# Formation of an Illegal Dumping Prevention Program to Reduce Potential Impacts of E. coli 0157:H7 in Agricultural Produce Grown in Monterey County

**2006-2007**

# 

# Environmental Public Health Leadership Institute Fellow:

# John C. Ramirez, M.P.A., REHS

#### Assistant Director of Environmental Health

## Monterey County Health Department

*1270 Natividad Rd.*

*Salinas CA 93906*

*(831) 755-4542*

<ramirezj1@co.monterey.ca.us>

Mentor:

# Robbin E. Rose, M.S., REHS

#### Supervisor, Food Protection Program

## Environmental Health Services Division

#### Washoe County District Health Department

# (Acknowledgements):

# I would like to recognize and thank the following individuals for their support of my fellowship in the Environmental Public Health Leadership Institute:

#### 

#### **Len Foster** 

#### Director of Health, Monterey County Health Department 

#### 

#### **Allen J. Stroh, M.P.A., REHS** 

#### Director of Environmental Health, Monterey County Health Department

#### 

> ![](media/image1.jpeg){width="1.3756944444444446in"
> height="0.6368055555555555in"}

#  EXECUTIVE SUMMARY:

Illegal dumping and littering of solid waste has been and continues to
be a problem for many communities nationwide. Monterey County does not
fare any better as it has seen an increase in littering and illegal
disposal of solid waste over the last five years with no end in sight.
This problem has taken on new emphasis as the accumulation of solid
waste along or within surface water drainage systems has contributed to
increased flooding of agricultural lands. The California Department of
Health Services (DHS) and the Federal Food and Drug Administration (FDA)
have determined that the flooding of agricultural produce fields in 2002
and 2004 were directly linked to several outbreaks of Escherichia coli
0157:H7 (E. coli 0157:H7) in "ready-to-eat" produce grown in Monterey
County. It is speculated that these floodwaters may have contained the
E. coli 0157:H7 bacterium, which were then deposited upon the produce
prior to distribution nationwide.

The Monterey County Health Department, Environmental Health Division has
taken proactive measures to address the illegal dumping and littering of
solid waste by developing an Illegal Dumping Prevention program through
the formation of an Illegal Dumping and Litter Abatement Task Force. The
task force was created to work closely with State and local agencies,
community groups, and agricultural representatives to develop a
multifaceted approach on reducing and/or eliminating the incidence of
illegal dumping and littering to protect the environment and eliminate
health hazards. The reduction or elimination of illegally disposed solid
waste would decrease the potential for agricultural flooding, and in
turn would reduce the potential of E. coli 0157:H7 contamination of
produce.

This report will describe the process involved in the development of the
Illegal Dumping Prevention Program using a systems approach. This report
will also describe how the Illegal Dumping and Litter Abatement Task
Force was created by identifying key stakeholders, recognizing political
& budgetary realities, examining systems thinking logic models to
describe current performance problems, and predicting potential hurdles
and conflicts which may arise during the program implementation process.

This report will also examine how systems thinking can be used to
develop similar programs to address other potential causes of E. coli
0157:H7 contamination in produce grown in Monterey County.

# INTRODUCTION/BACKGROUND:

**Problem Statement:**

The Monterey County Health Department, Environmental Health Division,
provides services for 13 incorporated cities and the unincorporated
communities within the Monterey County. These services are provided to
over 400,000 people covering 2,127,359 acres of Monterey County. The
Environmental Health Division is tasked with protecting the environment
and ensuring the public's health and safety.

Illegal dumping of solid waste impacts public health, safety, and the
environment. Additionally, this creates odors, provides harborage for
vermin and vectors, and creates environmental problems by clogging
surface water/storm water drainage systems. Illegal dumping and
littering in Monterey County has steadily increased over the last five
years, and cleanup response on 1,242 miles of county roads has been
hampered due to reduced state and local funding. Past failures to
properly address illegal dumping and littering has resulted in an
increased public outcry for action to prevent environmental and public
health threats. These public health threats have now included the
possibility of the E. coli 0157:H7 bacterium contaminating surface
waters/storm waters that may spread to agricultural produce fields
through flooding. E. coli O157:H7 is one of hundreds of strains of the
bacterium *Escherichia coli*. Although most strains are harmless, this
strain produces a powerful toxin that can cause severe illness. E. coli
O157:H7 has been found in the intestines of healthy cattle, deer, goats,
and sheep.

The ongoing efforts in prevention of illegal dumping of solid waste took
on new emphasis in 2004. This occurred when flooded agricultural produce
fields were implicated by the FDA & the California Department of Health
Services as a possible contributor to an outbreak of E. coli 0157:H7 in
ready-to-eat produce. Prior outbreaks of E. coli O157:H7 had occurred in
San Diego, California; San Mateo, California (2003); Orange County,
California; and Washington State (2002). These outbreaks of E. coli
O157:H7 were linked to produce grown in Monterey County. Although it is
unlikely that flooding from agricultural water sources caused
contamination in all of these outbreaks, the FDA clarified (in 2006)
that it considers ready-to-eat crops (such as lettuce & spinach) that
have been in contact with flood waters to be adulterated due to
potential exposure to sewage, animal waste, heavy metals, pathogenic
microorganisms, or other contaminants

In response to the 2004 findings, the Environmental Health Division, in
cooperation with the Department of Health Services, conducted several
creek surveys in the Salinas Valley to locate, identify, and eliminate
sources of potential surface water contamination. Expanded sampling of
soil and water indicated that creeks and rivers in the Salinas Valley
watershed are contaminated periodically with E. coli O157:H7. The
specific source of contamination that led to previous outbreaks was not
identified. However, several possible sources of contamination were
identified including the accumulation of solid waste in the creeks and
rivers. This identified solid waste included used pesticide containers,
animal carcasses, appliances, animal fecal material, rubbish and
garbage.

In response to this new threat the Environmental Health Division has
taken proactive measures by developing an Illegal Dumping Prevention
Program through the formation of an Illegal Dumping and Litter Abatement
Task Force. The task force was created to work closely with State and
local agencies, community groups, and agricultural representatives to
develop a multifaceted approach to reduce and/or eliminate the incidence
of illegal dumping and littering which would protect the environment and
to eliminate health hazards. The reduction or elimination of illegally
disposed solid waste would reduce the amount of solid waste impacting
proper surface water/storm water drainage, and in turn would reduce the
potential of E. coli 0157:H7 that may be in surface water to contaminate
produce.

The members of the Illegal Dumping and Litter Abatement Task Force are
stakeholders who individually contend with various aspects of illegal
dumping and littering. Elected officials, solid waste haulers, landfill
operators, and local and state agencies are continually challenged by
the public to clean up the litter or illegal dumpsites. These efforts
have been affected by limited funding and in the availability of
resources. The formation of the task force combines the resources and
funding of all the stakeholders by addressing problems that no one
stakeholder is able to accomplish alone. Each stakeholder becomes part
of the process in creating change to reduce or eliminate illegal
dumping, and each stakeholder will then benefits from this change:

-   Elected officials will be viewed as effective in dealing with
    important local issues.

-   The public will benefit by having cleaner roadways and highways and
    thereby shifting their tax dollars to critical health and service
    needs.

-   Solid waste haulers will be viewed as responsive to public health
    concerns rather than with the bottom line. They will also benefit in
    increased tonnage of solid waste entering the landfills, which will
    increase profits by accepting waste that would end up in illegal
    dumps.

-   The Environmental Health Division will benefit by the elimination of
    environmental contamination and harborage for vermin and insects,
    which will improve public health and safety.

-   The agriculture industry will benefit as ready-to-eat produce will
    have one less potential contributor to the cause of E. coli 0157:H7
    and in turn consumer confidence, and profits will build.

Current efforts of the task force to address illegal dumping and
littering have not fully addressed the impacts of the agricultural
industry. The agriculture industry has become an "Accidental Adversary"
as the industry attempts to rebuild consumer confidence through
implementation of voluntary food safety guidelines that do not examine
illegal dumping and littering impacts.

####### ***Behavior Over Time Graph:***

![](media/image2.png){width="4.677083333333333in" height="3.5125in"}

**Figure #1**

**Figure #1**

Illustrates several notable impacts created by illegal dumping. The
typical response to litter and illegal dumping by county and state
agencies has been addressed by the "Quick Fix." This quick fix to clean
up the dumps sites is completed with little thought to planning or
prevention efforts. State and local agencies typically respond until
funds decrease and diminish or until legislative actions increase
funding for litter removal or illegal dumping abatement. By continually
addressing the problem through the quick fix, the problem, is
perpetuated in a cyclical response by all agencies in answer to public
concern.

The "Increased Public Health Risk" to the environment and public from
illegal dumping increases over time as state and local funds are reduced
or eliminated. The "Available Funds for Cleanups" will initially
increase but then level off or slightly decline as funding decreases.
These budgetary impacts affect the resources and staffing needed to
abate litter and illegally dumped solid or hazardous waste materials.
"Public concern" will initially be low as litter and illegal dumps are
addressed but may soon turn to outrage over time as resources diminish
as the environment and/or food safety is impacted.

####### ***Causal Loop Diagrams and applicable archetypes:***

## **Fixes that Backfire Archetype:** 

![](media/image3.png){width="6.461805555555555in"
height="5.382638888888889in"}

> **Figure #2; Fixes that backfire**

##### Fiqure#2 

Demonstrates the "Quick Fix" response that "Backfires" when actions
taken to clean up the litter or illegal dump sites fail and the problem
perpetuates into as a vicious cycle. With decreases or delays in funding
the cleanups, the illegal dumpsites become attractive nuisances and this
is the unintended consequence of this archetype. The "Mental Models"
indicate what the participants may be thinking and how this thinking
allows the fix to backfire.

**Accidental Adversary Archetype:**

![](media/image1.wmf)

#########  Figure#3 Accidental Adversaries

##### Figure #3

Demonstrates the activities implemented to address food safety issues by
the agricultural industry and the Illegal Dumping and Litter Abatement
Task Force that have caused them to become "Accidental Adversaries."
This has occurred as both groups have drawn attention to the food safety
issues associated with E. coli 0157:H7. The focus on illegal dumping and
its effects in the agricultural setting may cause the public to view
agricultural conditions as unsafe and unsanitary.

***10 Essential Environmental Health Services:***

####### ![](media/image2.png){width="3.75in" height="3.8125in"}

Figure 4: Ten Essential Services of Environmental Health-as developed

**By Carl Osaki, RS, MSPH, Northwest Center for Public Health
Practice.**

This project seeks to enhance the following eight Essential
Environmental Health Services in Monterey County.

1.  **Essential Health Service No. 1**- Monitor environmental health
    status to identify and solve community environmental health problems
    by:

```{=html}
<!-- -->
```
a.  tracking the amount of illegally disposed of solid waste in the
    unincorporated portions of the county.

b.  using compiled information to evaluate the content of solid waste to
    focus efforts in recycling or alternatives to illegal disposal of
    solid waste.

c.  assessing increases or decreases in illegal dumping to measure the
    effectiveness of the program efforts.

```{=html}
<!-- -->
```
1.  **Essential Health Service No. 2**- Diagnose and investigate
    environmental health problems and health hazards in the community
    by:

```{=html}
<!-- -->
```
a.  investigating increases in illegal dumping as it relates to
    agricultural farmland implicated in new outbreaks of E. coli
    0157:H7.

```{=html}
<!-- -->
```
2.  **Essential Health Service No. 3**- Inform, educate, and empower
    people about environmental health issues by:

```{=html}
<!-- -->
```
a.  conducting informational presentations to community groups and
    organizations that describes the environmental and health hazard
    associated with illegal dumping.

b.  providing educational materials and brochures to identify and report
    illegal dumping.

c.  establishing a county-wide cleanup effort to promote public
    involvement in the clean up of the environment. Also, encouraging
    recycling, reuse, and reduction efforts and,

d.  establishing a website with links to local cities and government
    agencies for reporting illegal dumping and littering and to provide
    the public with information.

```{=html}
<!-- -->
```
3.  **Essential Health Service No. 4**- Mobilize community partnerships
    and actions to identify and solve environmental health problems by:

```{=html}
<!-- -->
```
a.  increasing public participation in the Illegal Dumping and litter
    Abatement Task Force for Monterey County.

b.  mobilizing community groups to participate in the annual County
    Clean Up Day.

c.  increasing participation of agricultural groups to eliminate
    agricultural generated solid waste disposal along farmland and major
    roadways and highways in the county.

```{=html}
<!-- -->
```
4.  **Essential Health Service No. 5**- Develop policies and plans that
    support individual and community environmental health efforts by:

```{=html}
<!-- -->
```
a.  creating an illegal dumping ordinance.

```{=html}
<!-- -->
```
5.  **Essential Health Service No. 6**- Enforce laws and regulations
    that protect environmental health and ensure safety by:

```{=html}
<!-- -->
```
a.  creating an illegal dumping citation /enforcement document for use
    by law enforcement officials.

b.  establishing an enforcement-training program for environmental
    health staff with the district attorneys office (, and,)

c.  prosecuting violators of illegal dumping or littering laws or
    regulations.

```{=html}
<!-- -->
```
6.  **Essential Health Service No. 8**- Assure competent environmental
    health workforce by:

```{=html}
<!-- -->
```
a.  providing ongoing training to environmental health staff in all
    service programs of the Environmental Health Division.

####### 

####### ***National Goals Supported*** 

####### **Healthy People 2010 Objectives- Focus Area 8-8**, Increase the proportion of assessed rivers, lakes, and estuaries that are safe for fishing and recreational purposes. 

The efforts of the Illegal Dumping and Litter Abatement Task Force is
focused to reduce the incidence of solid waste disposal as well as the
illegal dumping of hazardous waste in the Salinas Valley watershed. The
reduction in illegally disposed pesticides, hazardous waste, animal
carcasses, and solid waste will reduce the amount of potentially harmful
contaminants entering into surface waters of Monterey County. These
efforts will increase public health and safety in accessing these waters
for recreational purposes such as swimming or fishing.

.

**CDC Health Protection Goals- Healthy Communities**

The efforts to reduce the incidence of illegal dumping and littering
will reduce the potential for environmental hazards, vermin & vector
infestation, and contamination of surface waters potentially reducing
the impacts to the agricultural produce grown in Monterey County. The
continuing participation of members of the Illegal Dumping and Litter
Abatement Task Force will increase the number of communities
participating in the effort to protect and promote health and safety,
and to prevent illness and injury by reducing impacts of West Nile
Virus, E. coli 0157:H7 and other waterborne diseases.

These efforts will increase the quality and years of healthy life in the
community and eliminate health disparities between rural communities and
the incorporated cities of Monterey County. In addition, these efforts
will identify deficiencies in communities lacking high-quality water and
reduce the public's risk of exposure to toxic chemicals, infectious
agents, and/or other environmental health hazards.

####### Project Logic Models:

+-------------+-------------+-------------+-------------+-------------+
| # Resou     | ##          | # Outputs   | # Shor      | # Impacts.  |
| rces/Inputs | # Activitie |             | t & Long Te |             |
|             | s (process) |             | rm Outcomes |             |
|             |             |             |             |             |
|             | #           |             |             |             |
+-------------+-------------+-------------+-------------+-------------+
| ####        | **Program   | ##          | ###         | ###         |
|             | Design and  | ### Actions | ## Learning | ## Behavior |
| ####        | De          |             |             |             |
|             | velopment** | -   Issue   | -           | -           |
| ####        |             |     50      |   Increased |   Increased |
|  [Funding]{ | -           |             |             |             |
| .underline} |    Increase |    vouchers |   awareness |   awareness |
|             |     pa      |     by      |             |             |
| -           | rticipation |             | of illegal  | of          |
|  California |     in      | 12-31-07    | dumping     | a           |
|     Dept.   |     state   |             |             | lternatives |
|     of      |     Adop    | -           | and         | to          |
|             | t-a-Highway |    Complete | littering   |             |
| Tra         |     program |     at      | impacts     | illegal     |
| nsportation |             |     least   |             | disposal of |
|             | -           |             | -           |             |
| -   Local   |    Increase | four grant  |    Improved | solid waste |
|             |     pa      |             |             |             |
|   Landfills | rticipation | a           | pa          | #           |
|             |     in      | pplications | rticipation |             |
| -   Health  |     county  | by          | in          |             |
|             |     A       |             |             |             |
|  Department | dopt-a-Road | 12-31-06    | adop        |             |
|             |     program |             | t-a-highway |             |
| #           |             | -           |             |             |
|             | -   Develop |    Complete | programs    |             |
|             |     a solid |     GIS/GPS |             |             |
|             |     waste   |             | -           |             |
|             |     Voucher | map of      |   Increased |             |
|             |     Program | dumpsites   |             |             |
|             |             |             |   awareness |             |
|             | -   Develop | -           |             |             |
|             |     a       |    Increase | of          |             |
|             |             |             | a           |             |
|             |    tracking | pa          | lternatives |             |
|             |     system  | rticipation | to          |             |
|             |     of      | in          |             |             |
|             |     illegal |             | solid waste |             |
|             |             | a           | disposal    |             |
|             |   dumpsites | dopt-a-road |             |             |
|             |             | &           | -           |             |
|             | -           |             |   Increased |             |
|             |    Research | highway     |             |             |
|             |     grant   | programs    | co          |             |
|             |     funding |             | llaboration |             |
|             |     op      | by 20%      |             |             |
|             | portunities |             | between the |             |
|             |             | #           | public and  |             |
|             | #           |             |             |             |
|             |             |             | public      |             |
|             |             |             | agency      |             |
|             |             |             |             |             |
|             |             |             | partners    |             |
|             |             |             |             |             |
|             |             |             | -           |             |
|             |             |             |    Improved |             |
|             |             |             |             |             |
|             |             |             | co          |             |
|             |             |             | mmunication |             |
|             |             |             |             |             |
|             |             |             | between     |             |
|             |             |             | agencies    |             |
|             |             |             |             |             |
|             |             |             | -           |             |
|             |             |             |    Improved |             |
|             |             |             |             |             |
|             |             |             | funding     |             |
|             |             |             | mechanisms  |             |
|             |             |             |             |             |
|             |             |             | #           |             |
+-------------+-------------+-------------+-------------+-------------+

+-------------+-------------+-------------+-------------+-------------+
| # Resour    | ##          | # Outputs   | # Shor      | # Impacts.  |
| ces/Inputs  | # Activitie |             | t & Long Te |             |
|             | s (process) |             | rm Outcomes |             |
|             |             |             |             |             |
|             | #           |             |             |             |
+-------------+-------------+-------------+-------------+-------------+
| [           | *           | ##          | ###         | ###         |
| Educational | *Training** | ### Actions | ## Learning | ## Behavior |
| Awareness   |             |             |             |             |
| Program]{   | -   Conduct | -           | -   Public  | -           |
| .underline} |             |    Complete |     gains   |   Increased |
|             |  assessment |     at      |             |             |
| #           |             |     least   | knowledge   |   awareness |
|             | > of        |     12      | of illegal  |             |
|             | > available |             |             | of          |
|             | > training  |    training | dumping     | en          |
|             | >           |             | a           | vironmental |
|             | > materials |    sessions | lternatives | and         |
|             |             |             |             |             |
|             | -   Conduct | in local    | -   Public  | health      |
|             |             | schools,    |             | impacts     |
|             |  assessment |             |   awareness |             |
|             |             | businesses  |     of      | #           |
|             | > of        | and         |             |             |
|             | > available |             | recycling,  |             |
|             | > training  | or          | reuse and   |             |
|             | >           | ganizations |             |             |
|             | > programs  |             | reduction   |             |
|             |             | -           |             |             |
|             | -   Conduct |    Increase | a           |             |
|             |     onsite  |     the     | lternatives |             |
|             |             |     level   | to          |             |
|             | > training  |     of      |             |             |
|             | > sessions  |             | dumping     |             |
|             | >           |   education |             |             |
|             | > with      |     in the  | -   Public  |             |
|             | > business  |             |             |             |
|             | > and       | Spanish     |   officials |             |
|             | >           | speaking    |             |             |
|             | > industry  |             | aware of    |             |
|             |             | population  | ongoing     |             |
|             | -   Conduct | by 50%      |             |             |
|             |             |             | efforts to  |             |
|             |    off-site | -           | curb        |             |
|             |             |    Training |             |             |
|             | > pr        |     will    | littering   |             |
|             | esentations |     focus   | and         |             |
|             | > on        |     on      |             |             |
|             | >           |     illegal | dumping     |             |
|             | > illegal   |     dumping |             |             |
|             | > dumping   |     and     | -           |             |
|             | > and       |     a       |    Improved |             |
|             | >           | lternatives |             |             |
|             | > littering |             | educational |             |
|             |             | -           | efforts     |             |
|             | -           |    Complete |             |             |
|             |    Evaluate |             | -           |             |
|             |             | evaluations |   Increased |             |
|             | > ef        | of the      |             |             |
|             | fectiveness |             |   frequency |             |
|             | > of        | materials   |             |             |
|             | >           | presented   | of training |             |
|             | > training  |             |             |             |
|             |             | -           | Cleaner     |             |
|             | #           | Evaluations | highways,   |             |
|             |             |             |             |             |
|             |             |   completed | roadways,   |             |
|             |             |     by at   | and         |             |
|             |             |     least   |             |             |
|             |             |             | waterways   |             |
|             |             | 100         | resulting   |             |
|             |             | training    |             |             |
|             |             |             | in fewer    |             |
|             |             | p           | impacts to  |             |
|             |             | articipants |             |             |
|             |             |             | a           |             |
|             |             | -           | gricultural |             |
|             |             |    Training | fields      |             |
|             |             |             |             |             |
|             |             |   materials | #           |             |
|             |             |             |             |             |
|             |             | should have |             |             |
|             |             | at least    |             |             |
|             |             |             |             |             |
|             |             | 80 % range  |             |             |
|             |             | of          |             |             |
|             |             |             |             |             |
|             |             | competency  |             |             |
|             |             |             |             |             |
|             |             | #           |             |             |
+-------------+-------------+-------------+-------------+-------------+

+-------------+-------------+-------------+-------------+------------+
| # Resou     | ##          | # Outputs   | # Shor      | #          |
| rces/Inputs | # Activitie |             | t & Long Te |  Impacts.  |
|             | s (process) |             | rm Outcomes | (Behavior) |
|             |             |             |             |            |
|             | #           |             |             |            |
+-------------+-------------+-------------+-------------+------------+
| # [Laws/O   | -   Create  | >           | > *         | -          |
| rdinance]{. |     an      | **Action**s | *Learning** |  Reduction |
| underline}  |     Illegal |             |             |     in     |
|             |     Dumping | -           | -           |            |
|             |     and     |   Implement |   Increased |    illegal |
|             |             |             |             |            |
|             |   Littering |   Ordinance |   penalties | dumpsites  |
|             |             |     by      |             |            |
|             |   Ordinance |             |    assessed | -          |
|             |             |    12-31-07 |     to      |  Reduction |
|             | -   Create  |             |             |     in     |
|             |     a       | -   Provide |   violators |            |
|             |             |             |             |    impacts |
|             |   violation |   violation | -           |            |
|             |     code    |     code    |   Increased | to         |
|             |     guide   |     guide   |     total   | ag         |
|             |     for law |     to 4    |     of      | ricultural |
|             |             |     local   |             |            |
|             | enforcement |     law     |  violations | produce    |
|             |             |             |     issued  | from       |
|             | #           | enforcement |     by law  |            |
|             |             |             |             | E. coli    |
|             |             |    agencies | enforcement | 0157:H     |
|             |             |     per     |             |            |
|             |             |     quarter | #           | -          |
|             |             |     (max    |             |   Improved |
|             |             |     12)     |             |            |
|             |             |             |             |    surface |
|             |             | #           |             |            |
|             |             |             |             | water      |
|             |             |             |             | quality    |
|             |             |             |             |            |
|             |             |             |             | -          |
|             |             |             |             |   Improved |
|             |             |             |             |     of     |
|             |             |             |             |     public |
|             |             |             |             |            |
|             |             |             |             | and        |
|             |             |             |             | government |
|             |             |             |             |            |
|             |             |             |             | agencies   |
|             |             |             |             |            |
|             |             |             |             | #          |
+-------------+-------------+-------------+-------------+------------+
| [Task Force | ########    | **Action**s | *           | -          |
| Partners]{  |             |             | *Learning** |  Reduction |
| .underline} | -   Teams/  | -   One     |             |     in     |
|             | individuals |     County  | -           |            |
| -           |     submit  |     Clean   |   Increased |    illegal |
|   Community |     project |     Up      |             |            |
|     Groups  |             |             | p           | dumpsites  |
|             |  proposals. | Day, April  | artnerships |            |
| -   Health  |             | 22, 2007    | between     | -          |
|             | -   Six     |             |             |  Reduction |
|  Department |     Su      | -   40%     | public      |     in     |
|             | bcommittees |             | agencies    |            |
| -           |             |   community | and         |    impacts |
|   Cal-Trans |    identify |             |             |            |
|             |     and     | groups      | community   | to         |
| -           |             | pa          |             | ag         |
|    Landfill |    complete | rticipation | -           | ricultural |
|             |     a focus |             |    Projects |            |
|   Operators |             | -   Four    |             | produce    |
|             |    projects |     task    |  addressing | from       |
| -   Law     |             |     force   |             |            |
|             | -   Project |             | needs of    | E. coli    |
| Enforcement |             |    meetings | underserved | 0157:H     |
|             |    feedback |             |             |            |
| -           |     by Task | -           | com         | -          |
| Agriculture |     force   |    Progress | munities/or |   Improved |
|             |             |     report  |             |            |
| -           | -   P       |     to the  | populations |    surface |
|    Business | resentation |     Board   |             |            |
|     & Farm  |     to the  |     of      |             | > Water    |
|             |     Board   |             |             | > quality  |
| Community   |     of      | Supervisors |             |            |
|             |             |             |             |            |
| -   Public  | Supervisors |             |             |            |
|     Works   |             |             |             |            |
|             |             |             |             |            |
| #           |             |             |             |            |
+-------------+-------------+-------------+-------------+------------+

# PROJECT OBJECTIVES/DESCRIPTION/DELIVERABLES:

####### ***Program Goal***

To implement an Illegal Dumping Prevention Program that is aimed at
reducing the rate of illegal dumping and littering in Monterey County.
The reduction in illegal dumping and littering may also reduce the
potential for floodwaters containing the E. coli 0157:H7 bacterium to
contaminate produce grown and harvested in Monterey County.

####### ***Health Problem***

Illegal dumping in Monterey County has been identified as one of many
possible contributors to recent outbreaks of E. coli 0157:H7 in
ready-to-eat produce marketed worldwide. Illegal dumping and littering
impact storm water runoff by clogging drainage ditches, canals, and
other surface water channels causing flooding of produce fields.

The California Department of Health Services and the Division of
Environmental Health conducted an investigation of surface water and
soil adjacent to farmland in 2005-06. This investigation provided data
implicating floodwaters as a possible vector for contaminating
agricultural fields with E. coli 0157:H7 in ready-to-eat produce.

Agricultural flooding of farmland may occur after heavy rains, and some
of the agricultural fields may become contaminated with waters
containing residue from animal carcasses, fecal matter from animals and
rodents as well as contaminants from illegally dumped chemicals and
hazardous waste. These same contaminants also lead to environmental
impacts on the Monterey Bay Marine Sanctuary and the wildlife and sea
life within.

####### ***Outcome Objective***

By December 31, 2007, reduce the amount of illegal dumpsites to 50%, and
reduce the impacts to the environment and public health by reducing the
potential of flooding of agricultural produce fields.

####### ***Determinant***

1.  Reduction in the amount or extent of agricultural flooding.

2.  No increased incidence of E. coli 0157:H7 found in produce from
    Monterey County.

3.  Reduction in the number of illegal dumping complaints reported to
    Environmental Health.

4.  Increased public participation in eliminating illegal dumps and
    litter.

####### ***Impact Objective***

By December 31, 2007 the public and the agricultural industry will work
effectively together to reduce the incidence of illegal dumping and
littering in Monterey County which in turn will reduce the potential of
E. coli 0157:H7 contamination in ready to eat produce.

####### ***Contributing Factors***

1.  Lack of public awareness of alternatives to illegal dumping of solid
    waste through recycling, reuse and/or reduction of solid waste and
    waste oils.

2.  Lack of public awareness of existing alternatives provided by Solid
    Waste Hauler(s) (i.e. handling bulky items) and lack of knowledge of
    existing procedures to have additional amounts of solid waste
    removed as part of their curbside service between pick up dates.

3.  Economic factors lead to illegal dumping by those who cannot afford
    to pay disposal fees for large bulky items.

4.  Lack of participation of law enforcement in curtailing illegal
    dumping or in citing those who do litter.

5.  Lack of bilingual programs and solid waste disposal information in
    Spanish.

6.  Lack of an ongoing educational program on illegal dumping and
    littering and the risk(s) associated with these practices.

####### ***Process Objectives***

1.  Improve participation of law enforcement officials in the
    enforcement of existing laws for illegal dumping and littering.

2.  Increase participation of community groups in a planned Monterey
    County clean

> up event.

3.  Demonstrate an increase in the publics' awareness of alternative
    solid waste disposal programs.

# METHODOLOGY:

####### ***Events and Activities***

By October 30, 2006, improve participation by law enforcement to enforce
existing laws on illegal dumping and littering in Monterey County.

1.  **Event:** Implement joint training program in identification of
    illegal dumpsites.

**Activities:**

a.  Use GIS/GPS mapping information to locate existing and historical
    dumpsites for use by law enforcement and the public.

b.  Provide training for law enforcement officials on new enforcement
    processes.

c.  Complete development of an illegal dumping ordinance.

d.  Provide illegal dumping informational sheets to include dumpsites,
    violation codes and contact numbers for agency response.

By April 22, 2007 20% of Monterey County community groups will
participate in clean up events.

2.  **Event:** Monterey County Clean Up Day.

**Activities:**

a.  Members of the Illegal Dumping and Litter Abatement Task Force will
    coordinate the event in four regions of Monterey County.

b.  Contact 75% of all known community groups for participation.

c.  Provide equipment, bags and prepaid disposal vouchers to
    participating groups.

d.  Conduct quarterly surveys during special events to assess the
    knowledge of the public on illegal dumping and littering.

By July 30, 2007 50% of Monterey County residents will demonstrate an
awareness

of available alternative solid waste disposal programs.

3.  **Event:** Awareness Campaign

**Activities:**

a.  Develop a bilingual advertising program using public service
    announcements,

> presentations to businesses and schools, and brochures.

b.  Conduct quarterly surveys during special events to assess the
    knowledge of

> the public on illegal dumping and littering.

c.  Conduct presentations with business groups and local Chambers of

> Commerce for participation in the state Adopt-a-Highway Program and
>
> Monterey County Adopt-a-Road Program.

d.  Increase attendance and participation in the Monterey County Illegal

> Dumping and Litter Abatement Task Force.

e.  Involve the agricultural community through participation in the
    Monterey

> County Illegal Dumping Task Force.

# RESULTS: 

Results to date:

-   The first Monterey County Cleanup Day event was completed on April
    22, 2006.

-   Eight Illegal Dumping and Litter Abatement Task Force meetings have
    occurred to date.

# CONCLUSIONS:

The Illegal Dumping Prevention Program described in this report only
examines one potential impact to the environment and most importantly
the food safety issues concerning ready-to-eat produce in Monterey
County. Implementation of the Monterey County Illegal Dumping and Litter
Abatement Task Force initiatives will help to eliminate this as one
factor of many that may cause food safety concerns. It is not
anticipated that a successful program alone will eliminate the threats
to food safety. The knowledge gained in this program will enable the
Environmental Health Division to use the systems thinking approach in
addressing other potential threats to food safety identified by the FDA
and the State Department of Health Services. These potential threats
have been identified as fecal matter from cattle & geese, feral pigs,
farm worker field sanitation, composting operations, failed septic
systems, illicit dischargers and storm water discharges.

The next steps and future goals of the program to protect the
environment and public health and safety will evaluate these potential
threats in preventing E. coli 0157:H7 contamination in Monterey County
produce, these include:

-   The Environmental Health Division will continue to work with the
    Department Of Health Services staff and the appropriate California
    Integrated Waste Management Board (CIWMB) staff to review current
    manure composting, sampling and inspection procedures. Environmental
    Health Division program staff will increase the inspection frequency
    of all compost facilities adjacent to waterways.

-   The Environmental Health Division is currently implementing a field
    toilet registration and inspection program to focus on hand washing
    facilities and the availability and proximity of field toilets to
    all farm workers in all agricultural settings. The Environmental
    Health Division will follow the recommendations outlined in the
    October 26, 1998 Guide to Minimize Microbial Food Safety Hazards for
    Fresh Fruits and Vegetables, specifically sections IV (Worker Health
    and Hygiene), and V (Sanitary Facilities). Full implementation of
    this program will be completed by July 2007. In the interim,
    Environmental Health Division staff will work on educating farm
    labor contractors and farm managers on the new program requirements
    and recommend early implementation.

-   The Environmental Health Division will continue enforcement of
    existing Onsite Waste Water programs per the Monterey County Code.
    The Environmental Health Division is designated as the regulatory
    agency for disposal of domestic waste of less than 2500 gallons per
    day by the Regional Water Quality Control Board (RWQCB). The
    installation of all septic systems must be no less than 100 feet
    from surface water and water wells. Environmental Health Division
    staff conducting any mandated inspection on farm land or private
    property will ensure that no violations are observed that would lead
    to possible surface water contamination or contamination of produce.

-   Environmental Health Division, in conjunction with the Department Of
    Health Services, will ensure that any and all produce impacted by
    sewage or wastewater releases of any kind will be removed from
    harvesting to protect public health.

-   The Environmental Health Division will work closely with the
    Monterey Regional Storm Water Permit Management Group in its storm
    water management plan to include Best Management Practices for
    stormwater discharges. The Monterey Regional Storm Water Management
    Program will help to eliminate or reduce impacts from wastewater
    discharges into creeks from cities and communities in the Salinas
    Valley.

-   The Environmental Health Division will continually evaluate the
    programs in place for the Illegal Dumping Prevention Program and
    will assist the Department of Health Services in food safety
    surveillance through the existing mandated programs in retail food
    safety.

# LEADERSHIP DEVELOPMENT OPPORTUNITIES:

####### **John C. Ramirez**

Aceptance to EPHLI as a fellow is one of the highest honors I have
received. I have met and networked with a group of outstanding leaders
and peers whom have greatly influenced and encouraged me in my carrer. I
have found that we share many challenges and face similar obstacles
nationwide, and I am not alone in trying to find solutions to our
similar problems or concerns.

EPHLI has helped me develop both personally and professionally through
this educational opportunity. Prior to my participation in EPHLI there
was some concern on my part as to how I was developing as a leader.
Through the use of the Skillscope assessment, the Myers-Briggs and the
Change Style Indicator, I have learned more about my leadership style
and how I approach situations involving change. I have also learned
where my personal leadership style needs improvement and how to use the
Indivdual Development Plan to measure and plan for my future
develpoment.

I am honored that I was selected, and I am grateful to my mentor and my
instuctors who have provided me with a lifelong learning experience that
few may have the opportunity to take advantage of. The skills I have
learned will allow me to use them effectively throughout my carrer, and
I am anxious to continue learning more about systems thinking and how it
can help me in my current position.

# ABOUT THE EPHLI FELLOW

John Ramirez is the Assistant Director of Environmental Health for the
Monterey County Health Department in Salinas California. He holds a
Bachelors of Science Degree in Organic Chemistry from the University of
Oregon and a Masters Degree in Public Administration from Golden Gate
University, San Francisco. His career in public health began in 1989 as
a hazardous materials specialist for Monterey County. He is a State of
California Registered Environmental Health Specialist and a Certified
Hazardous Materials Specialist through the California Specialized
Training Institute (CSTI).

In 1999 Mr. Ramirez was appointed supervisor of the Hazardous Materials
Management Services program. In 2004, he and his team gained recognition
for leadership as the Outstanding Certified Unified Program Agency
(CUPA) in the State of California.

.

Mr. Ramirez was appointed Assistant Director of Environmental Health for
Monterey County in 2004. He currently directs a total of 30 staff in the
Solid Waste Management Services, the Recycling Services as well as the
Consumer Health Protection services for Monterey County.

In his over 17 years of experience, he has served on a variety of local
and statewide committees; most recently he served as a member of the
State of California Illegal Dumping Enforcement Task Force at the
request of the Californian Integrated Waste Management Board.

**REFERENCES**

1.  Osaki, C. *Essential Services of Environmental Health.* Northwest
    Center for Public Health Practice, University of Washington School
    of Public Health and Community Medicine, Seattle, WA. July 2004.

2.  U. S. Department of Health & Human Services, Office of Disease
    Prevention & Human Services. *Health People 2010.* Available at:
    [http://www.healthypeople.gov](http://www.healthypeople.gov/).
    Accessed March 11, 2006.

3.  CDC. *A National Strategy to Revitalize Environmental Public Health
    Services.* Atlanta, GA: Dept. of Health and Human Services. (US)
    CDC: September 2003.