Collaboration

The Next Urban Comeback

October 29, 2019 By Otis White

I was fortunate to have a front-row seat for the greatest urban story of the late 20th and early 21st centuries, the revival of America’s downtowns. A few scenes from that story:

When I started paying attention in the mid-1970s, downtowns were at their lowest point. With the rise of the automobile, families had started moving away from downtowns in the 1920s, followed by retail in the 1950s and offices in the 1960s.
By the 1970s, what was left in many downtowns was government, the courts, law offices, a few office towers, and a handful of once-grand churches struggling to hold on to their congregations. Some had a historic theater, a civic center, or a stadium that drew crowds a few nights a week. But main streets were pockmarked with empty storefronts, and on most evenings the sidewalks were deserted.
It wasn’t until the 1990s that downtowns found the keys to success: adaptive reuse of old buildings, housing, wider sidewalks, streetscaping, transit, density, waterfront access, mixed uses, business improvement districts, sidewalk dining, activities and concerts, and a dozen other New Urbanist-inspired strategies.
Today, downtowns are being revived everywhere in Georgia, from Savannah to Columbus, Augusta to Atlanta. And in new cities like Sandy Springs and Johns Creek, downtowns are being created where none existed before.

The comeback of downtowns isn’t complete but the goal line is in sight. So it’s time to consider: Where will the next great urban revival take place? My guess: in neighborhoods.

You can see neighborhood revival in some cities. In Atlanta, the Beltline is fueling a rush of development into nearby neighborhoods. In other cities, neighborhoods with historic homes and traditional street grids attract outsiders. As a result, you might think cities’ greatest problem is gentrification.

Gentrification is a serious issue, but decay and abandonment are even greater problems for most cities. So how do we turn around declining places and do so in ways that include those living there now?

It gets complicated because, when it comes to reversing neighborhood decline, we’re in the same place as downtowns in the 1970s. We don’t have a playbook. Parts of the downtown playbook might work in some neighborhoods: walkability, mixed uses, transit, and so on. But much of it won’t.

Even more complicating, we had help from big commercial interests in downtowns. We won’t have their help in neighborhoods. And taxpayers will be even less supportive of spending money in other people’s neighborhoods than they were of investing in downtowns. After all, downtowns are used by everyone. Neighborhoods are mostly for their residents.

So whom do we turn to in reviving neighborhoods? Who will write the playbook of neighborhood revitalization? And where do we get started?

My suggestion: Begin with the only genuine asset that neighborhoods have, their residents. Get them involved and organized, help them to learn about positive neighborhood change, then let them share in decision making and provide some of the effort. In other words, create partners so that the city government is no longer doing things FOR neighborhoods, but doing things WITH neighborhoods.

Where will these partners come from? From strong, representative neighborhood associations, along with crime-watch groups, friends of neighborhood parks, community-garden groups, PTAs, small-business associations. Really, any group focused on making a neighborhood—or even a single block—better.

In some neighborhoods, such groups do not exist. That’s why city governments from Riverside, Calif. to Longmont, Colo., Phoenix to Philadelphia are helping residents organize them. There’s no reason we couldn’t do the same in Georgia.

But for this to work, city leaders must practice restraint. In the case of neighborhoods, a wise approach is to help residents organize, learn, discuss, and come to consensus on a short list of achievable projects before the government makes its commitments. Oh, and be sure the neighbors contribute something to the effort, even if it’s just working alongside city crews or offering the proceeds from a bake sale.

After all, groups that have helped scrub graffiti from buildings, sold cakes to turn a vacant lot into a community garden, or worked with police to shut down a drug house won’t let the graffiti come back, the garden fall into disuse, or the drug dealers return. Not without a fight. And that is what cities need if we’re going to turn around troubled neighborhoods: committed, effective partners willing to fight for the places they live.

A version of this posting appeared on the Georgia Municipal Association website.

What Smart Mayors Can Learn from the Turnaround of Central Park

December 12, 2018 By Otis White

Of all the urban turnaround stories of the past 50 years, none is more impressive to me than the restoration of New York’s Central Park. When I got to know Central Park in 1973, it was sliding into urban wasteland. Vandals had wrecked its buildings and defaced its statues. Every surface was covered in graffiti, even its rocks. Trails were overgrown with invasive shrubs, and the park’s magnificent meadows had been trampled into dust bowls.

And, then, of course, there was crime. In 1981, police recorded 781 robberies in Central Park, but that was surely only a fraction of what took place there. Many victims did not bother to report crimes. Even the cops who patrolled the park did so only in the safety of two-officer cars.

If this is still your image of Central Park, then you owe it a visit. The 840-acre park, whose first section opened to the public in 1858, has been returned to its original beauty. People are using it in record numbers (there were 43 million visitors last year), but no longer abusing it. The trails are inviting and the grass is lush and green again. And as one who has walked across it recently, I can report it is as safe as any place in the city.

So how did this great turnaround happen? There were many factors, but the most important was that New York found a way of managing public spaces through shared responsibility. Founded in 1980, the Central Park Conservancy was the first nonprofit to take the lead in restoring and managing a major city-owned park. Since then, scores of similar organizations have sprung up around the country, from the Balboa Park Conservancy in San Diego to the Piedmont Park Conservancy in Atlanta.

If you’re thinking of starting a nonprofit like this in your city, I have good news. The founder of the Central Park Conservancy, Elizabeth Barlow Rogers, recently published a memoir, “Saving Central Park,” that will take you inside the Conservancy’s amazing success. You’ll learn Rogers’ “three Ps”: “patience, passion, persistence.” You’ll discover the value of a vision. In her case, it was a desire to return the park to its 19^th-century design. And you’ll learn why a detailed plan of restoration is important for guiding staff and raising money. (It gave the Conservancy, Rogers explains, “the equivalent of a donor shopping list.”)

These are valuable things to know if you’re starting such a group. But I’d like to turn things around and ask what local-government officials could learn from the Central Park experience. If a group of citizens wanted to form a group to restore a park in your city, what should a smart mayor do?

The first thing is to recognize what nonprofits are good at and where they are weak. Their strengths are their focus, inventiveness, and ability to raise money and muster volunteers.

And weaknesses? They’re not good at managing public perceptions. At one point or another, it seems, the Central Park Conservancy angered nearly every group claiming an interest in the park, from birdwatchers to tennis players. And when it did, it was vulnerable to the “who appointed you?” charge. Lesson: A smart mayor will coach nonprofits on politics and occasionally bail them out of controversies.

Not surprisingly, in the case of Central Park’s renaissance one group with a high level of suspicion was city parks employees. Had the Central Park Conservancy not started when it did, as the city was still on the edge of bankruptcy, it is hard to imagine that the parks department would have ever welcomed the nonprofit’s help. Lesson: A smart mayor will spend time counseling city employees on the value of strong outside partners, because all they will see at first are threats.

Finally, a smart mayor will be patient because strong nonprofits aren’t born that way. They become strong over time, as they accomplish things, learn from their mistakes, recruit a strong board and staff, and find their vision and voice.

So a smart mayor will give a fledgling conservancy some space to grow. The Central Park Conservancy worked for 17 years with nothing more than a handshake agreement with three mayors. Only in 1997 did the city feel confident enough to turn the keys of the park over to its staff. Today, every worker in Central Park, including city employees and Conservancy staff, reports to the Central Park administrator, who happens to be the president of the Conservancy. (Important to note: The Conservancy also supplies three-quarters of the park’s budget.)

That level of competence, public trust, and institutional strength isn’t built overnight. And a smart mayor doesn’t just give power away. But when she finds the right partners, she’ll trade power for results.

A version of this posting appeared on the Governing website.

Photo by gigi_nyc licensed under Creative Commons.

Seven Habits of Highly Successful Civic Projects

May 9, 2018 By Otis White

Incremental change is change by the inch, and it’s what wise leaders do over long periods. In his 12 years in office, Mayor Michael Bloomberg remade huge swaths of New York, rezoning 40 percent of the city, but he did it so quietly that few noticed at the time.

In his 31 years in office, Charleston, S.C. Mayor Joseph Riley had an even subtler impact on his city. Yes, there were big things he facilitated—the launching of the Spoleto arts festival, for one—but Riley’s true legacy is in the fabric of the city, the way streets were tended, buildings cared for, and parks placed. Under Riley’s long watch, Charleston became a national treasure.

Other longtime mayors have had that kind of impact on cities. Boston’s late mayor, Thomas Menino, once declared that “visionaries don’t get things done” and denied that he had a vision for his city. He preferred the term “urban mechanic.” But Menino’s steady tinkering with services and amenities made Boston gleam as never before.

So, yes, we need steady, incremental change. But, with apologies to Mayor Menino, sometimes we also need great leaps, the kind of visionary projects he disdained. This is especially so in cities that are depressed or dispirited, that need a change of direction or attitude.

So what is a great project? It can be anything that signals a new direction: a stylish convention center, a 21st century transit system, a signature downtown park, a beautiful riverwalk, an exciting arts center. One mayor described these things as “man on the moon” projects–efforts that are bold, visible, a clear break from the past, and undeniably successful.

I’ve studied great projects for years, tracing how they came to be, who supported them and at what point, the obstacles they faced and overcame, and why they ultimately succeeded. And I’ve noticed some common elements among these otherwise very different undertakings. Here are seven:

Most great projects start outside city hall. That is, they begin with a citizens group or nonprofit that brings its idea to city hall. Smart elected officials aren’t threatened by these outside ideas; they welcome them.
They depend on collaborations to succeed. This may be why so many successful projects start outside city hall. By the time the government is involved, partners are already in place.
There’s something in the project that resonates with the public, even if it isn’t apparent why. This is why elected officials should ask those advancing a big project to take their idea to the public before asking for city hall’s support. After all, who knew New York needed a linear park 30 feet above street level before the organizers of the High Line project created a demand for it?
The turning point is when a leader sees the way forward. This is where political leadership becomes crucial. A great project can grow organically but only to a point. For the project to succeed, someone in power has to figure out how to overcome its obstacles and structure the project for success. This can involve a small group, but in most cases it’s the work of a single experienced leader.
In the structure that emerges, the city’s role remains limited. Average leaders seize control of projects, but great ones are comfortable sharing the wheel. That’s because they know that, if you lose the collaboration, you lose the energy, creativity, and resources that partnerships bring.
As the project advances, other interests will support the project for reasons that are wholly unrelated to yours. This doesn’t mean the project has lost focus. It’s usually a result of the excitement the project is generating. So take this as a sign of success.
When the project is completed, a whole new set of challenges will present themselves, and smart leaders will anticipate them as well. Nothing is sadder than yesterday’s great project that has fallen on hard times (say, New York’s Central Park in the 1970s). The time to think about long-term support is before the project is finished. Here again, collaboration is the key. After all, mayors come and go, and their interest in parks may wax and wane, but the Central Park Conservancy remains focused—and is here to stay.

Can a leader be both an incrementalist and a visionary? Well, yes, but it may be the wrong question to ask. A better question is, what does your city need at this time—a great project or steady progress? If the wind is at your city’s back, incremental change may be all it needs. But if the wind shifts, you may need something big and bold. When that happens, keep an eye out for ideas from the outside that arrive with a few good habits.

A version of this posting appeared on the Governing website.

Photo by M.V. Jantzen licensed under Creative Commons.

How Odd Couples, Complementary Needs, and Chance Can Change Cities

October 18, 2017 By Otis White

On a Sunday morning a few weeks from now, the 47th running of the New York Marathon will begin on Staten Island as 50,000 runners and wheelchair athletes thunder over the Verrazano Narrows Bridge into Brooklyn. They’ll loop through Bay Ridge and into Williamsburg, then cross into Queens like an invading army. They’ll begin thinning out in Long Island City before heading into Manhattan across the high-arching Queensboro Bridge (the heartbreak hill of New York marathoners).

In Manhattan they’ll turn right and head north until they reach the Willis Avenue Bridge and cross into the Bronx, where they’ll basically make a U-turn back to Manhattan. The rest of the 26.2-mile run will be, comparatively speaking, a breeze, through Harlem, into the Upper East Side, with a triumphant finish in Central Park. The world’s best runners will finish in under two and a half hours. Mere mortals will take a while longer.

It’s an amazing spectacle. And if you’re lucky enough to see it (or better yet, participate in it), you may wonder: Where did the inspired idea of running a marathon through five boroughs and all these neighborhoods come from? And what does it tell us about how things like this happen in cities?

Answer: It came from a meeting in 1975, where two people found a way of connecting their entirely different needs in a way that created not just a common solution but a sensation. The central figures were Percy Sutton, the Manhattan borough president, and Fred Lebow, head of the New York Road Runners.

The two could not have been more different. Sutton was a polished lawyer and politician. Lebow was a Romanian refugee who made money in New York’s garment district before falling in love with long-distance running. Sutton knew power; Lebow knew showmanship. In short, they were the odd couple.

Their needs, too, were completely different. During one of New York’s worst years ever, Sutton was looking to change the narrative about his city, to give it something hopeful in the Bicentennial year of 1976. (He also hoped to become New York’s first black mayor.) Lebow wanted something to distinguish New York’s marathon from the much older and better known Boston Marathon. At the time, New York’s race was run entirely inside Central Park, with runners dodging cyclists and families pushing strollers.

What brought them together was a misunderstanding. Lebow and others were talking about running the marathon in the streets (as Boston’s was). By the time the idea reached Sutton, it had somehow become a race through every one of New York’s boroughs. Sutton was intrigued by the idea; Lebow, once he heard what was on the table, was horrified. (The cost, the logistics, the likelihood that something would go wrong . . . this was a crazy idea.)

And here’s where the magic happened. Once they sat down and started talking, the two men found answers to every objection. And more: They found greatness in the idea. This wasn’t just a partial answer to New York’s image problems or a way to make the New York Marathon distinctive. This was a way of creating a spectacle that could rival 1945’s V-J celebrations in Times Square . . . and, if successful, could be held every year.

Their relationship held Sutton and Lebow together as they worked through the security, logistics, organizational, and cost issues. But the opportunity of a great civic spectacle became their driving force.

If anything, the New York Marathon has grown beyond anything Sutton and Lebow could have imagined: it’s a showcase of great runners (and tens of thousands of average ones) and great urban neighborhoods, an economic and tourism boost for the city, an irresistible draw for the news media, and a civic celebration. But it also is an illustration of how legendary civic projects come about: when odd-couple leaders find ways of connecting their needs and creating solutions that become greater than the problems they began with. You see it in the origins of Atlanta’s Beltline project and the reinvention of Denver’s Union Station.

There is no way to plan for these things. Having an open door and lots of relationships helps. So does having a creative mind that can connect needs in creating solutions. But luck plays a role. How else can you account for the fact that, had Percy Sutton not misunderstood Fred Lebow’s original idea, we would not today have one of the world’s greatest athletic events and urban celebrations?

A version of this posting appeared on the Governing website.

Photo by Peter Miller licensed under Creative Commons.

What Government Is Good At

January 12, 2017 By Otis White

Not much in life is certain, but of two things I am sure:

The secret to improving cities lies in collaboration. That is, in getting numerous independent interests working in coordinated ways on big problems.
One of the secrets of effective collaboration is knowing what each partner is good at, so each contributes from its strengths.

If I’m right about this, then we need to think deeply about what each participant can bring to a collaboration. And we should begin with government, since it will be central to almost every ambitious civic undertaking.

But first, let me urge my friends in government to give up that most human of instincts, defensiveness. If we aren’t willing to acknowledge that there are some areas where we don’t excel, then we’ll never work effectively with others.

This can be difficult in public life because governments face a chorus of critics ready to pounce on any shortcoming. What can I say? It takes courage to be a leader. But it also takes faith that, as you build successful collaborations, your list of critics will grow shorter as your list of admirers grows longer. So have the courage to say where you need help.

What would those areas be for governments? Most likely they would include coming up with new ideas, which tends to occur early in the collaboration process.

Why aren’t governments good at creative new ideas? Because they tend to be like old-fashion department stores. They offer many things, most of them as commodity services. This rewards a wide view and clearly thought-out routines, but not innovation.

Some of the interests governments collaborate with, by contrast, will be more like niche retailers: They sell one or two things but do so at amazing depth and variety and are constantly looking for new ways of doing things. So why not use these groups’ knowledge, passion, and focus to bring new ideas to civic undertakings?

Having trouble picturing this? Think of a collaboration aimed at attracting more young people to a city. The city government will surely be one of the partners, but others might include the chamber of commerce, the local university, entertainment venues, apartment developers, and, one hopes, some actual young people. Which participants in this collaboration would you expect to offer the most promising ideas?

Collaborations are about more than ideas, of course. They’re about creating workable solutions and seeing these solutions put in place. So as a collaboration moves toward decision making and implementation, the strengths of government become critical. The three most important strengths that a government offers are fairness, scale, and steadfastness.

Fairness is a value that you’ll have to help your partners understand and appreciate. They’ll see it, at first, as delay. But government processes are designed to ensure that everyone gets a voice—and, in doing so, they can reveal the flaws in our plans and show us their unintended consequences. So while government officials should accept others’ leadership in generating new ideas and approaches, their partners have to realize that public decision making depends on . . . well, the public being involved.

The other two, scale and steadfastness, are obvious but rarely appreciated strengths of government. The best example of scale at work is water conservation. By making changes in their building codes (mandating that new construction and renovations use more efficient plumbing), cities have dramatically reduced the amount of water each household uses over time.

New York, for instance, was consuming 1.5 billion gallons of water a day on average in 1979. By 2009, it had reduced its daily consumption by a third to just over 1 billion gallons even as its population grew by nearly 12 percent . . . with almost no one noticing the changes. Now, that is scale!

It’s also a lesson in steadfastness. Unlike businesses and even nonprofits, governments tend to stick with what they do. The reason New York reduced its water consumption so dramatically is the government never wavered in its commitment.

So as you begin collaborations, government leaders should ask for help with ideas. But they should outline what their partners can expect in return: The government will listen widely and decide carefully. But, once committed, it can offer real, measurable change. And by and large, it will keep its promises.

A version of this posting appeared on the Governing website.

Photo by torbakhopper licensed under Creative Commons.

The Next Urban Comeback

What Smart Mayors Can Learn from the Turnaround of Central Park

Seven Habits of Highly Successful Civic Projects

How Odd Couples, Complementary Needs, and Chance Can Change Cities

What Government Is Good At

About Otis White

The Great Project

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