental injustice challenges. Yet, another one-third of these sites have better measurable outcomes than a combination of their host states and counties. For example, they have elevated levels of broadband access and their local jurisdictions are classified as safe and attractive to families. I conclude that long-term stigma around a Superfund site was limited by US EPA actions, as well as by progressive state and local governments, and community groups, in other words, contributions from parties at multiple geographical scales.     

Determinants of Risk Perceptions of a Hazardous Waste Site

A before-stimulus-after quasi-experimental design is used to assess the factors relating to risk perceptions of a hazardous waste site. First, a pretest obtains measures of attitudes and beliefs about hazardous waste and waste sites. Second, a detailed hypothetical "Superfund" scenario, including a complex cleanup plan, is introduced. Finally, indices of health risk estimates, trust, knowledge, and other pertinent beliefs are obtained. Levels of concern, both before and after cleanup, are the dependent variables. Independent variables include risk management options, health risk estimates, trust, and five sociodemographic characteristics. Concern is extremely high prior to cleanup and moderately high after cleanup. Concern is a clear function of health risk estimates. Toxic chemicals from waste sites are viewed as a major cause of multiple health problems, especially cancers. Accurate health risk estimates moderate fears and are linked to levels of education. Education, however, does not explain concern. Trust is a major factor explaining concern and health risk estimates. The implications of these findings for risk communication is discussed.     

Safe and Sorry: Risk, Environmental Equity, and Hazardous Waste Management Facilities

Many empirical environmental equity analyses have attempted to determine if hazardous waste treatment, storage, or disposal facilities (TSDFs) are in disproportionately minority or low-income areas. These prior analyses did not explain the extent of the risks posed by TSDFs, nor did they weight the distribution of those risks by the individual characteristics of the TSDFs. This study evaluated the risks posed by TSDFs in general and then examined whether any such risks were distributed inequitably when each TSDF was weighted by the amount of hazardous waste that it managed. Based on an assessment of the nature of the hazardous wastes that TSDFs manage, the possible exposure paths to risk from TSDFs, the laws designed to minimize the risks that TSDFs pose, and TSDFs' safety records, the attention devoted to TSDFs by environmental equity researchers is greatly exaggerated. Furthermore, based on this study's analyses, there was no pattern of the TSDFs or the risks that they posed being inequitably concentrated in disproportionately minority or low-income areas. Most of the TSDFs and the hazardous waste that they manage are in areas that are either unpopulated or have fewer minority or low-income people than the national average. There are, however, some TSDFs that are in highly populated, heavily minority or low-income areas, which results in such people being more likely overall to be in close proximity to these facilities.     

Ecological Information Needs for Environmental Justice

The concept that all peoples should have their voices heard on matters that affect their well‐being is at the core of environmental justice (EJ). The inability of some people of small towns, rural areas, minority, and low‐income communities, to become involved in environmental decisions is sometimes due to a lack of information. We provide a template for the ecological information that is essential to examine environmental risks to EJ populations within average communities, using case studies from South Carolina (Savannah River, a DOE site with minority impacts), Washington (Hanford, a DOE site with Native American impacts), and New Jersey (nonpoint, urbanized community pollution). While the basic ecological and public health information needs for risk evaluations and assessments are well described, less attention has been focused on standardizing information about EJ communities or EJ populations within larger communities. We suggest that information needed about EJ communities and populations includes demographics, consumptive and nonconsumptive uses of their regional environment (for example, maintenance and cosmetic, medicinal/religious/cultural uses), eco‐dependency webs, and eco‐cultural attributes. A purely demographics approach might not even identify EJ populations or neighborhoods, much less their spatial relation to the impact source or to each other. Using information from three case studies, we illustrate that some information is readily available (e.g., consumption rates for standard items such as fish), but there is less information about medicinal, cultural, religious, eco‐cultural dependency webs, and eco‐cultural attributes, all of which depend in some way on intact, functioning, and healthy ecosystems.     

Quantitative Methods for Environmental Justice Assessment of Transportation

Application of Executive Order 12898 to risk assessment of highway or rail transport of hazardous materials has proven difficult; in general, the location and conditions affecting the propagation of a plume of hazardous material released in a potential accident are unknown. Therefore, analyses have only been possible in a geographically broad or approximate manner. The advent of geographic information systems and development of software enhancements at Sandia National Laboratories have made kilometer-by-kilometer analysis of populations tallied by U.S. Census blocks along entire routes practicable. Tabulations of total or racially/ethnically distinct populations close to a route, its alternatives, or the broader surrounding area, can then be compared and differences evaluated statistically. This article presents methods of comparing populations and their racial/ethnic compositions using simple tabulations, histograms, and chi-square tests for statistical significance of differences found. Two examples of these methods are presented: comparison of two routes and comparison of a route with its surroundings.     

Practical Methods for Meeting Remediation Goals at Hazardous Waste Sites

Risk-based cleanup goals or preliminary remediation goals (PRGs) are established at hazardous waste sites when contaminant concentrations in air, soil, surface water, or groundwater exceed specified acceptable risk levels. When derived in accordance with the Environmental Protection Agency's risk assessment guidance, the PRG is intended to represent the average contaminant concentration within an exposure unit area that is left on the site following remediation. The PRG, however, frequently has been used inconsistently at Superfund sites with a number of remediation decisions using the PRG as a not-to-exceed concentration (NTEC). Such misapplications could result in overly conservative and unnecessarily costly remedial actions. The PRG should be applied in remedial actions in the same manner in which it was generated. Statistical methods, such as Bower's Confidence Response Goal, and mathematical methods such as "iterative removal of hot spots," are available to assist in the development of NTECs that ensure the average postremediation contaminant concentration is at or below the PRG. These NTECs can provide the risk manager with a more practical cleanup goal. In addition, an acute PRG can be developed to ensure that contaminant concentrations left on-site following remediation are not so high as to pose an acute or short-term health risk if excessive exposure to small areas of the site should occur. A case study demonstrates cost savings of five to ten times associated with the more scientifically sound use of the PRG as a postremediation site average, and development of a separate NTEC and acute PRG based on the methods referenced in this article.     

Evacuating People with Mobility‐Challenges in a Short‐Notice Disaster

In past disasters, arrangements have been made to evacuate people without their own transportation, requiring them to gather at select locations to be evacuated. Unfortunately, this type of plan does not help those people who are unable to move themselves to the designated meeting locations. In the United States, according to the Post‐Katrina Emergency Management Reform Act of 2006, state or local governments have the responsibility to coordinate evacuation plans for all populations. These include those with disabilities. However, few, if any, have plans in place for those who are mobility‐challenged. The problem of evacuating mobility‐challenged people from their individual locations in a short‐notice disaster is a challenging combinatorial optimization problem. In order to develop the model and select a solution approach, we surveyed related literature. Based on our review, we formulate the problem and develop an Ant Colony Optimization (ACO) algorithm to solve it. We then test two different versions of the ACO algorithm on five stylized datasets with several different parameter settings.     

A Social Network Contagion Theory of Risk Perception

Risk perceptions have, to a great extent, been studied exclusively as individual cognitive mechanisms in which individuals collect, process, and form perceptions as atomized units unconnected to a social system. These individual-level theories do not, however, help explain how perception of risk may vary between communities or within a single community. One alternative approach is based on a network theory of contagion. This approach, emerging largely from organizational and community social network studies, suggests that it is the relational aspects of individuals and the resulting networks and self-organizing systems that influence individual perceptions and build "groups or communities of like-minded" individuals. These social units, it is argued, behave as attitude, knowledge, or behavioral structures. The study reported in this article tests one aspect of this theoretical perspective. The central hypothesis proposes the existence of risk perception networks--relational groupings of individuals who share, and perhaps create, similar risk perceptions. To test this idea, data were collected from individuals involved in a community environmental conflict over a hazardous waste site cleanup. The statistical analysis used a matrix of relational social linkages to compare with a matrix of individual risk perceptions The analysis confirmed the hypothesis suggesting that social linkages in communities may play an important role in focusing risk perceptions.     

The Role of Geographic Scale in Monitoring Environmental Justice

Utilizing the concept of environmental justice, this paper examines the differential burdens of toxic and hazardous waste facilities locations in low income minority communities. The association between the presence of facilities and socioeconomic characteristics of places are examined for the state of South Carolina at three different spatial scales: counties, census tracts, and census block groups. Three different types of hazardous waste/toxic facilities are also examined: Toxic Release Inventory (TRI) sites, Treatment, Storage, and Disposal sites (TSD), and inactive hazardous waste sites. At the county level, there was some association between the presence of toxic/hazardous waste facilities and race and income. In South Carolina, this translates to a disproportionate burden on White, more affluent communities in metropolitan areas, rather than low income minority communities. At both the census tract and block group levels, there is no association between race and the location of toxic/hazardous waste facilities. There are slight differences in the income levels between tracts and block groups with facilities and those without. This localized ecology of hazard sources must be expanded to include emission/discharge data in order to adequately address environmental justice issues on who bears the burdens of environmental contamination.     

Adaptive Spatial Sampling of Contaminated Soil

Suppose that a residential neighborhood may have been contaminated by a nearby abandoned hazardous waste site. The suspected contamination consists of elevated soil concentrations of chemicals that are also found in the absence of site-related contamination. How should a risk manager decide which residential properties to sample and which ones to clean? This paper introduces an adaptive spatial sampling approach which uses initial observations to guide subsequent search. Unlike some recent model-based spatial data analysis methods, it does not require any specific statistical model for the spatial distribution of hazards, but instead constructs an increasingly accurate nonparametric approximation to it as sampling proceeds. Possible cost-effective sampling and cleanup decision rules are described by decision parameters such as the number of randomly selected locations used to initialize the process, the number of highest-concentration locations searched around, the number of samples taken at each location, a stopping rule, and a remediation action threshold. These decision parameters are optimized by simulating the performance of each decision rule. The simulation is performed using the data collected so far to impute multiple probable values of unknown soil concentration distributions during each simulation run. This optimized adaptive spatial sampling technique has been applied to real data using error probabilities for wrongly cleaning or wrongly failing to clean each location (compared to the action that would be taken if perfect information were available) as evaluation criteria. It provides a practical approach for quantifying trade-offs between these different types of errors and expected cost. It also identifies strategies that are undominated with respect to all of these criteria.

     

Acute Exposure to Extremely Hazardous Substances: An Analysis of Environmental Equity

Although environmental equity research has focused primarily on chronic pollution sources, recent advances in environmental modeling and geographic information systems (GIS) provide a foundation for developing measures that can be used to evaluate differential exposure to acute pollution events. This article describes a methodology that uses facility-specific information to develop a risk surface representing the spatial distribution of accidental exposure to hazardous substances in a study area. Environmental pollution models recommended by the U.S. Environmental Protection Agency were used in conjunction with GIS software to achieve this objective. The methodology was implemented in a large metropolitan region (Hillsborough County, Florida) to examine disproportionate exposure to worst-case releases of extremely hazardous substances. The environmental inequity hypothesis was investigated by directly comparing the distribution of potential exposures within each racial (non-White versus White) and income (below poverty versus above poverty) subgroup. The results indicate that a significantly large proportion of both non-White and impoverished individuals resided in areas potentially exposed to multiple accidental releases.     

Estimating Risk Assessment Exposure Point Concentrations when the Data Are Not Normal or Lognormal

The U.S. Environmental Protection Agency (EPA) recommends the use of the one-sided 95% upper confidence limit of the arithmetic mean based on either a normal or lognormal distribution for the contaminant (or exposure point) concentration term in the Superfund risk assessment process. When the data are not normal or lognormal this recommended approach may overestimate the exposure point concentration (EPC) and may lead to unecessary cleanup at a hazardous waste site. The EPA concentration term only seems to perform like alternative EPC methods when the data are well fit by a lognormal distribution. Several alternative methods for calculating the EPC are investigated and compared using soil data collected from three hazardous waste sites in Montana, Utah, and Colorado. For data sets that are well fit by a lognormal distribution, values for the Chebychev inequality or the EPA concentration term may be appropriate EPCs. For data sets where the soil concentration data are well fit by gamma distributions, Wong's method may be used for calculating EPCs. The studentized bootstrap-t and Hall's bootstrap-t transformation are recommended for EPC calculation when all distribution fits are poor. If a data set is well fit by a distribution, parametric bootstrap may provide a suitable EPC.     

Financing Liabilities Under Superfund

One of the more critical environmental risk areas involves the financing of cleanup costs associated with past improper disposal of hazardous wastes. These costs will run into the tens of billions of dollars. The federal Superfund program and related state programs are the driving forces for cleaning up hazardous waste. Under Superfund, the government collects taxes and coordinates cleanup strategies, and searches for potentially responsible parties (generators, disposers, transporters) to assist in financing the cleanup. To lessen the financial impact, responsible parties are looking to their liability insurers to provide coverage under old general liability insurance policies. Insurance companies contend that Superfund liabilities are not covered under liability policies. The paper examines the various financing methods and liabilities produced by Superfund. Particular emphasis is placed on developments in the courts which are resulting in a significant shift in the financial responsibilities to the insurance industry. Broad estimates of the financial impact of Superfund liabilities are developed. Finally, several public policy issues, which are raised by the topics exmained in this paper, are discussed.     

Who Lives Near Coke Plants and Oil Refineries? An Exploration of the Environmental Inequity Hypothesis

Facility-specific information on pollution was obtained for 36 coke plants and 46 oil refineries in the United States and matched with information on populations surrounding these 82 facilities. These data were analyzed to determine whether environmental inequities were present, whether they were more economic or racial in nature, and whether the racial composition of nearby communities has changed significantly since plants began operations.The Census tracts near coke plants have a disproportionate share of poor and nonwhite residents. Multivariate analyses suggest that existing inequities are primarily economic in nature. The findings for oil refineries are not strongly supportive of the environmental inequity hypothesis. Rank ordering of facilities by race, poverty, and pollution produces limited (although not consistent) evidence that the more risky facilities tend to be operating in communities with above-median proportions of nonwhite residents (near coke plants) and Hispanic residents (near oil refineries). Over time, the racial makeup of many communities near facilities has changed significantly, particularly in the case of coke plants sited in the early 1900s. Further risk-oriented studies of multiple manufacturing facilities in various industrial sectors of the economy are recommended.The authors are all affiliated with the Harvard Center for Risk Analysis     

The Role of Risk and Future Land Use in Cleanup Decisions at the Department of Energy

As a result of the legacy of the Cold War, the Departments of Energy and Defense are involved in massive cleanup and remediation projects. While health risk to humans and ecological receptors is perceived to be the basis for remediation, this assumption is rarely examined. In this article, we examine the role of risk and future land-use designations in cleanup decisions, using the Department of Energy's self-assessment of 36 sites. We then discuss the risk-related tools that might be required to address the cleanup challenge. Much of the current cleanup program is driven by compliance with federal and state statutes and regulations, presumably to protect human health and the environment. Compliance, however, is not synonymous with cleanup. Although some of these laws and regulations take risk into account, the lack of site-specific data on exposures and risk scenarios, and the lack of attention to future land use or end states, has often resulted in disconnects between risk and cleanup goals, risk and final end states, and cleanup levels and end state or subsequent land use. Partly, these disconnects result from the need for a range of technical, economic, sociological, and public policy tools to address the issues. A better transfer of information among and within Department of Energy facilities, operations offices, and DOE headquarters is required. Further, linking cleanup decisions and goals with the final end state involves a number of risk tradeoffs, including (1) ecological versus human health, (2) worker versus public health, (3) among competing contaminated areas, (4) among temporal patterns of cleanup, (5) among different ecological receptors (plants vs. animals, one animal vs. another), and (6) among the sites across the DOE complex. For the nation, balancing among risks is essential within sites and among Department of Energy sites, as well as among other remediation sites (such as those of Department of Defense and Superfund sites).     

Planning for strategic decision support systems

The emergence of Strategic Decision Support Systems has opened up new vistas for the true integration of formal models into the strategic planning process. However, with these new opportunities also come the need to develop planning mechanisms that will permit these sophisticated systems to achieve their potential. The process of strategic planning for Strategic Decision Support Systems that is described in this article serves to cast the organization's overall plans, strategies and strategic attributes into a framework that can be used to develop formal SDSS plans.     

Computer Models Used to Support Cleanup Decision-Making at Hazardous and Radioactive Waste Sites

Massive efforts are underway to clean up hazardous and radioactive waste sites located throughout the United States. To help determine cleanup priorities, computer models are being used to characterize the source, transport, fate, and effects of hazardous chemicals and radioactive materials found at these sites. Although the U.S. Environmental Protection Agency (EPA), the U.S. Department of Energy (DOE), and the U.S. Nuclear Regulatory Commission (NRC)have provided preliminary guidance to promote the use of computer models for remediation purposes, no agency has produced directed guidance on models that must be used in these efforts. As a result, model selection is currently done on an ad hoc basis. This is administratively ineffective and costly, and can also result in technically inconsistent decision-making. To identify what models are actually being used to support decision-making at hazardous and radioactive waste sites, a project jointly funded by EPA, DOE, and NRC was initiated. The purpose of this project was to: (1)identify models being used for hazardous and radioactive waste site assessment purposes; and (2)describe and classify these models. This report presents the results of this study. A mail survey was conducted to identify models in use. The survey was sent to 550 persons engaged in the cleanup of hazardous and radioactive waste sites; 87 individuals responded. They represented organizations including federal agencies, national laboratories, and contractor organizations. The respondents identified 127 computer models that were being used to help support cleanup decision-making. There were a few models that appeared to be used across a large number of sites (e.g., RESRAD). In contrast, the survey results also suggested that most sites were using models which were not reported in use elsewhere. Information is presented on the types of models being used and the characteristics of the models in use. Also shown is a list of models available, but not identified in the survey itself.     

Promoting Transparency of Long-Term Environmental Decisions: The Hanford Decision Mapping System Pilot Project

Nuclear waste cleanup is a challenging and complex problem that requires both scientific analysis and dialogue among a variety of stakeholders. This article describes an effort to develop an online information system that supports this analytic-deliberative dialogue by integrating cleanup information for the Hanford Site, and making it more "transparent." A framework for understanding and evaluating transparency guided system development. Working directly with stakeholders, we identified information needs and developed new ways to organize and present the information so that it would be more transparent to interested parties, with the ultimate aim of fostering greater participation in decision dialogues and processes. The complexity of the information needed for dialogue suggested that several types of communication devices ("information structures") were warranted. Five information structures were developed for the pilot Decision Mapping System (http://nalu.geog.washington.edu/dms). Decision maps hyperlinked decision information to maps of Hanford. Background Information provided context in a narrative format. Decision Paths organized decision process information on a timeline and provided direct hyperlinks to online documentation. The Geographic Library hyperlinked decision documents to maps. Finally, a Discussion Forum allowed users to make comments and view remarks from others. Early lessons from this work suggest that transparency is integral to long-term management, a participatory design process contributed greatly to its perceived success, and better data integration to support decision making is needed. This work has broad implications for risk communicators and risk managers because it speaks to the design of information systems to support "analytic-deliberative" decision processes (i.e., those that rely upon both risk science and public dialogue).     

Voluntary Siting and Equity: The MRS Facility Experience in Native America

This article focuses on aspects of intragenerational and intergenerational equity in the context of a unique policy experiment: the effort of the U.S. government to site a monitored, retrievable storage (MRS) facility for high-level civilian nuclear waste. This process and its outcomes are examined from both normative and subjective perspectives. While the MRS siting process was designed to be equitable, its eventual focus on Native American communities raises profound questions about environmental justice, as well as procedural, outcome, and intergenerational equity in cross-cultural contexts. The diverse reactions among Native American tribes demonstrate that translating theoretical concepts of equity into practice is an extraordinarily complex exercise. The MRS siting process, instead of being a bold policy experiment that promoted equity, emerges substantially flawed after its implementation in the Native American context.     

Risks of Hazardous Waste Sites versus Asteroid and Comet Impacts: Accounting for the Discrepancies in U.S. Resource Allocation

Approximately $6 billion is spent annually in the United States on the cleanup of sites regulated under the Comprehensive Environmental Response, Compensation and Liability Act (CERCLA, or Superfund). The current health risks posed by such sites are thought to be quite small; the expenditures are justified primarily as protecting hypothetical future residents of these sites. Approximately 0.05% of this amount, or $3 million, is spent annually by the U.S. government on the detection of asteroids or comets that could strike the earth. Such damaging impacts do occur from time to time--most recently in 1908 in an unpopulated region of Siberia--but no person is confirmed ever to have died as a result. Anticipated impacts over the course of 1 million years would yield deaths that, when annualized, total approximately 4,000 per year. The risk reduction goal for CERCLA is 15 orders of magnitude greater than that for asteroid/comet detection. A modest increase in resources devoted to asteroid detection would greatly increase the chances of early detection of a threatening object, allowing an effective defense to be attempted. This article argues that the much lower risk-to-resources ratio for CERCLA cleanups than for asteroid and comet detection can be explained by four primary factors: (1) the regard for future generations, since CERCLA benefits mainly the unborn; (2) concrete fears, since toxics are much more feared than asteroids or comets; (3) the source of the threat, since toxic contamination is caused by human beings, unlike impacts from space objects; and (4) the greater political constituencies for hazardous waste cleanup than for space object detection.