Confronting Environmental Racism: Voices from the Grassroots
Edited by
Robert D. Bullard
Foreword by
Benjamin F. Chavis, Jr.

 
    Richmond (CA): Richmond has a population of 80,000. Over half are African Americans and about 10 percent are Latinos. Most of the African-American population live next to the city's petrochemical corridor-a cluster of 350 facilities that handle hazardous waste (Citizens for a Better Environment 1989). The five largest industrial polluters in the city are the Chevron oil refinery, Chevron Ortho pesticide plant, Witco Chemical, Airco Industrial Gases, and an ICI pesticide plant (formerly Stauffer Chemical). Chevron Ortho generates over 40 percent of the hazardous waste in Richmond.  The bulk of it is incinerated on the plant's grounds. Local citizens founded the West County Toxics Coalition to address the problem of toxic emissions.

What We Learned

    Eight of the nine community Opposition groups were started as environmental groups. Mothers of East Los Angeles was the only exception. It grew out of a six-year dispute involving a proposed 1,450-bed state prison in East Los Angeles (Pardo 1991). MELA also fought a proposed underground pipeline through their neighborhood. Its fight against the incinerator is an extension of this earlier battle.

    All of the groups have multi-issue agendas and incorporate social justice and equity as their major organizing themes. The leaders see their communities as "victims' and are quick to make the connection between other forms of discrimination, the quality of their physical environment and the current dispute. Some of the leaders have worked in other organizations that fought discrimination in housing, employment, and education.

    It is clear that the local grassroots activists in the impacted communities provided the essential leadership in dealing with the disputes.  The typical grassroots leader was a woman. For example, women led the fight in seven of the nine cases examined. Only the West Dallas Coalition for Environmental Justice and Richmond's West County Toxics Coalition were headed by men.

    Women activists were quick to express their concern about the threat to their family, home, and community. The typical organizer found leadership thrust upon her by immediate circumstances with little warning or prior training for the job. Lack of experience, however, did not prove an insurmountable barrier to successful organizing.

    The manner in which the local issue was framed appears to have influenced the type of leadership that emerged. Local activists immediately turned their energies to what they defined as environmental discrimination, for discrimination is a fact of life in all of these communities. Most people of color face it daily.

    The quest for environmental justice thus extends the quest for basic civil rights. Actions taken by grassroots activists to reduce environmental inequities are consistent with the struggle to end the other forms of social injustice found throughout our society-in housing, education, employment, health care, criminal justice, and politics.

    The mainstream environmental groups do not have a long history of working with African-American, Latino, Asian, Pacific Islander, and Native-American groups. For the most part, they have failed to adequately address environmental problems that disproportionately impact people of color. Despite some exceptions, the national groups have failed to sufficiently make the connection between key environmental and social justice issues.

    The experience of the organizations discussed here suggests that the situation is beginning to change for the better. While still too little, the mainstream environmental movements support of environmental justice struggles has visibly increased between the first Earth Day in 1970 and Earth Day 1990. Certainly, the early environmental struggles by communities of color were less likely than more recent ones to attract significant support from the mainstream groups.

    Because of the redefinition of "environmentalism' spurred on by grassroots challenges to the elitism and environmental racism of the mainstream groups, more mainstream groups now acknowledge and try to address the widespread inequities throughout our society. Many of these groups are beginning to understand and embrace the cause of social justice activists mobilizing to protect their neighborhoods from garbage dumps or lead smelters. These first steps have been a long time in coming, however. For many conservationists, the struggle for social justice is still seen as separate from environmental activism. Because of this, environmental activists of color have usually had better luck winning support for their cause by appealing to more justice-oriented groups. For example, Houston's Northeast Community Action Group (NECAG) was able to enlist support from a number of local social justice activists in their dispute with Browning-Ferris Industries. The anti-discrimination theme was a major tool in enlisting the Houston Black United Front (an African-American self-help group), the Harris County Council of Organizations (an Afiican-American voter education and political group), and a Houston chapter of ACORN (Association of Community Organizations for Reform Now).

    The situation in Dallas somewhat resembled that found in Houston. Leaders of West Dallas's Neighborhood Committee on Lead Pollution received no assistance from any outside environmental group in resolving their dispute. Instead, they relied exclusively on a grassroots self-help group, the Common Ground Community Economic Development Corporation, to get their grievances publicly aired. Common Ground not surprisingly has a long history of working on equity issues in the city's African-American community.

    The Neighborhood Committee on Lead Pollution disbanded after the lead-smelter dispute was resolved. In 1989, the West Dallas Coalition for Environmental Justice, a multiracial group, formed to fill the leadership vacuum. It pressed for cleanup of the RSR site in West Dallas, closure of the Dixie Metals lead smelter in Dallas's East Oak Cliff neighborhood, and pollution prevention measures for the remaining industries in the neighborhood.  The multiracial coalition has about 700 members and 20 volunteers. It has worked closely with Common Ground and Texas United, a grassroots environmental group affiliated with the Boston-based National Toxics Campaign. The local Sierra Club also wrote several letters endorsing the actions taken by the West Dallas group to get their neighborhood cleaned up.

    Leaders in Alsen, on the other hand, did receive support (although late in their struggle) from several environmental groups. Rollins' proposal to burn PCBs in the Alsen incinerator had gotten the attention of several national environmental groups, including Greenpeace, Citizens' Clearinghouse for Hazardous Waste, and the National Toxics Campaign.

    Alsen residents also enlisted the support of the Louisiana Environmental Action Network (a mostly white group) and Gulf Coast Tenants Organization (a mostly African-American group). Gulf Coast has, for example, led Earth Day '"toxics marches" from New Orleans to Baton Rouge.

    The four California community groups examined in this study all had great success in getting support from and forming alliances with both grassroots and national environmental groups. Again, the level of outside support was greatest for the groups fighting new facilities proposals.

    The African-American leaders of Concerned Citizens of South Central Los Angeles found allies and built strong working relationships with a diverse set of international, national, and grassroots environmental groups. Greenpeace was the first national group to join Concerned Citizens in their fight to kill LANCER 1 (Russell 1989; Blumberg and Gottlieb 1989). Others joined later, including Citizens for a Better Environment (CBE), National Health Law Program, and the Center for Law in the Public Interest Concerned Citizens also forged alliances with two white Westside "slow-growth" groups: Not Yet New York (a coalition of environmental and homeowner groups) and the anti-incineration group California Alliance in Defense of Residential Environments (CADRE).

    Mothers of East Los Angeles lined up the support of groups such as Greenpeace, the Natural Resources Defense Council, the Environmental Policy Institute, the Citizens' Clearinghouse on Hazardous Waste, the National Toxics Campaign, and the Western Center on Law and Poverty. These allies provided valuable technical advice, expert testimony, lobbying, research, and legal assistance.

    The Kettleman City dispute attracted widespread attention and became a topic on prime-time newscasts. The local group, El Pueblo para el Aire y Agua Limpio (People for Clean Air and Water), got a lot of support from both national and grassroots environmental and social justice groups.  The dispute brought together environmental leaders of color from inside and outside California. The decision to site a hazardous waste incinerator in Kettleman City also acted as a rallying point for many environmental justice groups ranging from Greenpeace to the Albuquerque-based Southwest Network for Environmental and Economic justice (a coalition of environmental activists of color from eight states in the Southwest).

    The Richmond-based West County Toxics Coalition was founded with assistance from the National Toxics Campaign. It then got the Sierra Club (head quartered just across the Bay in San Francisco) involved in their struggle.  The San Francisco-based Citizens for a Better Environment (CBE) furnished the group with technical assistance and documentation of the local environmental problem (see the 1989 report Richmond at Risk). The report offers graphic evidence of the threat posed by polluting industries in the city's African-American and Latino communities.

    Disputes involving Native lands present special problems to conventional environmental movements. Given the long history of exploitation and genocide directed at Native Americans by whites, environmental disputes take on larger historical and cultural meanings.  However, the Good Road Coalition was able to enlist the support of Greenpeace activists and two Native-American groups (the Indigenous Environmental Network and the Natural Resource Coalition).

Organizing Tactics

    The grassroots environmental groups and their allies have used a wide range of tactics to fend off what they see as a threat to family, home, and community. The leaders have borrowed many of their tactics from the earlier civil rights movement. All of the groups have used public protest, demonstrations, petitions, lobbying, reports and fact-finding, and hearings to educate the community and intensify public debate on the dispute. In addition, leaders organized community workshops and neighborhood forums to keep local residents informed on the disputes and new developments.

    All of the grassroots groups targeted local, state, and federal governments for their direct or indirect influence in siting and enforcement decisions. For example, the leaders of Houston's Northeast Community Action Group directed their actions toward both the local and state government bodies responsible for permitting the facility.

    A number of tangible results emerged from the Houston dispute. First, the Houston City Council, acting under Intense political pressure from local residents, passed a resolution in 1980 that prohibited city-owned garbage trucks from dumping at the controversial landfill in the Northwood Manor subdivision. Second, the council also passed an ordinance restricting the construction of solid-waste sites near public facilities such as school and parks. (This action was nothing less than a form of protective zoning.) And, third, the Texas Department of Health updated its requirements for landfill permit applicants. Applications now must include detailed land-use, economic impact, and sociodemographic data on areas where proposed municipal solid waste landfills are to be sited.

    The Neighborhood Committee on Lead Pollution challenged the Dallas Health Department for its lax enforcement of the city's lead ordinance and the repeated violations by the nearby smelter. Grassroots leaders in West Dallas extended their influence beyond the neighborhood by pressuring the Dallas mayor to appoint a government-sanctioned city-wide task force (the Dallas Affiance Environmental Task Force) to address lead contamination. The impetus for the task force came from the local West Dallas group.

    The two Los Angeles neighborhood groups also sought to have the city intervene in their dispute. The LANCER dispute was injected into local city politics and became a contributing factor in both the defeat of the pro-LANCER City Council President Pat Russell and the election of environmental advocate Ruth Galanter. Concerned Citizens of South Central Los Angeles and its allies proved that local citizens can fight city hall and win. Opponents of the city-initiated incinerator project applied pressure on key elected officials, including Mayor Tom Bradley. Bradley reversed his position and asked the city council to kill the project, which had been in the planning stage since 1969 and included a commitment to contribute $12 million (Russell 1989).

    Mothers of East Los Angeles, in its struggle, targeted the South Coast Air Quality Management District (AQMD), the California Department of Health Services (DHS), and the U.S. Environmental Protection Agency (EPA)-the agencies responsible for awarding a permit for the Vernon hazardous waste incinerator project The facility was to be California's first "state-of-the-art toxic-waste incinerator.

    To block the project, Mothers of East Los Angeles and its allies arranged for more than 500 residents to attend a 1987 DHS hearing on it They pressed their demands in other public forums as well. The alliance questioned DHS's 1988 decision that allowed California Thermal Treatment Services (CTTS) to move the project forward without preparing an environmental impact report (EIR). The City of Los Angeles, MELA and others joined in a lawsuit to review the decision. The federal EPA, however, approved the permit without an EIR.

    This prompted California Assemblywoman Lucille Roybal-Allard to lead a successful fight to change the California law and require EIRs for all toxic waste incinerators. In December 1988, as CTTS was about to start construction, the AQMD decided that the company should do the environmental studies and redesign its original standards to meet the new, more stringent clean air regulations. CTTS legally challenged the AQMD's decision all the way up to the State Supreme Court and lost.

    The Coalition for Community Action (Alsen, LA) focused its attack on the Louisiana Department of Environmental Quality and its less-than-enthusiastic enforcement of air quality standards in North Baton Rouge and the African-American communities affected by emissions from the nearby polluting industries. the group also worked on getting the federal EPA more actively involved in pollution prevention efforts in "Cancer Alley."

    Richmond's West County Toxics Coalition worked to get both state and federal government agencies involved in reducing emissions from the nearby polluting industries. On the other hand, Kettleman City's People for Clean Air and Water focused its attention on the Kings County Board of Supervisors, the California Department of Health Services, and the federal EPA.

    The Native Americans who founded the Good Road Coalition appealed to their Tribal Council (the government of the sovereign Sioux Nation on the Rosebud Reservation) to rescind the contract signed with RSW to build the 6,000-acre landfill on the reservation. Tribal Chairman Ralph Moran had supported the construction. It is interesting that six of the nine grassroots groups used litigation as a tactic.  The three groups that did not were the West Dallas Coalition for Environmental Justice (its predecessor had already filed a lawsuit), Richmond's West County Toxics Coalition, and Rosebud's Good Road Coalition. All of the groups that filed lawsuits used their own lawyers. Three of them (Concerned Citizens of South Central Los Angeles, Mothers of East Los Angeles, and People for Clean Air and Water) applied to public interest law centers to file their lawsuits.

    The West Dallas and East Los Angeles groups were joined in their lawsuits by the local government: both the city of Dallas and the Texas Attorney General joined the West Dallas plaintiffs, while the city of Los Angeles joined MELA.

    Three of the neighborhood groups (the two in West Dallas and the one in Richmond) used negotiations as a dispute resolution tactic.  The West Dallas groups were able to negotiate two different cleanup plans-the first in 1984, the second in 1992.

    Richmond's West County Toxics Campaign brought in the Reverend Jesse Jackson of the National Rainbow Coalition to negotiate with Chevron, the major polluter in the community. Richmond's Mayor George Livingston helped arrange the May 7, 1990 meeting with Chevron that included representatives from the West County Toxics Coalition, the National Rainbow Coalition, and the Sierra Club. Jackson described the negotiations as a "test case, a test example, both with dangers and possibilities.' He and the West County Toxics Coalition presented Chevron with a six-point plan (Reed 1990, p. Al):
 

    Nobody knows what these negotiations will yield or how long it will take to get tangible results. Nevertheless, both sides appear willing to talk. Of course, talking about emission reduction is different from actual emission reduction. But the Coalition and its allies did get Chevron to agree not to bring in outside waste to bum at the Richmond site.  The other concrete result of the negotiations was an agreement to meet again to negotiate specifics. Nevertheless, the meeting itself represented a major community victory in that the West County Toxics Coalition finally won the right to bargain with Chevron, something local leaders had unsuccessfully attempted to do since 1987.
Resolutions and Outcomes

    These case studies demonstrate that African Americans, Latino Americans, and Native Americans are actively pursuing strategies to improve the overall quality of life in their neighborhoods. The grassroots leaders have not waited for "outsiders" or "elites" to rush to their rescue; they have taken the initiative themselves.

    As expected, the groups had more success in blocking proposed facilities than closing those already operating. The West Dallas residents were successful in shutting down the lead smelter and in winning an out-of-court settlement worth over $45 million-one of the largest awards ever in a lead pollution case in the country. It was made on behalf of 370 children-almost all of whom were poor, black residents of the West Dallas public housing project-and 40 property owners.

    The lawsuit was finally settled in June 1983 when RSR agreed to a soil cleanup program in West Dallas, a blood-testing program for the children and pregnant women, and the installation of new antipollution equipment The equipment, however, was never installed. In May 1984 the Dallas Board of Adjustments, a city agency responsible for monitoring land-use violations, requested that the city attorney order the smelter permanently closed for violating the zoning code. It had operated in the neighborhood for some 50 years without the necessary use permits.

    The 1984 lead cleanup proved inadequate. Amore comprehensive cleanup of West Dallas was begun in December 1991-20 years after the first government study of lead smelters. Some 30,000 to 40,000 cubic yards (roughly 1,800 truckloads) of lead-tainted soil are to be removed from several West Dallas sites, including schoolyards and about 140 private homes Loftis 1992). The project will cost between $3 to $4 million.  The con ted soil was originally planned to be shipped to a landfill in Monroe, Louisiana-a city that is 60 percent African-Ameiican.

    The municipal landfill in Houston, the hazardous waste incinerator in Alsen, and the petrochemical plant (and on-site hazardous waste incinerator) in Richmond are still operating. Although the three groups and their allies fell short of completely eliminating the threat by bringing about actual plant closures, they were able to extract concessions from the polluting industries in the form of capacity reduction and emission controls. In Alsen, after more than six years, a 1987 out-of-court settlement was reached between Rollins and the residents. It was reported to be worth an average of $3,000 per resident. The company was also required to reduce emissions from its facilities.

    Construction of four proposed facilities were prevented: the two waste facilities in Los Angeles (South Central and East Los Angeles), the one on Rosebud Reservation in South Dakota, and the one in Kettleman City. The two lawsuits filed on behalf of South Central and East Los Angeles residents never reached the trial or settlement stage, for the two construction proposals were withdrawn. The city-sponsored LANCER project was killed by the mayor and city council. In May 1991, CTTS decided to "throw in the towel" because the lawsuits threatened to drive up costs beyond the $4 million the company had already spent on the project (Dolan 1991).  The Vernon hazardous waste incinerator became a dead issue.

    On the other hand, the Good Road Coalition blocked plans to build the 6,000-acre landfill on the Rosebud Reservation through the electoral process. A majority of the residents voted the proposal down. In 1991, former tribal chairman Ralph Moran, who had favored the landfill proposal, was defeated in the tribal election and residents convinced the tribal council to cancel the agreement to build the facility.  The proposal was resurrected in 1992 in yet another offer to the tribal council by RSW. Again, the plan was rejected by the council.

    Although part of the lawsuit involving the Kettleman City incinerator dispute is still pending, People for Clean Air and Water won a major victory in delaying construction. A superior courtjudge in January 1992 overturned the Kings County Board of Supervisors' approval of the Kettleman City incinerator, citing its detrimental impact on air quality in the agriculture-rich Central Valley of California.

    The judge ruled that Kings County's environmental impact report was inadequate and that county leaders had failed to involve the local residents in the decision by not providing Spanish translations of material about the project. This court ruling represents a victory since the waste-disposal company must now begin the permit process all over again if it is still interested in siting the facility.

Conclusion

    The mainstream environmental movement has proven that it can help enhance the quality of life in this country.  The national membership organizations that make up the mainstream movement have clearly played an important role in shaping the nation's environmental policy.  Yet, few of these groups have actively involved themselves in environmental conflicts involving communities of color. Because of this, it's unlikely that we will see a mass influx of people of color into the national environmental groups any time soon. A continuing growth in their own grassroots organizations is more likely. Indeed, the fastest growing segment of the environmental movement is made up by the grassroots groups m communities of color which are increasingly linking up with one another and with other community-based groups. As long as U.S. society remains divided into separate and unequal communities, such groups will continue to serve a positive function.

    It is not surprising that indigenous leaders are organizing the most effective resistance within communities of color.  They have the advantage of being close to the population immediately affected by the disputes they are attempting to resolve.  They are also completely wedded to social and economic justice agendas and familiar with the tactics of the civil rights movement.  This makes effective community organizing possible. People of color have a long track record in challenging government and corporations that discriminate. Groups that emphasize civil rights and social justice can be found in almost every major city in the country.

    Cooperation between the two major of the environmental movement is both possible and beneficial, however. Many environmental activists of color are now getting support from mainstream organizations in the form of technical advice, expert testimony, direct financial assistance, fundraising, research, and legal assistance. In return, increasing numbers of people of color are assisting mainstream organizations to redefine their limited environmental agendas and expand their outreach by serving on boards, staffs, and advisory councils. Grassroots activists have thus been the most influential activists in placing equity and social justice issues onto the larger environmental agenda and democratizing and diversifying the movement as a whole. Such changes are necessary if the environmental movement is to successfully help spearhead a truly global movement for a just, sustainable, and healthy society and effectively resolve pressing environmental disputes. Environmentalists and civil rights activists of all stripes should welcome the growing movement of African Americans, Latinos, Asians, Pacific Islanders, and Native Americans who are taking up the struggle for environmental justice.