Climate Change from the Streets: a Community-Based Framework for Addressing Local and Global Environmental Health Impacts

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Climate Change from the Streets: a Community-Based Framework for Addressing Local and Global Environmental Health Impacts Climate Change from the Streets: A Community-based Framework for Addressing Local and Global Environmental Health Impacts by Michael Anthony Mendez A dissertation submitted in partial satisfaction of the requirements for the degree of Doctor of Philosophy in City and Regional Planning and the Designated Emphasis in Science and Technology Studies in the Graduate Division of the University of California, Berkeley Committee in charge: Professor Jason Corburn, Chair Professor Malo Hutson Professor David Winickoff Spring 2015 Abstract Climate Change from the Streets: A Community-Based Framework for Addressing Local and Global Environmental Health Impacts by Michael Anthony Mendez Doctor of Philosophy in City and Regional Planning and the Designated Emphasis in Science and Technology Studies University of California, Berkeley Professor Jason Corburn, Chair This dissertation analyzes the emerging epistemologies of climate change in California as articulated by social movements, experts, and subnational governments. As the world’s eighth- largest economy and the only state in the U.S. to implement a comprehensive program of regulatory and market-based mechanisms to achieve reductions in greenhouse gas (GHG) emissions, California represents an important site of inquiry. The passage of Assembly Bill 32, the Global Warming Solutions Act of 2006 has made the state a global leader on climate change science and policy innovation. While no subnational government can halt climate change alone, California’s environmental policies have a long history of success and replication. Through an extensive analysis of the state’s climate policies and interviews with key stakeholders, this dissertation highlights the challenges California faces in influencing global climate policy while addressing the needs of local communities that are already adversely impacted by air pollution. As cities and public agencies appropriate leadership roles in climate governance, policy formulation is increasingly emerging as an expert-driven process that emphasizes global GHG reductions as the goal and geographically-neutral economic and technological fixes as the solution. In this process, community-based strategies that integrate climate change interventions with population health outcomes are often excluded. This dissertation asks how environmental justice advocates are engaging strategically in the policymaking process in order to legitimize or contest regulatory policies regarding climate change in the face of ongoing pollution, illness, and injustice. In answering this question, the dissertation centers on three areas of inquiry: (1) the public health and environmental justice aspects of municipal climate action plans; (2) the conflict over statewide carbon pricing and use of its revenue for investment in communities most impacted by air pollution; and, (3) the social implications of international forest carbon-offset projects allowable under California’s market-based climate change law. These cases provide critical insights into environmental inequities and the emerging epistemologies of climate change on multiple scales. The dissertation findings demonstrate that the implementation of climate policies can either serve to exacerbate or redress underlying environmental health inequities in urban communities. In particular, these cases highlight the environmental justice strategies that are challenging a priori policy expertise to produce new local, place-based conceptualizations of climate change that underscore population health and community well-being. 1 Table of Contents Acknowledgements........................................................................................................................iii Prologue…………………………………………………………………………………………………………………....................1 CHAPTER 1 : Overview of Equity and Health in California’s Warming Climate(s)……………............5 Section 1.1: Tension between Carbon Fundamentalism & Climate Change from the Streets......7 Section 1.2: Analyzing Climate Change through the Multidisciplinary Frameworks of Urban Planning, Science and Technology Studies, and Public Health………………………………………………….15 Section 1.3: The Multiscalar Civic Epistemologies of Climate Change..........................................21 Section 1.4: Research Design and Questions................................................................................25 Section 1.4: Methods....................................................................................................................29 Section 1.5: Multiscalar Case Selection........................................................................................31 Section 1.6: Chapter Summaries...................................................................................................32 CHAPTER 2 : Assessing Local Climate Action Plans for Public Health Co-benefits in Environmental Justice Communities………………………………………………………………………………...................................36 Section 2.1: California Climate Change Policy and Planning.........................................................38 Section 2.2: Local CAPs as an Opportunity to Promote Health Co-Benefits.................................41 Section 2.3: Methods: Climate Action Plan Selection...................................................................44 Section 2.4 Climate Action Plan Evaluation..................................................................................47 Section 2.5: Results.......................................................................................................................49 1. Health Co-Benefits of CAPs...............................................................................................49 2. Measures that Address Climate Change from the Streets or Social Equity......................54 3. Community Engagement of Environmental Justice Actors in Climate Planning...............57 Section 2.6: Conclusion.................................................................................................................59 CHAPTER 3 : Changing the Climate from the Streets of Oakland: The Civic Epistemologies of Urban Climate Change..................................................................................................................60 Section 3.1: Introduction..............................................................................................................61 Section 3.2: Configuring Oakland’s Climate(s)..............................................................................63 Section 3.3: Community-Based Climate Planning in Oakland.......................................................66 Section 3.4: Localizing Climate Change for Community Action....................................................73 Section 3.5: Participatory Research in Climate Adaptation Planning...........................................77 Section 3.6: Urban Civic Epistemologies and Oakland’s Transformative Climate........................84 Section 3.7: Conclusion - Urban Climate Change and Community Well-Being - A Non-Linear Model of Expertise........................................................................................................................88 CHAPTER 4 : Contentious Capitol Climates: Conflict over the Local Scale of Global GHG Emissions......................................................................................................................................90 Section 4.1: Introduction..............................................................................................................91 Section 4.2: Latinos Legislating the Climate.................................................................................93 Section 4.3: Ensuring the Local Relevance of Climate Change.....................................................96 Section 4.4: Community Empowerment and Public Health in AB 32.........................................100 Section 4.5: Carbon Markets & Neoliberal Latino Lawmakers...................................................103 Section 4.6: The Fait Accompli in CARB’s Scoping Plan..............................................................108 i Section 4.7: Are all Market-Based Mechanisms Created Equally?.............................................111 Section 4.8: The EJAC’s Lack of Scientific Data and Rigor...........................................................116 Section 4.9: Divergent Civic Epistemologies and the Politics of Scales in AB 32........................123 Section 4.10: Implementing Carbon Markets and Defending Lawsuits......................................128 Section 4.11: Conclusion -Bridging Climate Science and Policy – Whose Reasoning and Epistemology Counts?................................................................................................................134 CHAPTER 5 : Cap and Trade-Offs: Rescaling Neoliberal Practices for Community Benefits........137 Section 5.1:The Cap-and-Trade Dividend...................................................................................138 Section 5.2: Towards a Legislative Redress of Carbon Markets..................................................141 Section 5.3: Introduction of AB 1405 – The First CBF Legislative Attempt.................................144 Section 5.4: Establishing New CBF Coalitions and Confronting Vetoes......................................148 Section 5.5: Another Legislative Session, More Coalition-Building and Some Political Intrigue.......................................................................................................................................153
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