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Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop (2023)

Chapter: 5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change

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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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5

Public Space 101 for Cross-Sector Partnerships That Can Drive Change

Richard Jackson, professor emeritus of environmental sciences at the University of California, Los Angeles, opened the second day of the workshop. He shared that the panel’s focus on cross-sector partnerships that can drive change is important to him, as a pediatrician who is engaged in work on environmental health and climate change. He reflected as an example on California’s wildfires and loss of water and power, and the impact that has on everyone, but especially for those without substantial resources. Jackson mentioned he found the previous panels to be thought provoking in how they linked urban planning, landscape, and architecture with justice. He then briefly introduced the panelists for this session: professor Julian Agyeman from Tufts University; Robin Bronen, executive director of the Alaska Institute for Justice; and professor Juan De Lara from the University of Southern California.

SPATIAL JUSTICE IN URBAN PLANNING

Agyeman noted that “there can be no spatial justice unless we acknowledge and recognize the lands on which we are presently situated,” and said he is speaking from Cambridge, Massachusetts, the traditional territory of the Wampanoag and Massachusett people. He said he usually contextualizes spatial justice in light of his work on “just sustainabilities.” In other words, “How do we improve people’s quality of life now and into the future in a just and equitable manner while living within the limits or constraints of ecosystems?”

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

Agyeman introduced three thoughts on urban planning to consider during his remarks. First, he defined urban planning as the managing of people’s coexistence in shared space (e.g., in the context of transportation, housing, environmental issues) and posed the question, “How do

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

we coexist in shared space when we are so different from each other?” Second, he suggested thinking about the relationship between belonging and becoming. Agyeman said those in urban planning and sustainability fields talk about what the city can become but forget who belongs or is allowed to belong in the city. He asked a series of questions: “Why is recognition important? How do we reconcile? How do we offer reparations for those who have been traumatized? How do we think about difference, diversity, inclusion, and justice?” Agyeman noted that while dreaming about “how do we become smart, sharing, resilient, [and] sustainable” is good, there is a need to also think about who gets to belong. Third, he suggested taking the common urban planning term “human scale planning” and adding an “e” to the word human. He said, “I want humane scale planning. I want planning for human dignity, planning for empathy, planning that helps us be better citizens, be better ancestors, and to coexist in shared space.”

Agyeman then shared a definition of spatial justice from David Lammy, British Member of Parliament: “Just as social justice requires the life chances are not distributed along class lines, spatial justice requires they’re not distributed geographically.” Agyeman noted that while American cities do not have walls like in Jerusalem, freeways, creeks, and railway lines still divide the population, with stark differences in life chances and expectancies, as reflected in the notion that one’s zip code may be more important than one’s genetic code in shaping health and life opportunities.

Agyeman also discussed spatial justice on the streets, comparing two specific streets, Södra Vägen in Gothenburg, Sweden, and Massachusetts Avenue in Cambridge, Massachusetts. He noted that while the streets are identical widths, on Massachusetts Avenue, the biggest vehicles appear to have the most rights, whereas in Sweden, “they democratize the streets,” imposing spatial justice such that cyclists, tram users, and pedestrians have the same rights as those in vehicles. “What does this say to the kids growing up and walking to school each day on these two different streets?” Agyeman asked. He added that work done in San Francisco in the 1970s and 1980s demonstrated street traffic and social interaction are linked, with more social interactions and friendships on lightly trafficked streets, as illustrated in Figure 5-1.

Agyeman further pointed out that given who lives in neighborhoods with the heaviest traffic versus the lightest traffic, there is spatial injustice built into cities, and that this injustice has, in many ways, come through urban planning. Agyeman described how urban planning has been used to segregate, sort, and categorize different groups of people, calling urban planning a “spatial toolkit of white supremacy.” However, he noted people are thinking differently about these things in the United States,

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
Image
FIGURE 5-1 Friends and acquaintances per person on heavy-, medium-, and light-traffic streets.
SOURCE: Transformative Urban Mobility Initiative (https://www.transformativemobility.org/publications/street-traffic-and-social-interaction); presented by Julian Agyeman on September 21, 2021, at the workshop on Spatial Justice as a Driver of Health in the Context of Societal Emergencies.

sharing an example of how the street outside of Macy’s in New York City now prioritizes pedestrians and outdoor seating instead of vehicles. “We can do this,” Agyeman said. “We have to have the political will and confidence to do it.” He also added that urban planning must be about what is possible instead of probable—only then will the paradigm shift.

Agyeman pointed out that “we’re very good … at dis-belonging, stopping people from belonging.” He shared examples of how spatial injustice is created “at the smaller scale” through hostile and defensive architecture—installing barriers along ledges to stop kids from skateboarding on them; placing armrests on benches or studs on buildings to stop homeless people from lying down on them; designing buildings with “rich doors” (leading to penthouse suites) and “poor doors” (leading to affordable housing within the same building); and placing bike

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

racks under a bridge as a way to “get rid of the homeless people”—which Agyeman characterized as “cynical use of sustainability infrastructure.”

He also noted that spatial injustice is created “at the larger scale” by constructing freeways through neighborhoods, such as the freeway separating West Oakland from downtown Oakland. Agyeman termed this “racist infrastructure,” noting that while the road itself is not racist, its placement is informed by racist thinking. He also remarked he is pleased to see that President Joe Biden’s infrastructure package includes “money for reconnecting communities by removing some of these racist infrastructures.” Agyeman noted other examples of spatial injustice at the larger scale of a city—imposing a spatial order “derived from white supremacist thinking”—including zoning and redlining. He went on to describe what Elijah Anderson of Yale University calls the “Cosmopolitan Canopy.” This refers to a “space of engagement” in cities “where people let down their guard,” eating, talking, watching a ball game, and so on (e.g., Reading Terminal Market in Philadelphia). Agyeman said Contact Theory suggests the more opportunities people have to meet others different from them, “the more likely they are to be tolerant and offer human dignity,” making spaces like this particularly important. He then asked whether there is a role for urban planners and designers in planning and creating more such Cosmopolitan Canopies (e.g., children’s spaces, dog parks, food spaces).

Agyeman went on to discuss a common urban planning method called Complete Streets, which are intended to be multiuse: “people’s streets rather than just conduits for vehicles.” However, he said, even as cities explore decentering automobiles and reducing traffic, “Will that result in enhanced livability only for the most privileged or will it result in enhanced livability for all?” Agyeman suggested going deeper, consider a complete street not just a physical entity but a social entity. He quoted Doreen Massey, who said “places are constantly shifting articulations of social relations through time.” However, Agyeman noted, “Most urban designers don’t think that way,” thinking only about the physicality and not the social ecology, which cannot be designed but rather happens through human interaction. Agyeman said he wants to think about Complete Streets as not disconnecting the street from its social, symbolic, discursive, and historical aspects. However, he said, Los Angeles, despite its Complete Streets policy, banned street vending until very recently, even though Southeast Asian and Latin cultures are focused on street vending. He further cautioned one of the problems that will be experienced with Complete Streets is “greenlining,” which is not specifically racist like redlining, but still serves to “whiten” neighborhoods. Agyeman said that as noted in the book Green Gentrification (2016), this occurs as a result of how expensive greening is and how much it costs to live in

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

“green” neighborhoods. He pointed out that one of the key metrics for urban sustainability is walkability, which can be determined via a mobile app called Walk Score, owned by Redfin, a realtor. “We have commodified sustainability so that it now sells,” Agyeman said. Rent and housing prices increase in neighborhoods with high Walk Scores, meaning “you have to buy to get in” complete, sustainable, green neighborhoods.

Agyeman then spoke about urban parks, noting that the design, management, and programming of parks is generally not done by community members. Often, these are historical decisions made decades ago; but even for newer parks, park designers, managers, and programmers do not typically look like the community. Agyeman said he wants to see “co-design, co-management, co-programming, co-production of parks and public spaces that will get us towards spatial justice.” He noted that in Boston, many organizations, “especially these old friends of the park kind of organizations, are dominated by older, white, empowered, wealthy interests,” which does not reflect new Bostonians and immigrants in what is now a majority minority city (see, for example, Lanfer and Taylor, 2004). In contrast, Agyeman described how Herter Park on the Charles River attracts Latino families because its willows, which are very common in Guatemala, make it look like home. He also described Superkilen Park in Copenhagen, which was designed by asking the community what they want in a park. They said they wanted artifacts from where they are from, leading to artifacts from approximately 100 different cultures being distributed throughout the park. Agyeman noted this is a “statement of presence … really good for designing an encounter.”

He concluded his remarks by emphasizing “the need to move on from pure demographic data” to drilling deeper to understand communities via deep ethnographies co-produced with communities. Agyeman called on the audience to imagine community and an urban planning department working together on an ethnographic analysis of the locality. He also shared an example of the Transnational Urban Outdoors Research group at the University of Sheffield’s Department of Landscape, which developed a resource book called “#refugeeswelcome in parks,”1 recognizing refugees and asylum seekers are more traumatized than the general population, and need inclusive spaces. Agyeman said it is important to think about trauma-informed design and public spaces and expressed his belief that the only way to get there is via deep ethnography.2

Jackson thanked Agyeman for his remarks and described how a change to a Complete Street in the town where he lives resulted in all

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1 Available at https://youngfoundation.org/wp-content/uploads/2017/12/refugeeswelcome-in-parks-resource-book.pdf (accessed January 20, 2022).

2 For example, immersing oneself in the culture of the affected people or community.

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

traffic—including trucks—moving out to the residential neighborhoods, which no one feels is an improvement. He also shared a study that found the worst driving (e.g., ignoring traffic controls and others on the road) is among the most expensive cars (Coughenor et al., 2020). Jackson suggested this reflects the “class and economic warfare that goes on and the sense [that] elites … do not need to comply.” Agyeman commented that traffic accidents are “heavily racially located” in the United States, with Latino, Asian American, and African American pedestrians and cyclists far more likely to be hit, at least in part because roads in the segregated neighborhoods these groups live in tend to be bigger roads with more complex intersections that are not generally traffic calmed. He noted that his road in Cambridge has a low 20-mile-per-hour speed limit, bump outs, and raised tables to prevent speeding, but that these features are not present in lower-income neighborhoods. He said, even in Cambridge, which is “more politically aware,” there are these problems of “rampant gentrification.” Agyeman added that “urban planning as the spatial tool of white supremacy … needs to be undone,” including via zoning changes, acknowledgment of redlining issues (such as the work discussed in the prior day’s session showing redlined neighborhoods are hotter today), and making planning students aware of redlining and that its effects can be undone with enough time, political will, and courage.

SPATIAL JUSTICE IN PLANNED COMMUNITY RELOCATION

Bronen, a human rights attorney and interdisciplinary social scientist, opened by noting she works on climate-forced displacement, which she considers one of the greatest challenges related to the climate crisis. She described the people she works with from 15 Alaskan Native communities as “the heart of the work … to decolonize the systems that have caused the communities that we work with to face the awful issue of relocation.” Bronen then noted colonization is not only part of the historical past, but also part of the current system of governance. She said colonization includes, in the most extreme instance, forced, government-managed, and mandated relocation, which has a long history in the United States. She mentioned that in Alaska, “it happened most recently during World War II, when the U.S. Government forcibly relocated the Unangan people from the Aleutian Islands thousands of miles away to southeast Alaska, and 10 percent of the population died.” Bronen also defined decolonization as “the intelligent and active unlearning of colonization that perpetuates the subjugation and exploitation of minds, bodies, and lands,” including restoration of cultural practices and values that were taken away or abandoned and the birth of new ideas, technologies, and lifestyles that advance and empower Indigenous peoples.

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

Next, Bronen spoke about polar amplification, describing how the Arctic is now warming three times faster than lower latitudes, compared to twice as fast as recently as last year. She said that while the United Nations (UN) Framework Convention on Climate Change has “aspirationally” set reduction of greenhouse gas emissions to 1.5 degrees Celsius (3 degrees Fahrenheit), Alaska is already far above that threshold. She said that only one degree separates melting from freezing; this is resulting in “extraordinary changes to the Arctic and the rapid reduction of Arctic Sea ice.” Bronen underscored the dramatic drop off in Bering Sea ice, which serves as a natural barrier protecting Alaskan Native communities along the coast from fall and winter storms. She added that while Alaska does not yet have hurricanes, it does regularly get hurricane-strength winds above 70 miles per hour. Without Arctic Sea ice, these winds are causing “usteq,” a Yupik word defined in Alaska’s State Hazard Mitigation Plan as catastrophic land collapse—a combination of thawing permafrost (permanently frozen ground), erosion, and flooding. This in turn causes communities “to face the decision of whether or not they can stay in their homelands.”

Bronen said the 15 Alaskan Native communities her team works with were all identified by the federal government over a decade ago as being imminently threatened by flooding and erosion. In fact, she noted, a 2009 U.S. Government Accountability Office report identified 31 such communities in Alaska, 12 of which thought relocation would be their best long-term adaptation strategy. Of the 15 communities Bronen works with, 2 voted to relocate over a decade ago, but neither has been able to “because of the colonialist, racist structure of our government policies that are not providing these communities with the resources that they need so that they can implement their long-term adaptation strategy.” These two communities, located on barrier islands, “are still in extraordinarily dangerous places,” Bronen said.

She went on to note the crux of their work is about planned community relocation—where an entire community (whether an Alaskan Native village or a neighborhood, city council government, or other jurisdiction) needs to relocate due to extreme weather events combined with slow-onset events like sea-level rise and erosion. Bronen emphasized that planned community relocation must be

  • Voluntary (moving away from the harmful model of government-forced and -mandated relocations that has been used in the past) and self-determined (with communities deciding when, whether, and where to relocate);
  • A disaster risk-reduction strategy, with relocations happening before an extreme weather event that displaces people and leaves them
Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

    in crisis, needing food, shelter, water, and health care, rather than attempting to make difficult decisions about where and how to relocate or how to be resilient in the long term in the midst of a crisis;

  • Planned, meaning a long-term, approximately five-year, process, assuming sufficient resources are provided to communities to make and implement decisions, including building infrastructure;
  • Protective of human rights, especially the right to self-determination; and
  • Focused on community, rebuilding homes, infrastructure, and livelihoods, as well as ensuring “social and kinship connections are protected and able to be sustained at a relocation site if that’s what people choose.”

Bronen also shared that in Alaska, communities want to move, and the two communities her team is working with made decisions to relocate to a site that protects their ancestral heritage. Other communities in Alaska need to identify where to relocate to build that infrastructure, while in other places in the country, people may be moving to communities with infrastructure, but that infrastructure may not be sufficient to meet the needs of everyone who will need to move there. She added that although in the work she and her colleagues do, they often think about this as moving infrastructure, it is, “at the heart,” about people moving. Thus, Bronen asked, “How can we make sure that people will be safe, strong, and resilient in the face of losing the places that they love and live?”

Bronen shared that “envisioning what this governance framework should look like” is central to the work she and her team are doing with the 15 Alaskan Native communities. She noted she has been doing this work for more than 16 years generally and with the tribes they work with for about 7 years. The governance framework she and her team have developed with the tribes involves a dynamic, iterative, and collaborative response as the climate crisis accelerates far into the future and begins with protection in place (i.e., resources to protect the places and homes where they currently live) before thinking about relocation. Her team is also working with the tribes to identify relocation indicators, “those social and health and well-being indicators that determine that it is no longer possible to stay where a community is because the land is being submerged and is going to become uninhabitable.”

Bronen described some of the key governance issues she and her collaborators focus on, beginning with the fact that there is no governance framework in the United States or globally to deal with climate-related community relocation, and that there is no federal or state agency in the United States with the mandate or funding to do this work. Bronen said

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

she and her collaborators have written comments to the U.S. Senate and various federal agencies, and that she worked to push the Obama White House Council on Environmental Quality to address this issue.

She pointed out there is no institutional framework to determine when community relocation needs to happen, who decides and how that decision is made, and where to relocate. Bronen said, “That needs to be legislated so that we are not in the position of a government making the decision not to protect people and forcing them to relocate, although that is already happening.” She noted decisions are currently being made about seawalls and who to protect. She shared the recent example of how during Hurricane Ida, Louisiana and New Orleans governments made decisions about who to protect with the new multibillion-dollar levee system, and “left out many coastal communities, including tribal nations that were devastated by Hurricane Ida and now scrambling and struggling to figure out whether they are going to be able to stay in their homelands” or where they need to relocate.

Bronen also raised the issue of how collective and individual human rights can be protected. She described her work at the international level with the UN Framework Convention on Climate Change and UN High Commissioner for Refugees, noting that while there is no human rights document that specifically addresses the rights that need to be protected in the context of climate-related community relocation, there are numerous documents (i.e., the Universal Declaration of Human Rights, the United Nations Declaration on the Rights of Indigenous People, the International Covenant on Civil and Political Rights, and the International Covenant on Economic, Social and Cultural Rights) outlining essential human rights that are relevant to this context (i.e., the right to life, the right to self-determination, the right to traditional foods, the right to practice and revitalize cultural traditions, and the right to improve and maintain livelihoods).

Bronen then shared the story of Newtok, Alaska, one of the communities that has been trying to relocate for more than 20 years. “They are the community that has moved furthest along in their relocation process, and it’s still excruciatingly, painstakingly slow,” she said. Bronen mentioned that their tribal elders developed guiding principles (known as Maligtaquyarat) for the relocation process:

  • Remain a distinct, unique community.
  • Look to elders for guidance.
  • Build a healthy future for youth.
  • Ensure community has the first and final say in making decisions and defining priorities (which is critical to decolonizing the systems that have forced them to live in vulnerable places—in the case
Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

    of Newtok and other Alaskan coastal communities, this involved government requiring community members to send their children to school under the threat of imprisonment during the 1950s and 1960s, prior to which the community was migratory, moving with the animals they harvested).

  • Ensure development reflects cultural traditions.
  • Nurture spiritual and physical well-being (including by respecting and enhancing the environment, designing with local input from start to finish, being affordable, hiring community members first, and seeking projects that build on community talents and strengthen the community economy).

Bronen said their governance framework aims to center community-based social health and environmental monitoring with community members gathering environmental impact data using their traditional knowledge, while also working with natural scientists to gather information about ongoing environmental changes and resulting impacts in the community (see Figure 5-2). She added that this latter piece is critical because U.S. disaster relief and response legislation “does not acknowledge slow, ongoing environmental change as a precipitating event to get access to funding from disaster relief and response,” a huge gap that Bronen said needs to be rectified, with community-based social health and environmental monitoring being one of the ways to do so, given that it can inform making decisions in advance of adverse events, such as usteq (i.e., catastrophic land collapse).

She concluded by discussing the work she and her team have been engaged in with Indigenous communities in the South Pacific, hosting the First Peoples and Indigenous Peoples Conference convening on climate-forced displacement in 2018. Bronen noted, “it is critical that Indigenous voices be heard by the international community so that they are leading these efforts in regard to how they can adapt and protect the things that are important to them.”

Jackson then noted he is always struck by the U.S. government claiming there are no funds to do something until something goes wrong, and then spending ten times as much after the fact. He said that while he has been thinking about climate issues for a long time, he has never heard someone discuss the need for a relocation government agency. Jackson explained that one of the problems is that whenever government decides to create a particular agency, they use that as an excuse to not worry about the issue, thus doing even less. He suggested that getting these issues to the forefront requires government investment and expressed his belief that Alaska, for such a rich state (in terms of its extraction industry), has “really underspent on this.” He asked Bronen whether they are getting

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
Image
FIGURE 5-2 Community-based social, health, and environmental monitoring.
SOURCE: Presented by Robin Bronen on September 21, 2021, at the workshop on Social Justice as a Driver of Health in the Context of Societal Emergencies; Bronen et al., 2020, p. 197; used with permission.

a response from government in terms of thinking about this more seriously, or in terms of government leaders like John Kerry speaking to this issue. Bronen responded that Kerry came to Alaska with President Barack Obama in 2015 specifically because of the advocacy of the Alaskan Native tribes, particularly Kivalina, one of the communities that needs to relocate. That said, she said it is “really important to understand that most governments in the world, including the United States, have zero desire to manage the internal movement of people,” both because of the historical legacy previously discussed as well as the complexity of these issues.

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

She noted their collaborative governance framework requires both a lead federal government agency and resources from various different agencies (e.g., Housing and Urban Development, Department of Transportation), which will be needed “to address the needs of people who are no longer able to stay in the places they call home.” Jackson then characterized Bronen’s presentation as “shattering,” noting the scope of the challenges faced in these smaller communities is going to spread much more widely across the planet moving forward.

SPATIAL JUSTICE IN LOGISTICS AND REGIONAL PORT ECONOMIES

De Lara opened by sharing that as a trained geographer, space is critical to him. He said it is important to think about the way spaces that are built (1) represent and reproduce the social inequalities that already exist in society (especially in terms of who participates and makes decisions about the way space is built and used) and (2) produce new social inequities (by not considering the impacts of “megaprojects” on marginalized communities). He noted his focus on the ports of Long Beach and Los Angeles in the post-1980s period, when a lot of energy and public and private investment were focused on building a regional transportation infrastructure to make Southern California into a major U.S. port. Planners at the time focused on what becoming a major port would mean for economic growth and job growth, which was especially important at the time because of a need to replace blue-collar manufacturing jobs being lost due to globalization and deindustrialization.

De Lara noted that this focus on becoming a major port led to “tremendous growth” in industries relying on diesel engines (e.g., ships waiting offshore, trains taking cargo from ports to rail yards, trucks delivering containers from ports to trains or to local warehouses) and thus diesel pollution. He explained that many communities in southeast Los Angeles around the ports “were exposed to cancer-causing diesel pollution that essentially was responsible for the premature death of tens of thousands of Angelenos on a yearly basis.” The city and the region undertook an effort to clean up the ports, culminating with the Clean Air Action Plan, which included cleaner train yard operations, cleaner burning fuel for ships, and a cleaner trucks program, as well as implementation of policies to minimize exposure to diesel pollution. De Lara said this was “largely written off as a success” and enabled policy makers “to continue to support a regional economy that was seen as beneficial to the region.”

However, De Lara cautioned that when such issues are examined within a narrow definition of environmental sustainability, “that precludes us … from being able to see the wider social effects of specific

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

economies.” He said one such social effect is how the question of humans as cheap sources of labor is not examined in these conversations about sustainability. In the case of truck drivers, De Lara said they were exposed to environmental hazards in their workplaces and communities (which were being polluted by these industries) and also unable to live within the city of Los Angeles. He described how truck drivers thus “made a big push to include questions of labor sustainability and labor rights into conversations of urban regional ecologies” and to consider human beings in sustainability conversations, especially the largely immigrant, blue-collar workers sustaining these industries. Another such social effect De Lara pointed out is the failure of these conversations about the ports to include other regions, especially inland counties. He explained how the efforts to clean up the ports did not help inland county residents located near warehouses, distribution centers, and rail facilities. De Lara said advocates in those neighborhoods argued that “cleaning up the ports essentially would amount to an increase in truck traffic in inland communities that would further exacerbate social inequalities because many of the communities located near these warehouses and distribution centers were people of color, mostly Latinx and working class.” De Lara suggested “massive infrastructure projects” and the metrics used to measure their success need to be more clear about the two issues he posed earlier, namely, how spaces that are built represent existing social inequities and produce new ones. Much of that, he said, has to do with scale, because sustainability “metrics used for site-specific projects do not often include larger issues about society and social inequities.”

Jackson mentioned that through the 1990s, people were repeatedly told free trade would make life better for everyone by making products less expensive. He noted that much production ended up offshored (i.e., deindustrialization), and it meant many people out of work. Jackson said some of the worst health metrics are in areas that have undergone deindustrialization and that “not having a job, not having meaningful work, is a health disaster, amongst other things.” Jackson explained he was struck by De Lara’s remarks about the narrow vision of only looking at the port of Los Angeles, without attention to the inland areas. Jackson said at one point, 20 to 30 percent of Los Angeles’s air pollution was due to ships, and even at the moment, there are likely 100 ships waiting to get into the ports of Los Angeles and Long Beach. Yet, he noted, the people bearing the brunt of this are inland, in counties like Riverside and San Bernardino (an area known as the Inland Empire), where they experience some of the worst air pollution in the country. Similarly, he said, those in Boyle Heights have heavy trucks coming through, damaging streets and disrupting neighborhoods where children are playing. “And yet we think that this opening up of global trade is going to make things better,”

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

Jackson said. “But in many ways, it has really undermined the quality of life in many parts of Los Angeles. It is a policy issue.” Jackson also noted the miles of warehouses visible when flying into the Los Angeles airport and that none of them has solar panels on top. He concluded by asking De Lara, “How can we pull the lens back, so we get a wide-angle view about what we’re actually doing here?”

De Lara said one of the things he has focused on is what is meant by “just sustainability.” He noted it is important to move away from questions about sustainability that do not include social issues. Instead, he said he would like “a model of sustainability that includes things like racial justice, social justice, and economic justice, because I don’t think that we can have a conversation, especially in a place like Southern California, if we are going to adopt economic development models—even if it’s the greener economic development models like Green Ports—without having a conversation about the kind of human experience that is produced by those economies.” De Lara addressed Jackson’s example about coming into the Los Angeles airport and flying over places like Wilmington and Lennox with oil refineries and other industrial sources of pollution, saying that this needs to be considered holistically, considering particular projects as well as the broader economic development model the locality has adopted.

He added that one thing to think about is whether people have the resources needed to seek the kinds of preventative health care necessary to monitor the types of health conditions caused by environmental factors like air pollution. De Lara noted much of the struggle for environmental justice in places like Southeast Los Angeles and the Inland Empire has been about convincing policy makers the metrics being used and data being collected are not “appropriate to scale, meaning we do not have enough sensors and data collection points that look at micro-economies and micro-ecologies to see how individual neighborhoods are being impacted by these large regional policies.” De Lara added that “regional metrics do not scale down to look at how social inequity is reproduced on the ground at the neighborhood level” and that is something planners and policy makers need to be able to consider. He noted that Jackson mentioned earlier the Inland Empire having the most polluted air, and that the reason that is a known fact is because communities pushed regulators to enable data collection and put sensors in those neighborhoods. De Lara emphasized the importance of considering what is being measured, the scale at which it is being measured, and how larger regional projects influence neighborhood-level microecologies. He added, “In Southern California, we know that we live incredibly segregated not only by race, but by economic landscape, and that the way that these major projects and economies influence people’s everyday lives is completely based on their location and that kind of spatial stratification of society.” Jackson responded, “When I was young,

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

I didn’t realize that the decisions to measure and what you measure is a political decision a lot more than a scientific one.”

DISCUSSION

Jackson then invited Agyeman and Bronen to join the discussion. He added that he worries “we’re training specialists in our world … who are very good at the very narrow issues but are not able to capture the issues the three of you just outlined so profoundly.” Jackson noted people can think about specific engineering measurements or desalination of water supplies, but not a more global policy. On the other hand, he said, “deep policy people don’t have a lot of content substance.” Agyeman responded that each of the panel presentations highlighted this concern and that one of the reasons he is in urban planning is because the field “is a mile wide and an inch deep.” He noted that as an urban planner, one is “a bit of a geographer … a bit of an engineer, a bit of an architect, a bit of an ecologist, a bit of a lawyer”—a very “intersectional profession.” Agyeman said that unlike engineers, who solve problems often without thinking in contextual terms, urban planners do consider context.

Yet, he said, he runs a master’s program for students to become urban planning professionals and recognizes the problem with professionalism: “It’s a closed shop. It is the keeper of knowledge. I know the acronyms. You don’t. What we have to recognize is multiple knowledges.” He added that Bronen did a great job on this front, and that professionals need to listen first and speak second, being “on tap, not on top,” and recognizing their knowledge is just one form of knowledge. Agyeman shared how in a class he is teaching on food justice to policy makers, the nutrition students, when asked what a food desert is, will provide U.S. Department of Agriculture data and a perfect definition, but are unable to describe anything about the daily coping strategies of those living in such food deserts. “These are incomplete forms of knowledge,” Agyeman said, and professionals must be equipped to understand they are not the only gatekeepers of knowledge. He then provided the example of New Zealand and its Treaty of Waitangi, “which really sets up more of a listening society,” where things cannot get done without agreement from the Māori people and chiefs, where one cannot become a resource manager without understanding Māori cosmologies. “We need to do this in the United States,” said Agyeman. “We need a much more nuanced notion of what knowledge is and the significance of different contributions and knowledge.” He added that this is why he pushed the idea of co-producing public spaces, arguing that this would reduce the need for heavy policing because social policing would happen and “we would have inbuilt mechanisms for public safety.” Agyeman concluded by noting the need to think

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

about how certain kinds of knowledge are privileged, with the ultimate privilege going to white supremacist and settler colonial knowledges.

Jackson then invited Bronen to share her thoughts, noting that she captured this issue in her remarks and admitting that as an elder, he likes the idea of listening to those with more experience, although “oftentimes we need to be told to be quiet.” Bronen responded that Agyeman’s and De Lara’s presentations highlight the importance of understanding the historical legacies of racism and colonialism, which are still present, in light of the fact that much land is going to become unhabitable. She noted the Tulsa massacre has only received media attention in the past couple of years, but that those histories inform the present, and those injustices must be rectified moving forward. Bronen acknowledged that while there are those who “envision a world where the paradigm of colonialism and racism no longer exists … there are other people who are envisioning how to not make it possible,” along with government perpetuating these legacies. She said it is important to exit this “endless loop.” Bronen added that the climate crisis in particular requires “a different type of leadership,” beginning with tribal sovereignty and decolonization.

Jackson mentioned current leadership in the domains of transportation, land resources, management, energy, and climate and agreed there is a need for “diverse leaders who bring wisdom and humanity,” even though “Americans tend to be very cynical about leadership.” He also noted that as Agyeman spoke about knowledge, the word “epistemology” from the prior day’s sessions came to mind. “How we put our knowledge to work here is so critical in all of this,” Jackson said, adding that “the tribal elders … have a knowledge that is so much broader and richer than the one that somebody who’s been reading a book has.” Agyeman responded by noting that he has called for “deep ethnographic understandings of communities” instead of relying on demographic data as is currently done. He noted that demographic data “gives us a percentage of Black and Brown and other bodies in the neighborhood, but it doesn’t tell us anything about their daily spatial practices, their daily coaching practices, their desires, their wants, their fears.” Agyeman said such deep ethnographic understanding is another form of knowledge, and one that should be produced not only by the community, but also by planners, urban designers, and others working with communities. He added this information “can be readily updated as communities change” and provides “a much more nuanced understanding of communities rather than just purely demographic data.” Agyeman said that while demographic data are useful in some ways, they are not the whole picture, which will “only come about through listening and … through leadership.” He commented that he is pleased Boston, for the first time in its nearly 400-year history, is going to have a woman mayor, and one of color. Agyeman said “we need a new narrative,” which the new mayor

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

will help weave, and “it’s a much more detailed and nuanced narrative than … [what] currently Boston trades on.”

Jackson noted that in light of the stock market’s performance, many philanthropic foundations will see a “large windfall” and are “going to be looking at where they can invest most effectively.” He asked each of the speakers, if they received a call from a “deep pocket foundation” asking about “the one big thing” to emphasize for the next five years and saying they could fund it, what that would be? De Lara said he has been focusing on understanding what data points are used to “imagine and rationalize the kinds of spaces” built to produce a social good. He noted that in the example he shared with respect to projects in Los Angeles, investing billions of dollars was justified by the idea that using data to build a regional economy that would produce good paying jobs would be good for society. De Lara said that when workers said, “these projects are killing us and are killing our bodies,” policy makers responded by saying, “let’s take this data point about premature death and pollution and let’s just … negate that, mitigate that.” However, he said, the larger point workers were making is about having a conversation about the kinds of neighborhoods and spaces that are important to help people thrive. De Lara called for enabling a conversation about planning and regional development that centers the knowledge of communities, taking a “humanistic ecological perspective.” This conversation, in turn, leads to questions about power, he said. He noted that affected communities largely “have not had a say in the kinds of spaces that produced and planned for and invested in,” and that the current model of development is designed to produce only certain metrics of success, primarily job growth.

Bronen responded to Jackson’s question about where to invest money from a deep pocket foundation by sharing that her team recently received a multimillion-dollar investment from a philanthropic collaborative to create a relocation governance framework based on human rights. She added this is urgently needed given that the climate crisis is going to continue non-linearly and accelerate, rendering much land permanently uninhabitable. Without this governance framework, Bronen said, current governance structures’ racism and colonization will continue. She added that her team will be working with 10 Alaskan Native tribes with the money they just received, and the tribes will receive the bulk of the funding to “create this vision of their future in a seriously climate altered world.” Jackson admitted that coming out of a technical medical background, there was a time when he lacked the training and patience for community dialogue, but that “this is a demand to really listen a lot better and more.”

Agyeman opened by saying “the most corrosive force in our society is inequality,” with much research indicating wider gaps between rich and poor are associated with deeper social problems. For instance, he said,

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

teen pregnancy, incarceration, school failures, and drug addiction increase as inequality increases. He added, “our tendency to try and keep up with the Joneses increases” as inequality increases, with this competitive consumption driving higher carbon footprints in more unequal societies. Agyeman said he would set up an “Inequality Action Fund” to examine and act on inequality, related to domains such as housing or pertaining to specific populations such as Indigenous communities. For instance, he suggested exploring “what evidence of the Indigenous past, present, and future is there in Boston.” Agyeman added that as an urban planner he is “ashamed and shocked” at the absence of land acknowledgments, although he and others are now beginning to do this and become “more serious about recognition,” especially in light of environmental and spatial inequalities. He said he is interested in how to narrow the gap between rich and poor, which data suggest would result in a happier, safer society. “We can do this,” he said. “We have the science of sustainability. What we don’t have is the social science. We don’t have political will and courage. We don’t have necessarily public sympathies and support.”

Jackson then noted that there are physical changes—social, as well as economic—that need to be made in society. He pointed out that depression—which he said is arguably the most prevalent disorder in the United States—and concurrently, obesity, are by-products of inequality, including spatial inequity (e.g., only 16 percent of American children can walk to school because of how their communities are physically built). Jackson then opened the floor for closing remarks from each of the panelists. De Lara said it goes back to “what are the measures of success and how do we measure sustainability and wellness,” with community health indicators driving “more of the kinds of spaces that we create in this society.” Bronen said her comments are aimed at young people “to have the courage and strength to continue to persevere in your vision of a world that is just and equitable because it is critically important in the times in which we live.” Agyeman responded, “Social justice never simply happens. We need to make it happen.” He added that policy makers tend to have economic, technical, environmental, and scientific goals. If equity and social justice improve “that’s great, but it’s never a first order.” He said it needs to be made first order, and that around the world, “where cities have prioritized social justice and equity … the outcomes have reflected that.” Agyeman provided the example of the city of Belo Horizonte in Brazil, which has “the most advanced food security system” and has been called “the city that abolished hunger.” He explained that it did so by adopting three principles: the constitutional right to food, food with dignity (which relates to the idea of humane policy making), and a socially just food system. Agyeman said, “You don’t [just] get to social justice; you need to start with social justice in policy making. It needs to be front and center.”

Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×

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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
×
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Suggested Citation:"5 Public Space 101 for Cross-Sector Partnerships That Can Drive Change." National Academies of Sciences, Engineering, and Medicine. 2023. Spatial Justice as a Driver of Health in the Context of Societal Emergencies: Proceedings of a Workshop. Washington, DC: The National Academies Press. doi: 10.17226/26858.
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Spatial justice is about equitable access to parks, housing, and more. During societal emergencies, including pandemics and climate change, the relationship between people and places requires greater attention and action to integrate the knowledge of people with lived experience, especially historically marginalized communities. On September 20 and 21, 2021, the National Academies Roundtable on Population Health Improvement hosted a virtual workshop to explore the nature, use, design of, threats, and changes to places as a resource for health and public spaces as a shared resource. This Proceedings document summarizes workshop discussions.

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