air quality and equity dr. gordon mitchell the school of geography and institute for transport...
TRANSCRIPT
AIR QUALITY AND EQUITY
Dr. Gordon Mitchell
The School of Geography and
Institute for Transport Studies,
The University of Leeds
Leeds Air Quality and Health Interest Group
27th Jan 2004
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The Presentation An Introduction to Environmental Equity
Environmental (air quality) equity examples: UK Leeds
Emerging Policy responses
Issues in Environmental Equity Analysis
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Sustainable Development Trade-Offs
Stagnation
Deg
rada
tion
Maldistribution
SUST. DEVT.
ECONOMIC DEVELOPMENT
SOCIAL JUSTICE
ENVIRONMENTAL PROTECTION
EQUITY vs. ENVIRONMENT
Growth vs. Environment
Equity vs. Growth
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Environmental Equity in the USA Environmental equity
concerns grew from civil rights movement
Concern over siting of hazardous facilities
Very strong protests over race/poverty bias
Inadequate empirical evidence of bias
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Air Quality and Equity Prior UK studies:
Stevenson 1998 (NO2, wards, London, income) McLeod 2000 (3 pollutants, LA districts, social class;
ethnicity) NETCEN 2000 (2 pollutants, 5 UK cities, IMD) NETCEN 2001 (2 pollutants, 4 UK cities, IMD) Pennycook 2001 (2 pollutants, Bradford wards, IMD) Lyons 2002 (NO2, W.Glamorgan, social class) Brainard 2002 (2 pollutants, Birmingham EDs, IMD)
Small body of research with conflicting conclusions due to heterogeneity (pollutants, scales, study areas, methods, target populations)
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Study Objectives
To address conflicting results of past UK studies through small area - national analyses
To test two common assumptions: Disadvantaged groups are resident in areas with
highest pollutant concentrations
The poor largely bear the pollution costs of the affluent (Higman, 1999)
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Data and Methods
Study Area - All 10,444 wards in Britain
Air quality - Mean annual NO2 per ward centroid from NETCEN 1999 1 km grid map
Disadvantaged groups: The Poor Non-car owners Children (not discussed here)
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24
26
28
30
32
34
5 10 15 20 25 30 35 40
Poverty Analysis19
99 a
nnua
l mea
n N
O2 u
g/m
3
% Households in poverty (BB Index)
1027 wards per poverty decilebars denote 5- 95 percentile
‘Affluent’ wards ‘Poor’ wards
Most deprived AND least deprived experience above average NO2 exposure
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24
26
28
30
32
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36
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0 10 20 30 40 50 60 70
Car Ownership Analysis19
99 a
nnua
l mea
n N
O2 u
g/m
3
% Households with no car
1027 wards per no car decile
Bars denote 95% CI
‘Many cars’ wards ‘Few cars’ wards
Wards with few cars are most polluted, hence:
“Traffic pollution is caused by the better off, but the poor feel its effects” (Higman, 1999). True?
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The affluent pollute the poor?
Annual NOx emission from vehicles estimated (crudely) for all GB wards: DVLA postcoded vehicle data
35 vehicle groups (age / cc / fuel type)
MEET NOx emission factors at 55 kph (older cars emit more)
MEET UK age-distance correction (older cars travel less)
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Emission Analysis
0
10
20
30
40
50
60
70
0 10 20 30 40
Less cars and car use in ‘poor’ wards is balanced by use of older more polluting vehicles
Deprived wards make significant contributions to vehicle emissions
Vehicle NOx emission
(tonnes / yr / ward)
% households in poverty
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1
2
34
5
S1
S2S3
S4S5
10
20
30
40
Households in poverty (%)
NO2 concentration
quintile
NOX emission
quintile
30-4020-3010-20
But inequality does occur....Wards of worst air quality emit least AND are the most deprived
10,270 wards
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‘Exceedence’ wards (NO2, Eng.)
0
100
200
300
400
500
600
700
800
900
1 2 3 4 5 6 7 8 9 10
Deprivation Decile
Po
pu
lati
on
(th
ou
san
ds)
in
NO 2
ex
ce
ed
en
ce w
ard
Mitchell and Walker forthcoming (Env Agency)
Of 2.5 million people in ward with mean annual NO2 > 40ug/m3, >50% are in the
most deprived 20% of population.
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Temporal Change (NO2 exceedence)
0
10
20
30
40
50
60
70
80
90
100
0 10 20 30 40 50 60 70 80 90 100
Cummulative deprivation (%)(% of total population, ordered by decreasing deprivation status)
Cu
mm
ula
tive
po
pu
lati
on
(%
) fr
om
w
ard
s w
her
e N
O2
> 4
0 u
g/m
3
Line of equality
NO2 2001
NO2 2010
Gini Index of Concentration 2001 - 0.47 2010 - 0.25
Mitchell and Walker forthcoming (Env Agency)
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Pollution-Poverty ‘Hot spots’ Application
Can guide remediation strategies or further analysis Requires agreement on variables & thresholds applied
Selection criteria (example) AQ Index > 1.5 (c. 800 wards, 7.5 M people) AND most
deprived wards (decile 1, with 10% of pop.)
Hot-spots identified MAJOR: (> 5 wards) London, Liverpool, Manchester,
Nottingham, Sheffield.
MINOR (1- 5 wards) : Bristol, Derby, Thurrock, Leeds, Leicester, Luton, Tyneside, W. Midlands, Huddersfield
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Conclusions from UK analysis The most and least deprived experience above average NO2,
but the poor experience the worst AQ of all, bearing a highly disproportionate burden of peak concentrations, including exceedences (X 10)
The poor experience the worst air quality, but also contribute significantly to emissions (i.e. EJ requires careful interpretation)
Air quality policy to tackle injustice could focus on ‘hotspots’ - but how should they be defined - e.g. High deprivation and high concentration, or High deprivation, high concentration and low emission?
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The Leeds Study EPSRC-DETR project with Leeds CC
Air quality impact of transport strategies: Cordon charging (Single and Double) Distance charging (Charges at 2-20 p/km) Network development (Do-All, Do-Min) Clean fuel promotion Do-nothing, “business as usual” 1993-2015
Modelling method Traffic modelling using SATURN inc. SATTAX Air quality modelled using TEMMS + ADMS
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The Env. Equity Analysis
Data on a 200m grid:
- modelled annual NO2
- deprivation index
Analysis to assess:
- environmental equity
- env equity responses to transport options
NO2 Annual Mean(ug/m3)
4035302824222018
Townsend Deprivation Index
5 to 102.5 to 50 to 2.5
-2.5 to 0-5 to -2.5
-10 to -5
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Env. Equity under ‘Do-nothing’
15
20
25
30
35
40
-6 -4 -2 0 2 4 6
1993
2005
2015
Ann
ual m
ean
NO
2 ug/
m3
Deprivation Index‘Affluent’ ‘Poor’
N=1851
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Env Equity Under Road Pricing
16
17
18
19
20
21
22
23
-6 -4 -2 0 2 4 6
No charge 2p/km
Single cordon 10p/km
Double cordon 20p/km
2005
ann
ual m
ean
NO
2 ug/
m3
Deprivation Index‘Affluent’ ‘Poor’
N=1851
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Disease burden from NO2, 1993
0
2
4
6
8
10
12
14
-2.8 -1.6 -0.8 0.1 1.0 1.7 2.3 2.9 3.4 4.3
Deprivation Index (Townsend by equal count decile)
RH
A a
ttri
bu
ted
to
NO
2 Total NO2 DB in Leeds = 96 RHA / yr
• Equity pattern consistent with that seen for NO2
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Leeds Case Study Conclusions The ‘poor’ in Leeds suffer significantly greater NO2
concentrations than people of average or above average means
Change in inequality is (predicted to be) strongly proportional to change in city-wide air quality
All transport options that improve city-wide air quality reduce inequality, including road pricing, but design details are important (e.g. network development vs. RUC).
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Recommendations (Air Quality) Support efforts to understand the nature & significance of
env. inequalities, & measures to reduce unacceptable inequalities
Support LAs seeking to meet NAQS objectives
Identify 'poverty-pollution hotspots’ and focus efforts to improve air quality in these areas
Investigate the equity implications of AQMAs and LTPs
Develop technical guidance on equity appraisal (new devt.)
Work to ensure that equity appraisal is adopted in the environmental assessment process (EIA and SEA)
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USA Clinton’s 1994 Executive Order :
“Federal actions to address environmental justice in minority and low income populations”.
Must address:
“disproportionately high and adverse human health or environmental effects of policies, programs and activities on minority and low income populations”
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US guidance emerging via:
Federal working groups and enforcement actions (e.g. EPA TWG on EJ assessment of actions proposed re Clean Air Act compliance)
Public participation (e.g. in NEPA process)
Litigation and class actions
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Europe
UN ECE Aarhus Convention on the Environment (adopted 1998, ratified Oct 2001)
Public access to environmental information (Directive proposed June 2001)
Public participation in environmental plans and programmes (Directive proposed Jan 2001)
Access to justice in environmental matters (Directive proposals under discussion)
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UK
Major Political commitment: E+W - Prime Minister and M Beckett (DEFRA) Scotland : McConnell, First Minister
Government response ODPM - NRU ‘policy mapping’; Env in IMD DEFRA - co-ordinating cross dept. EE agenda Scottish Executive (Programme; EJ in SEA) SD commission (Key theme) Environment Agency (Programme)
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UK evidence base Some empirical analyses :
Air quality (mostly cities by ward) Landfill sites and health impacts Hazardous industrial facilities
Extending the evidence base Environment Agency study (Walker & Mitchell) SNIFFER (2004 - 2005) Others - e.g. FoE, JRF, OECD studies
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Measuring Inequality Technical Issues:
Which env. issues? (positive and negative) Environmental justice for who? What is the appropriate spatial unit of analysis? How large should the study area be? Env. metrics: exposure or adverse effect? Multiple, cumulative and indirect impacts Assessing not just facilities, but plans & policies
i.e - need for agreed assessment methods
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Identifying Injustice
Understanding causation: Inequalities as a product of neighbourhood
transition processes (e.g. chicken and egg), or discrimination?
Is inequality unjust? How unequal is unfair? Which justice theory (Rawlsian, Utilitarian etc.)
should be used to interpret the inequality
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Addressing Injustice
Building environmental equity / justice assessments into policy and plan evaluation (i.e. all SD trade-offs)
Ensure public involvement in equity issues: Scoping (e.g. identifying target groups / issues) Reviewing appraisals Agreeing mitigation measures
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Publications
Mitchell, G. and Dorling, D. (2003). An Environmental Justice Analysis of British Air Quality, Environment and Planning A, 35, 909-929
Mitchell, G. (forthcoming). The Response of Urban Air Quality to Strategic Road Transport Initiatives: An Environmental Justice Analysis of Leeds, UK. Transportation Research Part D
Mitchell, G., Namdeo, A., May, A.D. and Milne, D. (forthcoming). Road User Charging and Urban Air Quality: An Empirical Analysis of Leeds, UK. Transportation Research Part D
Mitchell, G., Namdeo, A., May, A.D. and Milne, D. (2003). The Air Quality Implications of Urban Road User Charging. Transport Engineering and Control, Feb, 352-357.
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Publications Mitchell, G and Walker, G. (In press) Environmental Quality and Social Deprivation. R&D Technical Report E2-067/1/TR, The Environment Agency, Bristol, 61pp, ISBN 1 8443 221 9
Walker, G., Mitchell, G., Fairburn, J. and Smith, G. (In press) Environmental Quality and Social Deprivation. Phase II: National Analysis of Flood Hazard, IPC Industries and Air Quality. R&D Project Record E2-067/1/PR1, The Environment Agency, Bristol, 133pp, ISBN 1 8443 222X
Mitchell, G. and Walker, G. (In press) Environmental Quality and Social Deprivation. Phase I: A Review of Research and Analytical Methods. R&D Project Record E2-067/1/PR2, The Environment Agency, Bristol, 107pp, ISBN 1 8443 22 246
Mitchell, G. and Walker, G. (Forthcoming) Methodological Issues in the Assessment of Environmental Equity and Environmental Justice. In: Deakin et al., (Eds.) Sustainable development: the assessment methods, E F Spon.
Thank you for listening…..for more information contact:
Dr Gordon MitchellSchool of GeographyThe University of Leeds, UK, LS2 9JT
[email protected]/airqual
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All wards (NO2, England)
0
5
10
15
20
25
30
35
40
45
1 2 3 4 5 6 7 8 9 10
Deprivation decile
Me
an
wa
rd m
ea
n N
O2
co
nc
en
tra
tio
n
(ug
/m3 )
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Age Analysis
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1 2 3 4 5 6 7 8 9 10
Babies
Teenagers
Middle aged
Pensioners
1999
ann
ual m
ean
NO
2 u
g/m
3
Age decileFew of age group in ward
Many of age group in ward