Evolution of a Movement
Kettleman City: Case Study of Community Activism in Changing Times
Excerpted from Evolution of a Movement: Four Decades of California Environmental Justice Activism by Tracy Perkins, published by the University of California Press. © 2022 by Tracy Perkins.
Many Californians who recognize the name “Kettleman City” do so because it is a good place to stop for gas and a snack on the long drive between Los Angeles and the San Francisco Bay Area, passing through the Central Valley’s agricultural landscape. But some Californians recognize the name of the tiny town (population 1,439) because it played the David to the Goliath of Waste Management, the country’s largest waste company.
Kettleman City, like so many other poor communities of color, was a prime target for a hazardous waste landfill. The town’s demographics are comparable to many other places that host hazardous waste facilities: 100 percent of the community is Latinx; 57.5 percent of residents over age twenty-five have less than a ninth-grade education; and the average per capita income is $15,656 per year. Kettleman City hosts one of three Class 1 landfills in California (all three are located in or near predominantly Latinx communities), and the community’s opinion was not sought when the landfill was sited. Indeed, residents did not even know about the dump until after it had been permitted and built in 1979. But when a hazardous waste incinerator was proposed on the dump site, the residents made their opposition known, loud and clear. The fight in the late 1980s and early 1990s against the incinerator at the Kettleman City landfill was a paradigmatic early case in the environmental justice movement.
This chapter traces the thirty-plus-year history of environmental justice activism in Kettleman City as a case study within the broader evolution of environmental justice activism. This case study exemplifies the broader trends discussed in chapters 2 and 3 and analyzes how these trends played out on the ground. The Kettleman City story is an early environmental justice success, preventing the construction of a new “locally unwanted land use”—here, an incinerator. These successes added up in town after town; only three of the seventy-five or more new or expanded incinerators proposed since the 1980s were ever built. However, Kettleman City’s example also shows how these successes, as important as they are, could not on their own address existing unwanted land uses or the effect of multiple sources of contamination in one location. And these successes left other problems in their wake: the challenge of sustaining broad levels of local activism after the immediate threat ended made it difficult to address the broader structural conditions of capitalism that disproportionately locate pollution in low-income communities and communities of color and that constrain efforts to change the status quo.
The case of Kettleman City shows the unevenness of the environmental justice movement’s transition from “protest” to “politics.” Many in the environmental justice movement have used the limitations of fighting individual, defensive battles site by site as a reason to scale up into state-wide policy advocacy and collaborative work with state agencies. Others have ventured into efforts to build gardens, parks, and other environmental amenities, some of which pursue a DIY model that eschews state involvement. But in Kettleman City, much environmental justice activism remains true to its roots: focused on local sources of polluting health threats and engaged in continued confrontations with industry and state agencies. Of course, Kettleman City activists are also influenced by the broader trends described in chapters 2 and 3: changing racial politics and industrial public relations efforts, pressure to collaborate with state agencies, the opportunities and challenges of increasingly relying on philanthropically funded nonprofit structures to support activism, and the normalization of risk from the nearby hazardous waste landfill. They also face the challenge of pursuing activism within the context of neoliberal policies under capitalism, which mitigate against increasing environmental enforcement budgets and channel environmental activism toward voluntary and market-based (rather than regulatory) measures to contain industry pollution.
In Kettleman City, we can also see the fissures in the movement caused by the disagreement over tactics. The town hosted the first meeting of the newly formed California Environmental Justice Coalition, which was formed as an alternative to the better-funded, exclusive California Environmental Justice Alliance. Finally, in the face of skepticism about the value of participating on government advisory committees and improving the public’s ability to participate fairly in environmental decision-making, Kettleman City’s difficult history accessing environmental decision-making also shows why activists worked toward these goals in the first place.
The Anti-incinerator Campaign
In the late 1970s, Chemical Waste Management, Inc. (a subsidiary of Waste Management Inc.) built a hazardous waste landfill 3.5 miles away from Kettleman City on land formerly used to store waste mud from nearby oil drilling. As a Class 1 landfill, the facility is authorized to take almost any hazardous substance up to, but excluding, radioactive waste. It is the largest hazardous waste landfill west of the Mississippi. In the 1980s, Chemical Waste began the permitting process to add a hazardous waste incinerator to the existing landfill. The incinerator would burn hazardous waste instead of landfilling it. According to the waste management industry, the push toward incinerators in the 1980s was a response to a national crisis of landfills running out of room for new waste. (However, as David Pellow, Kenneth Gould, and others have written, the “crisis” had other origins, including that the public increasingly did not want to live near them, and industry was blocking or shuttering recycling initiatives.) These incinerators would add dangerous toxins to the air, and the proposed incinerator sites were disproportionately in low-income communities and communities of color, such as Kettleman City.
Many residents of Kettleman City did not even know about the existing hazardous waste landfill just outside of town, where it is not easily visible from the road. Residents did not discover its presence until after it was built—some in 1985, when the dump was fined for operating unauthorized waste ponds, and some not until they learned about the incinerator proposal a few years later. Maricela Mares Alatorre, daughter of activists Mary Lou and Ramon Mares, remembers that her family and neighbors had no idea that the dump existed, or that a hazardous waste incinerator was proposed to be added to it, until Greenpeace organizer Bradley Angel knocked on her door while recruiting residents to attend an upcoming permitting hearing. The hearings, however, were not easy to participate in:
When we started attending these meetings, we noticed that they were never in town, they were usually in the middle of the day, 45 miles away, where they weren’t really accessible to people. And if you could get there, they didn’t translate them into Spanish when most of the town speaks Spanish. And we started finding out that there was a pattern to the way these things happen. We started researching the company. We were informed about the Cerrell Report. It was a 1984 document, which was commissioned by the California Waste Management Board where they said how you should choose a town for these kinds of projects. And we found out that they were going around choosing towns that had a large minority population, where people didn’t speak English, large immigrant populations, low education, and Catholic. That was actually in the report: Catholic. And we were—we were shocked because we really had no idea. I had no idea that environmental racism existed until we were made aware of that document. And it’s like you don’t want to have to go to a meeting. You don’t want to have to, you know, spend all your time in these boring hearings, and sometimes you don’t understand what they’re saying. But it makes you mad when we saw the pattern. And we talked to people from other towns, and we started networking, and we saw how they deliberately chose people like us to do these things to. It makes you mad.
Mares Alatorre’s story is a common one in communities fighting incinerators and other waste facilities in the 1980s and 1990s. As people across the country learned that toxic industries were being located in politically vulnerable communities, residents faced off with local government officials and industry representatives (who appeared to march in lockstep), resorting to disruptive political tactics when their pleas to government officials fell on deaf ears. In Kettleman City, residents, concerned about the threat to their health, formed a grassroots group to tackle the problem: El Pueblo para el Aire y Agua Limpio (People for Clean Air and Water). Mary Lou and Ramon Mares, and Esperanza and Joe Maya, among others, took leadership roles. Some of El Pueblo’s members brought in prior experience with farmworker organizing in the United Farm Workers of America to El Pueblo, while for others El Pueblo was their first experience with organizing.
Like many other groups nationwide, El Pueblo pursued local, direct action and community organizing strategies. However, it was unique in having early access to a lawyer, Luke Cole at California Rural Legal Assistance (CRLA), who used the case as a test for the use of civil rights law to address pollution in communities of color. The organization also had the support of organizers from the large environmental group Greenpeace, which (unlike many other large national and international environmental organizations) embraced direct-action tactics and at the time, at least on the West Coast, invested in local antitoxics and environmental justice organizing. In addition to their work with Greenpeace and CRLA, activists also attracted support from the Southwest Network for Environmental and Economic Justice, Las Madres del Este de Los Angeles, Citizen Action, Rev. Jesse Jackson, a UC Berkeley student group (Nindakin: People of Color for Environmental Justice), and a wide array of others.
One of the most iconic moments in the campaign occurred at a 1988 public hearing about the toxic waste incinerator proposal. By the time this hearing took place, residents had lost faith in both state and industry officials and came prepared to confront them:
So, before this meeting, I’m at my home, and we said, “Well, whenever we don’t like something, we’re going to have to let them know.” All their same lies. So, I made hundreds of copies of this piece of paper with the word “NO” real bold on it. It’s just that, “NO.” I said, when we don’t like something, we’re going to scream “No!” So, we all had those with us.
The circumstances of the hearing underscored how Kettleman City residents were being excluded from the normal process of government decision-making. Like other hearings, this one was not in Kettleman City but in the county seat in Hanford, thirty miles away. Although it was held in the winter, the hearing was not scheduled for one of the comfortable, well-heated spaces available in town such as the high school auditorium. Rather, the hearing was held in the County Fairground building, a building about the size of a football field that was, as one resident told me, “an exhibit barn for arts and crafts, or your animals or whatever. One of those big galvanized buildings made out of sheet metal or something. It’s cold. Cement floor.” The planning commission sat elevated at the front of the room, with portable heaters at their feet and hot coffee on their table. Open space, microphones, and then about fifty rows of seats lay before them, followed by bleachers. Behind the bleachers, there was empty concrete that stretched until the end of the building.
Luke Cole and Sheila Foster describe provisions made for Spanish- speaking residents as follows:
Kettleman City residents showed up at the meeting in force. About 200 people came by bus and carpool from Kettleman City, and, as one of their leaders made clear, “We’re here, we want to testify on this project, and we brought our own translator.” The chair of the Kings County Planning Commission looked down on the crowd and said, “That request has been denied. The translation is taking place in the back of the room and it won’t happen up here.” Residents looked at where the Planning Commissioner was pointing: they looked from the Planning Commission up on their dais, they looked at the open space and the microphones, they looked at all the rows of chairs, and they looked at the bleachers. And then they looked way back behind the bleachers, nearly at the rear of the room, where there was one forlorn man sitting surrounded by a little circle of about twenty-five empty chairs. The Planning Commission chair said again, “Why don’t you go back there? There are monitors back there. We are all in the same room.”
Kettleman City residents had come prepared to press their cause, and this arrangement did not suit them at all. One activist describes what happened at the meeting as follows:
It was supposed to be open all day for people that wanted to go and say whether they’re for [the incinerator], against it, or have questions for the supervisors. And we had a certain time we were supposed to be there. We were bused over there. Some people took their cars, and some people went on their own, but when we got there, they didn’t let us speak ’til about 9:00 or 10:00 that evening. They let other people speak first that should have spoke during the day. They were getting us to be tired so we would just go home, you know, and leave them alone. Then they didn’t have the translators they were supposed to have had. They had some translators. We asked for the translators and then they said, “Well, the translators are going to be in the back of the building. Go to the back.” They told us to go in the back! Go to the back of the room for the translators. And we all went, “No!” You know, “You bring the translators to us when we’re up there speaking!” So we go, “No!” And then we said, “Adelante!” and we all went forward with our “No! No!” “We’re not going to go to the back of the room!” . . . And they were shocked that we did that. Why would they send us to the back of the room? That’s discrimination there in itself. So, they didn’t have translators, and it was just waiting for somebody to do something wrong, to jump on us, to fight with us. You couldn’t even go to the bathroom, ’cause they were waiting for you in there to do something, the Chem Waste employees. It was just really, really bad.
Negative encounters like these, in which state decision-makers and industry representatives blatantly disrespected residents, drew more people into the fight, as this early incinerator opponent describes:
When the people that needed the translation started understanding what they were trying to do to them and how they were being disrespected, that made them more active. So that’s how we got more people to get into the fight for the incinerator.
Another iconic moment of disruption took place later in the campaign, the day before another hearing, when activists blockaded the entryway to the landfill with an old school bus and chained themselves to its axle. An activist who had been part of a successful campaign to oppose the construction of another incinerator in nearby Alpaugh helped out in Kettleman City. Greenpeace stored the bus on her property until it was needed and used her home as a planning area for the demonstration. She describes the opportunity to have supporters from out of town staying with her as a strange but wonderful experience. A Kettleman City resident who also hosted out-of-town supporters had a similar experience:
One time I housed a lot of people from Greenpeace at my house. They were at my house for almost two weeks, and they camped in my backyard. They came to canvas. I didn’t even know what that word meant. But I remember seeing them coming in with money in the evening. I didn’t even know what was going on. We were so green to all this. So I was asked if I could house them and I said, “Yeah.” Well, they all came over to help us and I don’t even know who they were. And I remember that I used to cook for them. They would not eat meat, so I would cook a big pot of pinto beans every day, and they would eat the whole damn pot—[laughter]—of beans and salsa. I always had that, and I don’t know who furnished the pasta, but they always had big bags of pasta and I would cook the pasta. And they stayed at my house for that long. The posters were made in my backyard. The canvas banners were done there. I housed a lot of people throughout the years in my home—strangers, you know? Strangers because I never seen them before, but they came to help. I didn’t even know what the organization Greenpeace was, or who they were, who Bradley [Angel] was, you know? But I learned throughout the years.
During this period, environmental justice activism felt like it was becoming a national mass movement, with Kettleman City as one of many hot spots. In addition to the student activists and others brought by Greenpeace, residents from other affected communities such as San Francisco’s Bayview-Hunters Point, East Los Angeles, and Alpaugh visited Kettleman City to lend their support. One Kettleman City activist remembers those days fondly:
I think all of it was a high point. I was really amazed that people outside Kettleman City actually cared for us, what happened to us. We started networking and all these people came to our aid. Who were they? Why did they care? We couldn’t understand that. Like Bradley [Angel] and his organizations, and Luke Cole with the lawyers. Why did they care? We’re just a poor Hispanic migrant little town, you know? But they knew more of what Chem Waste was doing. We were not the only site in the United States. We found out later that there were other dumpsites, and that they have the same pattern [of locating dumps in politically disadvantaged communities] throughout.
Kettleman City activists returned the favor, giving their support to people elsewhere and strengthening the emerging network of grassroots environmental justice activists. They went to the First National People of Color Environmental Leadership Summit in Washington, D.C., in 1991, which helped bring together people facing similar problems across the country. They traveled to Los Angeles and other California locations, as well as New York, Alabama, and the town of Playas de Rosarito, ten miles south of the US-Mexico border. These visits were not just to provide moral support, but to share tactics and information about their common corporate opponents. The meetings laid bare the lies that Chemical Waste was telling on each side. For example, the residents of Playas de Rosarito had been told that the people of Kettleman City were supportive of the incinerator proposal—a lie that Kettleman City residents quickly debunked when they met. The Mexican residents had wanted to come see the landfill in Kettleman City as they considered their options but were told no by Chemical Waste; at the same time, Chemical Waste was telling Kettleman City residents that they could come see the landfill anytime, because the company had nothing to hide. The Kettleman City activists therefore planned a visit to the dump without mentioning to Chemical Waste that they would be accompanied by several busloads of Mexican residents from Playas de Rosarito and local press. The Mexican visitors returned home and successfully blocked the building of the incinerator proposed for their town.
As Kettleman City residents met activists from elsewhere, many developed broader political critiques about waste infrastructure writ large, broadening their opposition beyond the early “not in my back- yard” beliefs. Mary Lou Mares shared the following:
We started going to statewide conferences and meeting other people who were fighting other terrible stuff. There was Stormy Williams, she was fighting in the Mojave Desert. Everybody says, “Why can’t you put this incinerator in the desert or somewhere where people don’t . . . ?” And she would get up and say, “Wait a minute, I live in the desert!” [Laughter] At first, you are so ignorant that it’s easy to say, “Put it in the desert,” but you start meeting people and you start understanding that there is no place to put an incinerator because the air belongs to everybody and it has currents and it goes around and comes around. You just cannot put anything into the air.
Despite the efforts by Kettleman City residents and allies, the Kings County Planning Commission nevertheless voted to approve the incinerator construction. Kettleman City is an unincorporated community, which means the people have no local governance structure of their own but rather are governed from a distance by a county board of supervisors, located forty miles away in the whiter and more affluent county seat of Hanford (where the public hearings took place). At that time, Kettleman City had little representation on the Planning Commission, which was mostly made up of people who did not live near the dump. The county stood to increase its revenues through taxing the landfill operators (although, as Kettleman City residents complained, precious few of those resources were reinvested in Kettleman City itself—an example of how racial capitalism functions at the county level).
El Pueblo appealed the decision to the Kings County Board of Supervisors, who upheld the incinerator approval. El Pueblo and its legal supporters at CRLA filed a class-action lawsuit against Kings County in 1991. In 1992, a superior court judge overturned the Kings County approval of the incinerator, ruling that it was based on an inadequate environmental impact report and that the public permitting process had failed to meaningfully involve the local population, since residents in the predominantly Spanish-speaking town had received the relevant documents only in English. Chemical Waste Management filed an appeal, but then withdrew the incinerator application in 1993. One activist describes the immense relief she and her friend felt after winning the protracted campaign:
[My friend] and I just cried and cried the day we got the announcement. The reporter came first to my house, saying, “Tell us what you’re doing, what’s your next this and that, your next strategy,” and then along came the general manager of Chem Waste and he comes up to us and he says, “It’s over. The lawsuit, it’s over. We’re withdrawing the plan to put in the incinerator.” I said, “What?!” He said that they are not doing the incinerator. “Oh, I gotta go see [my friend]!” And I go to [my friend’s house] and we just hugged and cried and cried. It was [many] years of struggle, you know, it was great. It was so good.
Kettleman City’s fight against the incinerator was often framed as an epic David versus Goliath battle between the largest waste management company in the country and a tiny, low-income Latinx community in a largely forgotten part of California. The activists’ victory became a symbol of the movement’s vitality and potential. It also inspired environmental justice activists across the country. The Kettleman City residents’ visits to and from other communities confronting similar problems helped activists see the bigger picture, that this was not a local but a systemic problem. This campaign thus helped nurture the broader environmental justice movement, both in California and the nation.
End of excerpt from chapter four. For the rest of this chapter, see the complete book, available at University of California Press and elsewhere.
 The landfill is managed by Chemical Waste Management, Inc., a subsidiary of Waste Management. Speakers use variations of both names (Chemical Waste, Chem Waste, and Waste Management), usually to refer to the local managers of the landfill.
 US Bureau of the Census, “ACS Demographic and Housing Estimates (Latinx population); US Bureau of the Census, “Educational Attainment” (education); and US Bureau of the Census, “Selected Economic Characteristics” (income).
 Cole and Foster, From the Ground Up; and Bullard, Confronting Environmental Racism.
 Two of these three were still in operation in 2021. Rosengren, “After It First WTE Facility Closes.” These numbers come from personal communications with Mike Ewall, executive director of Energy Justice Network, September 3 2018, and Bradley Angel, executive director of Greenaction for Health and Environmental Justice, March 26, 2021. Although no new commercial municipal waste incinerators have been built in the time indicated, several incinerators have been retrofitted, expanded, or built on the same site as existing incinerators since 1995. In addition, in 2017 a small, noncommercial-scale gasification incinerator was built at Army Garrison Fort Hunter Liggett in Monterey County, California. There are also two medical waste incinerators operating in California, in Paramount and Hesperian. Here I follow the activist convention of calling these modern facilities incinerators, whereas the waste industry calls them waste-to-energy facilities that “superheat” waste rather than burn it. Greenaction for Health and Environmental Justice and Global Alliance for Incinerator Alternatives, “Incinerators in Disguise.”
 Pellow, “Environmental Inequality Formation”; and Gould, Schnaiberg, and Weinberg, Local Environmental Struggles.
 Baptista and Perovich, U.S. Municipal Solid Waste Incinerators; Costner and Thornton, Playing with Fire; and White, “Hazardous Waste Incineration and Minority Communities.”
 Cole and Foster, From the Ground Up.
 The Cerrell Report itself does not specify race as a category by which locations for incinerators should be chosen, but many of the proposed locations were nonetheless in communities of color. Powell, “Political Difficulties Facing Waste-to-Energy Conversion Plant Siting.”
 Perkins, “Voices.”
 Perkins, “Multiple People of Color Origins of the US Environmental Justice Movement”; and Perkins, “Women’s Pathways into Activism.”
 Cole, “Environmental Justice Litigation.”
 Cole and Foster, From the Ground Up.
 Cole and Foster, From the Ground Up.
 Cole and Foster, From the Ground Up.
 Perkins, “Voices.”
 Cole and Foster, From the Ground Up.
Baptista, Ana Isabel, and Adrienne Perovich. U.S. Municipal Solid Waste Incinerators: An Industry in Decline. New York: Tishman Environment and Design Center at the New School, 2019.
Bullard, Robert D., ed. Confronting Environmental Racism: Voices from the Grassroots. Boston: South End Press, 1993.
Cole, Luke W., and Sheila Foster. From the Ground Up: Environmental Racism and the Rise of the Environmental Justice Movement. New York: New York University Press, 2001.
Costner, Pat, and Joe Thornton. Playing with Fire: Hazardous Waste Incineration. Washington, DC: Greenpeace USA, 1990.
Greenaction for Health and Environmental Justice and Global Alliance for Incinerator Alternatives. “Incinerators in Disguise: Case Studies of Gasification, Pyrolysis, and Plasma in Europe, Asia, and the United States.” June 2006. http://www.no-burn.org/incinerators-in-disguise-case-studies-of-gasification-pyrolysis-and-plasma-in-europe-asia-and-the-united states/.
Gould, Kenneth, Allan Schnaiberg, and Adam Weinberg. Local Environmental Struggles: Citizen Activism in the Treadmill of Production. Cambridge: Cambridge University Press, 1996.
Pellow, David N. “Environmental Inequality Formation: Toward a Theory of Environmental Injustice.” American Behavioral Scientist 43, no. 4 (2000): 581–601. https://doi.org/10.1177/0002764200043004004.
Perkins, Tracy. “Voices.” Voices from the Valley: Environmental Justice in California’s San Joaquin Valley, 2008. http://www.voicesfromthevalley.org/voices/.
Perkins, Tracy. “The Multiple People of Color Origins of the US Environmental Justice Movement: Social Movement Spillover and Regional Racial Projects in California.” Environmental Sociology 7, no. 2 (2021): 147–59. https://doi.org/10.1080/23251042.2020.1848502.
Perkins, Tracy. “Women’s Pathways into Activism: Rethinking the Women’s Environmental Justice Narrative in California’s San Joaquin Valley.” Organization & Environment 25, no. 1 (2012): 76–94. https://doi.org/https://doi.org/10
Rosengren, Cole. “After Its First WTE Closes, California Down to 2.” Waste-dive, August 2, 2018. http://www.wastedive.com/news/california-first-wte-facility-closes/529164/.
US Bureau of the Census. “ACS Demographic and Housing Estimates.” 2009–2013 American Community Survey 5-Year Estimates, 2013. http://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml.
US Bureau of the Census. “Selected Economic Characteristics.” 2009–2013 American Community Survey 5-Year Estimates, 2013. http://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml.
US Bureau of the Census. “Educational Attainment.” 2009–2013 American Community Survey 5-Year Estimates, 2013. http://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml.
White, Harvey. “Hazardous Waste Incineration and Minority Communities.” In Race and the Incidence of Environmental Hazards: A Time for Discourse, edited by Bunyan Bryant and Paul Mohai, 126–39. Boulder, CO: Westview Press, 1992.
Tracy Perkins is an Assistant Professor in the School for Social Transformation at Arizona State University.