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The work that provided the basis for this publication was supported by funding under an award with the U.S. Department of Housing and Urban Development. The substance and findings of the work are dedicated to the public. The author and publisher are solely responsible for the accuracy of the statements and interpretations contained in this publication. Such interpretations do not necessarily reflect the views of the Government. This is a Working Document that has been approved by the Working Group and the Executive Committee. Working Documents provide information and recommendations that guide the on-going discussions and preparation of the final plan; these are not final plan documents. Once the draft final plan has been prepared, it will brought to the public through various outreach activities and reviewed by the various planning committees before the Executive Committee votes on adopting as the Final Plan for Opportunity.
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The Plan for Opportunity The Plan for Opportunity is a collaborative planning project intended to guide the economic growth and development of the Mississippi Gulf Coast and to improve housing, employment and transportation opportunities throughout the region. The three year planning process will be guided by the Constituency for a Sustainable Coast (CSC), a stakeholder working committee including city and county leadership, key community and public partners, and residents of the region. The air quality subcommittee is charged with examining how the region’s air quality involved with increasing economic competitiveness, supporting existing communities, leveraging federal investment and valuing communities and neighborhoods. To support the work of the air quality subcommittee, this stakeholder analysis has been undertaken to understand the many contributing factors that affect the region’s air quality and important perspectives on the challenges and opportunities facing the region’s air quality.
Introduction A stakeholder assessment was conducted to gain local knowledge into relevant resources, challenges, and opportunities for the air quality of the Mississippi Gulf Coast. To simplify the stakeholder assessment, stakeholders were looked at and grouped by their level of impact on air quality. Stakeholders throughout the Mississippi Gulf Coast area—mobile sources (on-road vehicles, boats and personal watercraft), stationary sources (manufacturers, energy providers, ports, airports and waste disposal) and indoor air quality (residents, employers and schools)—were interviewed between June and August 2013 to compile a comprehensive understanding of the Gulf Coast’s current air quality conditions and their future needs and desires. This analysis summarizes efforts to engage in discussions around air quality as part of The Plan for Opportunity. Based on stakeholder engagement, it is clear that the people of the Mississippi Gulf Coast are not particularly concerned with air quality. When the region was close to being considered as a non-attainment region in 2008, there was an increase in the public’s awareness of issues related to air quality and stakeholders were encouraged ways to reduce emissions and ensure that the region remained in attainment. This incident created an opportunity for the region to engage in
a dialogue around the importance of air quality to the region and how the region wishes to address it in the future. These types of conversations have decreased since the declaration of attainment in 2008. The ideas, perceptions and comments are those of the stakeholders and may not be factual.
Purpose The goal of the engagement effort was to understand the issues surrounding air quality on the Gulf Coast and to look at how stakeholders affect and are impacted by air quality. The Mississippi Gulf Coast’s air quality issues present a particular complexity due to the meteorology and topology of the Gulf Coast and its proximity to the Gulf of Mexico. Individuals and organizations directly involved in and affected by the region’s air quality are the best sources to explain the issues and opportunities affecting the air quality of the Mississippi Gulf Coast. These stakeholders provided insight into understanding the data included in the Mississippi Gulf Coast Air Quality Assessment. They also provided the context for the air quality element within The Plan for Opportunity, detailing changes throughout the region, future challenges, and future opportunities.
Methodology The first step in understanding the region’s air quality was to concentrate on the relationships between mobile pollution sources, such as automobiles and trucks, and the region’s air quality. Meetings were held with representatives from the Mississippi Department of Environmental Quality, transportation and land use planners and advocacy groups for alternative transportation modes. These individuals provided insight regarding how the region’s air quality is impacted by mobile sources. The second step was to identify the stationary sources who contribute to the region’s emissions. Stakeholders involved at this level include manufacturers, energy providers, the ports, airports and waste disposal sites. The third step identified the ways that residents of the coast are impacted by air quality, primarily their exposure to poor indoor air quality in the home, the workplace or school. Stakeholders were contacted to identify data for the
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assessment and to gather public opinion on critical needs to be addressed. The air quality subcommittee also provided contact information for additional stakeholders. Stakeholder interviews and meetings were set up via phone and email from early June through late July and were conducted during the same time frame. Later interviews and follow-up meetings were held the week of August 8-18, 2013. During the interviews, stakeholders were asked to explain how they are affected by the region’s air quality and how their activities impact the air quality of the Gulf Coast. In addition, stakeholders were questioned about the potential for the Gulf Coast to be declared as a non-attainment region in the future as EPA enacts more strict ozone standards. Besides considering what problems they faced, stakeholders also were asked to identify their needs, goals, desires, future challenges, and opportunities throughout the Mississippi Gulf Coast region.
Findings Results of this analysis are organized by the stakeholders’ involvement in air quality issues, ranging from those who impact the region’s air quality as a mobile source or stationary source, and the places where residents are impacted most by poor air quality. In general, all residents of the coast are impacted by the region’s air quality. While there are overarching topics that broadly cover each stakeholder, there are also groups of stakeholders who are affected by air quality issues due to their involvement in transportation, housing and land-use decisions on the coast. We acknowledge many stakeholders fall into one or more categories, for the organization of this report; we identified one category of which we felt represented the stakeholder.
Mobile Sources Air pollution in the United States comes from many types of engines, industries, and commercial operations. Pollution sources that move, such as passenger vehicles, freight trucks, construction and industrial equipment and trains, are known as “mobile sources.” Vehicle travel results in emissions of pollutants that are harmful to human health. Carbon monoxide (CO), Sulfur Oxides (SOx), Nitrogen Oxides (NOx), Volatile Organic Compounds 4
(VOC), and particulate matter (PM) are all emitted directly from the exhaust of vehicles during daily travel. Factors that affect the amount of emissions from motor vehicles include the number of trips made by passenger cars in everyday travel, the number of vehicle miles traveled by those cars and traveling speed and idling time. On-Road Vehicles On-road vehicles are one of the most obvious targets for reducing mobile source emissions on the Gulf Coast. Discussions with stakeholders involved in land use and transportation planning have demonstrated a need for better transit options on the coast as well as alternative forms of transportation. Land-use and housing decisions are also particularly relevant to the region’s air quality. After Katrina, many residents moved further north, causing a dispersal of population on the Coast. This causes residents to have to travel further to work and for personal trips. Land-use and transportation planners on the Coast have emphasized a need for better transit options for residents on the Gulf Coast, as well as targeting development in areas that are already nodes of activity. Personal Boats and Watercraft Personal boats and watercraft also contribute to mobile source emissions on the Gulf Coast. MDEQ has created a grant program that will help users retrofit their boats and watercraft with cleaner engines and equipment. This program is called the Mississippi Diesel Emission Reduction Sub-grant Program and it is a competitive sub-grant process in which entities apply for funding by submitting an application following a request for proposals. Projects that could be implemented included engine repowers, engine upgrades, engine replacement, retrofitting of equipment, cleaner fuels, or idle reduction technologies. This is of particular importance on the Coast as the lifespan of a boat or watercraft engine can be decades. While the EPA has established more stringent standards on exhaust emissions for newly manufactured boats and watercraft, this applies only to new boats and will only take effect once a user replaces their watercraft.
Stationary Sources A stationary source is any place or object from which pollutants
are released, such as a power plant, factory, or other machines. Mobile sources move (e.g., cars and buses), while stationary sources do not (e.g., factories). Some of the major contributors to air pollution are power plants, manufacturing, refinery, airports, and landfills. Manufacturing Manufacturing plants employ over 20,000 people on the Mississippi Gulf Coast. These factories and plants are stationary sources and must install pollution control equipment and meet specific emission limits under the Clean Air Act. Discussions with representatives from the Mississippi Manufacturers Association have helped identify the particular air quality issues that manufacturers face on the Gulf Coast. Many manufacturers on the Gulf Coast are very active in community outreach on environmental issues because of the negative connotations they face. Despite the potential for EPA to enact more strict emissions standards, many manufacturers will not voluntarily reduce emissions and will wait until they are required by a federal mandate. Most upgrades that plants will make are in reaction to a regulation or a proposed regulation that they feel will be passed soon. Overall, manufacturer attitudes on the Gulf Coast focus on doing just what is required to comply with federal mandates on emissions. While some manufacturers are more proactive, the majority will do just what is required by federal law. In addition, most of the regulations that are proposed and passed are challenged in court, delaying their enactment. In addition to emissions generated by the plant itself, manufacturers also generate single-occupancy vehicle trips and result in additional vehicle miles traveled. In the federal Internal Revenue Service (IRS) code there are tax incentives for companies to set up park and ride or vanpools, however, Mississippi has been unable to pass that legislation because the Mississippi code doesn’t conform to the IRS code. The state of Mississippi is still predominately rural and it often isn’t feasible to have park and ride or vanpool programs. On the Mississippi Gulf Coast, it is also common to have an employee commute 60 miles or more to work. Ingalls Shipbuilding currently has a park and ride program with the Coast Transit Authority (CTA). For most employers it is tough,
economically, to have the economies of scale to make a park and ride or vanpool program work. Moving legislation through for tax incentives would be beneficial in encouraging employers to start a park and ride or vanpool program, however it is difficult to move this legislation through due to the fact that there are so few companies with programs in Mississippi and it would be difficult to see what this type of incentive would cost the state. Energy The supply and use of energy in the community has a significant impact on air quality. Air pollution emissions, including greenhouse gases, are associated with the generation of electricity to light, heat and cool buildings and power vehicles, and the combustion of natural gas primarily to heat structures. There are currently two power plants on the Gulf Coast that supply the region with electricity. Mississippi Power Company (part of Southern Power) is the supplier of electricity for the Gulf Coast. As a result of the Environmental Protection Agency (EPA) Mercury and Air Toxics Standards (MATS), Mississippi Power is currently installing scrubbers on its Harrison County plant, Plant Daniels. Mississippi Power must have any projects or expansions approved by the Mississippi Public Service Commission. The commission will not approve any emissions projects unless there is a regulatory driver for the project in order to keep consumer electricity costs low. Mississippi Power is also constructing a coalgasification plan in Kemper County that will take advantage of United States Department of Energy funding and incentives. This plant will help with growing demand and the aging infrastructure of old plants. While the construction of this plant is taking advantage of federal incentives, it is a proactive response to the EPA MATS which will go into effect in 2015. After MATS goes into effect, the other coastal coal-fired plants will be used only to burn natural gas and the Kemper County plant will be used for burning coal. One of the difficulties power companies on the Gulf Coast face as it relates to lowering emissions and installing emission controlling technologies is that their actions must be approved by the state public service commission. The public service commission is composed of elected officials who must prioritize
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consumer costs in order to get reelected. Ports The Mississippi State Port is located in Gulfport and can serve two-thirds of the U.S. market. Operating at limited capacity in the aftermath of Hurricane Katrina, the Port handled more than two million tons and 200,000 containers. The Port is the third busiest in the U.S. Gulf of Mexico. The Mississippi State Port Authority at Gulfport is undertaking a process to rebuild and restore the damage to its facilities wrought in 2005 by Hurricane Katrina. The port is critical to the economic well-being and diversity of the Gulf Coast, as well as the entire state of Mississippi. Peak capacities at other ports in the region, the expansion of the Panama Canal and shifting international trade patterns all present opportunities for future growth. The Mississippi State Port at Gulfport is currently undergoing an expansion project that hopes to deepen the Gulfport channel from 36 to 45 feet. The expansion plan will also include some key environmental components such as finding a beneficial use for dredged materials; effectively utilizing technology to reduce air pollution; and developing a design that provides stormwater holding ponds and is aesthetically pleasing. In addition to the Mississippi State Port at Gulfport, there are also two other ports on the Gulf Coast – Port Bienville and the Port of Pascagoula – which are both located on the Gulf Coast and handle cargo traffic. One challenge the Gulf Coast ports face is the issue of idling ships while docked at port. It is standard operating procedure for ships to leave their diesel engines running the entire time they are at port. This problem can largely be alleviated by plugging docked ships into the local electrical grid. In addition, power companies on the Coast have mentioned that the cranes at the ports are also diesel fired, and these could be powered by the existing electrical grid at the port. Airports
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There are six public airports in the Mississippi Gulf Coast region, including commercial facilities and general aviation facilities. Gulfport-Biloxi International Airport (GPT) is served by five national airlines – American Airlines, Delta, United, US Airways
and Vision Airlines – as well as being served by all-cargo airlines. Commuter service is able at several other regional airports. Gulfport-Biloxi International Airport has received a grant from the Federal Aviation Administration (FAA) to complete a sustainability management plan. This plan will include a greenhouse gas emission inventory, and an energy inventory analysis and audit. One project that will be completed as a result of this sustainability management plan is an upgrade of the emergency back-up generators. This will help the airport in meeting EPA requirements to reduce emissions from electrical generators. One opportunity for the Gulfport-Biloxi International Airport is the Voluntary Airport Lower Emissions (VALE) grant program through the FAA. The airport and the consultants who they have contracted to complete the sustainability management plan are interested in applying for VALE funding, although they do not currently have any applications in for the grant. Waste Disposal Solid waste landfills must be designed to protect the environment from contaminants which may be present in the solid waste stream. The landfill siting plan—which prevents the siting of landfills in environmentally-sensitive areas—as well as on-site environmental monitoring systems—which monitor for any sign of groundwater contamination and for landfill gas— provide additional safeguards. In addition, many new landfills collect potentially harmful landfill gas emissions and convert the gas into energy. One issue facing the Mississippi Gulf Coast is the process of backyard burning of trash. The burning of waste is also detrimental to the health of those nearby and the environment. Trash typically burned can include paper, cardboard, food scraps, plastics, and yard trimmings-essentially any materials that would otherwise be recycled or sent to a landfill. The backyard burning of trash can increase the risk of heart disease, aggravate respiratory ailments such as asthma and emphysema, and cause rashes, nausea, or headaches. While the burning of trash is prohibited within the city limits, rural areas are still susceptible to this pollution. One challenge facing the Gulf Coast is the regulation of burning in unincorporated areas.
Indoor Air Quality Surveys Between August 8th and August 18th, 2013 door-to-door surveys were conducted of residents of the Gulf Coast in order to determine the extent to which residents experience poor indoor air quality and their understanding of air quality issues in the home, school and workplace. A total of 125 residents were surveyed on their indoor air quality. Of the residents surveyed, 60 percent were concerned about the effects of air quality on their health. Most find that poor air quality makes it difficult for them to breath and many find that poor indoor air quality may contribute to their allergies, especially in the summer. Of the residents surveyed 77 percent do not believe that their homes have any indoor air quality issues, however 30 percent of the residents surveyed have seen mold in some room or area of their home. When surveying residents, the team asked about their use of household products in the home. Residents were asked whether or not they use various household products such as cleaners, disinfectants, aerosols, paints or pesticides without proper ventilation (i.e. opening a window or using a fan). Overall, most residents do use proper ventilation when using these products but of these products, cleaners and disinfectants were the most popular product to be used without proper ventilation. The indoor air quality survey was intended to identify whether or not residents of the Mississippi Gulf Coast are suffering from poor air quality, as well as educate them on things they can do to improve the air quality of their home. Residents were also asked whether or not they have a child
Indoor/Outdoor Air Quality The U.S. EPA estimates that ninety percent (90%) or more of each day is spent in our home, school, workplace, or car. While efforts to reduce air pollution typically focus on outdoor air, there are many pollutants indoors that deserve equal attention and action. The U.S. EPA estimates that indoor air can be two to five times more polluted than outdoor air. The elderly, the very young, pregnant women, and those with allergies, asthma and other respiratory ailments are often the first to notice indoor air pollution problems. In fact, indoor air pollution is among the top
who attends school in the region, or if they themselves attend a post-secondary institution in the region. Residents were asked whether or not the school has an air quality program to alert students about ozone action days. Of those who were surveyed, most did not believe their school has a program or didn’t know if the school has a program. Seventy-two percent of those surveyed stated that their child has not noticed any issues relating to air quality in the school such as inconsistent temperatures, poor air circulation or noticeable odors. When asked about air quality in the workplace 75 percent of residents responded that their employer has not made them aware of indoor air quality issues in the workplace and 54 percent have noticed some indoor air quality issues in their workplace. Overall, residents seem to think their indoor air quality is good and most believe that air quality can be a threat to their personal health. Most do not believe that their homes have poor air quality, but many have seen mold in their homes and a few mentioned worries about the effect of Hurricane Katrina and other storms on their homes air quality. Air quality in schools seems to be good, even though most presence or awareness of air quality programs may be low on the Coast. Air quality seems to suffer the most in the workplace where residents believe that there are indoor air quality issues and their employers have not made them aware of air quality issues in the workplace. The survey was intended to also inform residents about indoor air quality issues and make them aware of actions they can take to ensure the air they breath in their homes, schools and workplaces is clean and safe. five environmental health risks according to the U.S. EPA. Residents Due to the natural events the Gulf Coast encounters such as tropical storms and hurricanes, flooding and wind damage can be a major contributor to indoor air quality (IAQ). Failure to remove contaminated materials and to reduce moisture and humidity can present serious long term health risks. Standing water and wet materials are a breeding ground for microorganisms, such as viruses, bacteria, and mold. They can cause disease, trigger
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allergic reactions, and continue to damage materials long after the flood. Elevated concentrations of airborne asbestos can occur if asbestos-containing materials present in the home are disturbed. Surveys were conducted of residents on the Mississippi Gulf Coast in order to understand the prevalence of IAQ issues and where they are most concentrated. Employers The Occupational Safety and Health Act of 1970 created the Occupational Safety and Health Administration (OSHA). OSHA is in the U.S. Department of Labor and is responsible for developing and enforcing workplace safety and health regulations. Although OSHA does not have IAQ standards, it does have standards about ventilation and standards on some of the air contaminants that can be involved in IAQ problems. Employers may choose to make IAQ issues known to employees, however the air quality subcommittee is unaware of any IAQ programs amongst Gulf Coast employers. Schools
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Children are most at risk from exposure to ozone. Because children’s respiratory systems are still developing, they are more susceptible than adults to environmental threats. In response to learning that ozone levels on the Gulf Coast are within federal standards, however borderline, the Gulf Regional Planning Commission created the Coast Clean Air Campaign. This program serves to increase public awareness of air quality issues and help get parents and students on board with reducing idling outside of schools on the Coast. Students at an elementary school in Long Beach participated in a research project about reducing idling outside of the school. The students found that the average idling time for a vehicle parked outside of the school was 15 minutes. The students initiated several programs to help reduce idling outside of the school including: an air quality flag program; parent noidling pledge cards; a survey focused on the perception of idling; a bus driver appreciation breakfast; and anti-idling car magnets. After the program, students found that average idling time was reduced to 8.5 minutes. Students in Long Beach also helped to produce a video that will serve as a public announcement on ozone action days.
Next Steps The effort to build sustainable and healthy air for the Mississippi Gulf Coast depends on the individuals involved at each step of the process. The stakeholder analysis provides a context for the Mississippi Gulf Coast’s air quality, but the analysis is simply a glimpse into a complex system. Outreach is an ongoing effort; however, by continuing dialogue about the region’s air quality and fostering relationships among stakeholders, the region will move towards maintaining and increasing the quality of the air. The results of this air quality stakeholder analysis have been shared with the air quality subcommittee. This group is using the information provided by stakeholders to aid in shaping recommendations. Although many challenges face the region’s air quality, there are also many ideas for how to improve the air quality of the region.
List of Stakeholders The following is a list of people and organizations that participated in the stakeholder analysis. Numerous participants fit into more than one category. Each participant was classified in only one category based on the key role in which they shared their perspective. In certain cases, those interviewed or surveyed were not named or were individuals independently operating and a specific affiliation was not needed, for example residents completing the indoor air quality survey. Mobile Sources • Gulf Regional Planning Commission • Heritage Trails • Mississippi Department of Environmental Quality Stationary Sources • Gresham, Smith and Partners • Gulfport-Biloxi International Airport • Harrison County Development Commission
• Jackson County Economic Development Foundation • Mississippi Manufacturing Association • Mississippi Power Company • Southern Mississippi Planning and Development District Indoor/Outdoor Air Quality • American Lung Association • Gulf Coast Residents • Mississippi State Department of Health
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