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Building Theories to Understand the Underlying Mechanisms of Injustice in
Urban Climate Governance
Sara Hughes National Center for Atmospheric Research
Workshop on Policy Process Research University of Colorado Denver
February 15, 2012
Road Map I. Urban climate planning
a) Status and trends b) Justice in processes and plans
II. Explaining injustice in urban governance a) Four approaches b) Lessons learned and gaps remaining
III. Institutions and justice in urban climate planning in Delhi and Mexico City
Road Map I. Urban climate planning
a) Status and trends b) Justice in processes and plans
II. Explaining injustice in urban governance a) Four approaches b) Lessons learned and gaps remaining
III. Institutions and justice in urban climate planning in Delhi and Mexico City
Road Map I. Urban climate planning
a) Status and trends b) Justice in processes and plans
II. Explaining injustice in urban governance a) Four approaches b) Lessons learned and gaps remaining
III. Institutions and justice in urban climate planning in Delhi and Mexico City
“A significant change (such as a change having important economic, environmental and social effects) in the mean values of a meteorological element (in particular temperature or amount of precipitation) in the course of a certain period of time, where the means are taken over periods of the order of a decade or longer.” National Snow and Ice Data Center, CU Boulder
Climate Change
Key Anthropogenic Drivers: • Increase in CO2 levels from fossil fuel
consumption • Atmospheric aerosols and ozone
depletion • Deforestation
Climate Change
Status and Trends
An Increasingly Urban World
Status and Trends
Cities are Sources of CO2 Emissions
Status and Trends
Cities are Sites of Impacts
Expanded Urban Heat Islands Uncertainty in Water Supplies
Status and Trends
Cities are Sources of Innovation and Policy Action
The tools and processes cities use to manage their carbon emissions and adapt
to the possible consequences of climate change
Urban Climate Planning
Mitigation: • Green buildings • Energy efficient
transportation • Energy and water
conservation • Open and green
space preservation
Adaptation: • Economic and
development planning
• Reduced exposure to hazards
• New decision making processes
Status and Trends
Examples of urban climate planning actions:
Cities in developing/industrializing countries are increasingly developing climate plans
Status and Trends
Mexico City Pact: 208 cities representing 250 million people 197 cities (95%) from developing/industrializing countries
Status and Trends
• Vulnerabilities are particularly acute – Extreme events – Exacerbating existing problems of poverty
and environmental stress • Critical that urban climate governance
generates local and equitably distributed benefits
Status and Trends
Status and Trends
Sea Level Rise Rio de Janeiro
Source: Reuters, 2009 Source: Andrea Ferraz Young, 2011
Flooding Mexico City
• Vulnerabilities are particularly acute – Extreme events – Exacerbating existing problems of poverty
and environmental stress • Critical that urban climate governance
generates local and equitably distributed benefits
Status and Trends
Source: Dr. Peter Kim Streatfield, ICDDR,B
• Vulnerabilities are particularly acute – Extreme events – Exacerbating existing problems of poverty
and environmental stress • Critical that urban climate governance
generates local and equitably distributed benefits
Status and Trends
• Vulnerabilities are particularly acute – Extreme events – Exacerbating existing problems of poverty
and environmental stress • Critical that urban climate governance
generates local and equitably distributed benefits
• Major gap in urban climate governance research is the implications for equity and justice (Bulkeley 2010)
Status and Trends
Justice in Processes and Plans
Justice in Processes and Plans
John Rawls: Justice as Fairness
• Terms of allocating benefits and burdens are such that a reasonable person would accept them and expect others to do the same
• Difference principle: Social and economic inequalities are just only if they work to the greatest benefit of the least-advantaged members of society
Justice in Processes and Plans
Amartya Sen: Enhancing Justice and Removing Injustice
• Just institutions vs. Just “comprehensive outcomes”
• Comparative principles for evaluating the advancement or retreat of justice and choosing between alternatives
• Enhancing Freedoms
What is justice in urban governance?
Justice in Processes and Plans
Fainstein:
Democracy Diversity
Equity
Agyeman:
Equal protection and meaningful involvement of all people in decision
making and implementation and the equitable distribution of
benefits.
What is justice in urban climate planning?
Justice in Processes and Plans
1. Representation of Disadvantaged Groups in Planning (Process) 2. Priority Setting and Framing that Recognizes the Needs of Disadvantaged Groups (Outcomes) 3. Benefits and Their Distribution Enhance Freedoms and Capabilities of Disadvantaged Groups (Outcomes)
Why would people be left out?
Explaining Injustice in Urban Governance
Why would people be left out?
Political Economy of
Urban Poverty
Institutional Capacities
Technocractic Governance
Thick Injustice
Explaining Injustice in Urban Governance
Political Economy of Urban Poverty Lack of accountability to, and representation of, the poor
• Poor have few opportunities to participate in policy making processes and little influence on elections
• Often no government agency, department or ministry with responsibility, programs, or funds
• Social and economic policy perceive poverty differently and incompletely
Explaining Injustice in Urban Governance
Banks, Nicola, Manoj Roy and David Hulme. 2011. Neglecting the urban poor in Bangladesh: research, policy and action in the context of climate change. Environment and Urbanization, 23:487, p. 487-502.
Explaining Injustice in Urban Governance
Thick Injustice Deep, densely concentrated, and opaque injustices
• Historical roots and processes • Relationship between injustice and the structure of
local governance • Suburbanization and privatization
• Links between injustice and physical place (infrastructure, urban design, neighborhoods, etc.)
• Spatial mismatches
Explaining Injustice in Urban Governance
Explaining Injustice in Urban Governance
Bramley, Glen and Sinead Power. 2009. Urban form and social sustainability: the role of density and housing type. Environment and Planning B: Planning and Design 36, p. 30-48.
Technocratic Governance Technical information in policy making marginalizes groups not using or encompassed by this information
• How information is produced • What information is used • Dominance of western-style scientific information,
especially in environmental policy • Epistemologies become institutionalized
Explaining Injustice in Urban Governance
Explaining Injustice in Urban Governance
Eden, Sally and Sylvia Tunstall. 2006. Ecological versus social restoration? How urban river restoration challenges but also fails to challenge the science-policy nexus in the United Kingdom. Environment and Planning C: Government and Policy, 24, p. 661-680.
Institutional Capacities Local governments have the authority but not the administrative, financial, or technical capacity
• Lack qualities of good governance: decentralization and autonomy, transparency and accountability, and responsiveness and flexibility
• Under-funded • Under-trained
Explaining Injustice in Urban Governance
Explaining Injustice in Urban Governance
Centralized
Decentralized
Reactive Anticipatory
Centralized Anticipatory
Centralized Reactive
Decentralized Anticipatory
Decentralized Reactive
Gaps Remaining
Under what conditions are the different mechanisms of injustice most important?
• Certain types of urban governance problems?
• Different political and cultural contexts? • Certain institutional features of governance
mediate the relationship between the mechanisms and the outcomes?
Gaps Remaining
Under what conditions are the different mechanisms of injustice most important?
• Certain types of urban governance problems?
• Different political and cultural contexts? • Certain institutional features of governance
mediate the relationship between the mechanisms and the outcomes?
Gaps Remaining
Under what conditions are the different mechanisms of injustice most important?
• Certain types of urban governance problems?
• Different political and cultural contexts? • Certain institutional features of
governance mediate the relationship between the mechanisms and the outcomes?
Institutions and Justice
Urban Climate Planning
Institutions and Justice
Intergovernmental Organizations and International Negotiations
Urban Climate Planning
Institutions and Justice
Intergovernmental Organizations and International Negotiations
National Policies
State Policies
Urban Climate Planning
Public
Institutions and Justice
Intergovernmental Organizations and International Negotiations
National Policies
State Policies
Urban Climate Planning
Private
NGO
Public
Research Question: Do the institutional channels of urban
climate governance create differences in the equitable production urban climate plans?
1. Are there resulting differences in the equitable production and distribution of local environmental, economic, and social benefits?
Institutions and Justice
Institutions and Justice
Institutional Channels
Bottom-Up Top-Down
Institutions and Justice
Political Economy of
Urban Poverty
Institutional Capacities
Technocractic Governance
Thick Injustice
Participation and
Coalitions
Priority Setting and
Framing
Distribution of Benefits
Mechanisms of Injustice
Justice in Planning Outcomes
Institutions and Justice
Political Economy of
Urban Poverty
Institutional Capacities
Technocractic Governance
Thick Injustice
Mechanisms of Injustice
Participation and
Coalitions
Priority Setting and
Framing
Distribution of Benefits
Justice in Planning Outcomes
Institutions and Justice
Mechanism of Injustice
Importance in Bottom-Up
Importance in Top-Down
Technocratic Governance Institutional Capacities
Research Design: Evaluate climate planning in Delhi and
Mexico City
Institutions and Justice
Institutions and Justice
Institutions and Justice
Institutions and Justice
1. Identify the affected and disadvantaged populations in each city
2. Evaluate whether and how these communities are included in participation and coalition building, priority setting and framing, and the distribution of benefits
3. Why were communities included or not?
Climate Plans and Interviews
Livelihoods Approach Using Secondary Data
Interviews
Institutions and Justice Improved understanding: 1. Theory: mechanisms of injustice and
the intervening effect of institutions 2. Obstacles and opportunities for greater
justice in top down and bottom up systems of urban climate planning
3. Relationship between where and how
(climate) planning occurs and the benefits that are experienced.
Thank You
Thank You
Let’s Discuss