TESTIMONY OF
JANE M. KENNY
REGIONAL ADMINISTRATOR
U.S. ENVIRONMENTAL
PROTECTION AGENCY
BEFORE THE
U.S. SENATE COMMITTEE ON
ENVIRONMENT AND PUBLIC WORKS
SUBCOMMITTEE ON CLEAN AIR,
WETLANDS, AND CLIMATE CHANGE
February 11, 2002
Good morning Mr. Chairman
and members of the Subcommittee. I am
Jane M. Kenny, Region 2 Administrator with the U.S. Environmental Protection
Agency (EPA). I welcome this opportunity
to join my federal, state and city colleagues to discuss the ongoing response
to the tragic events of September 11 by EPA.
Today is February 11,
2002. It has been five months since
that terrible day. After months of
incredibly intense work, we can now reflect on the impacts of the attacks and
the extraordinary efforts made by so many individuals and government at all
levels. EPA and our federal, state and
city partners have all played important roles in the protection of public
health and the cleanup efforts. Today,
we look toward the future and the ultimate recovery of lower Manhattan.
On the morning of September
11, EPA responded immediately as events unfolded. Our emergency response teams were on the scene that day in lower
Manhattan, in Brooklyn, where the smoke plume was moving, and in New Jersey --
assessing the possible public health and environmental impacts of the
attacks. Let me assure you that EPA’s
highest priority then and throughout this response has been protecting the
health of everyone in the New York metropolitan area.
Since September 11, EPA and
other federal, state and city agencies have taken over 10,000 samples of dust,
air, drinking water, and storm water runoff at and around the World Trade
Center site. We have also sampled in
Brooklyn, Queens, the Bronx and Staten Island, at the Fresh Kills landfill and
in New Jersey.
In addition to the
monitoring conducted by our federal, state and city partners, we have tested
for the presence of pollutants such as asbestos, fine particulate matter, lead
and other metals, volatile organic compounds, dioxin, PCBs and other substances
that could pose a threat to the public and workers at the site. These samples are taken from more than 20
fixed monitoring stations at and around ground zero and an existing New York
State air quality-monitoring network that was augmented for the World Trade
Center response.
The Agency also uses
portable sampling equipment to collect data from a range of locations in lower
Manhattan. Fortunately, the vast
majority of our tests continue to find levels of these contaminants below standards
or guidelines set to protect public health.
We have also found that environmental conditions on and off the site
have improved considerably over time.
While this news may be
reassuring to the general public, it is important to emphasize -- as we have
from day one -- that the risks are different for response workers at the World
Trade Center site; they have been working long hours in dusty and what were
very smoky conditions. That is why we
have repeatedly said that response workers should wear respirators and other
protective gear.
We have found asbestos
fibers in some of the outdoor air and dust samples taken at ground zero and in
the surrounding area. To date, out of
more than 5,500 outdoor air samples taken at and around the site, only 15 have
had levels of asbestos that exceed the Asbestos Hazard Emergency Response Act
or AHERA standard, we use to determine if children can re-enter a school
building after asbestos has been removed or abated. Of the15 exceedances, all but four were recorded before September
30.
Where we found elevated
levels of asbestos in the dust or where dusty conditions were observed, EPA
used large HEPA vacuum trucks to pick it up.
We’ve cleaned sidewalks, the promenade at Battery Park City, local
playgrounds and parks and even children’s sand boxes. EPA has led the effort to monitor the outdoor environment with
support from the New York State Department of Environmental Conservation (DEC),
while the city of New York has taken the lead for the reoccupancy of buildings.
We do know that some people
returning to area homes and businesses have found dusty environments. EPA recommends that interiors be cleaned
with the assumption that any dust may contain asbestos. The New York City Department of
Environmental Protection (DEP) has issued instructions to building owners and
managers directing them to use professional asbestos inspectors to assess the
presence of asbestos-containing materials and to use licensed abatement
contractors to conduct any necessary cleanup work. EPA, the Department of Health and Human Services through the
Agency for Toxic Substances and Disease Registry (ATSDR) and the New York City
Department of Health (DOH) has recommended ongoing and frequent cleaning to
minimize future risks from any dust that might remain. All cleanups should be done using wet wipe
methods on surfaces and vacuums with HEPA -- high efficiency particulate air -
filters.
Regarding some federal
buildings, EPA took a small number of indoor air samples in several buildings. The General Services Administration changed
the filters on the air conditioning systems and, after noting significant
amounts of dust tracked into federal building lobbies by workers responding at
the World Trade Center, asked EPA to have them cleaned.
The lobby cleanup,
announced in a September 18 press release, was done by EPA contractors using
HEPA vacuum trucks already operating in the area. No other specialized cleanup was conducted on the upper floors at
290 Broadway or 26 Federal Plaza.
Now I would like to detail
some of our other findings and response efforts. EPA has been testing for numerous volatile organic compounds or
VOCs such as benzene -- at several sites within and near the perimeter of the
World Trade Center site. To protect
workers, EPA takes what are called “grab” samples of VOCs where smoke plumes
have been sighted. These samples -- taken
at ground level on the pile -- provide a snapshot at a moment in time of worst-case
exposure. The samples -- taken daily --
are immediately analyzed at EPA’s highly sophisticated mobile laboratory set up
at the perimeter of the site. The
proximity allows us to relay the results directly to the New York City Fire
Department.
EPA standards and
guidelines are set with an ample margin of safety to protect public
health. In some samples taken since
September 11, EPA testing at ground zero has found the presence of benzene at
levels that have exceeded federal guidelines.
Taking the more protective approach, we continue to urge workers to wear
their respirators.
However, EPA air samples of
pollutants such as benzene taken at the perimeter of the work site find levels
that are very low or non-detectable.
Dioxin levels were generally below health-based guidelines. Once the fires were diminished,
concentrations of several chemicals, declined in most cases to non-detectable
levels, even at the work site.
DEC routinely monitors for
fine particulates -- those smaller than 2.5 microns -- at their existing
network of monitoring stations. DEC and
EPA have added four additional monitoring stations in lower Manhattan. With a few exceptions early on, fine
particulates have been below the level of concern for the general public, as
well as groups more sensitive to air pollutants.
We know that materials in
construction dust and smoke can be irritating to the eyes, nose, throat and
respiratory tract. They can cause more
serious reactions in sensitive populations, such as people with respiratory
problems or asthma. Again, this is one
of the reasons we have recommended that workers wear respirators and impacted
homes and businesses be properly cleaned.
Sensitive groups have been advised by New York City DOH and the Centers
for Disease Control and Prevention (CDC) to take special precautions and
consult their physicians if they are experiencing symptoms.
In addition, we also tested
drinking water in cooperation with New York City DEP and water quality in the
Hudson and East Rivers. All samples of
drinking water, which were analyzed for a wide range of contaminants, met
federal standards. Analysis of runoff
following heavy rain on September 14 did show some elevated levels of dioxins,
asbestos and other pollutants. Follow-up
sampling found levels back to those normally found in area waters.
Almost immediately after
the attacks, Governor Pataki asked President Bush to declare a federal
disaster, activating the Federal Response Plan. The plan becomes effective when destruction from a disaster goes
beyond local and state capabilities.
Twenty-seven federal agencies and the American Red Cross are activated
to supplement state and city resources, with the Federal Emergency Management
Agency (FEMA) in the lead. In the World
Trade Center response, federal agencies have provided funding, personnel,
technical expertise, equipment and other resources at New York City’s
request. Acting on mission assignments
generated by FEMA, EPA is the lead agency for hazardous waste disposal and has
also taken primary responsibility for monitoring the ambient air, water and
drinking water and coordinating the sampling data for all the response
agencies. In addition, EPA was asked to
manage worker and vehicle wash down operations at the site and the Fresh Kills
landfill, which has been receiving debris from the disaster site.
In support of the agencies
directly responsible for worker safety, EPA initially supplied the New York
City Office of Emergency Management (OEM) 12,432 respirators, 37,600 dust
cartridges, 13,000 pairs of safety glasses and 1000 hard hats. In addition, 1465 respirators, 2608
cartridges plus Tyvek suits, booties and hard hats were provided to the New
York State Departments of Environmental Conservation and Health. The U.S. Coast
Guard, at the request of FEMA, worked with EPA to assist with the response, and
the New York State National Guard conveyed the equipment to the city for
distribution to response workers.
On September 11, EPA
provided a flyer to FEMA for distribution at ground zero that emphasized the
potential danger from asbestos and urged workers to wear protective gear. By September 20, EPA had set up worker wash
down operations at the site, at which flyers were distributed and signs posted
recommending the use of respirators and other protective gear. During daily interagency site operations
meetings, EPA repeatedly emphasized the need for response workers to wear their
respirators. This message was
continuously reiterated at community meetings and with the press.
EPA has set up a full
service, winterized wash station at which workers can vacuum off their work
clothes, shower and change before going home.
Signs directing workers to wear protective gear are posted. Several thousand workers pass through the wash
station every day.
EPA recognizes that the collapse of towers was a cataclysmic event unlike any we have experienced. The monitoring data collected in response to this event, warrants further study. With this in mind, in October, EPA began a health risk evaluation and a comparative toxicological study. These are in addition to studies being conducted by other agencies and academic institutions.
Through our health risk evaluation, we hope to better understand the possible health risks to people who may have been exposed to various pollutants during several periods following the disaster. EPA is reviewing ambient air monitoring data gathered by EPA, OSHA, the New York State Department of Environmental Conservation and various academic and commercial entities.
The Agency is assessing
possible exposures during the first days after the attack, the following
several weeks and the subsequent months through early January. This evaluation focuses on the different
population groups of concern -- response workers and volunteers at ground zero,
residents and workers in the immediate surrounding areas.
We expect to have a
preliminary report completed this month, which we will share with your
Subcommittee and the public. A more
detailed evaluation, building on our initial findings, should be complete by
early May, with the final report due in April 2003.
Our second investigation is
a comparative toxicity analysis. The
objective is to compare the toxicity of the particles released from the World
Trade Center collapse to other particulate samples of high and low toxicity
that have been tested on animals. In
this effort, we are comparing particles collected from ground zero to fly ash
from oil-fired power plants, dust recovered from the volcanic eruption of Mount
St. Helens and urban ambient air particles.
EPA is also collaborating
with New York City and state officials, with two components of the Department
of Health and Human Services through the National Institute of Environmental
Health Sciences and the Centers for Disease Control and Prevention, and various
academic institutions on research in progress and the identification of future
research needs. These efforts will help
us better understand the magnitude of any effects from the World Trade Center
disaster.
In addition, EPA has
supported the federal Agency for Toxic Substances and Disease Registry (ATSDR)
and the New York City Department of Health in their study of residences
impacted by the World Trade Center collapse.
We are committed to helping residents and business employees in lower
Manhattan address their concerns about the indoor air. We will continue to work with the city
agencies until people are assured that their health is protected.
Before concluding, I would
like to touch on one additional topic.
From the start, EPA has been committed to sharing the results of our
data with the public and to helping people understand what they mean. Under incredible circumstances -- having
witnessed the attacks and been evacuated from our lower Manhattan offices -- EPA
staff began the process of sampling, analyzing, interpreting and conveying
environmental data to the first-line response agencies, the press and the
public. All of the agencies use our
data to assess the risks to workers and the public, and to develop approaches
to address any concerns.
EPA has taken the lead in
making the data available to the public through our Web site. Sampling results for the major pollutants of
concern and daily summaries of our monitoring results are available at www.epa.gov. A complete set of laboratory results -- updated
daily -- is available to the public at our offices at 290 Broadway in lower
Manhattan.
Response workers and the
people of New York have been through much trauma and uncertainty. We hope that our findings, comprising
thousands of pages of text, will help them address concerns about their health
and their environment. Be assured that
we will be vigilant in our ongoing efforts.
As we look to the future,
we will work with our federal, state and city partners and Congress, on
science-based approaches that ensure that public health is protected.
In closing, Mr. Chairman, I
would like to thank you for giving us this opportunity to share the work of the
many dedicated and professional EPA employees who have worked tirelessly to
protect the health of all New Yorkers in the wake of this unprecedented event.