The Beacon Blog: Consider It Briefed

Farmworkers and the Pesticide Exposure Crisis

By Christina Karem, Staff Editor for the Vermont Journal of Environmental Law

May 3, 2024

 

What’s worse than finding a worm in your apple? Finding half a worm. That being said, no one wants to find any worms in any of their produce. Pesticides are used to deter insects and other pests from eating produce and crops, control weed growth, and increase the productivity of agriculture. While pesticides sound like a beneficial and crucial part of the food system, pesticides threaten human health and the environment, especially for those individuals who work in fields riddled with pesticides. Exposure to pesticides can result in cancer, act as endocrine disrupters, trigger respiratory and reproductive problems, and contribute to countless other health issues. Despite these risks, pesticides are used often and are found on 75% of non-organic produce in the United States.

Three main United States statutes address pesticide presence in the food system: the Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA); the Food, Drug, and Cosmetic Act (FDCA); and the Food Quality Protection Act (FQPA).

 

The Federal Insecticide, Fungicide, and Rodenticide Act

The Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA) governs the sale, use, and registration of pesticides in the United States. 7 U.S.C. § 136. FIFRA requires that pesticides be registered by the EPA. Before registration, the pesticide must prove it “will not generally cause adverse effects on the human environment.” 7 U.S.C. § 136(a). The approval process is supposed to consider social, economic, and environmental costs and benefits. The United States Department of Agriculture originally held responsibility for pesticide approval and monitoring, but has since transferred authority to the Environmental Protection Agency (EPA). FIFRA establishes worker protection standards for employees who work in pesticide production facilities but does not provide the same protection for workers who handle pesticides in other environments. FIFRA also allows states to regulate the sale and use of registered pesticides, but states are not allowed to impose labeling requirements.

 

The Federal Food, Drug, and Cosmetic Act

The Food, Drug, and Cosmetic Act (FDCA) grants authority to the EPA over setting pesticide tolerance levels in food. 21 U.S.C. §346(a). A food is deemed safe as long as the chemical residue does not exceed the tolerance levels set by EPA. The EPA Administrator sets tolerance levels they determine as “safe,” meaning “reasonably certain that no harm will result from aggregate exposure to the pesticide chemical residue.” The FDCA emphasizes consideration of infants and children, as well as sensitive subpopulations as determined by the Administrator. The Food Quality Protection Act (FQPA) amended the FDCA to enhance protections for sensitive subpopulations and at-risk populations. FQPA added the language of “reasonable certainty”, and allowed the EPA to consider non-occupational exposure, such as diet, water, and residential use.

 

Farmworker Injustice

Pesticide laws do not protect farmworkers from exposure to harmful chemicals. Farmworkers often breathe in these chemicals because they lack protective gear, are unaware of the dangers of constant pesticide exposure, and live near farms that regularly spray pesticides over crops. Farmworkers are not considered sensitive subpopulations in EPA’s risk assessment tests, so health issues arising in these populations stemming from pesticide exposure are overlooked.

The Occupational Safety and Health Administration (OSHA) cannot take action to protect farmworkers because it is preempted by EPA’s authority to set standards for allowable pesticide exposure levels. The OSH Act states that “Nothing in this Act shall apply to working conditions of employees with respect to which other Federal agencies … exercise statutory authority to prescribe or enforce standards or regulations affecting occupational safety or health.” OSH Act, 29 U.S.C. 653(b)(1). OSHA applies a two-pronged test: whether another agency has authority, and whether they have exercised this authority. The EPA has exercised its authority over pesticides by creating standard toxicology tests to measure human health risks. So, EPA would have to give up its regulation affecting farmworker safety and health for OSHA to take over safety standards. Or EPA could promulgate procedures to protect farmworkers.

Nearly 2.4 million people in the United States are farmworkers. At least 20% of these farmworkers live below the poverty line, making it difficult for them to access good healthcare. About 36% of farmworkers are not authorized to work legally in the United States, which decreases legal protections, increases the risk of abuse, and reduces the likelihood farmworkers will seek help if harmed by pesticides. Organizations like Farmworker Justice are advocating for farmworker safety, but their efforts must be met with legislative change. Should pesticide regulation (or lack thereof) continue to disregard this at-risk population, health issues will continue to rise in farmworker communities, impacting our food system in ways we cannot imagine.