Reimagining urban air-quality governance: A systems-thinking framework

Despite stringent ambient air quality standards, air pollution remains a persistent issue in many regions due to inadequate policy implementation at the local level. This reflects a form of policy resistance where misaligned stakeholder goals undermine otherwise well-intentioned governmental interventions, highlighting the need for realignment around common objectives to achieve meaningful progress. We apply a systems thinking approach to identify implementation gaps in air quality management, using India as a focal point. Adapting the Integrated Air Quality and Climate Change (IAQCC) framework, we construct causal loop diagrams (CLDs) to map the complex feedback relationships among policy enforcement, data infrastructure, stakeholder behavior, and health outcomes. Through a literature review and expert consultations, we identify three loops that perpetuate policy stagnation: (1) insufficient monitoring data hampers source identification, policy evaluation, and refinement, (2) fragmented jurisdictional authority hinders coordination among stakeholders, and (3) weak local compliance erodes public trust and engagement. All three loops stem from the absence of a unifying objective. We propose reorienting the system around a public health goal, such as reductions in premature mortality or asthma incidence, to align stakeholder incentives and reduce resistance to local policy implementation. We identify three key leverage points to enable this realignment: (1) establish integrated and accessible air-and-health data platforms, (2) coordinate across jurisdictional boundaries through airshed-based governance, and (3) empower citizen-science and community-led oversight. This approach shifts the focus from top-down technocratic management to participatory, democratic governance, showing how targeted, strategic interventions can produce improvements in air quality management.