Equity

This page features resources related to equity in TAM.

Overview:

Equity in transportation can be broadly defined as the equitable distribution of benefits and costs, considering whether this allocation is both fair and appropriate. Transportation planning decisions wield significant and diverse impacts on equity, as transportation agencies frequently encounter the challenge of trading off between candidate projects, each linked to multiple competing objectives while grappling with limited resources.

These trade-offs yield outcomes that may exhibit positive effects on certain objectives or measures, yet simultaneously, generate negative consequences for other objectives or measures. For instance, augmenting funding for new construction aimed at enhancing mobility for a specific population segment could trigger a chain reaction, resulting in diminished resources for transit initiatives that address diverse objectives and metrics for a separate segment of the populace. Consequently, this scenario can lead to a situation where one population segment reaps benefits, while another perceives no tangible advantages from the decisions made.

Historically, investments in transportation have primarily centered around enhancing infrastructure conditions and upholding levels of safety and mobility. However, these decisions often neglected to account for the wide-ranging impacts linked to diversity, equity, and inclusion (DEI), operating within limited considerations or even entirely without such considerations. In more recent times, a shift has occurred, marked by various endeavors to incorporate an array of pertinent and influential performance metrics. These metrics encompass areas like socioeconomic implications, sustainability, accountability, transparency, and innovation, all of which now play pivotal roles in the decision-making process. What stands out is the growing realization among agencies that certain transportation planning and programming practices can yield adverse effects on marginalized communities.

At the core of transportation's mission lies the aspiration to foster a tapestry of social and economic opportunities. This lofty objective hinges on the provision of access that is not only widespread but also characterized by equity. This translates to ensuring that all segments of the population, especially those historically marginalized, gain ready access to transportation options that are both affordable and dependable. The bedrock of this endeavor is the identification and fulfillment of the specific needs of the communities being served. USDOT is actively working towards more equitable transportation by elevating equity as one of its six strategic goals.

Key Concepts:

Equity Defined

Executive Order 13985 provides the following definition for equity:

“The term equity means the consistent and systematic treatment of all individuals in a fair, just, and impartial manner, including individuals who belong to communities that often have been denied such treatment, such as Black, Latino, Indigenous and Native American, Asian American, Native Hawaiian, and Pacific Islander persons and other persons of color; members of religious minorities; women and girls; LGBTQI+ persons; persons with disabilities; persons who live in rural areas; persons who live in United States Territories; persons otherwise adversely affected by persistent poverty or inequality; and individuals who belong to multiple such communities''. – Executive Order 13985 (2021).

Additionally, the term "underserved populations" is defined as:

“… those populations as well as geographic communities that have been systematically denied the opportunity to participate fully in aspects of economic, social, and civic life, as defined in Executive Orders 13985 and 14020”. – Executive Order 13985 (2021).

In transportation, the notion of equity in the broad sense has been applied to encompass a diverse range of populations. In certain instances, it signifies environmental justice, often relating to low-income and minority populations. It is crucial to discern the distinctions between equality, equity, and justice. These concepts are interrelated terms that pertain to distinct notions within the realm of fairness and social equilibrium.

Equality: this concept centers around the idea of treating everyone the same, regardless of their circumstances or needs. In an equality-based approach, everyone is given the same resources, opportunities, and support without considering individual differences or historical disadvantages. This approach could perpetuate inequality in cases where certain group need additional resources.
Equity: is about recognizing that different individuals or groups have different needs, and it involves distributing resources and opportunities to ensure fairness. In an equity-based approach, individuals are provided what they need to have an equal chance at success, taking into account their unique circumstances. This approach acknowledges and aims to rectify historical disadvantages and systemic barriers that have led to disparities in society.
Justice: this concept encompasses a broader notion of fairness and addresses deeper structural issues. It involves rectifying historical injustices and ensuring that systems, laws, and policies are designed to treat all individuals and groups fairly and equitably. Justice goes beyond simply providing equal or equitable treatment; it seeks to dismantle systemic barriers that perpetuate inequality and discrimination. Social justice seeks to achieve a state where all individuals have the opportunity to reach their full potential, irrespective of their background.

Source: A collaboration between Center for Story-based Strategy & Interaction Institute for Social Change. Original illustration by Agus Maguire

Approach to Equity in the United States

The United States has embraced an equity-oriented strategy in shaping its transportation infrastructure, underscored by an impact-driven framework. In this strategy, funding allocations are purposefully structured to avert the uneven distribution of benefits. This approach is underpinned by regulations and legislative measures crafted to rectify gaps and oversights that have historically led to imbalanced benefit distributions. For instance, the enactment of Title VI stands as an illustration of this approach. Title VI was put into effect to directly tackle challenges stemming from the exclusion of marginalized populations from decision-making processes that receive support from Federal funds.

Over the span of years, a series of Executive Orders emanating from the Presidents of the United States have notably built upon the foundational principles entrenched within the Civil Rights Act. These executive directives have been instrumental in guiding Federal agencies to incorporate policies and procedures that bear direct relevance to civil rights as they execute their operational functions. A prominent illustration of this proactive approach can be found in Executive Order 12898, titled "Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations." Originating in 1994, this pivotal order explicitly charges each Federal agency with a decisive task: to engrain the pursuit of environmental justice within its very mission. This mandate entails the identification and responsible addressing of disproportionately elevated and adverse human health or environmental impacts stemming from the agency's programs, policies, and activities on minority populations and low-income segments. Moving along the timeline, the trajectory of progress continues.

A more recent milestone came in the form of Executive Order 13985, inked in 2021 with the resolute aim of propelling forward racial equity and extending robust support to marginalized communities via the auspices of the federal government. On 2021, the USDOT took a progressive stride by issuing a revamped Environmental Justice Order, officially designated as DOT 5610.2C (USDOT 2021). This document introduces a spectrum of enhancements aimed at refining internal management practices. Within its comprehensive scope, the Order establishes guidance for each Operating Administration and the responsible officials for other DOT components to “determine whether programs, policies, or activities for which they are responsible will have an adverse human health or environmental effect on minority and low-income populations and whether that adverse effect will be disproportionately high” (USDOT 2021).

Transportation Inequalities

Transportation Inequity can be broadly categorized into three interrelated types:

Spatial or Geographic Inequities: Rooted in the unequal distribution of transportation and infrastructure across different geographical groups. It is often related to historical discrimination or rural underinvestment.
Modal Inequity: revolves around disparities in the availability, accessibility, and quality of different transportation modes. Certain communities might have limited access to public transit, walking paths, or cycling lanes, forcing them to rely on less efficient or more expensive modes of transportation. Modal inequity can disproportionately affect individuals who cannot afford private vehicles or those with mobility challenges.
Social and Economic User Inequities: This type of inequity is closely tied to socioeconomic factors. Marginalized and vulnerable groups, such as individuals with disabilities, racial and ethnic minorities, women, members of religious minorities, older adults, youth/children, LGBTQ+ people, low-income people, and/or essential workers, might experience discrimination or safety concerns.

These three categories of transportation inequity are interconnected and often reinforce each other. Addressing transportation inequity requires comprehensive strategies that consider the unique challenges faced by different communities, prioritize accessibility, and promote sustainable and inclusive transportation solutions. Equitable transportation outcomes occur when users’ needs are met, and one group is not overburdened with negative project impacts.

Implementation Considerations:

Integrating equity frameworks in transportation requires a systematic approach that addresses disparities and promotes fairness, inclusivity and community engagement. The following presents steps that could be considered:

Define Equity: Defined to clarify the meaning and intent behind the words we use to describe transportation equity in the context of your organization.
Equity in Policies and Planning Processes: Embed equity considerations into transportation policies, plans, and guidelines to ensure all decisions consider fairness and inclusivity.
Establish clear equity objectives: Set objectives that address disparities and align with the needs of underserved communities, as well as with the strategic goals of the agency.
Identify Measurable Criteria: Define performance measures or indicators that are both objectively measurable and conducive to achieving equity goals.
Identify performance gaps (inequities): Collect data to identify existing disparities in transportation access, services, and outcomes among different communities. Conduct equity analyses to evaluate how transportation policies, plans, and projects impact various groups, considering factors such as income, race, gender, age, and ability. Furthermore, ensure that evaluation is integrated into planning processes, prioritization schemes, and other related procedures.
Engage community: Solicit feedback from underserved communities and respond to their interests by crafting investment strategies with equity goals at the forefront. Employ diverse engagement tactics, including public meetings, surveys, focus groups, and online platforms, to ensure that all voices are heard.
Implement Equity Considerations: Continuously assess the impact of implemented initiatives on reducing disparities and enhancing access for marginalized communities. Identify areas for improvement in the process.

sections

Maturity

Related Subsections:

Understanding Equity 2.6.1

This subsection explores the concept of equity in transportation, emphasizing its diverse applications, particularly in relation to environmental justice for low-income and minority populations. It clarifies distinctions between equality, equity, and justice, highlighting their interrelated yet distinct roles in fostering fairness and social balance within transportation systems.

Keep Reading About Understanding Equity

Integrating Equity in TAM Practices 2.6.2

This subsection emphasizes the need to integrate equity frameworks into Transportation Asset Management (TAM) practices, addressing various types of transportation inequities. It outlines steps, including defining equity, embedding it in policies, setting clear objectives, identifying measurable criteria, engaging communities, and continuously assessing initiatives to reduce disparities and enhance access for marginalized groups.

Keep Reading About Integrating Equity in TAM Practices

MnDOT

Minnesota Department of Transportation (MnDOT) has integrated equity into transportation decision-making through its Advancing Transportation Equity Initiative, which seeks to enhance access and opportunities for underserved communities in the state. This initiative is based on community input and feedback received during the development of the 2017 Statewide Multimodal Transportation Plan. The plan identified the reduction of transportation disparities and the incorporation of equity into decision-making processes as high-priority objectives. The 2022 Statewide Multimodal Transportation Plan, along with its internal Strategic Plan, includes additional goals, strategies, and actions to further advance transportation equity. MnDOT is committed to creating an equitable transportation system.

Acknowledge Inequalities	Defining Transportation Equity:	Proposed Journey
MnDOT acknowledges historical injustices in transportation, where some communities were underserved and harmed by agency decisions. They recognize that past choices denied Black, Indigenous, and disabled communities full transportation benefits.	Transportation equity, as defined by MnDOT, seeks fairness and justice in the distribution of benefits and burdens within transportation systems, with a focus on empowering underserved communities, particularly Black, Indigenous, and People of Color, in decision-making processes.	MnDOT acknowledges that their journey toward transforming transportation systems and achieving equity requires ongoing listening, learning, adaptation, and implementation.

MnDOT has facilitated a series of conversations between MnDOT staff and individuals and organizations that work with and represent underserved communities in Minnesota through the Community Conversation Project. The objective of these conversations is to directly learn from underserved communities about their unique experiences and challenges with transportation. Main findings include:

Inadequate transportation options create barriers to the community.
Private vehicles are common.
Capacity of public transit does not meet demand.
Land use and natural barriers also affect access.
Relationships are key to engagement.
People have many ideas to solve challenges with transportation equity.
Organizations provided varied definitions and examples of equity.

These conversations have culminated in the creation of a report for each of the eight operational districts, which summarizes findings and provides recommendations for the future direction of transportation decisions. Additionally, MnDOT has initiated "The Equitable Contracting and Engagement" project to explore methods of enhancing the accessibility and inclusivity of MnDOT's contracting and engagement processes. MnDOT aims to collaborate with more community-based organizations and nonprofits and advance their engagement efforts. Furthermore, MnDOT has prioritized and sponsored research projects with an equity focus to enhance understanding and promote initiatives that embrace equity principles.

Note: This practice example was derived from the Minnesota Department of Transportation’s website. Further details on the “Advancing Transportation Equity Initiative” can be found here: https://dot.state.mn.us/planning/program/advancing-transportation-equity/

Practice Examples:

Integrating Equity in Transportation Decision-Making

MnDOT

Acknowledge Inequalities	Defining Transportation Equity:	Proposed Journey
MnDOT acknowledges historical injustices in transportation, where some communities were underserved and harmed by agency decisions. They recognize that past choices denied Black, Indigenous, and disabled communities full transportation benefits.	Transportation equity, as defined by MnDOT, seeks fairness and justice in the distribution of benefits and burdens within transportation systems, with a focus on empowering underserved communities, particularly Black, Indigenous, and People of Color, in decision-making processes.	MnDOT acknowledges that their journey toward transforming transportation systems and achieving equity requires ongoing listening, learning, adaptation, and implementation.

Inadequate transportation options create barriers to the community.
Private vehicles are common.
Capacity of public transit does not meet demand.
Land use and natural barriers also affect access.
Relationships are key to engagement.
People have many ideas to solve challenges with transportation equity.
Organizations provided varied definitions and examples of equity.

Incorporating Equity Into a TAMP

DC DOT

DCDOT adopted an equity statement to ensure public investments in transportation justly benefit all residents, visitors, and commuters. In putting DDOT’s equity statement into practice, the agency has developed an equity assessment tool. In their TAMP, they explored a means to include social equity into the investment strategies analysis. The team used the social vulnerability index (SVI) in conjunction with DDOT’s pavement management system to investigate how pavement projects could be distributed equitably across the district. The SVI was developed by the CDC and relies on factors, including socioeconomic status, household composition, minority status, English language proficiency, housing, and transportation, to determine how well a community can respond when facing disaster, disease, or crisis.

Additional Resources

King County Metro – Mobility Framework and Equity Cabinet: https://kingcounty.gov/depts/transportation/metro/about/policies/mobility-framework.aspx
WSDOT Strategic Plan: https://wsdot.wa.gov/about/secretary-transportation/our-strategic-plan
Caltrans Equity Statement: https://dot.ca.gov/about-caltrans/equity-statement

DC DOT

Incorporating Equity Into a TAMP

DCDOT adopted an equity statement to ensure public investments in transportation justly benefit all residents, visitors, and commuters. I…

How To Guides:

Incorporating Equity into Resource Allocation (2.6.2)

This guide summarizes the steps involved in performing an equity analysis to support the resource allocation process. Agencies can use this guide to help inform their approaches for measuring, analyzing and ensuring equity in decision-making. Note that this guide is a summary of the materials presented in TCRP Report 214, Equity Analysis in Regional Transportation Planning Processes. This report has additional details on each of the steps described here. Also, Section 2.6.2 of this document discusses basic concepts and considerations in evaluating equity.

Prior to and throughout performing the steps described here, an agency should engage its stakeholders in the process of defining and evaluating equity. TCRP Report 214 describes this overarching step as “Lay the Foundation with Public Engagement” and Section 2.6.2 discuss this consideration.

Step 1. Identify Populations for Analysis

Identify the groups for which equity will be analyzed. An analysis must include required populations and population groups. Federal regulations related to Title VI and Environmental Justice identify specific groups for which certain types of analyses are required, such as in development of an MPO’s long range plan. States and local agency may have additional requirements regarding populations and groups for which equity should be analyzed. Required groups may be defined by race, ethnicity, income, English proficiency, or other factors.

An agency may wish to include other underserved persons or communities in its analysis of equity in TAM. For instance, it may be desirable to perform an analysis specific to persons with disabilities if evaluating pedestrian infrastructure.
Step 2. Identify Needs and Concerns

In this step the agency should gather input on what specific needs and concerns should be considered in the equity analysis. TCRP Report 214 describes the following sub-steps:
- Gathering input from the populations included in the analysis.
- Assessing the burdens imposed by the transportation system.
- Assessing access to the benefits of the transportation system.
- Validating the findings using stakeholder input.
For a TAM-related analysis an agency should consider, at a minimum, differences in asset condition between different populations. Typically, TAM investments are not assumed to change accessibility to the transportation network. However, it may be the case that if assets are allowed to deteriorate, they may fail or impede access to the transportation system.
Step 3. Measure Impacts of Proposed Agency Activity

The next step is to measure impacts of agency activity. TCRP Report 214 describes the following sub-steps for this step:
- Select indicators.
- Differentiate project types for evaluation.
- Measure outputs.
- Measure outcomes.
- Document the task, outputs, and outcomes.
For a TAM-related analysis it is recommended that an agency establish performance measures that support this step, including, but not limited to, measures of asset condition. An agency may wish to include additional measures in this step, such as measures of accessibility defined for an agency’s broader analysis of the projects in its Transportation Improvement Plan (TIP). The agency should document existing measures for each population included in the analysis, and the predicted values for each measure, population, and resource allocation scenario being evaluated.
Step 4. Determine Whether Impacts are Disparate or Have Disproportionately High and Adverse Effects (DHAE)

Once the agency has quantified the impacts of each resource allocation scenario, it is next necessary to determine whether the impacts are disparate, or have DHAE. Essentially, this step involves comparing the measures calculated for specific populations in Step 3 to the entire population served by an agency. Ideally, the result is that the agency finds that the measures and any changes in the measures are consistent across different populations. However, where there are differences in the results between different populations, it is necessary to consider whether the differences are large enough to merit adjustments to the investment scenario or some other action.

For analyses that are Federally-required, such as in development of a TIP, there are specific legal criteria for this step. For other analyses an agency should establish and document its criteria for evaluating impacts, along with the results of its assessment.
Step 5. Develop Strategies to Avoid or Mitigate Inequities

The final step is to make adjustments in an agency’s investments as needed to avoid or mitigate inequities. For TAM resource allocation this may involve:
- Reallocating resources to either reduce negative impacts of investments or improve asset conditions and accessibility to benefits for the populations included in the analysis.
- Rescoping or revising specific projects to reduce their negative impacts or increase their benefits to underserved populations.
- Working with underserved populations to establish other approaches for avoiding or mitigating impacts and improving accessibility to benefits.