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ULI District Council Task Forces for Health and Social Equity Empowering Community An Engagement Toolkit for South Sacramento
WE ARE GRATEFUL FOR THE MANY VOICES OF MEADOWVIEW RESIDENTS
WHOSE PERSPECTIVES INFORMED AND INSPIRED THIS PROCESS.
SPECIAL THANKS TO THE ROBERT WOOD JOHNSON FOUNDATION, THE ULI
BUILDING HEALTHY PLACES INITIATIVE, AND OUR PROJECT EQUITY ADVISERS
FOR MAKING THE EFFORT POSSIBLE. AN EXTRA SPECIAL THANKS TO
TASK FORCE MEMBER JOANNA MACK FOR DESIGNING THIS REPORT.
Cover photo: The skyline of downtown Sacramento, overlooking the
Sacramento River.
© 2021 by the Urban Land Institute Sacramento
P.O. Box 2261 | Fair Oaks, CA 95628
Printed in the United States of America. All rights reserved. Reproduction
or use of the whole or any part of the contents without written permission
of the copyright holder is prohibited.
ULI District Council Task Forces for Health and Social Equity Empowering Community An Engagement Toolkit for South Sacramento ULI’s District Council Task Forces for Health and Social Equity: One Program, Four Distinctive Deliverables Beginning in August 2020, member-led task forces organized by ULI district councils in Chicago, Phoenix, Sacramento, and Tampa worked to address local policy and regulatory barriers to creation of healthier and more equitable places. These initiatives were part of ULI’s District Council Task Forces for Health and Social Equity Project, led by ULI’s Building Healthy Places Initiative with support from the Robert Wood Johnson Foundation. In addition to identifying a local challenge and executing an 18-month scope of work, each team was encouraged to document its project, outcomes, and recommendations, producing a deliverable that would meet the local need. The result is a library of four distinctive reports reflecting the work done in each city. uli.org/taskforces
CONTENTS
Report and Toolkit Quick Guide . . . . . . . . . . . . . . . . . . . . 6
Who We Are . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
The Baseline: Healthy Equitable Communities 16 THE BASELINE
Healthy Communities for All . . . . . . . . . . . . . . . . . . . . . 18
Enhancing Health in the Built Environment . . . . . . . . . . . . . .19
Study Area: Meadowview Sacramento 20 STUDY AREA
Community Background . . . . . . . . . . . . . . . . . . . . . . .22
COVID-19 and Economic Recession . . . . . . . . . . . . . . . . . 25
Community Priorities . . . . . . . . . . . . . . . . . . . . . . . . .26
Community Engagement Activities . . . . . . . . . . . . . . . . . .28
Voices of Meadowview . . . . . . . . . . . . . . . . . . . . . . . .32
UrbanPlan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .34
Community Events and Activities . . . . . . . . . . . . . . . . . . .35
Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .37
Meadowview Community Tookit 40 TOOLKIT
Equity and Health Toolkit Components . . . . . . . . . . . . . . . .41
Toolkit Process One: Site Activation . . . . . . . . . . . . . . . . . .42
Toolkit Process Two: Community Budgeting . . . . . . . . . . . . . .48
Toolkit Process Three: Project Approval . . . . . . . . . . . . . . . .52
Findings and Recommendations 54 FINDINGS AND
Findings and Implementation . . . . . . . . . . . . . . . . . . . . .54 RECOMMENDATIONS
Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . .55
REPORT AND TOOLKIT QUICK GUIDE
What questions relate to you the most? Pick a question, then
REPORT AND A TOOLKIT flip to the recommended page.
This document is both a report and a toolkit designed to
address the health and social equity disparities faced by I’M CURIOUS ABOUT THE URBAN LAND WHAT IS THE BUILDING HEALTHY
the stakeholders of Meadowview in South Sacramento. INSTITUTE. WHAT IS IT? PLACES INITIATIVE?
page 9 page 9
It documents 18 months of partnership and sustained
engagement between the Meadowview community and
the ULI Sacramento Task Force for Health and Social
Equity. The Task Force viewed the community through the
WHAT DOES HEALTH AND EQUITY HAVE HOW WAS THE SACRAMENTO HEALTH
dual lenses of health and social equity and prepared a set
TO DO WITH LAND USE? AND EQUITY TASK FORCE DEVELOPED?
of actionable recommendations. These recommendations
page 18 pages 9, 10
draw from stakeholder feedback and build on the
community’s existing assets. A key outcome from the
effort was the community’s desire to activate the area’s
many underused spaces and places. In response, the
task force prepared an activation strategy reflecting the WHY WAS MEADOWVIEW SELECTED WHAT ARE THE COMMUNITY
multidisciplinary perspectives of local stakeholders, FOR THE RESEARCH STUDY? PRIORITIES IN MEADOWVIEW?
subject matter experts, and leaders from peer communities pages 22–25 pages 26, 27, 32, 33, 55
across the United States. The report documents
the process and methodology of the analysis, outlines
community-driven priorities, summarizes key community
engagement activities, and recommends next steps
WHAT ARE THE TASK FORCE HOW DID THE TASK FORCE
based on best practices identified by ULI’s Building
RECOMMENDATIONS? ENGAGE WITH THE COMMUNITY?
Healthy Places Initiative.
pages 52, 53, 56 pages 28–30
The toolkit, designed by and for the community, is aimed
at catalyzing the community to take a more active role
in decisions regarding planning and physical development
issues. It includes suggestions for community empowerment, WHAT WERE THE DELIVERABLES HAS ULI DONE ANY OTHER
partnership, and engagement that reflect community OF THE GRANT RESEARCH? RESEARCH IN MEADOWVIEW?
needs while reducing the risk of displacement of people pages 10, 54 pages 10, 11
and businesses. The toolkit provides guidance on
project funding and budgeting, site activation, and site
development approval.
WHO IS THE HEALTH AND WHAT ARE SOME OF THE HEALTH
EQUITY TASK FORCE? DISPARITIES IN MEADOWVIEW?
pages 14, 15 page 18
6 Empowering Community: An Engagement Toolkit for South Sacramento
WHAT CHARACTERISTICS DO WHAT’S THE DEFINITION OF WHAT’S IN THE COMMUNITY TOOLKIT?
HEALTHY COMMUNITIES HAVE? HEALTH EQUITY? page 41
page 17 pages 18, 19
I WANT TO LEARN ABOUT HOW CAN COMMUNITY ACTIVATION I HAVE A SITE ACTIVATION IDEA.
COMMUNITY BUDGETING. BE MORE INCLUSIVE? HOW DO I GET STARTED?
pages 48–51 pages 42–47
pages 52, 53
WHAT ACTIVATION IDEAS CAME FROM HOW CAN SACRAMENTO AGENCIES BETTER WHAT IS URBANPLAN?
MEADOWVIEW COMMUNITY MEETINGS? INCORPORATE COMMUNITY PERSPECTIVES? page 34
page 55 pages 52, 53
WHAT ARE BEST PRACTICES FOR
COMMUNITY ENGAGEMENT?
page 30
Empowering Community: An Engagement Toolkit for South Sacramento 7
“Physical, social, and economic environments play
a huge role in shaping health and disease patterns
across populations and communities. Our environment
shapes our health, builds our history, tells our story,
reflects our values, guides our experience, and shapes
our personhood.” —Dr. Flojaune Cofer, task force member
8 Empowering Community: An Engagement Toolkit for South Sacramento
WHO WE ARE
THE URBAN LAND INSTITUTE THE ULI SACRAMENTO
The Urban Land Institute is a global, member-driven TASK FORCE FOR HEALTH
organization comprising more than 45,000 real estate
and urban development professionals dedicated to
AND SOCIAL EQUITY
advancing the Institute’s mission of shaping the future
of the built environment for transformative impact
TASK FORCE BACKGROUND
in communities worldwide. Established in 1936, the
Institute today has members from over 80 countries, The ULI Sacramento Task Force for Health
representing the entire spectrum of the land use and Social Equity is a cross-functional
and development disciplines, including developers, and diverse group of health, planning,
builders, property owners, public officials, brokers, business, community, transportation, and
investors, architects, public officials, planners, economic development leaders focused
appraisers, attorneys, engineers, financiers, academics, on leveraging their technical and policy
students, and librarians. Over the past 75 years, ULI expertise interwoven with community
has established itself as the preeminent nonprofit knowledge and asset-based planning
organization in the development and land use field. concepts to help catalyze community-led
This diversity of thought allows ULI to provide a planning, decision-making, development,
holistic perspective on land use, development, and and activation in the study area and the
placemaking issues while sharing best practices FIGURE 1: COMMUNITY GARDEN South Sacramento region.
through a variety of educational programs, forums,
to shape projects and places in ways that improve TASK FORCE GOAL
articles, and conferences. ULI is an international
the health of all communities. The four pillars of the
convener that facilitates the open exchange of ideas
Building Healthy Places Initiative are as follows: The task force set out to empower the
and experiences. ULI is best known nationally and residents of Meadowview to engage in
internationally for generating research that anticipates • RAISING AWARENESS: Communicating the neighborhood decisions that promote
emerging land use trends and providing advisory link between health and the built environment community health and opportunity for all.
services for communities, jurisdictions, and land in the real estate community; making health a
development industry sectors. mainstream consideration of development To begin meeting the goal, the task
force set out to:
BUILDING HEALTHY PLACES INITIATIVE • DEFINING THE APPROACH: Helping define and
1. Prepare a community toolkit to empower
As the world leader in responsible use of land and share information about the design elements,
residents’ neighborhood decision-making
creating sustainable and thriving communities, ULI programming strategies, materials, and other
approaches that improve health for people 2. Facilitate a youth-led UrbanPlan for
has been active in addressing the link between human
Communities session
health and development of the built environment. • EXPLORING THE VALUE PROPOSITION:
Holistic and equitable health is a core component of Articulating the value proposition of creating 3. Prepare a community-led site
establishing thriving sustainable communities that are healthy spaces and buildings by understanding activation strategy
inclusive and diverse. To address the growing health of the market and nonmarket factors at play
disparity in historically under-resourced communities, Implementation of the task force goals will
ULI’s board of directors approved the Building Healthy • ADVANCING THE STATE OF PRACTICE AND facilitate sustained community-led project
Places Initiative in 2013, drawing increased focus on POLICY: Leveraging ULI membership and partners implementation and revitalization of underused
the healthy communities theme for the organization. to advance the state of policy and practice of areas as well as improve health and equity
Through the Building Healthy Places Initiative, ULI is healthy community development and placemaking outcomes in the long term that can be replicated
promoting health as a key component of project design and shared with other resource-deficient
and leveraging the power of ULI’s global networks communities in the Greater Sacramento area.
ULI Staff and Consultants
MEET THE TASK FORCE
The ULI Sacramento Task Force for Health and Social • Assembling community priorities and identifying
Equity includes a diverse multidisciplinary group of implementable, equitable, replicable, and
health, planning, business, community, transportation, sustainable process and policy changes; and
and economic development leaders focused on • Providing community stakeholders and champions
leveraging their technical and policy expertise along with opportunities to enhance engagement and
with community knowledge and asset-based planning access through the sharing of resources and best
concepts to help catalyze community-led planning, practices.
decision-making, development, and activation in the
study area and the South Sacramento region. The ULI Sacramento Task Force for Health and
SARA HAMMERSCHMIDT, WILLIAM ZEH HERBIG,
Social Equity aims to address community concerns Senior Director, Senior Director,
The task force reviewed prior studies; worked with local regarding safety, health access, underdevelopment, and ULI Building Healthy Places ULI Building Healthy Places
elected officials, local residents, and stakeholders; underinvestment in the South Sacramento/Meadowview Initiative Initiative
researched national best practices; listened to neighborhood. The goal is to use an equity lens to look at
neighborhood constituents; and provided subject matter land use and transportation-related development activities.
expertise to address some of the biggest health and
equity issues facing the South Sacramento/Meadowview The task force aims to deliver the following three key
neighborhood. components to address the community’s priorities:
Issues considered included housing affordability, 1. EMPOWER through development of usable
safe and usable public gathering spaces, poor bike/ community toolkit process mapping;
pedestrian/alternative public or shared transportation
2. PARTNER through facilitation of a youth-led
modes, lack of trees and shading, health clinic access,
UrbanPlan for Communities session in the MARY CLEMENTI CHARLES T BROWN,
poor or missing infrastructure, safety, lack of adequate
Meadowview area; and District Council Coordinator, Principal,
jobs and job training opportunities, and the effects of ULI Sacramento Equitable Cities
racism and discrimination. 3. ENGAGE through development of community-led
site activation project activities.
WORK PRODUCT
The task force team has been working over the past This report is the culmination of the ULI Sacramento
14 months: Task Force for Health and Social Equity’s work. Volunteer
members of the task force include public and private
• Reviewing existing data that documents the representatives from housing, commercial real estate,
health, social, and equity disparities facing South finance, development, transportation, and other relevant
Sacramento/Meadowview; sectors. They were supported by dedicated ULI staff and
Equity consultants. The staff and volunteers follow here.
• Planning and conducting resident engagement TIFFANY M. PERTILLAR ROBYN TAYLOR
convenings to further gather information to COO and Co-Owner, CEO and Co-Owner,
inform, guide, and propel action moving forward; Epic Health Solutions Epic Health Solutions
• Reviewing land use and transportation policies,
barriers and opportunities to healthier places in BILLY GRAYSON RACHEL MACCLEERY
the South Sacramento/Meadowview Study Area; Senior Vice President, Senior Vice President,
Centers and Initiatives ULI Building Healthy Places
Initiative
10 Empowering Community: An Engagement Toolkit for South SacramentoULI Sacramento District Task Force Members
BERNADETTE AUSTIN JOSE BODIPO-MEMBA MATTHEW BRYANT DR. FLOJAUNE COFER ADRIAN ENGEL ALLEN FOLKS
Acting Director, Sustainable Communities District 8 Chief of Staff, Senior Director of Policy, Senior Associate, Director of Planning & Design,
UCD Center for Regional Director, SMUD; Chair, ULI City of Sacramento Public Health Advocates Fehr & Peers Ascent Environmental
Change Sacramento
TRINA GONZALEZ, MONICA HERNANDEZ ALLISON JOE DEBRA OTO KENT, JOANNA MACK KRIZTINA PALONE
Vice President for Policy, Director of Innovation District 5 Chief of Staff, Founder/CEO, Designer III, Workforce Development
California Hospital and Partnership, SACOG City of Sacramento Health Education Council Mogavero Architects Manager,
Association City of Sacramento
“Our goal is to spur neighborhood
empowerment, facilitate partnerships and
engage with our community to activate local
KENDRA MACIAS REED, ASHLEE WEBB,
Deputy Director, Sustainable Communities spaces and places.”
Franklin Blvd Business Representative, SMUD
District —Joanna Mack, task force member
Empowering Community: An Engagement Toolkit for South Sacramento 11INTRODUCTION
ULI Sacramento formed the Task Force for Health Metropolitan Air Quality Management District. The goal
ULI SACRAMENTO
and Social Equity in 2019 to address the health of the study was to promote equitable, healthy, and TASK FORCE FOR HEALTH
and disparity issues facing the South Sacramento/ inclusive community development that fosters job and AND SOCIAL EQUITY
Meadowview community and discuss how community-led income growth, diverse housing options, good health
land use and transportation improvements can positively outcomes, and development of healthy neighborhood ACTION STATEMENT
affect those living in neighborhoods within Meadowview amenities. Released in 2019, the report prepared AND COMMITMENTS
specifically and South Sacramento in general. ULI for that study incorporated input from a panel of
Sacramento began taking a deeper dive related to health international planning and development experts, as well
equity in the South Sacramento area. The task force’s as over 100 community members and local stakeholders.
The task force evaluated community
goals, deliverables, and methodology were influenced
Several opportunities for asset-based planning projects concerns regarding safety, health
by the key findings of the 2018 South Sacramento
built around community priorities were identified. The access, underdevelopment,
ULI Advisory Services panel (ASP) and its subsequent
theme of “doing projects with the community, not to the and underinvestment in the
report. The study focused on equitable transit-oriented
community” came across in stakeholder interviews and South Sacramento/Meadowview
development (TOD) within a four-square-mile study
community outreach sessions. “The underlying message neighborhoods by taking an asset-based
area, anchored by the potential reuse opportunities of
from residents is now we have the opportunity to do planning approach and leveraging
the Florin and Meadowview Regional Transit light-rail
projects in partnership; this is an opportunity for us to community-driven concepts to ensure
stations. The focused 2018 ASP effort was spearheaded
finally get it right.” ULI heard the stakeholders loud and holistic sustainability and improved
by Congresswoman Doris Matsui, Councilmembers
clear, and the following recommendations were made quality of life. We are committed
Larry Carr and Jay Schenirer, and County Supervisor
by the panel based on its evaluation and community to using an equity lens to ensure
Patrick Kennedy and cosponsored by SACOG, SMUD,
feedback. improved community empowerment,
Sacramento Regional Transit, and the Sacramento
engagement, and partnership related
to land use, transportation, and real
estate development activities within the
neighborhoods.
HEALTH AND EQUITY COMMITMENTS
• Seeking goals of equity
• Leveraging technical expertise with
local expertise
• Collaborating fully with the community
• Respecting and acknowledging the past
• Acting collaboratively in the present
• Striving for a better future—together
FIGURE 2: 2018 ULI SOUTH SACRAMENTO ADVISORY SERVICES PANEL STUDY AREA MAP
12 Empowering Community: An Engagement Toolkit for South Sacramento“ULI heard the stakeholder message loud and clear, and the following recommendations
were made by the 2018 panel based on its evaluation and community feedback.”
• Identify and strengthen leadership within the community
• Integrate parks and recreation facilities, community gathering spaces, and
healthy food opportunities into undeveloped acreage at rail stations and other
opportunity areas through design and programming
• Develop a safe, connected, active, and green multimodal transportation
network
• Build denser mixed-income and mixed-use multifamily housing to provide
affordable units, create higher incomes, and stimulate redevelopment
• Jump-start jobs and entrepreneurship with redevelopment and placemaking
of available retail space in commercial corridors
• Use existing arts and culture capacity to further enhance community
—2018 ULI Advisory Services panel key findings
Empowering Community: An Engagement Toolkit for South Sacramento 13TASK FORCE FUNDING These high-visibility locations offer opportunities for
To build off the momentum of the ASP study, ULI infill development for local retail, entertainment and
Sacramento applied and was one of four cities selected community gathering spaces, housing, and social and
for the Health and Equity Task Force Grant sponsored cultural destinations. The key to success is ensuring
by the Robert Wood Johnson Foundation to study authentic community involvement, intentionally
the effect of real estate on community health and incorporating health outcomes into project design
social equity in 2019. The goal of the task force was and ideation, ensuring an equity lens is applied to all
to provide tools and mechanisms of empowerment projects, and leveraging the neighborhood diversity as a
to convert the recommendations into community-led marketable asset and economic development driver.
action. A task force of local real estate and health
equity experts was formed in the fall of 2019 and have TIMELINE/METHODOLOGY
been co-designing with community members a program The ULI Sacramento Task Force for Health and Social
focused on engagement, empowerment, partnership, Equity’s reporting intent was to build off existing efforts
and activation, incorporating community input that rather than reinvent the wheel. The project methodology
has been gathered in the area over the last three years, was built around the following key components:
while acknowledging the uniqueness of 2020’s current
health, political, and social context. • Establish a cross-functional core team with strong
community ties;
THE STUDY AREA OF MEADOWVIEW • Partner with and share data with parties doing
The task force chose to focus its analysis on the work in Meadowview to consolidate findings;
Meadowview neighborhood in South Sacramento.
• Clarify goals with actionable outcomes;
Meadowview is bounded to the north by Florin Road
and to the south by Richfield Way, to the east by • Establish an outreach strategy that is inclusive of
the RT Light Rail line and to the west by Freeport the diversity of the Meadowview population;
Boulevard. South Sacramento/Meadowview faces
• Leverage interactive community workshops;
significant challenges given the disproportionate burden
of health issues such as COVID-19, asthma, and • Establish toolkit findings that can be replicated
chronic health conditions together with poor air quality, for success; and
limited health care access, and environmental health
• Share findings with community stakeholders and
impacts that contribute to increased rates of violence,
government officials.
vehicular incidents, and traffic-related pedestrian
injuries and deaths during poor economic times.
Despite what could be seen as a bleak outcome,
residents, community leaders, and city officials see this
period as an opportunity to leverage some existing built-
environment investments to further spur smart and
environmentally healthy neighborhood revitalization at
underused locations along residential pockets and key
commercial corridors like Florin Road, 24th Street, and
Meadowview Road.
FIGURE 3: ULI SACRAMENTO TASK FORCE TIMELINE
14 Empowering Community: An Engagement Toolkit for South Sacramento“The ULI Sacramento Task Force for Health and Social Equity aims to deliver the
following three key components to address the community priorities: development of
usable community toolkit process mapping, facilitation of a youth-led UrbanPlan
for Communities session in the Meadowview area, and development of community-led
site activation project activities.”
THREE CORE VALUES
EMPOWERMENT.
LEARN AND SHARE INFORMATION WITH THE ACTIVATION COMMUNITY
COMMUNITY TOOLKIT
TOOLKIT
PARTNERSHIP.
ADD YOUR VOICE TO THE CONVERSATION BY
ATTENDING PROGRAMS LIKE URBANPLAN AND
PLANNERS ACADEMY
ENGAGEMENT.
HELP ACTIVATE PLACE, SPACES AND INDIVIDUALS
IN YOUR COMMUNITY URBANPLAN
Empowering Community: An Engagement Toolkit for South Sacramento 15The Baseline:
Healthy Equitable
Communities
16 Empowering Community: An Engagement Toolkit for South Sacramento“Conditions that allow everyone to have a fair and just opportunity to
be as healthy as possible. This requires removing obstacles to health
such as poverty, discrimination, and their consequences, including
powerlessness and the lack of access to good jobs with fair pay,
quality education and housing, safe environments, and health care.”
—Definition of Health Equity by the Robert Wood Johnson Foundation
Empowering Community: An Engagement Toolkit for South Sacramento 17HEALTHY COMMUNITIES FOR ALL
WHAT IS HEALTH EQUITY? 4. Reassessing strategies in light of process and
Health
Length of life (50%)
outcomes by using an inclusive approach that
A health equity lens was used to evaluate the built actively engages the affected population. outcomes Quality of life (50%)
environment of Meadowview in this report. The Robert
Wood Johnson Foundation defines health equity as This report focuses on steps one and two and provides
Tobbaco use
“conditions that allow everyone to have a fair and just recommendations on how to ensure that steps three and Health behaviors Diet and exercise
opportunity to be as healthy as possible. This requires four are incorporated into established processes. (30%) Alcohol/drug use
addressing obstacles to health such as poverty, racism,
Sexual activity
discrimination, and their consequences, including HEALTH DISPARITIES IN MEADOWVIEW
powerlessness and the lack of access to good jobs
An evaluation of existing health disparities within
with fair pay, quality education and housing, safe
the South Sacramento/Meadowview neighborhood Clinical care Access to care
environments, and health care.”
was completed by the task force. South Sacramento/ (20%) Quality of care
“Physical, social, and economic environments play Meadowview has been identified as one of Sacramento Health
a huge role in shaping health and disease patterns County’s zip codes experiencing the highest rates factors
across populations and communities,” says Dr. Flojaune of health disparities per the Sacramento County Education
Community Health Needs Assessment, commissioned Social and
Cofer. “Our environment shapes our health, builds our Employment
by Kaiser Permanente, Sutter Hospital, Dignity Health, economic factors
history, tells our story, reflects our values, guides our (40%) Income
experience, and shapes our personhood.” An evaluation and UC Davis Medical Center.
Family social support
of the Sacramento County Public Health Epidemiology
According to the UC Davis 2019 Community Health Community safety
COVID-19 Dashboard and the Sacramento Municipal
Needs Assessment, Meadowview is in the highest tier of
Utility District Sustainable Communities Resource
the County’s Health Vulnerability Index, with 28 percent
Priorities Map shows the inequity of living and quality- Physical
of Meadowview residents living below the poverty line, Policies and
of-life conditions within Sacramento County, with South environment Air and water quality
15 percent unemployed, 10.6 percent uninsured, 27 programs (20%)
Sacramento suffering significant disparity. Housing and transit
percent with no HS diploma/GED, and 52.3 percent
living in high-cost housing situations. Currently, the study FIGURE 5: SOCIAL DETERMINANTS OF HEALTH
STEPS TOWARD HEALTH EQUITY area has rates of diabetes and tobacco-related visits to —ROBERT WOOD JOHNSON FOUNDATION
Consistent with the goal of achieving health equity, the emergency room higher than the county rate.
the task force identified four steps within the study
In addition, these strategies can be used by citizens
area aimed at IMPROVING EQUITY THROUGH POLICY to provide a baseline evaluation regarding the relative
AND STRATEGY health of their respective neighborhoods. The 21
1. Identifying the existing health disparities and
their connections to determinants of health A major key to achieving health equity is addressing evidence-based Building Healthy Places Factors were
outcomes as listed above; policies, programs, laws, environments, and systems used to help guide community conversations regarding
that help ingrain the aforementioned health disparities. neighborhood assets and opportunity areas. A copy of
2. Changing policies, laws, systems, environments, the Building Healthy Places Factors can be found on
and practices to reduce inequities in health Establishing policies, programs, and places that address page 19.
outcomes; the physical, social, and economic factors contributing
to disparities in health and equity is the primary focus The goal of this analysis is to provide tools and process
3. Evaluating and monitoring efforts for short- and of this report. The Building Healthy Places Toolkit that assist community members in evaluating and
long-term impact using appropriate metrics; and (https://bhptoolkit.uli.org) provides a strategy framework establishing success metrics, as well as empowering
for improving the built environment from the perspective stakeholders to proactively reassess strategies using
of the developer and policy decision makers. authentic and inclusive community engagement.
18 Empowering Community: An Engagement Toolkit for South SacramentoENHANCING HEALTH IN THE BUILT ENVIRONMENT
PHYSICAL
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HY PHYSICAL ACTIVITY
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HY
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Install stair everyday
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S
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DEPARTMENT
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REEVESREEVES
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NYC DEPARTMENT
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NYC OF
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DEREK REEVES
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HEALTHY ENVIRONMENT AND SOCIAL WELL-BEING
THE
lth Foundation and
THE LINK
HEALTHY
14
ENVIRONMENT
smoking
Ban
AND SOCIAL WELL-BEING
HEALTHY ENVIRONMENT AND SOCIAL WELL-BEING
14 Ban
17
17
Maximize indoor
lighting
Maximizequality
indoor
20
20
Facilitate
social engagement
Facilitate
MICHELSON/RMPIX.COM
smoking
Use materials and products lighting
Minimize quality social
Adopt engagement
15 Ban 18 Maximize indoor 21 Facilitate
14 that support healthy 17 noise pollution 20 pet-friendly policies
MICHELSON/RMPIX.COM
smoking
Use materials and products lighting
Minimize quality social
Adopt engagement
BENSCHNEIDER
HURSLEY
15 indoor air quality
that support healthy 18 noise pollution 21 pet-friendly policies
MICHELSON/RMPIX.COM
Use materials and products Increase
Minimize access Adopt
BENSCHNEIDER
19
HURSLEY
15 indoor airproper
quality 18 21
TIMOTHY
Facilitate
that support healthy to nature
noise pollution pet-friendly policies
Building Healthy
16 19
Increase access
BENSCHNEIDER
HURSLEY
ventilation and airflow
RANDALL
BENJAMIN
Places Initiative indoor airproper
quality
TIMOTHY
Facilitate to nature
Building Healthy
16 ventilation and airflow 19
Increase access
RANDALL
BENJAMIN
Places Initiative
TIMOTHY
Facilitate proper to nature
Building Healthy
16 ventilation and airflow
RANDALL
BENJAMIN
Places Initiative
FIGURE 6: ULI BUILDING HEALTHY PLACES TOOLKIT FACTORS
Empowering Community: An Engagement Toolkit for South Sacramento 19Study Area
Meadowview
Sacramento
20 Empowering Community: An Engagement Toolkit for South SacramentoFIGURE 7: COLLAGE OF MEADOWVIEW IMAGERY Empowering Community: An Engagement Toolkit for South Sacramento 21
COMMUNITY BACKGROUND
In the late 1990s and early 2000s, the
Greater Sacramento region was booming,
home to five of the 10 fastest-growing cities
in the west.
As the region grew, and residential,
commercial, and retail projects were popping
up at a rapid pace, South Sacramento
and Meadowview appeared positioned for
a rebirth, with high-end housing projects,
exciting transit-oriented development
projects, and newer big-box retail options
salivating at the open development canvas
the neighborhood had to offer.
By 2006, Meadowview appeared ready
for a renaissance that would highlight
the neighborhood’s amazing cultural
diversity with newly developed assets and
public spaces at affordable price points.
Unfortunately 2007 marked the official
beginning of the U.S. economic downturn
known as the Great Recession.
The economic downturn hit the entire
Sacramento region hard. South Sacramento/
Meadowview was one of the most negatively
impacted areas and has not been in position
for an effective and equitable recovery
focused on improvements to the built
environment.
FIGURE 8: MEADOWVIEW STUDY AREA BOUNDARY AND OPPORTUNITY LOCATIONSThe overwhelming concern from community members These factors combined with “white flight,” historic
as the task force embarked on this process was that bias in the real estate industry (redlining), and poor
any proposed improvements would trigger gentrification land use planning and transportation planning practices
that had been seen in other parts of Sacramento and caused by limited community engagement and cultural
throughout the United States. Too often community competencies, led to Meadowview’s simultaneous
members associated improved transit-oriented increased diversity and increased isolation from
development, activated public spaces, and new regional economic development efforts, with relatively
housing with higher home prices, rents, and overall little new development for decades in comparison with
displacement. How to balance generating healthier its regional partners. “Meadowview has been a dumping
community outcomes without displacing current ground in recent years,” said one community member
community member is a community concern that the at a task force event. “Equity would make difference.”
task force seeks to address. Over the last 40 years Meadowview has gone through
major demographic changes as shown in the “Making
FIGURE 9: DARK GREEN SHOWS LOCATION OF MOST VULNERABLE MEADOWVIEW PEOPLE, PLACE, AND HISTORY Meadowview: Mapping a Changing Neighborhood”
POPULATIONS IN SACRAMENTO REGION
interactive map. Clearly the diversity that once signaled
The ULI Sacramento Meadowview health and equity
divestment from investors and institutions is actually
In the 2018 report Charting a Course to the Sacramento study area is bounded by Florin Road on the north
an asset valued by community members and can now
Region’s Future Economic Prosperity, the Metropolitan and Richfield Way on the south, between Freeport
be leveraged as a strength and differentiator between
Policy Program at Brookings noted that South Sacramento Boulevard on the west and Franklin Boulevard and
Meadowview and other surrounding neighborhoods. A
was among select regional neighborhoods with the Regional Transit Light Rail Line on the east in
number of opportunity areas are identified in the figure
“concentrated distress” hindering access to opportunity South Sacramento. The Meadowview neighborhood
that can be catalysts for community-focused economic
because of design and spatial planning. and study area in South Sacramento has a population
development.
of approximately 26,660 and is extremely diverse, a
Once a thriving and fast-growing bedroom community characteristic that residents and stakeholders see as
The relative economic development neglect over the
adjacent to the city core, South Sacramento and the region’s greatest asset. With of 21.2 percent Asian,
past 40 years in comparison to more heavily invested
Meadowview specifically have suffered from relative lack 23.3 percent Black/African American, 10.8 percent
new growth areas to the north resulted in environmental
of regional development and investment that consistently White/Caucasian, and 32.7 percent Hispanic/Latino
justice and safety concerns, leaving the neighborhood
triggered and exacerbated health equity issues. (U.S. Census Bureau), Meadowview is one of the most
subject to many social and health-related inequities
ethnically diverse neighborhoods in Sacramento County.
Local champions, including Congresswoman Doris compared to the rest of the region. The compatibility
“I love the diversity,” said one community member
Matsui, Councilmember Larry Carr, Councilmember of land uses in the area is problematic, leaving many
in a task force community engagement session. “In
Jay Schenirer, and Supervisor Patrick Kennedy, have residential locations placed in poor air quality pockets
Meadowview, sharing and learning about other cultures
stepped up and advocated for improved infrastructure and adjacent to land uses that handle hazardous
brings people together.”
investment and set the table for ULI to make a more materials or solid waste, endanger water quality, impair
in-depth investment in equitable development of pedestrian safety, and increase risk of toxic releases.
This is a far cry from the Meadowview of the 1950s,
Meadowview and South Sacramento overall, beginning The Meadowview area is currently located in one the
a small suburb of approximately 5,300 residents, of
with the 2018 ULI Advisory Services panel for highest-rated environmental health sensitivity areas
which over 88 percent were White/Caucasian. It was
equitable TOD for South Sacramento. in Sacramento, according to the Cal Enviroscreen
your typical bedroom community, incurring steady
environmental justice database. In addition, the asthma
growth as freeway development made suburbs more
The successful outcome of that panel and the rates and air quality rates in the southern portion of the
popular. Due to the lack of racial covenants in the
subsequent report findings created the opportunity Meadowview neighborhood are in the 90th percentile
neighborhood and expedited by the 1968 Fair Housing
to take a focused look at Meadowview neighborhood according to the Sacramento Metropolitan Air Quality
Act, Meadowview began to experience increased
disparities that were uncovered in the previous analysis. Management District and the State Disadvantaged
diversity in homeownership and occupancy at a faster
Community Database scoring.
rate than most of the region’s neighborhoods.
Empowering Community: An Engagement Toolkit for South Sacramento 23The community is located in health equity focus areas Through the successful execution of the task force
according to the Sierra Health Foundation as well. In goals and the toolkit processes, many disenfranchised
addition, the Florin Road corridor is located within the groups within the Meadowview and South Sacramento
county’s designated Medically Underserved Areas. neighborhood will benefit from improved equity,
access, and engagement in land use and transportation
The biggest contributors to these conditions are the processes.
lack of historical environmental justice protection
within the region; lack of access to affordable housing Moreover, the effort will shine a bright light on
options; limited access to social institutions like neighborhoods that have often been ignored by the
adequate health care, education, and job training region and serve as a catalyst for increased community
within the neighborhood; lack of safe open spaces; reinvestment on multiple levels. Despite some of the
and limited mobility options within the neighborhood, setbacks, a number of ongoing projects had been
particularly those that are environmentally friendly. set to improve conditions in Meadowview and South
Sacramento, including the new Tecoy Porter College
It is our belief that our toolkit and recommendations Prep School. (Please see the table below.)
would help address some of the health and social
equity concerns of the area, while applying a cultural
context that meets the needs of one of the most diverse
communities in Sacramento.
FIGURE 10: SACRAMENTO MUNICIPAL UTILITY DISTRICT SUSTAINABLE
COMMUNITIES RESOURCE MAP
Ongoing City of Sacramento Projects in the Meadowview Neighborhood
Transportation Projects Residential Improvement Programs
24th Street Feasibility Study Chain Link Fence Removal and Garden Conversion Program
Mack Road Congestion Relief and Safety Improvements River-Friendly Landscaping
Meadowview Complete Street Design Sacramento Tree Foundation – Sacramento Shade Tree Program
Meadowview Street Improvements SMUD: No power shutoff and late fee forgiveness through first quarter 2021
Florin Road Vision Zero Safety Improvements
Regional Transit SmaRT Ride Expansion
Sacramento 2040 General Plan Update
Ryde Free RT
24 Empowering Community: An Engagement Toolkit for South SacramentoCOVID-19 AND ECONOMIC RECESSION
As previously mentioned, the economic downturn hit The study found that the majority of the job “[South Sacramento] has a high concentration
South Sacramento in 2007 and affected Meadowview opportunities in the region were concentrated in 14 of essential workers. Those people had to go to
in a disproportionately difficult way that stunted “job hubs” in the core that have limited accessibility work during the stay at home order. They cannot
the area’s ability to position itself for an effective from the underserved communities identified as the telecommute. They don’t have jobs that allow them to
and equitable recovery focused on improvements to “bottom 25 percent”. More often than not, the more do that and are suffering significant exposure to the
the built environment. The effects of the recession affordable communities are being developed far from virus,” said former councilmember Larry Carr.
lasted longer in Meadowview than in other parts of the necessary social services (hospitals, schools, parks,
Sacramento. As economic recovery began to occur in etc.). In addition, SMUD, in conjunction with local The impacts created by the lack of safe public
2014, Sacramento neighborhoods like Midtown and hospitals (Sutter Health, UC Davis Medical, and Dignity gathering spaces and current COVID-19-sensitive built
Natomas became hot markets for new residential, Health) identified Health Equity Focus areas within environment have negatively affected the health and
commercial, and retail, and major suburban markets the region and found a direct correlation between well-being of the citizens of South Sacramento.
such as Roseville, Elk Grove, and Folsom saw renewed these areas and areas defined in the Brookings study.
residential, retail, and corporate investment, with added The lack of effective and affordable public transit, Although a number of transportation projects are
amenities like regional parks and open-air markets. poor pedestrian and bicycle connectivity, and limited underway to address these concerns (figures 9 and 10),
Despite the regional gains, it was clear that South successful transit-oriented development opportunities the level of true community engagement and ownership
Sacramento and specifically Meadowview have been in the region are key land use barriers to gaining true of these projects is waning, especially with COVID-19
left out of much of the community reinvestment. Health economic and health equity. Moreover, as SACOG has further separating citizens from city processes.
and social equity challenges exist in South Sacramento noted in its regional sustainability plan, the history
This health and social equity task force effort is a
that threaten the quality of life for current residents of redlining and the lack of proactive environmental
perfect opportunity to pick up where this study left
and the sustainability of our region. justice planning policies have put these communities
off and plumb the issues that are hindering this part
at a disadvantage from a health risk perspective. The
Recently, three studies identified significant health and of our region to achieve a more healthy and equitable
overdependence on vehicle use and the proximity of
social equity gaps by race and by neighborhood within community.
residential uses to incompatible land uses in these
the Greater Sacramento region, in part due to the already underserved communities have triggered severe
regional development trends. health disparities, usually tied to poor air quality and
proximity to hazardous conditions.
The Valley Vision Regional Livability Index interviewed
thousands of residents and found that access to The impact of COVID-19 has even further negatively
affordable housing, parks, health care facilities, and affected the Meadowview community, as the
education centers was perceived as lower for Black and neighborhood has among the highest number of
Latino residents than for Whites. In fact, the Brookings COVID-19 cases in the region. Meadowview has been
2018 report Charting a Course for the Sacramento identified as a COVID-19 hot spot according to the
Region’s Future Economic Prosperity identified that the Sacramento County public health dashboard, which
gap between the top 25 percent and bottom 25 percent identifies the 95832 and the adjacent 95823 zip codes
economic performing neighborhoods has increased over as having among the highest number of COVID-19
the past 10 years and is expected to continue to do so cases in the entire county.
without a regional sustainable development strategy.
Empowering Community: An Engagement Toolkit for South Sacramento 25COMMUNITY PRIORITIES
PRE-COVID-19 PRIORITIES
Sacramento Regional Transit Florin Station meetings
The tremendous disparity facing Meadowview residents led to a number of groups trying to better understand the
discussed the importance of multifamily housing,
neighborhood priorities and assets from the perspective of neighborhood residents and business stakeholders. The
community gathering space, mixed-use development,
goal of the ULI Sacramento Task Force for Health and Social Equity was not to reinvent the wheel but to leverage
and transit-oriented development.
existing efforts to better understand the neighborhood priorities and determine what existing ongoing efforts were
in place to address said concerns. Following are a few of the efforts that were researched when establishing the
Beginning in December 2019 and running through
baseline conditions analysis for Meadowview:
March 2020, the ULI Sacramento Task Force on
Health and Social Equity distributed surveys in person
• District 8 Councilmember Larry Carr’s community priorities meeting;
and online to residents and constituents to verify
• South Sacramento ULI Advisory Services panel findings; the improvement priorities and the status of key
neighborhood indicators within South Sacramento and
• Capital Public Radio Making Meadowview series;
Meadowview. Again, the survey results showed familiar
• Sacramento Regional Transit Florin Station joint development meetings; and themes, with education, housing, safety and crime,
and job creation rising to the top of the priority list.
• ULI Sacramento Task Force for Health and Social Equity community surveys.
New items such as homelessness and environmental
quality also appeared on the revised survey results.
Councilmember Carr regularly held outreach meeting to gauge the priorities of the community. When looking at assets within the community, it was
The priorities expressed at the February 2020 community meeting were as follows: clear that community spaces where people can gather
and connect around diverse food, culture, recreation
• Jobs; opportunities, and entertainment stood out to survey
• Safety and Health; participants. The top vote getters were People and
Community, Parks and Open Spaces, and Diversity and
• Summer and After-School Youth Programs; Culture. The surveys verified that the value of human
• Business Development; and and cultural capital is paramount in South Sacramento
and Meadowview. When discussing opportunity areas,
• Education. educational, vocational, job training, and job placement
opportunities proved to be of highest interest to
communities, further drawing the connection between
The September 2018 Advisory Services panel also asked about neighborhood priorities,
economic outcomes and health disparities in South
which are listed below:
Sacramento.
• Housing;
Community members and stakeholders brought up
• Employment and Entrepreneurship; similar themes and priorities at community events and
listening sessions held by Capital Public Radio, hosts of
• Mobility and Transportation;
the Making Meadowview multimedia series.
• Racial Equity and Collaboration;
• Leadership and Organizational Collaboration;
• Youth and Education;
• Public Health and Safety; and
• Arts and Culture.
26 Empowering Community: An Engagement Toolkit for South SacramentoCOMMUNITY PRIORITIES community resilience. Additionally, the murder of The interactive polling further verified the findings of
George Floyd reignited issues of racism and safety the pre-COVID survey. By an overwhelming margin,
FACTORING IN COVID-19 within a community that was only beginning to recover Diversity and Culture, along with the People/Community
from impact associated with the police-associated Feeling, were determined to be the greatest asset.
death of Stephon Clark in Meadowview in 2018 and the
The formal ULI Sacramento Task Force for Health long history of racial tension. Participants also reviewed and verified the polling data
and Social Equity community engagement workshop from the health and equity task force survey distributed
series and site activation process was scheduled As a result of the shifting conditions that resulted from December 2019 to March 2020 (pre-COVID-19).
to begin in March 2020, with a highly anticipated in remote work, social distancing, food and supply The results can be found on the prior page. “Interesting
community meeting at Rosa Parks Elementary School. shortages, disruption of the public transit system, that the live poll and survey results parallel what
Unfortunately, the public health crisis associated with health care system overload, and massive job loss by we heard as a part of the Making Meadowview podcast
the rapid spread of the COVID-19 virus put the study on community members, the ULI Sacramento Task Force listening sessions. Amazing consistency over time,”
hold and potentially shifted the overall priorities of the for Health and Social Equity elected to use online said jesikah maria ross, senior community engagement
Meadowview residents. In March 2020, the COVID-19 community workshops to gather community input and strategist for Capital Public Radio, during participation
pandemic officially hit California and had a heightened reassess priorities of residents and stakeholders. We in one of the task force’s community engagement events.
impact on Meadowview and South Sacramento due shared the results of the initial study with community
to the aforementioned health equity disparity. Issues members and requested they join us for a Zoom
TOP COMMUNITY PRIORITIES POST-COVID-19
like limited access to health care, lack of safe public meeting with live polling and interactive discussion
spaces, and subpar education and job training options about community assets, opportunity areas, and Meadowview Community Survey Feedback
became apparent and served as differentiators for priorities under COVID-19 conditions.
• Job creation and training
• Affordable housing
• Youth programs and education
• Public safety
Empowering Community: An Engagement Toolkit for South Sacramento 27COMMUNITY ENGAGEMENT ACTIVITIES
FEEDBACK, VISIONING, AND
DECISION-MAKING WITH
AND BY SOUTH SACRAMENTO
The task force prioritized engagement with the South
Sacramento community to contribute to a better
regional understanding of the needs and priorities
of residents as well as to facilitate pathways toward
expanded community input and decision-making on
land use and development opportunities.
The task force conducted a community survey and
two community meetings (attended by about 80
stakeholders each) in which attendees identified 24th
Street Park and the RT development site as two priority
spaces for activation as well as a community-generated
list of activation ideas.
Further, in response to community feedback that the FIGURE 11: MAKING MEADOWVIEW PODCAST PARTY, CAPITAL
process for implementing these activation ideas is PUBLIC RADIO
unclear, the task force developed the toolkit included in THE TASK FORCE’S COMMUNITY
this report as a first response. ENGAGEMENT APPROACH
The task force developed a community engagement strategies, some of which are new to ULI Sacramento,
The task force designed its approach to working with approach that built on the existing work of ULI and to engage with known community leaders as well as
South Sacramento stakeholders to contribute to high- other local organizations with the goals of advancing build new partnerships with local organizations and
quality project findings and to reflect an equity focus in decision-making, supporting responsive follow-through residents. The task force’s community engagement
the project processes. Further, the task force believes activities, and not burdening residents with repetitive methods included partnering with outside organizations
the groundwork laid by this thoughtful process can requests. to share data from previous community engagement
continue to develop into stronger and sustained ULI- efforts; participating in and meeting residents at
community collaborations. However, despite this high-profile technical assistance established community events/centers; conducting
effort, ULI Sacramento understood that many members original community surveys; leveraging social media
Overall, the task force engaged with about 600 South remained largely unfamiliar and unengaged with outlets; posting neighborhood flyers; as well as
Sacramento stakeholders, including participants in the neighborhood efforts and studies due to lack of convening in-person and shifting to virtual events in
one-on-one interviews, 200 respondents to a ULI-led sustained communication and understanding. The response to the COVID-19 pandemic.
survey, 160 attendees of two community meetings, 20 task force saw this as an opportunity to continue the
students in an UrbanPlan workshop, and task force community conversation with the goal of advancing the The task force also partnered with ULI’s established
participation in four community external events. recommendations generated from community feedback UrbanPlan program, which is an engaging, hands-
and expert analysis. on exercise in which participants—high school
students, university students, or public officials—learn
Over the course of approximately 18 months, the the fundamental forces that affect development.
task force implemented creative community outreach To establish new partnerships and to contribute a
28 Empowering Community: An Engagement Toolkit for South SacramentoYou can also read
