XII.
Title VI &
Environmental Justice
“The State and the MPO shall annually
certify to the FHWA and the FTA that the planning process is addressing the
major issues facing the area and is being conducted in accordance with all
applicable requirements of ... Title VI
of the Civil Rights Act of 1964.”
23 CFR '450.334(a)(3)
The Civil Rights Act of 1964 guarantees equal protection under law and prohibits intentional discrimination based on race, color, or national origin. In 1984, Federal regulations implementing Title VI were amended to prohibit recipients of Federal aid from carrying out any policy or program that has the effect of discriminating against individuals covered under the 1964 Civil Rights Act. FHWA and the FTA issued a memorandum Implementing Title VI Requirements in Metropolitan and Statewide Planning that gave a clear message that Title VI and Environmental Justice are integral throughout the transportation planning process.[i] As part of the annual self-certification and in its adoption of the TIP, CDTC is required to certify its planning process adheres to Title VI.
Environmental Justice (EJ) is a relatively new term to transportation, specific Federal guidance on EJ has been slow in coming, and the State and MPOs have therefore proceeded tentatively. In 1994, President Clinton issued the Executive Order on Environmental Justice, citing the 1964 Civil Rights Act and Title VI as foundational pillars.@[ii] The Executive Order directs all Federal agencies to incorporate, as part of their mission, the goal of achieving environmental justice by ensuring that federally funded policies and programs do not subject minority and low-income communities to Adisproportionately high and adverse human health or environmental effects”. [iii]
CDTC's public involvement process, especially as conducted in the development of New Visions series of plans, is exemplary. CDTC routinely includes an effort to perform a review of EJ issues, as well as to implement a standard procedure for including EJ considerations in the planning process.
Environmental Justice Analysis
The goal of EJ is to ensure that services and benefits are fairly distributed to all people, regardless of race, national origin, or income, and that they have access to meaningful participation. In transportation programs, this includes:
q
Avoiding, minimizing, or mitigating disproportionately high and
adverse human health and environmental effects (social and economic) on
minority and low-income populations.
q
Ensuring the full and fair participation in the transportation
decision-making process by all potentially affected communities.
q
Preventing the denial of, reduction in,
or a significant delay in the receipt of benefits by minority and low-income
populations.
We note
that the Title VI and the Executive Order do not prescribe the specific methods
and processes for ensuring environmental justice in transportation planning. State and local transportation agencies are
free to explore and devise their analytical techniques and public involvement
approaches to integrate EJ considerations in transportation decision-making.
EJ assessments were included in CDTC’s TIP evaluations for
the first time in the 2003-2008 TIP.
CDTC’s approach to the analysis of EJ is well documented in its Environmental
Justice Analysis draft
report.[iv] The MPO’s initial emphasis has been to
complete a system-level evaluation of the planning program, adopted plans and
programs.
CDTC’s EJ program sets forth three basic questions:
1) Is there adequate access to the process?
2) Is the outcome equitable?
3) Are the impacts fairly distributed?
CDTC
identifies the location of EJ communities based on attribute data that
primarily comes from the U.S. Census Bureau, as well as any other data
available locally that would help identify EJ populations. CDTC uses its GIS[v] to
visually display the data, which helps in the identification of geographic
areas of “special concern”(e.g., low income and
minority geographic areas).
CDTC defines “special concern areas” as areas that have the
populations exceeding the regional mean in certain categories – the regional
mean becomes the threshold for identification:
Data Set |
Total for CDTC area |
Regional Percentage (Threshold) |
Minority
Population |
89,021 |
11.2% |
Hispanic
Population |
19,977 |
2.6% |
Low
Income Population |
70,544 |
8.9% |
Zero
Car Households |
36,022 |
11.3% |
|
|
|
CDTC
aggregates the Census data into Transportation Analysis Zones (TAZ), which are
the geographic units used in CDTC’s travel-demand forecasting model. In the present model, there are 924 TAZ in
the Capital Region. CDTC identifies any
TAZ with a minority population greater than 11.2% or a low income population
greater than 8.9% as an area of special concern. Out of a total of 924 TAZs in the region,
425 meet one or more of the threshold levels for special concern. Therefore, 46% of the region’s TAZs are
Environmental Justice target population areas.
Seeking Out the EJ Community’s Input
CDTC uses both traditional and
nontraditional methods of soliciting input into its plans and programs. The traditional methods involve the web site,
mailing list announcements, availability for public comments are CDTC meetings,
and so on. CDTC has also employed some
nontraditional approaches. It first
used its Urban Issues Task Force to identify and elevate the importance of
problems of older cities with pressing social demands. It adopted a budgetary plan that establishes
a policy to create budgetary space in TIPs and UPWPs for initiatives targeted
at EJ community concerns; these include (1) community compatibility and
economic development projects; and (2) increased land use economic development
assistance to municipal and other local planning through the Linkage program
(see page 29). Since a foundational
principle of CDTC project selection is to maintain a funding balance across all
categories in the Plan, under-represented project categories are given special
consideration during the first round of TIP project programming.
Figure 25: Percent of TAZs
in the four Counties that are EJ target population areas |
In the development of 2030 New Visions plan, the MPO is exploring questions of regional form, social equity and policy regarding highway expansion to address growing suburban congestion. These questions impact the EJ communities and CDTC has proactively sought out their valued input. A significant relationship has developed with ARISE (A Regional Initiative Supporting Empowerment), which is a faith-based community organizing project covering the four counties. ARISE is a broad alliance of different interest groups-environmentalists, inner city residents and leaders, business, government, farmers, labor, suburbanites, and faith communities working together across regional, racial, and economic boundaries. Its purpose is to bring together congregations and other membership organizations in the Capital Region as a strong coalition in order to locate areas of shared community concern, define solutions and develop a voice for positive change, especially in distressed neighborhoods. ARISE currently has over 40 member organizations.[vi]
CDTC has
assisted ARISE in several ways over the past several years[vii],
recognizing the group’s potential to bring minority and other EJ populations’
needs to the regional table. In fact,
CDTC Staff Director John Poorman was honored as ARISE’s “Ally of the Year” in
2003.
Linkage Studies
The Linkage program (see Section IV: Land
Use and Transportation Planning) is a CDTC funding program that provides
financial and technical assistance to local communities and not-for-profit
agencies for local transportation studies.
Regarding the program’s relationship to EJ, we note that the
solicitation of candidate projects is sent to every municipality and every
entity of the Enhancement list. CDTC has
advanced studies proposed by the Albany Housing Authority and the W. Haywood
Burns Environmental Center in
Access to Jobs
The Capital Region Access to Jobs Committee was convened in
1998 as part of an effort to develop short and long-term employment and
transportation needs for low-income population and public assistance program
participants. The Committee is comprised
of CDTC, Social Services Department of Albany,
[i]
[ii] Executive Order 12898: Federal Actions to Address
Environmental Justice in Minority Populations and Low Income Populations, signed
by President Clinton on
[iii] EJ is concerned with issues as they impact both the
individuals in the Title VI identified categories, plus the low-income sector,
which was not covered by Title VI.
[iv] Capital District Transportation Committee - Environmental Justice Analysis, CDTC, March 2004
[v] Geographic Information System
[vii] CDTC sponsored ARISE’s
[viii] Capital District Transportation Committee - Environmental Justice Analysis, page 17, CDTC, March 2004