Communities of Care for Air Pollution Policies in Pakistan: An Integrated Approach to Public Engagement and Policy Implementation

ABSTRACT

This commentary explores the critical issue of air pollution policies and public engagement in Pakistan, a nation consistently ranked among the world’s most polluted. Prolonged exposure to diverse pollution sources leads to severe health consequences, making public education and engagement pivotal for successful environmental policy implementation. By using the National Clean Air Policy (NCAP) as a case, we identified key barriers to public engagement in Pakistan and emphasizes the need for collaborative efforts through an integrated approach among civil society organizations (CSOs), news media, research institutions, and the public. In addition, we introduced the term communities of care to encourage more inclusive, participatory policy making approaches aimed at addressing air pollution crisis in the country. Finally, we argue that the elitist model of policy making, which historically dominated, should give way to a more participatory and inclusive approach to enhance policy implementation.

KEYWORDS:

• Air pollution policies
• Communities of care
• Environmental policies
• National Clean Air Policy
• News media
• Pakistan
• Public engagement

Air pollution policies and public engagement in Pakistan

Pakistan, consistently listed among the world’s top five most polluted countries, faces a potential reduction of up to four years in life expectancy in heavily polluted urban areas (Fatimah, 2023). Prolonged exposure to vehicle and industrial exhaust, agricultural and waste materials burning, fossil fuel-fired power plants and brick kilns, in-home cooking, and poor policy formulation and implementation results in varied health complications, including asthma, lung damage, strokes, and cardiovascular problems (Ali, 2021). To improve this dismal state, enhancing public education and securing public engagement is crucial for successful environmental policy implementation, as it increases the willingness to pay higher taxes, support regulations, and accept increased resources for environmental protection (Stern, 2000; Wan et al., 2017). Though the concept of public engagement in environmental communication literature has been vaguely defined, Kumpu (2022) argue that public engagement and other related concepts such as “civic engagement, public participation and public involvement” underscored the importance of “involving citizens, customers, employees, and stakeholders in the activities of governments, businesses, scientific and arts institutions, and organizations of various kinds” (p. 306) in policy making processes. This broadly defined term also serves as operational definition for this article. The exclusion of essential stakeholder groups during policy design and development stages in Pakistan, thereby highlighting the need to prioritize public engagement in the environmental policy making process (Masud & Khan, 2023). However, Maguire (2019) has reported two types of barriers to mandated and non-mandated public engagement in Pakistan. Barriers to mandated mechanisms primarily revolve around issues related to access and capacity, involving both the public and the government. In contrast, “barriers to non-mandated mechanism include the capacity of citizens and factors relating to the environment in which civil society can operate” (p. 2). To overcome these barriers, there is a need to develop mechanisms to enhance news media, civil society organizations (CSOs), research bodies, and citizens capacity and coordination.

While following the Global North trend (Kamieniecki & Kraft, 2013), the Ministry of Climate Change and Environmental Coordination of Pakistan has established the Environmental Protection Agency at the federal, and its local chapters at the provincial levels, which intends to control pollution and protect the environment via rules, acts, and regulations. This arrangement has devised a policy document, namely, the National Clean Air Policy (NCAP) in 2023, which aims to provide a framework for improving air quality in Pakistan (Ministry of Climate Change, 2023). It, however, faces criticism for its insufficient efforts in engaging different entities, particularly news media, the public, CSOs, and research bodies in environmental decision-making and policy formulation. For instance, contrary to the NCAP’s policy statement which highlights that “providing information and guidance to the public on environmental matters, such as air pollution … a cornerstone of NCAP’s communication” (p. 18), the general public was not guided about the benefits of the adoption of Euro 5 and 6 fuel quality standards under the proposed NCAP. Eventually, there is a lack of public awareness and support for this policy shift and “most Pakistanis believed (some still do) that Euro standards had something to do with engine power” (Chinoy, 2021, para. 2). Likewise, in a bid to combat smog, the latest proposal to shut down Lahore (i.e. the second most populous city of Pakistan) every Wednesday for two months has faced severe criticism from various segments of society due to the absence of prior consultation before making this policy decision (Mujtaba, 2023). A news release regarding the implementation of this proposal states that the final decision will be made by the “key stakeholders involved including provincial ministers, the chief secretary, police chief, environmental experts, and relevant officials,” further confirming the exclusion of any representative of news media, CSOs, and research bodies from the decision-making process (“Punjab Government to”, 2023, para. 3). Similarly, despite the proven positive influence of the mass transit system on urban air quality, local authorities in Pakistan have struggled to convince people of this fact, resulting in insufficient passenger uptake (Soomro et al., 2022).

This commentary article addresses policy challenges, introduces the term communities of care, examines the role of CSOs, news media, and research organizations, and proposes an integrated approach that encourages collaboration among these communities to enhance effective policy making for addressing air pollution in Pakistan. Historically, communication scholarship originating from the Global South has been underrepresented and often overlooked in the existing literature (Dutta, 2020), with Pakistan being no exception to this pattern (Ejaz et al., 2023). Second, despite Pakistan’s recent prominence in international news media due to climate-related disasters, worst air pollution, and poor environmental policy compliance, there remains a significant research gap in the environmental communication field related to the role of public engagement in policy formulation and implementation. Third, Pakistan’s disconcerting position among the world’s most polluted countries warrants a comprehensive examination of policy making processes and the potential enhancements needed to address this pressing issue. We hope that this commentary will garner scholarly interest among communication scholars in this specific area of environmental communication research, thereby contributing to the ongoing discourse about the need for diversity in voices and perspectives within this field.

Role of CSOs, news media, and research institutions in environmental policy making

According to Tomlinson (2013), CSOs encompass a diverse array of entities, ranging from informal, small, community-based, and non-governmental organizations to large-scale, high-profile international non-governmental organizations (INGOs) that operate in collaboration with local partners across various countries, and function without direct government control. They engage in activities such as public outreach, advocacy, lobbying for policies, and raising awareness about the importance of evidence-based decision-making (Schmidt & Donner, 2017) in environmental issues such as access to clean air and air pollution. Moreover, they serve an important role as both facilitators and watchdogs, ensuring that governments adhere to societal regulations and meet public expectations. One such example could be seen through functioning of the Civil Society Coalition for Climate Change (CSCCC) which aims to influence policy making at both national and international levels through research and advocacy.

CSOs play an important role in environmental governance and are recognized as valuable stakeholders in the formation, implementation, and oversight of policies on local, national, and global levels (Bauer & Steurer, 2014). They offer essential technical support to governments and provide policy recommendations during the formulation of strategies and initiatives aimed at tackling air pollution (Mumtaz, 2021). In Pakistan, the active involvement of CSOs is paramount to maintain pressure on the government and influence their policies pertaining to clean air. These organizations can contribute significantly by raising awareness, exerting pressure on the government to revise policies based on data and public input, advising governments for devising sustainable policies, and safeguarding the public interest in environmental policy matters. Indeed, CSOs alone cannot accomplish these tasks, therefore, they need news media to share their concerns to the public, creating a broader impact and fostering greater public engagement.

A substantial body of literature has emerged examining the coverage of air pollution by news media across the globe. Specifically, the South Asian region has grappled with smog-related issues over the past decade, leading to numerous studies that have investigated the news media’s reporting on smog, environmental issues, air pollution, and climate change (Ejaz et al., 2023; Kamboh et al., 2022; Olofsson et al., 2018; Patel et al., 2022). The good news is that news media has not only continued to cover these critical environmental issues but has also demonstrated a quantitative increase in its reporting over the years. In this commentary, the term “news media” refers to entities engaged in disseminating information to the general public through various mediums such as newspapers, magazines, radio, television, and other forms of mass communication (Ibrahim & Spikin, 2021). Previous research has suggested that news media in Pakistan has, at times, fallen short of fulfilling its normative role in society (Kamboh & Ittefaq, 2023). Nevertheless, its role remains indispensable when considering the ethical responsibilities to raise awareness about air pollution, access to clean air, environmental issues, and the advocacy of sustainable, eco-friendly policies. Though news media is primarily known for disseminating content to its audiences, it also serves as a facilitator and connector in bridging the communication gap between research organizations, CSOs, and the general public particularly on public policy matters (Kamboh et al., 2023). Furthermore, its watchdog role in society, through questioning policy decisions, can have a significant influence on air pollution related policies in Pakistan. Journalists play an essential role in educating the public and enhancing their understanding of environmental issues such as smog, clean energy, and air pollution. Effective communication related to air pollution policies necessitates significant dedication and efforts from journalists, primarily due to their limited understanding of science and its related concepts (Kamboh et al., 2023). Enhancing their conception is important, and research institutions play a crucial role in this process. These institutions not only produce and evaluate research findings but also have the capacity to convey complex information to journalists in a more accessible manner. This, in turn, can be a valuable asset in influencing policy decisions and their subsequent implementation (da Rocha & da Rocha, 2018).

Research institutions can bridge the gap between complex scientific research and policy development by translating technical data and findings into language that policymakers can understand and use in their decision-making processes (Steel et al., 2004). In countries like Pakistan where several research institutions are working on various areas of environmental issues including clean energy and air pollution, we argue that they need to collaborate with non-governmental organizations and international bodies to share their findings and work together on policy solutions. In the local context, notable examples include institutions like the Pakistan Meteorological Department, the Geological Survey of Pakistan, and the Pakistani Academy of Sciences. These organizations are dedicated to promoting scientific understanding, advocating for sustainable clean air initiatives, and analyzing policy documents to provide valuable support to various entities involved in the policy making process. Through such collaborative efforts, these institutions can contribute significantly to addressing air pollution challenges and advancing integrated environmental policy solutions in the country.

Historically, low-income countries in the Global South face several challenges related to policy making because of their significant social, economic, and technological disadvantages (Rüland et al., 2023). One of the problems is the prevalence of an exclusionary and elitist approach to policy making that means only members of the ruling class and a few technocrats and other delegated experts, made authoritative allocation of values for the rest of the society. This exclusionary practice formed the general disenchantment with authoritarian rule and the consequent democratic wave that swept the Global South (Mohammed, 2013). In this commentary, our central argument is that the element of care is conspicuously absent from existing environmental policies, rendering them ineffective.

Communities of care in air pollution policies

In this commentary, we define communities of care as groups/entities/communities (i.e. CSOs, news media, research bodies) who care about a common goal (i.e. addressing air pollution issue) through their expertise, (i.e. CSOs are experts in advocating for clean air and pushing governments for devising and implementing policies, news media is known for disseminating information to a wider audience, and research bodies possess the skills to produce socio-scientific knowledge) to increase participation of various institutions and move away from elitist model of policy making (Mohammed, 2013) to public participatory model related to air pollution. We hope that these entities not only feel passionate about the issue but also care and show genuine concern for the problem, eventually they develop mechanisms and systems to effectively address the issue. In our case, the issue is air pollution policies in Pakistan.

Relevantly, Pezzullo (2023) writes cultures of care are “constituted online and offline through shared values and experiences of what it means to collectively imagine and manifest more viable futures” (p. 11). Care does not only promise “embracing the often racialized, classed, and gendered work” (p. 11) but also goes beyond “human bodies” that advocate for more interconnection instead of “isolation” and “indifferences” (Ghani, 2018). Second, communities of practices refer to groups of individuals/entities sharing a common interest or passion for a specific domain and, through regular interaction, aim to enhance their collective knowledge and skills (Wenger-Trayner & Wenger-Trayner, 2015). Bringing communities of care together, we believe is the first step toward creating cultures of care in environmental policy making process. While maintaining their unique identities, conceptions, expertise, knowledge, experiences, values, skills, and practices, communities of care must communicate, share, and interact first with one another to make air pollution policy making more just and equitable. Furthermore, communities of care will establish a deliberate environment for contemplation and a “willingness to adapt” among “caring minds” (Ghani, 2018, para. 8) to introduce radical changes to the policy making process, all the while sustaining public engagement.

One of Pakistan’s major governance challenges is improving the implementation of air pollution policies at the societal level. This challenge is not unique to Pakistan but also exists in many other countries like China where the government perceives air pollution as a top-down problem (Winter et al., 2021). Consequently, at a societal level, there is no education, awareness, engagement, and communication that centers around disseminating a message related to air pollution as a “whole society” issue. CSOs in Pakistan are influential and legally recognized in the constitution. However, the majority of the current CSOs are focusing on gender equity, governance issues, security challenges, and financial transparency related problems. CSOs that can advocate for addressing air pollution or other environmental policies are lacking. In Pakistan, there is a pressing need for strong, vibrant, and sustainable CSOs that are solely committed to exerting pressure on the government to enact policies addressing air pollution. Further, there is a lack of communication and coordination between CSOs and government institutions, which underscores the significance of the news media in serving as a vital bridge connecting research organizations, legislative bodies, CSOs, and the general public in this context.

Undoubtedly, there are benefits as well as limitations of both models (i.e. elitist and public engagement). For instance, the elite model is based on the belief in the technocrat’s competence, trust in the expert’s ability, confidence in the ruler’s capacity to offer leadership, and the bureaucrats’ possession of information and technical expertise (Mohammed, 2013, p. 119). However, in this approach, the public, news media, and CSOs cannot register their legitimate concerns, contribute in terms of sharing their knowledge, influence in the overall policy making process, and advocate for public apprehensions. This could even be more consequential in countries like Pakistan where people perceive the elite with skepticism that they serve the global political establishment or do not protect the best interests of the general public. In addition, since 1947 (i.e. Pakistan independence year), the country has seen more dictatorial regimes than democratic ones. We contend that communities of care while working together, particularly CSOs, news media, and research bodies, will not only give confidence to people to raise and address their concerns during policy making processes but also may increase the likelihood of policy implementation arguing the fact that it makes them more inclusive as well.

The critics of the public engagement model use old-fashioned colonial rhetoric that policy making process could be “disruptive, costly, time consuming, and inefficient” (Mohammed, 2013), hence ignoring and minimizing the contribution of such communities. Furthermore, such thinking influenced the approach to much policy making not only in the dictatorial but also during democratic regimes in Pakistan. For instance, NCAP 2023 demonstrates that for policy implementation, different action committees need to play certain roles and highlight the active participation of public sector institutions, research bodies, CSOs, news media, and advocacy groups (NCAP, 2023, p. 18). However, NCAP’s mention of public participation generates some critical questions such as (1) To what extent can these entities participate in policy making related to air pollution? (2) What participatory mechanisms are used in the air pollution policy making process? (3) Do these entities feel that their input/feedback is taken seriously and their contributions shape policy decisions related to clean air? and (4) What is the effect of their participation in policy making during democratic and dictatorial regimes in Pakistan? We argue that the above-mentioned disruptions are needed especially in countries with colonial history and it reflects from day to day interactions between the elites, institutions, and the public. In the beginning, the policy making through the public engagement model may not be smooth and efficient, but it does not warrant marginalization and exclusion of various voices from the processes.

To summarize, this commentary article utilizes the 2023 National Clean Air Policy (NCAP) as a case study to underscore the significance of public engagement in the environmental policy making process in the light of existing literature (Kumpu, 2022; Masud & Khan, 2023; Mohammed, 2013). This essay provides nuanced insights from a Global Southern perspective, where policies have been developed to address air pollution issues, yet the limited public engagement has subsequently impeded their effective implementation. We believe that enhancing public engagement is useful and practical in which traditional hierarchy of authorities works closely with communities of care to formulate environmental policies. This process has the potential to not “only democratize traditional authority–state relations but also enhance public support for government policies” (Mohammed, 2013, p. 142). In Pakistan, the government acknowledges the role of communities of care in the NCAP, but it does not provide guidelines or explain how this could be achieved. The care approach shares decision-making powers in policy formulations between state and non-state actors and may reflect the wishes and aspirations of the general public.

Disclosure statement

No potential conflict of interest was reported by the author(s).