California Failed to Protect Outdoor Workers from Wildfire Smoke Under Biden's New OSHA Chief

As she browsed boxes of groceries at a food bank in the small town of Biola, Beltran said she had never heard of the regulations that are meant to protect her, despite a provision mandating that employers educate workers about the health risks of breathing wildfire smoke “in a language and manner readily understandable by employees.” Beltran said she also was never offered an N95 mask, or other protections required by the smoke regulations.

'We have to do a better job'

In an interview, state Assemblymember Robert Rivas (D-Salinas), chair of the Assembly Agriculture Committee, called the state’s enforcement to date “disappointing.”

“Eleven violations is obviously a very low number, but it's certainly, in my opinion, not a true reflection of potential issues that are out there,” he said. “We have to do a better job.”

Rivas proposed a bill that would have stepped up enforcement by establishing dedicated Cal/OSHA “strike teams” of inspectors that would be deployed to agricultural worksites on days with unhealthy air. It was gutted in August after generating opposition from Gov. Gavin Newsom’s administration, according to documents viewed by The California Newsroom and people close to the negotiations.

The documents show the California Labor and Workforce Development Agency, which oversees Cal/OSHA, requesting amendments to the bill, including deleting the “strike teams” provision. Rivas ultimately agreed to take it out.

“Having a mechanism of enforcement is incredibly important,” said Rivas, who grew up in a farmworker family. “My effort here was not trying to penalize growers in any way or the agricultural industry, but it was to achieve a level of accountability.”

Spokespeople for the Labor and Workforce Development Agency and Newsom’s press office did not respond to multiple inquiries. In an email, Parker alluded to his new position in the Biden administration and declined to comment, saying he wanted “the chance to study more about what has been happening outside of California.” He referred our inquiry back to Cal/OSHA.

The agency’s acting chief, Danielle 'Dan' Lucido, defended Cal/OSHA’s record.

“We are a leader in providing worker protection, including against smoke,” she said. “We care very much about enforcement of this regulation.”

It was Parker himself who petitioned Cal/OSHA to create the protections. In December 2018, prior to his tenure at the agency, Parker joined with labor advocates, writing that “an emergency standard needs to be put in place as soon as possible, since wildfires are now occurring during many months of the year.”

Little outreach, few complaints, fewer inspections

Breathing dangerous particulate matter in wildfire smoke can cause eye and throat irritation, persistent coughing, wheezing or difficulty breathing. Exposure to so-called PM 2.5 also can lead to more serious health problems, such as reduced lung function, heart failure and early death.

A September investigation by The California Newsroom linked the rise of wildfire smoke to sharp increases in hospitalizations for heart and lung conditions in the state. It also found a dramatic rise in prescriptions for the asthma medication albuterol as the number of “smoke days” increased.

Beltran and other farmworkers in Fresno County told KQED and The California Newsroom their employers never mentioned the required protections against smoke.

“Some things they just like to keep to themselves,” said Beltran, the mother of six children. “And obviously we are the ones put at risk.”

The experience of Beltran and other farmworkers who labor outside expose a Catch-22 scenario on the enforcement of the wildfire smoke regulations.

Without strike teams of inspectors in the field, Cal/OSHA typically only shows up to worksites following a complaint. But the lack of awareness about required protections and workers opting to not report problems because they fear retaliation means Cal/OSHA has carried out very few inspections.

The agency received only 221 complaints related to wildfire smoke and visited worksites for just 26 employers between July 2019 and October 5, 2021, the data shows.

Lucido said the small number of inspections did not indicate a problem. “Whenever we are put on notice through a complaint, we do what we're supposed to do and roll out to investigate, if there’s a serious complaint,” she said.

The agency responded to most of the rest of those complaints by sending a letter to employers, asking them to respond to concerns in writing. Observers say that rarely leads to fines.

Meanwhile, Cal/OSHA also struggled with staffing shortages that worsened during the pandemic. The vacancy rate for inspectors statewide reached 26% in February, according to Cal/OSHA, but the agency was able to hire dozens of safety engineers and industrial hygienists. Its vacancy rate for those positions is now just 16%. Still, the agency has been overwhelmed by COVID-19 related complaints, say labor advocates, and cut down on in-person visits to worksites for months.

Lucido, the current head of Cal/OSHA, acknowledged that the pandemic undercut the agency’s ability to increase awareness about the rule, but pushed back against the notion that enforcing the wildfire smoke protections is not a priority for the agency.

“We are determined to enforce this regulation and educate workers about their rights,” she said. “Having the pandemic in play for a year and a half of this new regulation impacted our ability to create materials and do other things that we would have wanted to do to engage in outreach.”

In the last six months, the agency has posted videos and other training materials on its website about the regulations in Spanish and English and met with community-based organizations that can help workers file complaints, she added. But there has been no massive public outreach campaign.

One worker's story

California’s wildfire smoke requirements for employers are activated only when outdoor workers may be exposed to wildfire smoke and the air quality index for PM 2.5 reaches 151 or above, which the federal Environmental Protection Agency deems “unhealthy.” At that level, employers must offer workers N95 masks or make changes to reduce workers’ exposure to the smoke. Wearing N95 masks is compulsory when the AQI hits 500 or more, a level rarely reached during even the worst wildfires and 200 points higher than the standard for “hazardous” set by the federal government.

Out of the top 10 agricultural counties in the state, most of which lie in the San Joaquin Valley, Fresno has experienced the most wildfire season days with an AQI greater than 150, according to an analysis by KQED and The California Newsroom of EPA historical air quality data. Since the smoke rule went into effect, Fresno has seen a total of 45 “unhealthy” air days during peak wildfire season.

On one of those days, Oct. 5, 2021, a 33-year-old immigrant from Mexico said he worked a regular shift pulling dry grapevines from the soil by a Fresno highway. The AQI hovered around 160 in the county, according to the EPA, while federal satellite images showed intense smoke blanketing the field where he worked.

“The smoke was really thick, you could really feel it,” said the worker, who has labored in the U.S. for 15 years, in Spanish. “My throat hurt that day.”

But his employer, a farm labor contractor that he identified as Can II Ag Mgt. Inc., has never offered training or N95 masks on smoky days, he said. A large banner for the company was tied to a portable toilet in the field where he toiled.

“At work they haven’t given us masks at all,” said the worker, who was surprised to learn about the safeguards. “They’ve never given us classes on what to do when there’s a lot of pollution because of the smoke.”

KQED is withholding the man’s name because he fears retaliation from his employer and, like more than 40% of agricultural workers in the state, is undocumented. A second farmworker who said he also was employed by Can II Ag Mgt., which is based in Kerman, provided similar testimony.

Several attempts to reach Guillermo Cantu, Can II Ag Mgt.’s chief executive officer according to California corporate filings, were unsuccessful. But his wife and co-worker, Angie Garcia, said they were aware of the wildfire smoke rule and referred questions to their attorney.

“We provide everything necessary to use while they are working,” she said.

The company’s attorney, Anthony Raimondo, denied the allegations made by farmworkers, but declined to provide evidence that Can II Ag Mgt. had taken any steps to reduce workers’ exposure to wildfire smoke.

“The company is in compliance with all the rules of the state of California. We deny the allegations 100%,” said Raimondo, president of Raimondo & Associates in the city of Fresno. “These are uncorroborated, unsubstantiated statements. And there’ll be no further comment.”

The data provided by Cal/OSHA show no workers filed a complaint against this company.

Farida Jhabvala Romero is a reporter for KQED in San Francisco. She produced this investigation for The California Newsroom. Aaron Glantz, senior investigations editor for the newsroom, edited this story with managing editor Adriene Hill. It was edited by David Marks and copy edited by Jenny Pritchett of KQED.

The California Newsroom is a collaboration of NPR, 17 public radio stations across the state, from San Diego to the Oregon border, and CalMatters.