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Planning for Equity Policy Guide American Planning Association Creating Great Communities for All Planning for Equity Policy Guide Approved by APA Delegate Assembly, April 14, 2019 Ratified by APA Board of Directors, May 14, 2019 planning.org/policy The American Planning Association advocates for public Table of Contents policies that create just, healthy, and prosperous communi- ties that expand opportunity for all through good planning. 03 Introduction APA’s advocacy is based on adopted positions and principles 06 Equity in All Policies contained in policy guides. These guides address the critical 07 Cross-Cutting Equity Issues policy issues confronting planners and communities by 11 Equity in All Policies in Practice identifying solutions for local, state, and federal policy makers. Policy guides are led by the APA Legislative and Policy Com- 23 For Further Reading mittee, ratified by the APA Board of Directors, and developed 24 Resources through the careful and extensive involvement of planners across the country. APA policy guides articulate and advance the principles of good planning in law and regulation. planning.org/policy Policy Guide Authors Task Force APA Board of Directors Lynn Ross, AICP, Co-chair Fiona Akins, AICP Kurt E. Christiansen, FAICP, Susan Wood, AICP, Co-chair Aldea Coleman APA President David Burgy, AICP Fleming El-Amin, AICP Cynthia Bowen, FAICP, Carlton Eley George Homewood, FAICP APA Immediate Past President Monica Guerra Derek Hull Wendy E. Moeller, FAICP, Tierra Howard, AICP Carrie Makarewicz Secretary, Director Region IV Edna Ledesma Sherwin Racehorse Courtenay D. Mercer, AICP, Anindita Mitra, AICP Zunilda Rodriguez, AICP Treasurer, Director Region I Manuel Ochoa, AICP Clarence Sirmons, AICP Deborah Alaimo Lawlor, FAICP, PP, Adam Perkins, AICP Neal Stone, AICP AICP President Candace Stowell, AICP Larry Vasquez Rodger Lentz, AICP, Director Region II Miguel Vazquez, AICP Shellie Zias-Roe, AICP CEP Wendy D. Shabay, AICP, Director Region III Leo Asuncion, Jr., AICP, Director Region V Technical Reviewers Legislative and Policy Committee Kristen Asp, AICP, Director Region VI Nicole Bennett, AICP George Homewood, FAICP, Chair Kara W. Drane, AICP, Director at Large Kara Drane, AICP Whit Blanton, FAICP Lauren Driscoll, AICP, Director at Large Vivian Kahn, FAICP Brian Campbell, FAICP Marjorie Press, Director at Large, Focused Kim Mickelson, AICP Aldea Coleman Fleming El-Amin, AICP, Kara Drane, AICP Director at Large, Focused Jessica Garrow, AICP Ben Hitchings, FAICP, Cover: Planning for Equity means applying an Daniel Haake, AICP Director, Chapter Presidents Council Chair equity lens—for just and fair inclusion into a Charles Liuzzo David Fields, AICP, society in which all can participate, prosper, Sarah Marchant, AICP Director, Divisions Council Chair and reach their full potential—to everything Wendy E. Moeller, FAICP Rachael Thompson Panik, planners do. From the way planners work Ramona Mullahey Director, Student Representatives with community members creating a shared Pete Parkinson, AICP Council Chair vision for their neighborhoods to advocating Jennifer Raitt for policies that connect people to oppor- Dan Reuter, FAICP tunities at the local, state, and federal levels, Edward Sullivan planning for equity is planning for all. (Credits, Susan Wood, AICP clockwise from top left: Pitt County Planning Department; iStock/gettyimages.com; OLIN/ Sahar Coston-Hardy; James Willamor, Flickr (CC BY-SA 2.0); Steven J. Van Steenhuyse; William Wright Photography) COPYRIGHT 2019 BY THE AMERICAN PLANNING ASSOCIATION. PLANNING FOR EQUITY POLICY GUIDE Introduction The Planning for Equity Policy Guide reaffirms the commitment of the Historical Context American Planning Association, its Chapters, Divisions, Interest Groups, It is important for planners to recognize the past and present role the and Student Organizations to promote equity and explicitly remove planning profession has played in creating and perpetuating discrimi- barriers in policies and regulations that perpetuate inequity in the natory practices against communities of color, the LGBTQ communities, United States. women, and persons with disabilities. For example, zoning, which is Equity is defined as “just and fair inclusion into a society in which all intended to separate incompatible land uses, has also been used to can participate, prosper, and reach their full potential. Unlocking the exclude certain population groups from single-family neighborhoods promise of the nation by unleashing the promise in us all.” The inclusive, and to exclude multifamily rental housing from neighborhoods with holistic nature of this definition provides the foundation for considering better access to jobs, transit, and amenities. and applying equity in all facets of planning, all levels of planning, all The most egregious examples are the racial zoning ordinances that means of planning, and in all planning policies. Planning for equity is were introduced in the early part of the 20th century and became intended to challenge those planning practices that result in policies, widely used by city planners, with the first documented racial zon- programs, and regulations that disproportionately impact and stymie ing ordinance in Baltimore in 1910. Although the U.S. Supreme Court the progress of certain segments of the population more than others. outlawed racial zoning ordinances with its 1917 decision in Buchanan Done with intention, equity is a thread that is woven through the fabric v. Warley, many cities continued to adopt racial zoning ordinances of all plans, regulations, developments, and policy options. (e.g., Atlanta, Indianapolis, Richmond, Birmingham, West Palm Beach, The American Planning Association, its Chapters, Divisions, Interest Portland). Similar practices in the form of covenants (privately enforced Groups, and Student Organizations support measures and policies to restrictions associated with individual developments) followed. These both address the inequities that exist today in urban, suburban, and practices were further exacerbated through exclusionary low-interest rural settings and to prevent the creation of new inequities. Disparities home mortgage programs offered through the Federal Housing Admin- or inequities in health, income, opportunity, mobility, and choice are istration that prevailed in the mid-20th century. Though such openly apparent in every community irrespective of their size or location. As a discriminatory practices are illegal today, limitations on multifamily result, entire groups of people, due to their income, race, age, gender, dwellings, affordable homes, group homes for persons with disabilities, sexual orientation, immigration status, religion, and/or disability experi- and similar housing opportunities for underserved people, including ence limited access to opportunity and advancement. Inequity, which is the formerly incarcerated, continue to perpetuate exclusionary prac- measurable, is marked by two key attributes that often work together: tices. Equally damaging, the legacy of these policies still contributes to a “slippery slope” that makes it difficult to secure a foothold in the ■ Disproportionality. When the outcomes of a project or plan create economic mainstream. or amplify disparities in only part of a community, the disproportion- APA and its members have a long history of efforts to promote ate impacts can lead to further social and economic impairment of equity (see Resource 1 for a table outlining planning for equity key some groups while others receive the full benefit of the effort. milestones) including the establishment of APA’s Agenda for America’s ■ Institutionalized. Inequity is often embedded in methodologies Communities program, which followed the 1992 Los Angeles riots. One that justify systemic policies, ignore negative outcomes and outcome was the 1994 publication Planning and Community Equity. In disproportionate impacts, and do not extend adequate support to this publication, APA defined community equity as “the expansion of the affected areas and their residents. opportunities for betterment that are available to those communities Planning for equity provides the rationale, structure, and most in need of them, creating more choices for those who have few.” accountability for an opposite yet measurable approach to plan- In 2000, APA created its first member-led task force to explore diversity ning designed to combat inequity. Planning for equity does not in the field and in 2004, members organized the first Diversity Summit stifle growth or serve as an impediment to development. Instead, at the National Planning Conference. APA’s Chapters and Divisions have planning for equity works to (1) create and extend opportunities to also made great strides in this area by developing equity, diversity, and each member of the community; (2) recognize and help to build inclusion focused programs and, in the case of a growing number of the capacity of each member of the community; (3) acknowledge Chapters and Sections, establishing diversity committees to provide and take action when the attributes of inequity are present; and (4) ongoing focus and leadership. More recently, in 2016, APA partnered adopt new approaches to planning that fully embrace equity. with Enterprise Community Partners, Lincoln Institute for Land Policy, American Planning Association | planning.org/policy 3 PLANNING FOR EQUITY POLICY GUIDE and National League of Cities to support the creation of the U.S. improvements are implemented. Instead, social justice requires
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