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Urban Planning for Health Equity


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health equity
resilience
environment
climate
infrastructure
Illustrated horizontal cross-section of an urban landscape showing buildings, streets, trees and people at ground level, with layered underground environments below, including soil, water, vegetation and ecological systems. Small silhouetted figures walk and cycle through public space, while abstract color layers beneath the surface suggest environmental and infrastructural conditions shaping everyday life.

This image was generated after an ARL concept using artificial intelligence (Midjourney) and serves as a conceptual illustration. It does not depict a real location, persons or specific empirical data.

Health equity is a core objective of sustainable, integrated urban planning. It links environmental quality and social justice by ensuring fair access to health resources and protection from health burdens in the way that cities are planned and designed. This thematic collection brings together the most important concepts, tools and examples for achieving health equity in spatial planning, featuring the work of the ARL (Academy for Territorial Development) and its working groups in this field.

 

What is health equity and why is it important?

Understanding health as “a state of complete physical, mental, and social well-being” (WHO 1948) is essentially a multidimensional and salutogenic understanding of health that focuses on physical and mental health, social participation, empowerment and resilience to risks.

Health equity means that all people should have the same health opportunities regardless of where they live and their socioeconomic or any other individual status. At the same time, preventable, socially unjust differences in health should be systematically reduced. The focus is on the fair distribution of

  • environmental pollution (air pollutants, noise, heat)
  • access to health-promoting resources (e.g., green spaces, safe mobility, social infrastructure)
  • and meaningful involvement in decision making processes.

There are sometimes significant differences in life expectancy, disease burden, and well-being between urban neighborhoods. Multiple burdens from air pollution, noise, heat stress, cramped living conditions, and limited mobility options often affect socially disadvantaged population groups and accumulate to poorer health outcomes.

"Unequal access to environmental quality for communities with a specific ethnic background, low income or women is an expression of societal structures, which are determined amongst others by urban planning.” 

(Heike Köckler, Bochum University of Applied Sciences, Germany)

Four side-by-side illustrations show people of different heights standing behind a fence at a baseball game. Reality: One person has more support than needed while another has too little and cannot see over the fence. Equality: Everyone is given the same support, but not all can see the game. Equity: Each person receives different levels of support based on their needs, allowing everyone to see the game. Justice: The fence is removed, and everyone can see the game without supports because the structural bar

How can urban planning promote health equity?

In 2016, in a series of the journal The Lancet, cities were emphasized as “important social determinant to health”, highlighting the multiple relations between urban planning, mobility and health outcomes via factors such as air and noise pollution, inactive lifestyles, social isolation and exposure to crime. Various forms of health inequity are observed as there are unequal micro-environments and opportunities for healthy living within the cities: Influenced by urban environmental factors, life expectancy from birth varies up to seven years between areas in Germany depending on the level of socioeconomic deprivation.

"While we have a wealth of knowledge on the relationship between built environment characteristics and health, and good examples of health promoting environments, we fail to implement healthy environments for everyone.” 

(Thomas Verbeek, TU Delft, The Netherlands)

The SARS-CoV-2 pandemic has amplified urban health inequity, revealing the consequences of unequal access to adequate housing, quality green spaces and health infrastructures. Therefore, the pursuit of developing urban areas that are healthy, sustainable and just is a common concern of practitioners and scientists around the globe.

“Urban planning should be recognized as a key instrument for promoting public health and well-being. By shaping inclusive, safe, and accessible environments, urban planning can foster healthier lifestyles, strengthen social connections, and improve mental and physical health outcomes across communities. Integrating health and well-being into urban development strategies ensures that cities and towns evolve not only sustainably, but also in ways that prioritize the quality of life of their residents.” 

(Claudia Costa, Município de Pombal, Portugal)

Spatial planning can change these conditions – both preventively and in a health-promoting way, e.g., through

  • prevention “in everyday life”: Planning shapes settings like housing, working, learning and recreational environments that promote or endanger health
  • Small-scale analyses of multiple exposures, particularly in socially disadvantaged areas, and the derivation of suitable measures to reduce them.
  • Participation and empowerment. Which are central to considering the needs of diverse communities

Planning therefore addresses both physical and material conditions (infrastructure and environmental quality) and appropriate procedures (cooperation and participation). It is embedded in the concept of Health in All Policies (HiAP), which anchors health goals in all relevant policy areas (transport, housing, environment, education, economy). This requires common goals, indicators, governance structures, and systematic impact assessments. Thereby planning processes should be cooperative and integrate multiple perspectives through involvement:

“Meaningful involvement is a key approach to environmental justice and health promotion, needs empowerment of responsible stakeholders and diverse communities.” 

(Heike Köckler, Bochum University of Applied Sciences, Germany)

“Urban planning for health equity offers the opportunity to reach everyone in their daily surroundings by designing their living environment in a way that promotes their health”. 

(Patricia Tollmann, Bochum University of Applied Sciences, Germany)

Key terms in urban planning for health equity

This collection on health-oriented urban planning presents terms, concepts, and fields of action. For each term, it offers: Terms and definitions, analytical approaches (indicators and measurement) as well as examples and implications for urban planning.

The collection is the result of transdisciplinary European collaboration between health professionals, spatial scientists and planners. It is intended for academics and practitioners working on the subject. It showcases the importance and diversity of emerging fields at the intersection of health and urban planning.

Resilience

Daniel Münderlein, Patricia Tollmann, and Heike Köckler

Resilience, health equity, and salutogenesis are distinct yet interconnected approaches to promoting and sustaining well-being. 

  • Resilience is the ability to quickly recover from difficulties and emphasizes individual and collective adaptation in the face of adversity.
  • Health equity focuses on eliminating systemic barriers that prevent certain populations from achieving optimal health. It calls for fair and just access to resources and opportunities, regardless of social determinants.
  • Finally, salutogenesis offers a complementary approach by shifting the focus from disease to the origins of health. Salutogenesis explores the resources and strategies that enable individuals and communities to manage stressors and develop a sense of coherence, thereby enhancing well-being.

Understanding and integrating these three concepts is crucial for developing comprehensive, effective strategies to build thriving, healthy societies.

Diversity, discrimination and inclusive design

Patricia Tollmann, Heike Köckler, Natalie Riedel, Martin Knöll, Katarzyna Brukalo 

There is a growing consensus on the need to plan and design cities that respond to the increasingly heterogeneous lifestyles and capabilities of today's societies (Baumgart/Rüdiger 2022). The concept of diversity is widely discussed in this context. One of the most influential works on health equity emphasizes the importance of diversity in addressing health inequalities through a multifaceted, inclusive approach that considers the various factors that influence health in different segments of society (Marmot/Atkinson/Bell et al. 2010). This glossary entry aims to improve understanding of the fundamental concepts of diversity and discrimination and how they can be addressed in urban design and planning to promote health equity.

Environmental Justice

Thomas Verbeek, Heike Köckler, Rehana Shrestha, and Gabriele Bolte 

Concepts of environmental justice can provide a framework for health equity by addressing different notions of justice and linking health-related environmental factors with socio-spatial structures (Walker 2012). Environmental justice is a broad concept that can be applied at different spatial scales; various situations of environmental injustice can also be found locally. At this level, different planning instruments can advance environmental justice goals. Through planning procedures and participation, urban planning contributes to procedural environmental justice and the empowerment of people – central concepts of environmental justice. Furthermore, urban planning influences land use, environmental quality, and the social distribution of the urban population (Köckler, 2017), thereby contributing to distributional environmental justice. Due to the direct and indirect relationships between environmental quality and health and well-being, environmental justice arguments can support urban planning strategies that promote health equity.

Climate Change

Nadja Kabisch and Daniel Münderlein

 “Climate change is the greatest challenge of the 21st century, threatening human health and development. The longer we delay action, the greater the risks to human lives and health.” (WHO 2018:1). Climate change is defined as “a change in the state of the climate that can be identified (e.g. by using statistical tests) by changes in the mean and/or the variability of its properties and that persists for an extended period, typically decades or longer. Climate change may be due to natural internal processes or external forcings such as modulations of the solar cycles, volcanic eruptions and persistent anthropogenic changes in the composition of the atmosphere or in land use” (IPCC 2021: 2222). Climate change is impacting health worldwide (WHO 2018), with justice implications also framed as climate justice. Climate justice often highlights the fact that the impacts and effects of climate change disproportionately burden the poorest and most disadvantaged, although the developed nations are the biggest producers of the emissions that induce climate change (London/Joshi/Cairncross et al. 2019).

Biodiversity

Daniel Münderlein 

The biological resources of our planet are influenced by natural evolutionary processes and increasingly altered by human activities. When this endangers these resources or the ecosystems to which they belong, it poses significant risks to the global population, which relies on them for livelihoods, health, and overall well-being. The complex global health challenges we face today – such as poverty, malnutrition, and infectious diseases – are more closely linked than ever to the intricate relationships between ecosystems, people, and socioeconomic factors. Understanding and protecting these relationships, as well as promoting biodiversity, can be considered part of active healthcare on a global scale. Urban planning can significantly help reconnect human health and biodiversity. “Biodiversity, ecosystems and the essential services that they deliver are central pillars for all life on the planet, including human life. They are sources of food and essential nutrients, medicines and medicinal compounds, fuel, energy, livelihoods and cultural and spiritual enrichment. They also contribute to the provision of clean water and air, and perform critical functions that range from the regulation of pests and disease to that of climate change and natural disasters. Each of these functions has direct and indirect consequences for our health and well-being, and each [is] an important component of the epidemiological puzzle that confront[s] our efforts to stem the tide of infectious and noncommunicable diseases” (WHO 2015: 9).

Infrastructure

Martin Knöll, Marcus Grant, Magdalena Maierhofer, and Martin Sondermann 

There is an increasing focus on how infrastructure impacts health. The bulk of the pertinent literature defines infrastructure as a facilitator of societal outcomes (Harris/De Leeuw 2023). Infrastructure encompasses facilities and systems for individual and collective use that influence economic development, social coexistence, and sustainable development.

Food system and nutrition

Katarzyna Brukalo and Marcus Grant 

The purpose of developing a comprehensive definition of food and nutrition infra structure is to create a framework that considers health and health equity in the plan ning, design, and governance of urban environments. Understanding and structuring the food system enables policymakers, urban planners, and community leaders to better address the nutritional needs of all residents and ensure equitable access to healthy, safe, and nutritious food.

 

What can cities do to improve the health and happiness of their residents? Here we present some positive examples from Europe.

Good practices

International:

 

Germany:

 

Links to databases, programs, institutions

English

 

Germany

 

Netherlands

 

ARL Publications on Health

English

ARL – Academy for Territorial Development in the Leibniz Association (ed.) (2022): COVID-19 pandemic: Lessons for spatial development. Hanover. = Positionspapier aus der ARL 137. URN: http://nbn-resolving.org/urn:nbn:de:0156-01370

Baumgart, S.; Rüdiger, A. (2018): Health in spatial planning (Raumplanung). URN: https://nbn-resolving.org/urn:nbn:de:0156-55997622

German

ARL – Akademie für Raumforschung und Landesplanung (2014): Umwelt- und Gesundheitsaspekte im Programm Soziale Stadt – Ein Plädoyer für eine stärkere Integration. Hannover. = Positionspapier aus der ARL 97.

ARL – Akademie für Raumforschung und Landesplanung (2017): RAUM UND GESUNDHEIT. Zur Annäherung zweier Disziplinen. Hannover. = Nachrichten der ARL 3.

ARL – Akademie für Raumforschung und Landesplanung (2018): Planung für gesundheitsfördernde Städte. Hannover. = Forschungsberichte der ARL 8.

ARL – Akademie für Raumentwicklung in der Leibniz-Gemeinschaft (2023): Handlungsempfehlungen für die planerische Steuerung der Krankenhausversorgung in Nordwestdeutschland. Hannover. = Positionspapier aus der ARL 143.

Köckler, H.; Deguen, S.; Ranzi, A.; Melin, A.; Walker, G. (2017): Environmental justice in Western Europe. In: Holifield, R.; Chakraborty, J.; Walker, G. (ed.): The Routledge Handbook of Environmental Justice. London. DOI: https://doi.org/10.4324/9781315678986

Umweltbundesamt: Gemeinsam planen für eine gesunde Stadt. Empfehlungen für die Praxis. Dessau-Roßlau. https://www.umweltbundesamt.de/sites/default/files/medien/479/publikationen/uba_gemeinsamplanen_0.pdf

Köckler, H.; Shrestha, R.; Bilal Aslam, A.; Berger, T.; Börner, S.; Cheung, C.; Carlo, F.; Shankavaram, H.; Shrestha, R.; Shrestha, S.; Simon, D. (2024): Physical activity in public space: insights from a global community of practice applying photovoice as a tool for digital participatory place analysis. In: Cities & Health, 1–13. DOI: https://doi.org/10.1080/23748834.2024.2307739 Köckler, H.; Hornberg, C. M.; Rüdiger, A.; Mekel, O. (Hrsg.) (2024): StadtGesundheit im Ruhrgebiet I. Bestandsaufnahmen und Perspektiven. München. DOI: https://doi.org/10.14512/9783987264115

Padeiro, M.; Freitas, Â.; Costa, C.; Loureiro, A.; Santana, P. (2022): Resilient Cities and Built Environment: Urban Design, Citizens and Health. Learning from COVID-19 Experiences. In: Pozo Menéndez, E., Higueras García, E. (eds): Urban Design and Planning for Age-Friendly Environments Across Europe: North and South. Developing Healthy and Therapeutic Living Spaces for Local Contexts. Cham. = Future City 19, 141-158. DOI: https://doi.org/10.1007/978-3-030-93875-8_7

Samoli, E.; Stergiopoulou; A.; Santana, P.; Rodopoulou, S.; Mitsakou, C.; Dimitroulopoulou, C.; Bauwelinck, M.; de Hoogh, K.; Costa, C.; Marí-Dell'Olmo, M.; Corman, D.; Vardoulakis, S.; Katsouyanni, K. (2019): Spatial variability in air pollution exposure in relation to socioeconomic indicators in nine European metropolitan areas: A study on environmental inequality. In: Environmental Pollution 249, 345-353. DOI: https://doi.org/10.1016/j.envpol.2019.03.050.

Verbeek, T.; Knöll, M.; Köckler, H.; Bolte, G.; Costa, C.; Maierhofer, M.; Shrestha, R.; Grant, M. (2025): The role of visual images in urban planning for health equity. In: Cities & Health, 1–14. DOI: https://doi.org/10.1080/23748834.2025.2508661Verbeek, T.; Boelens, L. (2016): Environmental health in the complex city: a co-evolutionary approach. In: Journal of Environmental Planning and Management 59 (11), 1913–1932. DOI: https://doi.org/10.1080/09640568.2015.1127800

Verbeek, T. (2019): Unequal residential exposure to air pollution and noise: A geospatial environmental justice analysis for Ghent, Belgium. In: SSM - Population Health 7, Article 100340. DOI: https://doi.org/10.1016/j.ssmph.2018.100340

Verbeek, T. (2018): The relation between objective and subjective exposure to traffic noise around two suburban highway viaducts in Ghent: lessons for urban environmental policy. In: Local Environment 23 (4), 448–467. DOI: https://doi.org/10.1080/13549839.2018.1428791

 

Contact

If you notice any mistakes or have comments, please contact us.

 

Dr. Martin Sondermann
Head of Academic Section “Society and Culture”
martin.sondermann@arl-net.de

Contributors

Prof. Dr. habil.
Prof. Dr.-Ing.
Univ.-Prof. Dr.
Univ.-Prof.
Katarzyna Brukalo
Patricia Tollmann

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