Equity is the vehicle in which we can strive to achieve equality. Equity-centered policy is effective policy.
Roads Built by Injustice:
The U.S. Interstate Highway System
“The legacy of Jim Crow transportation is still with us. Even today, some of our transportation policies and practices destroy stable neighborhoods, isolate and segregate our citizens in deteriorating neighborhoods, and fail to provide access to jobs and economic growth centers.”-Rep. John Lewis
For the past three years, The Center for Black Health and Equity, in collaboration with the Public Health Law Center, Meharry Medical College School of Global Health, M93 Consulting Group, and Dr. Helen Holton, have endeavored to understand the impacts of inequitable transportation policies on Black communities across the United States.
This work was made possible by a generous grant provided by the Office of Minority Health to assess policies that may create or perpetuate health disparities by contributing to structural racism.
Signed into law by President Eisenhower, the Federal Highway Act of 1956 authorized the construction of an extensive network of interstate highways, spanning over 41,000 miles. This ambitious project was driven by the need to improve national defense and economic efficiency. Additionally, Eisenhower sought to enhance safety and to support the growing automotive industry by connecting major cities with rural areas.
A closer examination of the lasting side effects of the Interstate Highway System reveals significant drawbacks that overshadow Eisenhower’s vision. Notably, Black communities across the nation have borne the brunt of the negative consequences associated with these highways and continue to grapple with their impact today. The construction of the Interstate Highway System often led to the displacement of these communities, exacerbating social and economic disparities. This historical context underscores the need for more equitable transportation policies that address the long-standing challenges faced by marginalized communities.
In 2021, Congress passed the Bipartisan Infrastructure Deal (Infrastructure Investment and Jobs Act). This landmark legislation allocated billions of dollars to reconnect communities divided by transportation infrastructure. Thus, the Collaborative seeks to highlight the realities of the Black Communities displaced by the Highway Act of 1956 in hopes of creating opportunities for decision makers to engage with the community, and to recognize the importance of equitable community-centered transportation policy.
Additionally, the overall health and wellness of the community is a critical tenet of equitable community-centered transportation policy. Decision makers must work hard to ensure that transportation plans and policies prioritize the impact transportation projects or initiatives may have on the health and safety of communities. Research shows that people living, working, and learning within 300 meters of interstates are exposed to significant levels of hazardous air and noise pollution than the population overall. This exposure places people who live, work, and attend school near highways at greater risk for numerous negative health consequences, including lung disease, stroke, and premature births.
Additional Resource:
Our team was challenged with using Legal Epidemiology as the framework to examine the impact laws and policies enacted after the Federal Highway Act of 1956 had on black communities throughout the U.S.
The five jurisdictions selected were:
Atlanta, Georgia (Sweet Auburn)
Houston, Texas (Friendship Heights/ 5th Ward)
Cleveland, Ohio (Buckeye/Shaker)
Oakland, California
St. Paul, MN (Rondo)
Snapshot of Findings
The Sentinel Surveillance scan revealed that several jurisdictions now require an environmental assessment before commencing highway or roadway projects. However, many jurisdictions do not mandate a comprehensive evaluation of how the placement of highways may exacerbate existing health inequities. These findings aligned with other public health failures observed by researchers including the lack of laws and policies to protect Black communities from increased tobacco retailer density and product accessibility. While some jurisdictions require tobacco retailers to obtain a license, others do not, as they are preempted by state law from doing so. Notably, only one jurisdiction has banned the sale of flavored tobacco products in all stores.
Community Engagement
While legal epidemiology employs a transdisciplinary approach that leverages the diverse skills of its participants, it often lacks a crucial element: community engagement. To address this gap, our project focused on connecting with Black community members in three of the five jurisdictions we studied. Beyond analyzing transportation laws and policies, we conducted community listening sessions to understand the real-world impacts of these laws and policies.
These sessions were critical to our findings, as they provided firsthand accounts of how inequitable transportation policies and infrastructure have affected these communities. By integrating qualitative data from these engagements with our traditional legal epidemiology methods, we were able to underscore the importance of involving those directly impacted by the laws and policies at every step of transportation policymaking.
Learn more about our community engagement efforts in below.
Sweet Auburn, the community once called the “richest Negro street in the world,” was home to the largest concentration of Black businesses in the United States. Situated in the heart of Atlanta, Sweet Auburn is the home of prominent civil rights leader, Reverend Dr. Martin Luther King Jr., and several other prominent Black businesses. While the accomplishments of this once-thriving Black community make legacy residents proud, community members also recall when the historical significance of their community was ignored to build the Downtown Connector.
To learn more about the Downtown Connector’s impact on Sweet Auburn residents, The Center and members of the CPie Collaborative held five community listening sessions to hear the stories of legacy residents and their descendants. Each session was held in a convenient and accessible location, and all participants gave informed consent. Participants were mostly seniors between 56-75 years old and of African American descent. During each session, residents were asked questions and encouraged to coalition-build to bring critical resources back to their community.
Despite the varied stories shared by community members, several common concerns emerged:
Confusion and Lack of Involvement by Decisionmakers – Many legacy residents recalled not understanding what was happening. One resident indicated that his parents did not share any details about the Downtown Connector and that most people did not realize the impact the project would have on their community. Many residents were ill-informed. Residents told us they “didn’t have a say about anything going on” and their “parents didn’t communicate to [them] about the highway coming through.” They just thought the construction was about “white folks doing their thing.”
Displacement– Residents said “people living in the neighborhood had to find new places to go to church, school, and work. Many families were displaced, jobs, schools, worship centers” and “jobs were lost along with generational wealth.” Residents shared that the construction created neighborhood blight, abandoned buildings, lack of access to fresh food, and minimal opportunities for the next generation of Black families.
Threats to Community Health– legacy residents shared how the Downtown Connector had an impact on their health and that of their loved ones. Residents shared that they experienced an increased exposure to dust and pollution and that family members became plagued with autoimmune diseases like asthma. Residents felt like the Downtown Connector contributed to an overall loss of optimal health, citing other cardiovascular and respiratory challenges created by the increased pollutants from the traffic. One resident shared that some family members had premature deaths (e.g. 20-year-old family member died of cancer). Lastly, residents shared the overall mental health impact the Downtown Connector had on residents, including feelings of abandonment, increased stress, and the struggle to establish a community.
Testimony from Collaborative member Rev. Milé Ealy on the impact of I75/I85 construction in their life (9/16/23 letter). Rev. Ealy passed away during the collection process of this research.
“In wrapping up this portion of the research study and listening sessions, I have stumbled upon additional information that may be helpful in the qualitative case study. As previously noted my family suffered the loss of two homes in the 4th ward district. The first property was built by my great-grandparents, a 1900 Colonial home befitting those of a middle-class status. This home was passed down to their daughter (my grandmother). Early in my parents’ marriage they too resided in this home along with their three young children.
The second home was the residence of my grandmother’s sister which she shared with my father’s sister, her husband and their three young children. In speaking with my cousin on my mother’s side of the family I discovered that my maternal grandmother also lost her home in 4th ward due to eminent domain and the creation of the 1-75/85 corridor. The disruption of these three households in my family at approximately the same time wreaked havoc. Just imagine the stress and chaos this created in finding the money to move as well as new places to move. Along with Atlanta’s highway project was the creation of its new business district along Peachtree Street and Piedmont Road. There was also the development of public housing projects that many Black families had no other option but to seek refuge. Two of my family households had to also seek refuge in these projects for 5-8 years before they were able to afford home ownership.
In my recollection, it was never discussed in the context that desegregation policies had a huge adverse effect on Black families and Black businesses. Yes, desegregation was to even the playing field for Black communities and it did in many ways. However, it also caused a huge shift in the business district of Sweet Auburn. Over time, how and where Black people shopped and patronized businesses shifted from Auburn Avenue and other areas such as Hunter Street to Buckhead Atlanta. Thus, many businesses collapsed in the 4th ward business district.
Respectfully Submitted
Rev. Mile’ Ealy”
Current and former residents from the community listening sessions continue to meet to discuss initiatives to revitalize the Sweet Auburn Community.
Those interested in connecting with residents may contact:
Devon Woodson, [email protected]
Princess Wilson, [email protected]
Additionally, Sweet Auburn Works and the Historic District Development Corporation also continue to do work in Sweet Auburn.
Houston, TX
The I-45 expansion project aims to widen I-45 from Downtown Houston to the north of the city to address congestion and enhance mobility. The project has been the subject of a nearly two-year federal civil rights investigation due to concerns that it unfairly harms communities of color. The project is expected to displace more than 1,000 residential units, 344 businesses, five places of worship, and two schools. TxDOT and the Federal Highway Administration (FHWA) have reached an agreement to move forward with the project while taking steps to mitigate impacts on surrounding communities.
After engaging with community leaders, we organized a focus group the following day at the Carl Walker Multipurpose Center.
The participants were residents of the Fifth Ward and over 70% of them identified as Black/African and the other 30% identified as Hispanic or Latino. Also, it is notable that most of the participants, about 28%, identified as being 56-65 of age, while 17% identified as between 66-75 years, and 10% between the ages of 76-85. We had a similar distribution of age among the younger population where 12.5% identified as 26-35 years and 36-45 years and about 17.5% identified as 46-55 years. We only had one participant who identified as being 25 years or younger.
The purpose of the transportation focus group session was to provide a space for community members to share their experiences about how their lives were impacted by the I-45 North Houston highway and to capture their thoughts about the proposed expansion project.
Our focus group consisted of residents who have lived in both Houston and the Fifth Ward for generations. We had business owners, farmers, teachers, and other dedicated and active members of the community to share their stories about growing up in Houston and witnessing the changes and increased disparities caused by decades of inequitable transportation laws and policies.
Despite the varied stories shared by community members, several common concerns emerged:
Lack of Critical Community Resources – A significant issue highlighted by community members was the lack of critical community resources, including access to essential services such as grocery stores, schools, hospitals, and public transportation.
Environmental Concerns – Environmental concerns were a critical discussion point for community members. Community members questioned the current inadequacies in infrastructure, particularly highways and streets situated by floodplains. These deficiencies contribute to increased traffic congestion and create significant challenges for residents attempting to navigate across the city.
Health and Wellness of Community Threatened – Community members expressed significant worry over deteriorating air quality, increased traffic, and the scarcity of affordable housing. The lack of sidewalks was particularly frustrating for residents with children, who emphasized the need for safer routes to schools. Additionally, there was a sense of confusion and frustration regarding the federal IRA initiatives and proposed transportation policy changes, with residents feeling unclear about these changes and the long-term environmental impacts on their neighborhoods.
No One Is Listening – Many community members expressed frustration over the I-45 expansion project. Community members are confused about its purpose and lack clarity from state and county officials, including TxDOT. Community members indicated that they have participated in numerous meetings similar to the focus group session, but they do not feel their voices are being heard and have yet to see any tangible changes in their community. This collective frustration is compounded by the perceived lack of transparency and communication about the project’s potential impact on their neighborhoods.
Current Resources
As a follow-up to the transportation focus group session, we solicited interest from Houston community organizations to continue these discussions.
LinkHouston stepped forward to organize, plan and sponsor the next community conversation. A community “porch party” with local leaders is planned for August 2024. For more information,please contact: [email protected].
