Otis White

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Lesson One: It’s All About Land Use

May 28, 2014 By Otis White

OK, that’s an exaggeration. Some things about local government aren’t about land use—public education, for example, and some local services, such as sanitation and public health. But it’s astonishing how many things in local governments do touch on land use.

Some of these things are obvious, like zoning and building permits, downtown renewal efforts and neighborhood development. But others are not so obvious, such as transportation, parks, sports arenas, and festivals.

Transportation is a good example. During my years as a city hall reporter, I never heard city officials talk about the connection between transportation and land use, except in a broad, economic development context. Oh, sure, they talked at length about highways, sidewalks, roads, and transit on the one hand, and the need to turn around parts of the city on the other—but not once (in my presence, at least) did a mayor, city council member, or even a planning director connect the two. It wasn’t until the 1990s that I heard local officials talk about using transportation to shape the places they passed through.

Today you can hardly avoid the subject if you’re a reasonably perceptive reporter talking with reasonably cognizant local officials. The growing awareness of how transportation shapes land use is why there’s such interest these days in bike lanes, walking, and transit. These forms of transportation concentrate land uses, as opposed to cars, which spread them out. Denser land uses create livelier urban environments. And livelier urban environments change how people interact with place—my description of the central issue for local governments.

And transportation is just one of those things whose connection to land use is more appreciated today. Take parks. Until the 1990s, most local officials saw them as urban amenities. And if you go further back in urban history to the 1800s, they were seen as beneficial to public health. (That’s one reason Central Park has long been described as “the lungs of New York City.”) But shapers of land use? That’s a more recent understanding, dating to the building of Centennial Olympic Park in Atlanta in 1996 and Millennium Park in Chicago in 2004, both of which dramatically raised property values and the density of land uses around them. (And, not to put too fine a point on it, created new interactions between people and places.)

I could go on. Even schools and sanitation have a land-use aspect. Ask any residential real estate agent what effect a good neighborhood school has on nearby property values. And sewer line extensions are, along with transportation improvements, the greatest predictors of future land uses.

So how are land-use stories played out in local government, and how could you cover them in new and interesting ways? Well, you know the traditional stories: “NIMBYs” vs. “greedy developers.” You have the neighbors in bright T-shirts at zoning board or city council meetings, waving signs, and complaining loudly about being overrun with traffic. And on the other side, lawyers in blue suits with architectural renderings, property tax projections, and the promise of lawsuits if things don’t go their way.

Who is right here? The side that promises the best possible interactions for people and place—which could be the neighbors or the developer . . . but is likely neither. That’s because neighborhood associations too often stand for the status quo. They don’t want to improve their neighborhoods; they want to preserve them in amber. And while developers favor change, their changes are often the wrong ones, ones that will diminish the interactions of people and place by creating parking lots, inward-looking buildings, and streets with no sidewalks.

So if NIMBYs and build-and-run developers are the Tweedledum and Tweedledee of change in your city—almost equally wrongheaded—who then is rightheaded?

Ah, there are your stories: Who in your city is talking about and working toward a more interesting and attractive urban environment? What are the elements of their vision? What have cities or suburbs similar to yours done to create these environments? What were the obstacles they faced? Who in local government shares the vision? Who opposes it and why? What is the government doing today to create livelier places? What is it doing that hinders such places from developing? (Hint: Check city parking requirements for new retail, office, and residential properties.)

Other story ideas: What is the state of transit in your city? Do transit officials work alongside city officials in planning denser environments? If so, how? If not, why not? Are there developers who want to create walkable, bikeable, transit-oriented developments? (Hint: There almost surely are.) What do they see as the barriers to livelier streets and neighborhoods? What do local architects say?

Are there business improvement districts in your city? (If you don’t know what they are, Google the term.) If so, which have been successful, which have not had much impact, and why? If there aren’t BIDs, why haven’t they come to your city? What about Main Street programs? (Again, Google the term.)

Is gentrification happening in your city? Why did the gentrifiers move to some inner-city neighborhoods but not others? (Take an evening and knock on doors.) Given what you’ve learned, what is the most likely next neighborhood for gentrification and why? (Interview some real estate agents under age 40.) What has been the reaction of longtime neighbors to the newcomers? Is there a backlash?

Who bikes to work? What have they experienced? Who walks to work? What have they seen and learned? Who could afford to drive but chooses instead to take the bus? (These are called “choice riders.” Again, Google the term.) Why do they take transit, and what have they seen? (Hey, ride along with some.) What is the transit system doing to attract these riders?

Find the most successful public park in your city, in terms of usage. (If the parks department doesn’t have statistics, go out after work with a handheld counter and notepad and count the people.) What makes this park so successful? If it’s a large park, find a small one that’s equally successful on a per-acre basis. Again, what are its secrets? Call the nearest university with a landscape architecture program and interview some professors about what makes some urban parks successful and others desolate.

In which neighborhoods do people walk for exercise, entertainment, or to shop? (You may have to use the counter and a notebook.) Why do they walk there but not in the next neighborhood? What is the local government doing to encourage walkability? (Check sidewalk requirements.) If sidewalks are broken, who is responsible for the repairs—and does anyone actually enforce these requirements? What besides the sidewalks are the obstacles to walkable neighborhoods? (As a sidebar, interview public health officials about the connection between obesity and the lack of regular exercise—of which walking is considered the best.)

I could go on and on, but you get the idea. What is your city doing to improve the way people interact with places? Where are they making these improvements, and why are they investing in these locations? What resources are they bringing to bear on creating more interesting and attractive places? What have been the results, and what have been the responses by supporters and opponents, developers and residents new and old?

Now, stop a moment and think. Wouldn’t writing these stories be a lot more fun than covering the “NIMBYs” vs. “greedy developers” showdowns at the zoning board? Wouldn’t these stories teach readers more about their community and how their government works? Covering NIMBYs-vs.-developers stories is like writing about a baseball game that was played last year. Focus on land use and the forces that are changing it, and you’ll be writing about the game . . . before the players ever take the field.

This is one of a series of postings about better ways of understanding local government and writing about local politics. To read the introduction, please click here.

Photo by Dylan Passmore licensed under Creative Commons.

Why the Goals of Citizen Engagement Are Not What You Think

November 20, 2012 By Otis White

I know local government officials well enough to know some of their secrets. And here’s one: Many don’t really believe in citizen engagement. Or, if they do believe in it, they don’t think it actually works.

I understand why they feel this way. If I had to depend on what passes for citizen engagement in most places—public hearings and public-comment periods at city council meetings—I’d be skeptical, too. These clumsy attempts at citizen engagement are good at producing three things: apathy, antagonism, and cynicism. That is, either no one shows up or every sorehead in town does. And on those occasions when a citizen with a good idea approaches the lectern expecting some sort of reaction from the city council or the staff, what does she get? Stony silence. (This reaction is so common during public-comment periods that a public-radio show in Cleveland devoted an entire broadcast to it, entitled “Is This Microphone Working?”)

But there’s more to the doubts about citizen engagement than bad processes. Some elected officials genuinely don’t think it’s necessary. That’s because they believe they are how citizens engage with their government, through elections. “This is a republic, not a democracy,” I’ve been reminded by local officials over the years. “I didn’t get elected to run back to the voters all the time, asking them what to do.”

So, where to begin? I’d like to make two arguments to my friends in local government. The first is that citizen engagement can work a lot better than it does today, with much better results. The second is that citizen engagement is a critical part of making governments work better. I’ll talk about the first part, the “how” of citizen engagement, in a future posting. But today I’d like to take on the “why” part—why talking with the citizens is worth the trouble.

To make my case, I need to convince you that the reason you believe the public should be heard from is, if not wrong, then woefully inadequate. You probably think it’s so elected officials can learn what citizens think about a decision they’re about to make. Now, please don’t misinterpret what I’m about to say. There is nothing wrong with hearing from citizens about controversial issues facing a local government. And even if you think it is wrong, you can’t stop them.

But this kind of public engagement has limited value. An opinion is only as good as the information, logic, perspective, and values behind it, and for reasons that are obvious, people who are most affected by a decision aren’t always its best judges. After all, there’s a reason we use impartial juries to decide guilt and don’t leave it to the victims or the accused.

And let me repeat: You can’t—and shouldn’t—stop people from expressing their opinions. They may bring information that others have overlooked or have a perspective that’s worth considering. But opinions shouldn’t be the goal of citizen engagement.

The goal should be something deeper: an understanding of the interests and desires of citizens. And you cannot get that from a public hearing or a public-comment period.

That’s because by the time citizens show up for a public hearing, a proposal is already on the table, and it’s often one they’ve had no voice in until then. At that point, they’re often angry or scared and in no mood to discuss deeper concerns. So pity the poor public officials sitting in the pose I call “duck and cover” heads down, hands folded in their laps, silent as stones as speaker after speaker assails them.

The better way: Begin talking with citizens before plans are drafted, perhaps even before problems are identified. By doing so, you’ll get a calmer dialogue and a much better sense of interests and desires. (I’ll talk about how to do this in a future posting.) And keep citizens involved at every step in the planning stage. Here is the key concept: Citizen engagement is not an event (a town-hall meeting, a public forum, or a “My City 101”class, and certainly not a public hearing or public-comment period); it is a process.

But a process to deliver what? This brings me to the second goal of citizen engagement. If the first goal is understanding, then the second is recruitment. Local governments need citizens, as individuals and in groups, to become partners in solving community problems and seizing opportunities.

That’s because the healthiest communities are those that share responsibility, where everyone does his part and all are held accountable. You see most clearly how shared responsibility works in downtown business improvement districts, where businesses pay for some things (streetscaping, cleanup crews, additional uniformed security) while governments pay for others. The additional resources are important, but so is the diligence. BIDs work so well because everyone is involved and, therefore, paying attention.

And isn’t that the perfect description of an engaged citizen—one who is involved and, therefore, paying attention? Done right, this is what citizen engagement can deliver to your community.

Footnote: When politicians say ours is a “republic and not a democracy,” they should consult a dictionary. A “republic” is any country that does not have a king or some other form of inherited or imposed rule. Therefore, in republics the people govern themselves by some means. (It doesn’t have to be through anything we would recognize as democratic government. After all, when it was under Communist rule, Russia was known as the USSR, which stood for the Union of Soviet Socialist Republics.) And democracy, it seems, is also in the eye of the beholder. The formal name for Communist East Germany was . . . the German Democratic Republic. 

So what are we? America is a federal republic, whose national government, states and localities are governed through representative democracy. 

Photo by D. Clow – Maryland licensed under Creative Commons.

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About Otis White

Otis White is president of Civic Strategies, Inc., a collaborative and strategic planning firm for local governments and civic organizations. He has written about cities and their leaders for more than 30 years. For more information about Otis and his work, please visit www.civic-strategies.com.

The Great Project

Otis White's multimedia book, "The Great Project," is available on Apple iTunes for reading on an iPad. The book is about how a single civic project changed a city and offers important lessons for civic leaders considering their own "great projects" . . . and for students in college planning and political science programs.

For more information about the book, please visit the iTunes Great Project page.

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