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Understanding the Implementation of Oregon's Environmental Justice

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Understanding the Implementation of Oregon's Environmental Justice Understanding the Implementation of Oregon’s Environmental Justice Statute by Polina Osipova MPP Essay Submitted to Oregon State University in partial fulfillment of the requirements for the degree of Master of Public Policy Presented November 27, 2018 Commencement June 2019 Master of Public Policy essay of Polina Osipova presented on November 27, 2018 APPROVED: Lori A. Cramer, representing Sociology Kelsy N. Kretschmer, representing Sociology Amy Below, representing Political Science Polina Osipova, Author 2 Acknowledgements I am sincerely grateful to my major advisor Dr. Lori Cramer, for her guidance and mentorship during this project. Her patience and kindness in working with me helped see me through to the end. I am also grateful to my committee members Dr. Kelsy Kretschmer and Dr. Amy Below for their insightful feedback and encouragement. In addition, I want to thank Dr. Brent Steel for believing in me and creating a wonderful learning environment. Many other faculty members have graciously offered their help and advice along the way and deserve my thanks as well. I owe a debt of gratitude to the agency employees who participated in my interviews and Environmental Justice Task Force members who responded to my questions and helped steer me in the right direction. This work would not have been possible without the time and thoughtfulness generously given by these dedicated public servants. Finally, I would like to thank my family and friends. My fellow graduate students have been a major source of strength and inspiration. I am also grateful to the Murnane, O’Connor, and Osipov families for listening and sharing their wisdom and for always supporting me in everything I do. Most of all, thank you to my partner Daniel Murnane for being with me every step of the way. 3 Abstract The environmental justice (EJ) movement has succeeded in achieving policy change across different levels of government, however, there has been relatively little research to date on the implementation of environmental justice policies at the state level. The state of Oregon provides an opportunity to understand how state-level EJ policies are being implemented. In 2007, SB 420 established Oregon’s Environmental Justice Task Force and environmental justice guidelines for the state’s natural resource agencies. This research seeks to answer questions of how the state agency employees tasked with implementing the environmental justice statute perceive their roles and the progress made under the statute. Semi-structured interviews with state agency employees and publicly-available documents were analyzed using the environmental justice frame and organizational theory. Findings indicate that there is a range of interpretations on the part of agencies to the statute. This work can help inform environmental justice advocacy, policymaking, and policy implementation in Oregon and other states. 4 Table of Contents 1. Introduction ........................................................................................................................................... 7 1.1 Overview of the Research Project ....................................................................................................... 7 1.2. Oregon’s EJ Statute ............................................................................................................................ 8 2. Literature Review ................................................................................................................................ 11 2.1. What is Environmental Justice? ....................................................................................................... 11 2.2. Social Movements and Organizations .............................................................................................. 12 2.3. The Environmental Justice Movement ............................................................................................ 14 2.4. Directions in EJ Research ................................................................................................................ 18 2.5. The Environmental Justice Frame .................................................................................................... 19 2.6. Environmental Justice Policy Implementation ................................................................................ 22 2.7. Environmental Justice in Oregon ..................................................................................................... 27 3. Research Questions ............................................................................................................................. 33 4. Methods............................................................................................................................................... 34 4.1. Interviews ......................................................................................................................................... 34 4.2. Document Analysis .......................................................................................................................... 37 4.3. Direct Observation ........................................................................................................................... 39 5. Results ..................................................................................................................................................... 39 5.1. Document Analysis .......................................................................................................................... 39 5.1.1. Best Practices Handbook. ......................................................................................................... 40 5.1.2. Annual reports and meeting minutes......................................................................................... 42 5.2. Interviews ......................................................................................................................................... 48 5.2.1. The citizen advocate role. ......................................................................................................... 48 5.2.2. Environmental justice. .............................................................................................................. 50 5.2.3. Institutional conditions. ............................................................................................................. 52 5.2.4. Institutional changes from the statute. ...................................................................................... 63 6. Discussion ............................................................................................................................................... 65 Research Q1: How do Citizen Advocates Describe Their Positions? ..................................................... 65 Research Q2: How do Citizen Advocates Understand Environmental Justice? ..................................... 67 Research Q3: What are the Institutional Conditions within which Citizen Advocates Work? ............... 68 7. Policy Recommendations ........................................................................................................................ 74 8. Limitations .............................................................................................................................................. 77 9. Future Research ...................................................................................................................................... 79 10. Conclusion ............................................................................................................................................ 81 References ................................................................................................................................................... 82 5 Appendices .................................................................................................................................................. 91 Appendix A: Acronyms .......................................................................................................................... 91 Appendix B: ORS 182.535-183.550 (The “EJ Statute”)......................................................................... 92 Appendix C: Interview Protocol ............................................................................................................. 95 Appendix D: List of Documents ............................................................................................................. 96 Appendix E: Codebook ........................................................................................................................... 99 6 1. Introduction 1.1 Overview of the Research Project The environmental justice movement (EJM) emerged in the late 1970s-early 1980s in response to disproportionate harmful environmental impacts on communities of color and low-income communities, and a lack of focus on these issues from the mainstream environmental movement. In spite of wide-reaching policy change, scholars have found little evidence of progress on reducing disparities and improving living conditions for disadvantaged communities. After over twenty years of existing federal as well as some state Environmental Justice policies, environmental harms such as exposure to hazardous waste and pollution, and benefits such as access to green spaces are still unequally distributed along racial and class lines (Bullard, Mohai, Saha, &Wright, 2008; Pulido, Kohl, & Cotton,
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