Diagnosing local injustice in climate adaptation: spatial equity in the governance of cooling centers in Seoul

As heatwaves intensify under climate change, cities face growing pressure to ensure that climate adaptation resources are distributed equitably across communities. This study investigates spatial disparities in Seoul's cooling centres, analysing how existing administrative boundaries and governance units can exacerbate spatial inequality in heatwave response. We construct a composite Heat Risk Index (HRI) that integrates thermal hazards and socio-spatial vulnerability indicators. Then, we identify its alignment with the distribution of cooling centres at both the Planning (district) and Implementation (neighbourhood) levels. While Gini coefficient analysis suggests relatively low disparity at the planning scale, significant inequality emerges at the implementation level – revealing a mismatch between policy design and on-the-ground service delivery. A Z-score-based sensitivity analysis identified 49 mismatched neighbourhoods (32 relative beneficiaries and 17 deprivations). Deprivation areas are concentrated in older, inner-city zones with high elderly populations and the poor, whereas relative beneficiaries are typically low-density or peripheral areas with lower heat risk. Using interpretable machine learning methods (XG Boost and SHAP), we find that administrative convenience, rather than social vulnerability, predominantly explains the current allocation of cooling centres – suggesting governance practices that may reinforce or sustain spatial imbalance. By linking distributive outcomes with their institutional rationales, this study connects empirical assessment with the normative dimension of spatial justice, conceptualising equity to realise justice. By doing so, it establishes a framework that can be used to integrate equitable and adaptive urban climate policies in other cities.

随着气候变化下热浪强度持续升级，城市正面临愈发严峻的压力，亟需保障气候适应资源在各社区间实现公平分配。本研究针对首尔市降温中心（cooling centres）的空间分布不均衡问题展开调查，剖析现行行政边界与治理单元如何加剧热浪应对中的空间不平等现象。研究构建了综合热风险指数（Heat Risk Index, HRI），整合热灾害风险与社会空间脆弱性两类指标；随后分别在规划级（行政区）与实施级（邻里社区）两个尺度，检验该指数与降温中心分布的匹配程度。基尼系数（Gini coefficient）分析结果显示，规划尺度下的不均衡程度相对较低，但在实施尺度下却显现出显著的不平等——这揭示了政策设计与实地服务供给之间的错配问题。基于Z分数（Z-score）的敏感性分析共识别出49个错配的邻里单元：其中32个为相对受益区域，17个为资源匮乏区域。资源匮乏区域集中分布于老龄化程度高、贫困人口众多的老旧中心城区；而相对受益区域则多为热风险较低的低密度区域或城市外围地带。通过可解释机器学习方法（极限梯度提升树（XGBoost）与SHAP值），研究发现行政便利性而非社会脆弱性，是当前降温中心布局的主要决定因素，这表明现有治理实践可能会加剧甚至固化空间失衡状态。本研究将分配结果与其制度逻辑相联结，把实证评估与空间正义的规范维度相结合，将公平性概念化以实现正义目标；借此构建了一套可推广的分析框架，能够用于其他城市整合公平性与适应性的城市气候政策。