Policy Implementation and the Environmental Protection Agency: What Factors Influence Remediation at Superfund Sites?

Since the early 1990s, the Environmental Protection Agency (EPA) has struggled to make Superfund, the program that addresses the nation's worst hazardous waste sites, "faster, fairer, and more efficient." Indeed, agency figures reflect substantial changes in recent years. Since 1993, over 500 Superfund sites have reached the "construction completion" stage in remediation. Comparatively, in the program's first 13 years, only 156 sites reached construction completion. This article explores why some Superfund sites are more likely to be remediated than others. We use survival analysis to empirically test three theoretical models of Superfund remedial progress: (1) Administrative Convenience/Transaction Costs; (2) Problem Severity; and (3) Political Pressure models. The results indicate that the EPA is more likely to tackle "easier" or low-risk sites within the program, community involvement in Superfund is associated with decreased remedial progress, and remedial action is more likely to occur when political oversight is present.     

NEIGHBORHOOD DYNAMICS AND PRICE EFFECTS OF SUPERFUND SITE CLEAN‐UP*

ABSTRACT Numerous hedonic price analyses estimate price effects associated with hazardous waste site remediation or other environmental variation. This paper estimates a neighborhood transition model to capture the direct price effect from Superfund site clean‐up and the indirect price effects arising from residential sorting and changes in investment in the housing stock following clean‐up. First‐difference models of neighborhood change and a national sample are used. This approach fails to find consistent positive direct price effects. Positive indirect effects, however, may arise through residential sorting and neighborhood investment spurred by remediation. The findings can be sensitive to policy endogeneity and model specification.     

Voluntary Approaches to Environmental Problems: Exploring the Rise of Nontraditional Public Policy

Government reliance on voluntary programs represents a significant shift in public policy: moving from command and control regulations to market based mechanisms. This article explores the determinants of Voluntary Remediation Programs (VRPs) in the American States. During the 1980s and 1990s, 44 states adopted VRPs to facilitate remediation of existing hazardous waste sites. Relying on diffusion of innovation theory, I develop a model of state policy adoption that explores the influence of internal state political and economic factors, as well as testing the influence of regional and top‐down diffusion forces. I utilize a discrete‐time event history approach to test this model. The results indicate that state policymaking is responsive to interest group pressure and the pace of cleanup at hazardous waste sites. Additionally, state policymaking is consistently influenced by the actions of surrounding state governments; the probability of adopting a voluntary program increases if surrounding states have already developed these policies.     

"Indirect Regulation" of Environmental Hazards Through the Provision of Information to The Public

Title III of the Superfund Amendments and Reauthorization Act of 1986 seeks to reduce the risks of chemical accidents through a strategy of indirect regulation that relies on providing the public with information about chemical hazards. For this strategy to be effective, citizens must aggressively utilize the information provided to monitor industrial practices and press for risk reduction. Since prior research suggests it is very difficult to evoke the degree of citizen action that would be required to make a strategy of indirect regulation successful, and since the federal legislation provided no funds for implementation, there is a question of whether the structures set up by Title III are sufficient to achieve its objectives. This article reports the results of anational study that examined selected aspects of the implementation of Title III in an effort to assess the likely outcome of its attempt at indirect regulation. Our focus is on the degree to which the Title III-mandated Local Emergency Planning Committees are pursuing policies that are likely to get the necessary information to citizens and foster community debate on hazardous materials issues.     

Coming Through a City Near You: The Transport of Hazardous Wastes

Current figures (compiled in 1995) indicate that hazardous waste transporters (19,567 in number) ship approximately 16 million tons of hazardous waste annually in the United States (United States Environmental Protection Agency, 1995). While some state and local governments have enacted hazardous waste transport regulations for the protection of their citizens, the federal government has had primacy in initiating and setting the course of hazardous waste transport regulation. As a result, the predominant perspective on hazardous waste transport has been technical in orientation. This paper identifies and discusses how this technical perspective and the social perspective differ and what the consequences are for government policies and actions regarding hazardous waste transport.     

All Hazardous Waste Politics is Local: Grass-roots Advocacy and Public Participation in siting and Cleanup Decisions

The combined effects of federalism and interest group pluralism pose particularly difficult problems for hazardous waste siting and cleanup decisions. Most national environmental groups have only limited involvement in local hazardous waste politics, while local grass-roots advocates have very different interests and sometimes are pitted against one another. Both the Environmental Protection Agency and the Department of Energy recently have begun to use site-specific citizen advisory boards at cleanup sites. This approach appears to improve communications at some sites, but does not address the issues of "not in my back yard" politics and alleged inequitable exposure to hazardous wastes.     

LOCAL LAND POLICY OVERRIDES: WHEN ARE THEY APPROPRIATE?

The state has the power both to enable local communities to regulate land usage, as well as to override local jurisdictions' zoning policies. In Massachusetts, two pieces of legislation have empowered the state to override local land use control for the purpose of constructing two types of facilities: low and moderte income housing and hazardous waste treatment facilities. Both initiatives have stimulated considerable debate and controversy. This paper provides a framework or “test” for understanding the relative appropriateness of state overrides in general. In addition, the two Massachusetts case are discussed and analyzed according to these criteria.     

VALUING ENVIRONMENTAL QUALITY: A SPACE‐BASED STRATEGY*

ABSTRACT This paper develops and applies a space‐based strategy for overcoming the general problem of deriving the implicit demand for nonmarket goods. It focuses specifically on evaluating one form of environmental quality, distance from Environmental Protection Agency designated environmental hazards, via the single‐family housing market in the Puget Sound region of Washington State. A spatial two‐stage hedonic price analysis is used to: (i) estimate the marginal implicit price of distance from air release sites, hazardous waste generators, hazardous waste handlers, superfund sites, and toxic release sites; and (ii) estimate a series of implicit demand functions describing the relationship between the price of distance and the quantity consumed. The analysis, which represents an important step forward in the valuation of environmental quality, reveals that the information needed to identify second‐stage demand functions is hidden right in plain sight—hanging in the aether of the regional housing market.     

Policy Influence and Policy Responsiveness in State Pollution Control

This article develops an integrated theory of state policy influence and responsiveness, then operationalizes this theory to account for variations in the strength and scope of state water pollution control and hazardous waste management programs. The analysis finds that economic, ideological, interest group, and political system characteristics act in concert to affect state policymaking, and that the influences behind policymaking vary systematically and predictably across policy areas within environmental protection.     

Hazardous Waste Site Cleanup and Neighborhood Redevelopment: An Opportunity to Address Multiple Socially Desirable Goals

The United States' hazardous waste site remediation programs are being challenged for lacking cost-effectiveness. We argue that these expensive programs will be more cost-effective and viable politically if economic and social analyses are included explicitly in risk analyses. Using data from surveys of people living within one-half-mile of seven hazardous waste sites, we show that some neighborhoods offer the opportunity for joint site remediation and neighborhood redevelopment programs. Mechanisms are suggested that would permit the United States Environmental Protection Agency to implement neighborhood environmental and redevelopment programs.     

ALTERNATIVE LEVELS OF ANALYSIS IN HAZARDOUS WASTE REGULATORY POLICY

The articles in this collection serve to illustrate that problems of hazardous waste disposal are amenable to analysis from a variety of theoretical perspectives. Understanding the interplay between high-risk policy problems, changing political and economic circumstances, and actions taken by political actors with a stake in decisional outcomes should yield information of substantial value to public administrators as well as students of the public policy process.     

ENVIRONMENTAL POLICY AND COMPETITIVE STRUCTURE: IMPLICATIONS OF THE HAZARDOUS WASTE MANAGEMENT PROGRAM

The Resource Conservation and Recovery Act of 1976 (RCRA) assigns the Environmental Protection Agency responsibility for protecting the public from hazards created by industrial wastes. The Agency has understandably used its mandate to construct cradle to grave regulation of waste substances that pose health hazards. The regulations, however, are likely to hike costs of legal disposal by increasing the demand for disposal sites, while at the same time reducing the supply. The higher cost of disposal may give an advantage to larger, existing firms, may deter entry of new firms to both waste generating and disposal industries, and promote illicit disposal. RCRA therefore may have the paradoxical result of increasing public exposure to hazardous wastes.     

MUNICIPAL WASTE RECYCLING IN BRANDON, MANITOBA: DETERMINANTS OF PARTICIPATORY BEHAVIOUR

The municipal waste disposal crisis has received considerable public attention in recent years, particularly as it has become increasingly difficult, both financially and politically, to dispose of the steadily growing volume of waste. With municipalities under pressure to find acceptable alternatives to the traditional forms of refuse disposal - landfilling and incineration - the recycling of household waste has been advocated by policy makers and some environmentalists as a possible solution. The purpose of this study is to examine the factors influencing the collection and disposal of household recyclables, as well as the effectiveness of institutional strategies to induce residents' participation in such a program. The study area is the city of Brandon, Manitoba, a settlement of some 40 000 people, 210 kilometres west of Winnipeg. To obtain a representative overview of the recycling behaviour of the population, three groups totalling a sample of 490 respondents, were investigated. Two of these groups were made up of people who actively recycle, and the third constituted a control group made up of those who do not engage in recycling activities. An overview of the municipal initiatives in Brandon, and an analysis of the data collected in the study, as well as statistics available on recycling programs from other sources, indicate that the recently introduced services and facilities have contributed to make significant qualitative changes but with limited success in dealing with the real magnitude of the solid waste problem. It is suggested that the goals of the various strategies have been established, but there is currently little incentive -apart from personal satisfaction - for residents to participate. This would seem to explain the limited success, in quantitative terms, of the programs to date     

Policy Gridlock in Waste Management

Current federal hazardous and low-level radioactive waste management policies (under conjoint federalism) fail to balance national concerns for consistency with state concerns for equity, discretion, and adequate resources. Congress should expand conjoint federalism to permit states to charge differential fees on imported hazardous waste as it does for low-level radioactive waste. For low-level radioactive waste, clarification of the "take title" issue makes the present framework for state discretion implementable, given sufficient time.     

The Geography of Knowledge Transfer and Innovation in Biotechnology: The Cases of Scotland,Sweden and Denmark1

This paper addresses themes at the heart of policy debates on innovation systems and concentrates on the process of progressive transformation that has been affecting the therapeutic and diagnostic sectors as a result of the application of molecular biology. The focus is on the relationship between firms' locational choices, innovation policy and industrial dynamics. The issue of knowledge transfer is explored and the discussion addresses the theoretical controversy between two contrasting approaches: while some describe open networks and collaboration as means of enhancing competences for learning, others argue that, as intellectual assets are protected by property rights, knowledge adheres to specific locations mainly as a consequence of scientists' immobility. Then it is assessed whether knowledge transfer, in its different forms, is prevalently local or tends to occur on a global scale. Finally, the perceived effectiveness of some policy measures directed to enhance connectivity among players holding complementary knowledges is examined. Countries such as Sweden, Denmark and Scotland, who have pioneered the implementation of cluster thinking in Europe, provides an ideal setting to conduct this empirical study.     

Acting on the Hill: Congressional Assertiveness in U.S. Foreign Policy

A controversy has developed in recent years pitting those who see a resurgent Congress in U.S. foreign policy against those who argue that Congress remains largely acquiescent and uninvolved. This article addresses the disagreement, using a database of congressional foreign policy activity from 1946 to 1997 to weigh the competing claims. Our results show that congressional foreign policy activity has declined over the post-World War II era while congressional foreign policy assertiveness, relative to the administration's requests, has increased during this same period. Congress is thus less active but more assertive. Based on these results, we offer a two-dimensional model of congressional foreign policy behavior that better reflects the variety of congressional roles in U.S. foreign policy.     

Perceived Risk and Citizen Preferences for Governmental Management of Routine Hazards

Risk perceptions are important to the policy process because they inform individuals’ preferences for government management of hazards that affect personal safety, public health, or ecological conditions. Studies of risk in the policy process have often focused on explicating the determinants of risk perceptions for highly salient, high consequence hazards (e.g., nuclear energy). We argue that it is useful to also study more routinely experienced hazards; doing so shows the relevance of risk perceptions in individuals’ daily lives. Our investigation focuses on the impact perceived risk has on citizens’ preferences over hazard management policies (as distinct from identifying risk perception determinants per se). We use a recursive structural equation model to analyze public opinion data measuring attitudes in three distinct issue domains: air pollution, crime, and hazardous waste storage and disposal. We find that citizens utilize perceived risk rationally: greater perceived risk generally produces support for more proactive government to manage potential hazards. This perceived risk–policy response relationship generally holds even though the policy options respondents were asked to consider entailed nontrivial costs to the public. The exception seems to be when individuals know less about the substantive issue domain.     

Backyard Protest: Emergence, Expansion, and Persistence of a Local Hazardous Waste Controversy

The toxic waste dispute that is the subject of this article points out one of the troubling ironies of the modem environmental movement. Many groups and individual activists who promoted a national response to the discovery of thousands of toxic waste sites over a decade ago are now leading the struggle to prevent government-sponsored cleanups. This case study examines the evolution and dynamics of one community's pollution controversy, and then attempts to explain the way in which marginalized environmentalists were able to redefine the toxics debate. Finally, it shows how heal resistence to waste cleanups may shape the next round of environmental policymaking.     

Time,Waste, and the City: The Rise of the Environmental Industry

In many US cities, especially those in the Rust Belt, the environmental goods and services (EGS) industry has played a significant role in restructuring local economies to promote new, flexible, and “creative” forms of service‐based labour. And yet much of the environmental work conducted in these cities has been directed at an industrial past, cleaning up the waste left over from long‐departed manufacturing sectors. Returning to David Harvey's earlier work on the urban process, this paper develops a theory of waste switching that situates EGS within a larger renegotiation of space and time across city landscapes. This theory is fleshed out in case studies of the EGS industry in Baltimore, Pittsburgh, and Milwaukee, where new cycles of accumulation have been built on refuse, toxins, and dead labour. These “toxi‐cities” and their cleanup challenge traditional conceptions of urbanisation as spatially—but also temporally—bounded.     

The Politics of Environmental Risk: Perceptions of Risk Assessment in the State Legislatures

As state governments increasingly turn to the process of quantitative risk assessment to set environmental policy, the question of what state lawmakers know and believe about risk and the risk assessment process has become critical. The perceptions of state legislators may affect their decisions about a wide range of environmental conflicts, from funding water treatment facilities to siting hazardous waste incinerators. This article reports the results of a nationwide survey of state legislators and their staff that explored their intuitive understanding of environmental risk and risk assessment. The survey revealed strong support for the use of risk assessment by most state lawmakers, but significant differences, by gender and political affiliation, in perceptions of the risks from chemicals, the value of risk assessment for setting environmental policies, and the environmental risks faced by racial minorities.