Incorporating Equity into Transportation Plans

Incorporating Equity into Transportation Plans: The Case of Pedestrian Master Plans

Amber Berg, MRCP Major Professor: Dr. Gregory L. Newmark Committee: Susmita Rishi, Katie Kingery-Page

Presentation Overview Introduction Literature Review Methodology Analysis Conclusions

Introduction

Introduction Transportation connects people to their communities and is important for essential tasks.

Transportation has inequitable impacts historically and presently Equity and pedestrian planning have increasingly gained attention from practitioners

Introduction

Literature Review

Methodology

Analysis

Purpose Examine how cities are incorporating equity into their pedestrian plans and make recommendations for moving forward.

Discussion

Literature Review

Literature review Transportation Equity: Concept and Application A Lack of Equity Guidance Barriers to Incorporating Equity Active Transportation Equity

Introduction

Literature Review

Methodology

Analysis

Discussion

Concept and Application Equity can be

Equity definition

• Procedural

providing equal transportation access across race and income levels by considering the unique circumstances impacting community members

• Geographic • Social • Horizontal • Vertical

What

Who

How

Specify the equity benefit or burden to be analyzed (e.g. access, pollution, safety)

Determine how to differentiate population groups from each other (e.g. income, race, ability, age)

Define the standard of the distribution to be considered equitable (e.g. equality or proportionality)

Derived from Lucas et al., 2019

Introduction

Literature Review

Methodology

Analysis

Discussion

A Lack of Guidance Recommended, no guidelines nor standards from federal legislation nor professional organizations to guide municipalities

Barriers to Addressing Equity • Traditional views of cost-benefits • Automobile-oriented culture • Considered intangible • No measurement standards • Flexible interpretations • Data manipulation • Not prioritized politically

Introduction

Literature Review

Methodology

Analysis

Discussion

Active Transportation Equity • Greater reliance, greater crashes, less investment • Equity often overlooked in active transportation planning • Two reports on active transportation broadly: • McLeod: definitions, performance measures related to infrastructure • Lee et al.: inconsistent consideration for equity

Introduction

Literature Review

Methodology

Analysis

Discussion

Methodology

Methodology Process

Introduction

1

Literature review

2

Plan collection manual scan

3

Thematic analysis

4

Framework formation

5

Plan assessment via Framework

Literature Review

Methodology

Analysis

Discussion

Sample Criteria Seattle 2017

Portland 2019

• Pedestrian Master Plan

Milwaukee 2019

2010

2012

San Francisco

Washington D.C.

2013

2014

San Diego

2018

2015

Charlotte

2012

2017

Fort Worth

• 15 most populous U.S. cities

2014

Austin 2016

3 plans were active transportation plans, 1 plan was a long-range transportation plan

Methodology

Raleigh

Oklahoma City

• Published after 2010

Literature Review

New York City

2012

Chicago

• Municipal plan

Introduction

Philadelphia

Analysis

Discussion

Jacksonville 2017

PMP Scan Manual highlighting

Equity definition

• Subjective

providing equal transportation access across race and income levels by considering the unique circumstances impacting community members

• Inductive • Qualitative Purpose

Terms

1. Observe what cities are doing 2. Capture all possibilities

• Social justice

• Low-income

• Disparities

• Communities of color

• Underrepresented populations

Introduction

Literature Review

Methodology

Analysis

Discussion

• Everyone

Emerging Themes Themes • The use of the word “equity” • Unclear terminology • Varied language • Outreach strategies • Goals and performance measures • Tools and measures • Prioritization & implementation

Introduction

Literature Review

Methodology

Analysis

Discussion

Analysis

Proposed Framework

The Three A’s of Equity Acknowledgement

Recognizing equity as a value of the plan

Accountability

Establishing a commitment to address inequi�es through the plan

Applica�on

Iden�fying specific ac�ons that will be taken to move toward equity

Introduction

Literature Review

Methodology

Analysis

Discussion

Proposed Framework

Element

The Three A’s of Equity

Component

Acknowledgement Men�on

Introduction

Defini�on

Accountability

Dispari�es

Literature Review

Outreach

Methodology

Goals

Analysis

Applica�on Performance measures

Discussion

Project priori�za�on

Policies

Projects

Mention 10/15 PMPs

• Expressly state that equity is a value of the plan • Explicitly use the word “equity” • State how equity is relevant to the plan

Definition • Clarify and specify • Answer “What is meant by equity?”

• What? Who? How? • Unique to the community

“In Portland, inadequate pedestrian infrastructure and traffic safety concerns disproportionately impact low-income communities and people of color.”

- PedPDX: Portland’s Citywide Pedestrian Plan, 2019

Introduction

Literature Review

Methodology

Analysis

Discussion

Disparities • Locally contextualizes equity • Influences how equity will be measured • Establishes a baseline to improve from • Informs plan implementation strategies PedPDX: Portland’s Citywide Pedestrian Plan, 2019

How to identify disparities • Identify population groups • Spatial analysis • Calculate and compare

The New York City Pedestrian Safety Study & Action Plan, 2010

Introduction

Literature Review

Methodology

Analysis

Discussion

Outreach Inform the plan through community input

Strategies • Informal meetings

• Intentionally include disempowered groups

• Translate materials • Provide childcare at meetings

• Give citizens power

• Compensate financially

• Tend to community needs

• Partner with community groups

• Improve transparency

Portland conducted “Walking While Black” focus groups to understand the needs of its black pedestrians

3/15 PMPs

- PedPDX: Portland’s Citywide Pedestrian Plan, 2019

Introduction

Literature Review

Methodology

Analysis

Discussion

Goals Describe plan’s equity aspirations • Influence how equity is measured • Demonstrate understanding of and concern for inequities

“Reduce inequities among neighborhoods in serious injuries to pedestrians.”

- San Francisco Pedestrian Strategy, 2013

• Committing to address inequities • Influence plan components to be equity-oriented

4/15 PMPs

“Make Seattle a more walkable and accessible city for all through public engagement, service delivery, accessibility, and capital investments that promote equity.”

- City of Seattle Pedestrian Master Plan, 2017

Introduction

Literature Review

Methodology

Analysis

Discussion

Performance Measures Interim objectives in pursuit of goals • Guide investment and policy decisions • Gauge progress toward goals

4/15 PMPs

• Address disparities • Specific and measurable • Relate to goals

“New trails or sidewalks accessing 30 out of 33 low-income Census Tracts and 17 designated redevelopment areas.”

• Multidimensional How to create equity measures • Quantify transportation efforts

- Move DC LRTP: Pedestrian Element, 2014

• Apply an equity lens Source: Zgota, 2020

Introduction

Literature Review

Methodology

Analysis

Discussion

Project Prioritization Determining which projects will be implemented first • Formulated using data • Address disparities • Develop tools • Assess potential impacts

PedPDX: Portland’s Citywide Pedestrian Master Plan, 2019 (web)

Introduction

Literature Review

Methodology

Analysis

City of Seattle Pedestrian Master Plan, 2017

Discussion

Policies • Influence a more pedestrian-friendly transportation system • Address systemic or institutional inequities • Influence the pedestrian realm beyond infrastructure

“Explore traffic citation policy and structural changes to address inequitable impact of fines and fees on people with lower incomes.”

- PedPDX: Portland’s Citywide Pedestrian Plan, 2019

Introduction

Literature Review

Methodology

Analysis

Discussion

Programs • Clear and specific

“Work with community partners to ensure education and enforcement are culturally appropriate.”

• With whom? For whom?

• Identify action to be taken

- Milwaukee Pedestrian Strategy, 2019

“Study the impact of plan implementation on responsive or vulnerable populations. Evaluate potential health outcomes and incorporate findings to ensure projects and policy changes have positive impacts.”

4/15 PMPs

- bikewalkokc: moving toward a healthy future, 2018

Introduction

Literature Review

Methodology

Analysis

Discussion

Discussion

Summary Plan

Year

New York City Chicago Philadelphia Raleigh San Francisco Fort Worth Washington D.C. San Diego Austin Charlotte Jacksonville Seattle Oklahoma City Milwaukee Portland Share of plans

2010 2012 2012 2012 2013 2014 2014 2015 2016 2017 2017 2017 2018 2019 2019

Acknowledgement Mention

Definition

Disparities

67%

7%

60%

Accountability Outreach

Goals

Performance measures

20%

27%

27%

Note: 73% of plans included at least one Acknowledgement component; 40% included Accountability; 80% included Application

Introduction

Literature Review

Methodology

Analysis

Discussion

Application

Prioritization

Policies

Programs

66%

7%

26%

Total 33% 22% 11% 22% 22% 22% 56% 11% 11% 22% 44% 67% 44% 22% 100%

Plan

Share of plans Portland Milwaukee Oklahoma City Seattle Jacksonville Charlotte Austin San Diego Washington D.C. Fort Worth San Francisco Raleigh Philadelphia Chicago New York City Outreach

Goals

Performance measures

Prioritization

Policies

Programs

2/15 plans • Ack. without both Acc. & App.:

9/15 plans • Race:

4/15 plans

Application

• Application only:

Accountability

26%

0/15 plans

Disparities

7%

• Accountability only:

Definition

66%

2/15 plans

Acknowledgement

27%

• Acknowledgement only:

Mention

27%

0/15 plans

100% 22% 44% 67% 44% 22% 11% 11% 56% 22% 22% 22% 11%

22%

33%

Total

2019 2019 2018 2017 2017 2017 2016 2015 2014 2014 2013 2012 2012 2012 2010

Year

Discussion Analysis Methodology Literature Review Introduction

4/15 plans • All Three A’s:

20%

• No components:

60%

1/15 plans

7%

• All nine components:

67%

Discussion

Change over time Cities, listed in chronological order of PMP publication New York City

Chicago

2010

Philadelphia

Raleigh

2012

San Francisco 2013

Fort Worth Washington D.C. 2014

San Diego

Austin

2015

2016

Charlotte

Jacksonville 2017

(out of 9 possible)

Number of equity components

1 2

3 4 5 6 7 8 9 Acknowledgement Accountability Application

Introduction

Literature Review

Methodology

Analysis

Discussion

Seattle

Oklahoma City 2018

Milwaukee 2019

Portland

References Brown, M., S. Zimbabwe, C. Hawkinson, and K. Peterson. Move DC LRTP: Pedestrian Element. District Department of Transportation, Washington D.C., 2014.

Brown, M., S. Zimbabwe, C. Hawkinson, and K. Peterson. Move DC: The District of Columbia’s Multimodal Long-Range Transportation Plan. District Department of Transportation, Washington D.C., 2014.

City of Charlotte Department of Transportation Pedestrian Program. Charlotte Walks Pedestrian Plan. City of Charlotte, Charlotte, North Carolina, 2017, pp. 1–174.

Couch, J., L. Johnson, A. McDermid, G. Butler, A. Jager, J. Tankard, P. Walters, M. Harris, D. Blind, R. Entz, and M. Sandidge. Bikewalkokc: Moving toward a Healthy Future. City of Oklahoma City, Oklahoma City, Oklahoma, 2018.

Grove, K., L. Hamilton, C. Wuellner, J. Weiner, C. Richer, and S. Carlson. Chicago Pedestrian Plan. Chicago Department of Transportation, Chicago, Illinois, 2012.

Ingles, A., B. Killingsworth, L. Santana, S. Zarkis, N. Caparas, and D. Chaplick. Jacksonville Bicycle and Pedestrian Plan. City of Jacksonville, Florida, Jacksonville, Florida, 2017.

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Lee, R. J., I. N. Sener, and S. N. Jones. Understanding the Role of Equity in Active Transportation Planning in the United States. Transport Reviews, Vol. 37, No. 2, 2017, pp. 211–226.

Lucas, K., K. Martens, F. Di Ciommo, and A. Dupont-Kieffer, Eds. Introduction. In Measuring Transport Equity, Elsevier, Cambridge, MA. 2019, pp. 1-12.

Luecke, K., J. Dempsey, S. Handy, T. Huber, M. Loughran, E. Moorman, F. Proulx, M. Seib, and B. Tang. Milwaukee Pedestrian Plan. City of Milwaukee, Milwaukee, Wisconsin, 2019.

Marx, M., L. Rahman, F. Patricolo, T. Phillips, K. Donohue, Z. Wagner, N. Falbo, M. Berkow, I. Marion, M. Serritella, C. Hanako Montana, and K. Aszklar. PedPDX: Portland’s Citywide Pedestrian Plan. Portland Bureau of Transportation, Portland, Oregon, 2019.

Mayor’s Pedestrian Safety Task Force. San Francisco Pedestrian Strategy. San Francisco Municipal Transportation Agency, San Francisco, California, 2013.

McCleeary, J., D. Burghdoff, K. Beck, E. Fladager, A. Parks, S. Murray, N. Fares, L. Acevedo, G. Roberts, C. Hurt, D. Ondich, P. Dupler, J. Ebel, S. Penn, Y. Jones, M. Beckman, C. Rodriguez, B. McGibson, N. Heath, M. Conlin, Q. Johnson, J. Whitacre, and D. Jodray. Walk Fort Worth Pedestrian Plan. Fort Worth Planning and Development Department, Fort Worth, Texas, 2014.

McLeod, K. Active Transportation Equity: A Scan of Existing Master Plans. Advocacy Advance, 2015.

Schaaf, D., J. Barr, J. Brugger, D. Fecteau, C. Johnson, D. Knapton, I. Litwin, A. Meloney, D. Ortiz, C. Pankey, M. Pini, C. Randall, B. Rodda, A. Santaniello, L. Spina, M. Thompson, and A. S. Urek. Philadelphia Pedestrian and Bicycle Plan. Philadelphia City Planning Commission, Philadelphia, Pennsylvania, 2012.

Spillar, R., and L. Dierenfield. Sidewalk Master Plan / ADA Transition Plan Update. City of Austin, Austin, Texas, 2016.

Viola, R., M. Roe, and H.-S. Shin. The New York City Pedestrian Safety Study & Action Plan. New York City Department of Transportation, New York, New York, 2010.