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Urban Sustainability in An Age of Enduring Inequlities.
Urban Sustainability in An Age of Enduring Inequlities.
PERSPECTIVE
Urban sustainability in an age of enduring
inequalities: Advancing theory and ecometrics
for the 21st-century city
Robert J. Sampsona,1
Edited by Karen C. Seto, Yale University, New Haven, CT, and accepted by Editorial Board Member B. L. Turner December 8, 2016
(received for review August 29, 2016)
The environmental fragility of cities under advanced urbanization has motivated extensive efforts to
promote the sustainability of urban ecosystems and physical infrastructures. Less attention has been
devoted to neighborhood inequalities and fissures in the civic infrastructure that potentially challenge
social sustainability and the capacity of cities to collectively address environmental challenges. This article
draws on a program of research in three American cities—Boston, Chicago, and Los Angeles—to develop
hypotheses and methodological strategies for assessing how the multidimensional and multilevel inequal-
ities that characterize contemporary cities bear on sustainability. In addition to standard concerns with
relative inequality in income, the article reviews evidence on compounded deprivation, racial cleavages,
civic engagement, institutional cynicism, and segregated patterns of urban mobility and organizational ties
that differentially connect neighborhood resources. Harnessing “ecometric” measurement tools and
emerging sources of urban data with a theoretically guided framework on neighborhood inequality can
enhance the pursuit of sustainable cities, both in the United States and globally.
| | | |
neighborhood inequality sustainability civic infrastructure governance ecometrics
Downloaded from https://www.pnas.org by 171.76.243.128 on June 10, 2023 from IP address 171.76.243.128.
Accelerating urbanization has exposed the fragile accessible green spaces, and environmental toxicity.
ecological future of cities and spurred extensive con- It follows that technological approaches to sustainabil-
cerns about urban sustainability (1, 2). Efforts to confront ity, although necessary, are not sufficient. The re-
environmental challenges are increasingly reliant on search reviewed in this Perspective further indicates
largescale data sources and rapidly changing commu- that sharp and growing inequalities would also remain
nication technologies for solutions. The “smart cities” in core features of the social and institutional infra-
movement in particular aims to connect urban trans- structure. Divisions within and across cities in concen-
portation, energy, disaster preparedness, health emer- trated poverty, fragmented organizational networks,
gency, and other systems of urban service delivery. institutional mistrust, and exposure to violence, for
The explosion of “big data” and real-time monitoring example, are deep and surprisingly persistent (5). In-
devices are also major features of recent efforts to equalities in the physical health and social fabric of
enhance ecological sustainability. Funding has fol- cities constitute a threat to urban sustainability and
lowed suit: last year, the National Science Foundation call into question the ability of cities to collectively
allocated $40 million in funding to design smart and respond to environmental challenges.
connected communities of the future. This article therefore argues that to be truly “smart,”
Cities are highly unequal, however, a stubborn fact cities of the future—and the diverse neighborhoods
that both scientific and policy approaches to sustain- therein—need fresh theoretical ideas and analytic tools
ability must increasingly address (3, 4). Consider a for integrating environmental sustainability with the pro-
thought experiment: complete data with perfect tech- motion of human welfare, or social sustainability. The
nological systems of real-time coordination arrive in basic premise is that whereas ecological processes
every city tomorrow. Even in this counterfactual sce- have understandably taken precedence in the ur-
nario, we would still have vast inequalities in the phys- ban sustainability literature, the sustainability of cit-
ical infrastructure of cities, such as housing quality, ies entails vital social processes: human well-being
a
Department of Sociology and Boston Area Research Initiative, Harvard University, Cambridge, MA 02138
Author contributions: R.J.S. wrote the paper.
The author declares no conflict of interest.
This article is a PNAS Direct Submission. K.C.S. is a guest editor invited by the Editorial Board.
1
Email: rsampson@wjh.harvard.edu.
availability of big data. The article begins with a brief overview of the bigger tendency for low-income neighborhoods is to remain
the multidimensional nature of urban inequality. “stuck in place” (9). More generally, neighborhood inequalities
have persisted across long time scales and historical eras despite
The Landscape of Cumulative Adversity the transformation of political regimes and the specific layout of
The rise of the rich—the so-called “1 percent”—has drawn cities (18). Although beyond the scope of this paper, sharp and
widespread attention to relative inequality at the top of the in- growing inequalities characterize most international cities as well
come distribution (6). Less visible are the inequalities that cut (19). Spatial inequality is thus pervasive, multidimensional in nature,
across a wide swath of everyday life, such as concentrated pov- and persistent, even though neighborhoods constantly change,
erty, joblessness, family instability, violence, housing insecurity, reflecting an “enduring neighborhood effect” (5).
high rates of incarceration, and infant mortality. Economic and
social adversity in African American communities in the United Social Mechanisms and Processes Underlying
States are especially durable and severe (7, 8), extending across Sustainability
long time periods and multiple generations (9). For example, The argument of this paper is that the spatial inequalities just
nonpoor blacks are more likely to live in poor neighborhoods than described, both environmental and social, challenge the capacity
are poor whites, and like the geographically concentrated nature of cities and neighborhoods to achieve sustainability. In this way,
of violence, the rapid growth in incarceration driven by govern- social and physical well-being are deeply intertwined. In addition
ment policies has had its greatest impact in poor minority com- to direct environmental concerns, such as pollution and lead
munities (10). A stark indicator of the racial gap in criminal justice toxicity, the premature mortality that stems from homicide, and
punishment is that the highest incarceration rate among African the negative consequences of violence for communities (e.g.,
American communities in Chicago is over 40 times higher than population loss, fear and withdrawal from public life) and indi-
that in the highest-ranked white community (5). vidual well-being—including the impairment of cognitive devel-
Inequality can literally be toxic as well. Ecological research opment (20)—all undermine the sustainability of social systems.
shows that black and high-poverty communities in Chicago have An alarming fact, for example, is that the leading cause of death
been disproportionately exposed to childhood lead poisoning among African American males aged 15–34 years is homicide.
(11, 12), even after accounting for housing-related conditions, and Neighborhoods also vary markedly in their levels of social co-
recent discoveries of toxic neighborhoods in Flint, Michigan and hesion, shared expectations, organizational density, trust in insti-
East Chicago, Indiana point to the continuing nature of ecological tutions, and leadership potential (5). As elaborated in this section,
threats from lead, both in the soil and water systems. In both of these resources of civic society are hypothesized to influence di-
these cases, the neighborhoods most affected were pre- mensions of urban social sustainability and governance processes
dominantly black and poor, just as in Chicago (13, 14). Moreover, that affect policies on the environment. A corollary argument is
a recurrent finding in United States cities is that concentrations of that these neighborhood processes can be reliably and validly
proach to ecological and social sustainability. is, the likelihood of someone reporting an issue in the public
Measurement methods that feed into ecometrics and that go space (e.g., street light outages, graffiti) once a user. This latter
beyond standard census data include community surveys, sys- measure provides a way to tap into the behavioral dynamics of
tematic observations of city streets through videotaping, network neighborhood physical maintenance and the demand for citizen
analysis of community leaders and organizations, newspaper participation in obtaining city services, and by implication, the
coding of collective civic events (e.g., school fundraisers, blood capacity for sustainability. For example, there is evidence that use
drives), and “lost letter” field experiments. In the Chicago PHDCN of the 311 system to address issues in the public space is rooted
study, these data sources were combined with archival records on mainly in territorial motivations for maintaining a neighborhood
crime, violence, health, community organizations, and population (39). A related field experiment found that flyers appealing to
characteristics across 40 years (5). Similarly, community surveys localized allegiances to specific neighborhoods or places (e.g.,
tapping collective efficacy and other social processes (e.g., per- “Clean Dudley Square!”) were more effective at eliciting reporting
ceived disorder, social ties) have been conducted in Los Angeles of public issues than more generalized messages, such as “Clean
and Boston. Coding of visual images and computer vision meth- Boston!” (40). These results have implications for appeals to local
ods exploiting Google Street View have also been used to sustainability efforts that involve community groups, nonprofits,
quantify gentrification (34) and change in neighborhood physical and private industries.
conditions (35) in selected United States cities, with the potential The ability of researchers to repurpose governmental admin-
for application to cities around the world given the broad and istrative data like those in Boston to measure the dynamics of both
continuing coverage of Google Street View. private and public spaces adds a new dimension to our un-
Surveys and audits that cover an entire city are expensive to derstanding of neighborhood social sustainability that would be
conduct, however, and Google’s images of streets limit the kinds difficult to measure using traditional methodologies like surveys.
of social and temporally refined data that we can measure. To Moreover, BARI’s library of ecometrics is a free public resource that
address this gap, the Boston Area Research Initiative (BARI) cap- provides researchers and policymakers alike an increasingly nuanced
italized on recently available data generated by citizens’ requests measurement of physical and social conditions at multiple geo-
for services through the City of Boston’s “311” reporting scheme, graphic scales (e.g., addresses, streets, blocks, neighborhoods).
which allows Bostonians to request city services through four Next-generation digital data from private companies will allow
channels: a telephone hotline, a self-service website, Twitter, and analysts to describe neighborhoods and their interconnections in
a smartphone app called “Citizens Connect.” Citizen reports like additional ways: cell phone and transportation records capture the
these, along with more traditional 911 dispatches, offer an ad- movement of people, purchasing data capture flows of material re-
ministratively based window onto the urban landscape, poten- sources, and social media can be used to measure the higher-order
tially acting as “the eyes and ears of the city,” to paraphrase the structures of dynamic mobility patterns (41). Exploiting these re-
great urbanist Jane Jacobs (36). Another example of new applications sources, researchers have estimated sharp racial and economic
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