Houston's Novel Strategy to Control Hazardous Air Pollutants: A Case Study in Policy Innovation and Political Stalemate

Abstract

Although ambient concentrations have declined steadily over the past 30 years, Houston has recorded some of the highest levels of hazardous air pollutants in the United States. Nevertheless, federal and state regulatory efforts historically have emphasized compliance with the National Ambient Air Quality Standard for ozone, treating "air toxics" in Houston as a residual problem to be solved through application of technology-based standards. Between 2004 and 2009, Mayor Bill White and his administration challenged the well-established hierarchy of air quality management spelled out in the Clean Air Act, whereby federal and state authorities are assigned primacy over local municipalities for the purpose of designing and implementing air pollution control strategies. The White Administration believed that existing regulations were not sufficient to protect the health of Houstonians and took a diversity of both collaborative and combative policy actions to mitigate air toxic emissions from stationary sources. Opposition was substantial from a local coalition of entrenched interests satisfied with the status quo, which hindered the city's attempts to take unilateral policy actions. In the short term, the White Administration successfully raised the profile of the air toxics issue, pushed federal and state regulators to pay more attention, and induced a few polluting facilities to reduce emissions. But since White left office in 2010, air quality management in Houston has returned to the way it was before, and today there is scant evidence that his policies have had any lasting impact.

Keywords: Houston air pollution; Houston policy; air toxics; control strategy; hazardous air pollution.

Figure 1

Time trends from 1988 to 2008 for annual average ambient concentrations of benzene, toluene, ethylbenzene, and xylenes (BTEX) for multiple monitoring sites in the HRM network.