The Future of Milwaukee's Bronzeville and Transit-Oriented Development
The purpose of this study is to analyze the equitable growth of Milwaukee's Bronzeville neighborhood in relation to the Milwaukee Streetcar extension and transit-oriented development. Based off of a community engagement session I attended in early 2018, the neighborhood residential input would ultimately serve as the framework for this study. Prevailing themes discussed included:
Introduction
On January 31, 2018, the City of Milwaukee led a community engagement session at Hillside Terrace in Milwaukee's Bronzeville neighborhood and presented a vision for the future of the neighborhood's main commercial corridor, Dr. Martin Luther King, Jr. Drive. The Equitable Growth Planning Study, named Moving Milwaukee Forward, is made possible through a federally funded transportation planning grant, and examines the feasibility of Transit Oriented Development (TOD) in the Bronzeville and Walker's Point neighborhoods as a result of future streetcar extensions.
For millennials, TOD often carries a positive connotation as a destination and place of choice to live, work and play, given the rise of new apartment buildings and easy-access to amenities and public transportation. For longtime neighborhood residents, TOD often carries a negative connotation as a place that will rapidly change with the influx of new (often white) residents, rising rent rates, and result in the possibility of eviction. In countless cities, including Minneapolis, Seattle, Portland, and Denver, fixed-rail transportation systems have had both positive and negative implications in their respective neighborhoods with new rail service. In addition, TOD has been at the core of neighborhood dialogue in 21st-century development. SOM Architects, a lead partner in Milwaukee's program, proposes rethinking TOD as "Thinking of Diversity," rather than "Transit-Oriented Displacement."
While construction of the Milwaukee Streetcar's (The Hop) initial route and lakefront extension will be completed later this year, extensive community-based planning is underway for the future of the city's streetcar system. In recent years, cities have attributed gentrification with new streetcar or light-rail connections.
With a renewed interest from the commercial real estate community, often times, neighborhoods connected with new fixed-rail transportation experience an increase in housing density and public-realm activation with new street-level commercial tenants. Although it is important to note that the surge of new economic development helps fulfill longtime neighborhood residents desire for a more walkable and sociable neighborhood, TOD has sometimes resulted in displacement and inequitable growth.
Some of Milwaukee's peer-cities have experienced this very phenomenon and is described by planners as "transit-oriented displacement." Just as its name suggests, transit-oriented displacement refers to the negative impacts of such new development, including a rising tide-effect, in which a series of factors increase the neighborhood's existing rents for all and often displaces low-income and people of color. However, several cities have experienced a positive ripple-effect of new investment and unprecedented development. In addition, research indicates that there is a distinct difference between streetcar and light rail systems and their impact on neighborhoods. According to my research findings, light-rail has a greater probability of displacement than a neighborhood-based streetcar system.
- Housing Equity
- Fair Housing Policy
- Gentrification
- "Old Urban - What does TOD look like in Bronzeville?"
Introduction
On January 31, 2018, the City of Milwaukee led a community engagement session at Hillside Terrace in Milwaukee's Bronzeville neighborhood and presented a vision for the future of the neighborhood's main commercial corridor, Dr. Martin Luther King, Jr. Drive. The Equitable Growth Planning Study, named Moving Milwaukee Forward, is made possible through a federally funded transportation planning grant, and examines the feasibility of Transit Oriented Development (TOD) in the Bronzeville and Walker's Point neighborhoods as a result of future streetcar extensions.
For millennials, TOD often carries a positive connotation as a destination and place of choice to live, work and play, given the rise of new apartment buildings and easy-access to amenities and public transportation. For longtime neighborhood residents, TOD often carries a negative connotation as a place that will rapidly change with the influx of new (often white) residents, rising rent rates, and result in the possibility of eviction. In countless cities, including Minneapolis, Seattle, Portland, and Denver, fixed-rail transportation systems have had both positive and negative implications in their respective neighborhoods with new rail service. In addition, TOD has been at the core of neighborhood dialogue in 21st-century development. SOM Architects, a lead partner in Milwaukee's program, proposes rethinking TOD as "Thinking of Diversity," rather than "Transit-Oriented Displacement."
While construction of the Milwaukee Streetcar's (The Hop) initial route and lakefront extension will be completed later this year, extensive community-based planning is underway for the future of the city's streetcar system. In recent years, cities have attributed gentrification with new streetcar or light-rail connections.
With a renewed interest from the commercial real estate community, often times, neighborhoods connected with new fixed-rail transportation experience an increase in housing density and public-realm activation with new street-level commercial tenants. Although it is important to note that the surge of new economic development helps fulfill longtime neighborhood residents desire for a more walkable and sociable neighborhood, TOD has sometimes resulted in displacement and inequitable growth.
Some of Milwaukee's peer-cities have experienced this very phenomenon and is described by planners as "transit-oriented displacement." Just as its name suggests, transit-oriented displacement refers to the negative impacts of such new development, including a rising tide-effect, in which a series of factors increase the neighborhood's existing rents for all and often displaces low-income and people of color. However, several cities have experienced a positive ripple-effect of new investment and unprecedented development. In addition, research indicates that there is a distinct difference between streetcar and light rail systems and their impact on neighborhoods. According to my research findings, light-rail has a greater probability of displacement than a neighborhood-based streetcar system.
Peer-City Policies and Financial Initiatives
In response, cities have adopted several policies, including implementing anti-displacement plans, low-interest home equity loans, tax increment financing (TIF) districts to support home-ownership, and other financing incentives to reduce the burden of displacing longtime neighborhood residents. The following chart, published in "Transit Oriented Displacement," by the University of Minnesota, outlines peer-city financial incentives to support equitable growth around light-rail systems and considerations of how to apply the strategy in Minneapolis, Minnesota. |
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Streetcars & Equity
Sarah Jack Hinners, Ph.D., Arthur C. Nelson, Ph.D., FAICP, and Martin Buchert, MA, authors of "Streetcars and Equity: Case Studies of Four Streetcar Systems Assessing Change in Jobs, People and Gentrification," address the following overarching question related to streetcar transit-oriented development:
"If streetcars promote economic development, do the benefits of that economic development accrue to existing residents of the neighborhood, or is the degree of change so great that the neighborhood experiences extensive population turnover?"
Key Report Findings
Portland, Oregon
Seattle, Washington
Peer-City Analysis
Sarah Jack Hinners, Ph.D., Arthur C. Nelson, Ph.D., FAICP, and Martin Buchert, MA, authors of "Streetcars and Equity: Case Studies of Four Streetcar Systems Assessing Change in Jobs, People and Gentrification," address the following overarching question related to streetcar transit-oriented development:
"If streetcars promote economic development, do the benefits of that economic development accrue to existing residents of the neighborhood, or is the degree of change so great that the neighborhood experiences extensive population turnover?"
Key Report Findings
Portland, Oregon
- Phase II Streetcar: Central Loop
- 2012
- While the greater study area experienced modest changes in lower and upper-wage jobs, the locations in close proximity to the streetcar station experienced a 17% increase in lower-wage jobs, 10% increase in middle-wage jobs, and 33% increase in upper-wage jobs, for a total of 2,099 new jobs created within 6 six years of the streetcar. While there was an overall 10% decrease in population within the greater study area, there was not a notable decrease in people of color. In addition, housing values actually decreased in both the control study area and streetcar station area, by 11%. Thus, during this study’s time period, Portland’s Phase II streetcar extension has not spurred signs of gentrification.
Seattle, Washington
- South Lake Union Streetcar
- 2007
- While the greater study area experienced a 184% increase in lower-wage jobs, accounting for 20,139 new jobs, locations closest to streetcar stations experienced an 18% decrease in lower-wage jobs. The station area saw only a slight increase in middle and upper-wage jobs. Meanwhile, the station are experienced a 55% surge in white residents, accounting for 2,869 new residents, a slight increase in black residents, accounting for 208 residents, and a slight increase in Asian residents, accounting for 757 residents. While new residential units were constructed near new streetcar stations, most of the existing were not displaced.
- S Line
- 2013
- While lower-wage jobs increased by 1,009 new jobs in the greater study area, there is not a growth in lower-wage jobs located in close proximity to the streetcar stations. Meanwhile, there is a 9% increase in white residents and a 38% increase in Asian residents near the stations, and 31% decrease in African American residents near the stations. However, household incomes only decreased by 2.5%, while home values decreased by 9.3%. According to the report's findings, it is too early to determine whether or not gentrification occurred because of streetcar development.
- Rampart-St. Claude Streetcar
- 2013
- While lower and upper wage jobs slightly decreased in the greater study area, middle wage jobs increased by 28%. Meanwhile, lower wage jobs increased by 42% in close proximity to the streetcar stations. Overall, the greater study area experienced a 33% increase in white residents, 26% increase in black residents, and 18% in Asian residents, for a total growth in population of 26%. Both the average household incomes and home values slightly decreased. The report concludes that there is slight evidence of gentrification and states, "One reason may be that station areas gained share of higher-earning White and Asian populations proportionally higher than control areas, while control station areas gained lower-earning Black population proportionately higher than station areas (27)."
Peer-City Analysis
Data Source: Durham, Wesley. Parker Evans, Laura Haynssen, Karl Schuettler, and Scott Shaffer. Transit Oriented Displacement. University of Minnesota. May 2016.
2010 US Census.
2010 US Census.
Silver-Lining for the Cream City
In what has grown to become a wicked problem, there is a silver lining for the Cream City. The City of Milwaukee is proactively taking necessary steps to ensure that the streetcar is a vehicle that connects neighborhoods, employment nodes, and services diverse residents. Enacted in early 2018, the City of Milwaukee, with support from MKE United, Westcare, Harbor District, Walker's Point, and King Drive Business Improvement Districts, Moving Milwaukee Forward seeks to prevent displacement through streetcar extensions. In addition, according to the project manager, the City of Milwaukee has stipend community partners to serve as the grassroots neighborhood advocate to rally community input for the project. In addition, City of Milwaukee planners are actively meeting with the local artist community to ensure new developments and restorative projects include components of public art. The project includes creating a City of Milwaukee Anti-Displacement Plan.
In early 2018, the City of Milwaukee released the King Drive Residential and Commercial Analysis, produced by HR&A. The following includes key findings from the report.
King Drive Market Report Key Findings:
In what has grown to become a wicked problem, there is a silver lining for the Cream City. The City of Milwaukee is proactively taking necessary steps to ensure that the streetcar is a vehicle that connects neighborhoods, employment nodes, and services diverse residents. Enacted in early 2018, the City of Milwaukee, with support from MKE United, Westcare, Harbor District, Walker's Point, and King Drive Business Improvement Districts, Moving Milwaukee Forward seeks to prevent displacement through streetcar extensions. In addition, according to the project manager, the City of Milwaukee has stipend community partners to serve as the grassroots neighborhood advocate to rally community input for the project. In addition, City of Milwaukee planners are actively meeting with the local artist community to ensure new developments and restorative projects include components of public art. The project includes creating a City of Milwaukee Anti-Displacement Plan.
In early 2018, the City of Milwaukee released the King Drive Residential and Commercial Analysis, produced by HR&A. The following includes key findings from the report.
King Drive Market Report Key Findings:
- While the Study Area saw population growth between 2000 and 2015 (1,565 people), the African American population decreased by ~1,200 people and the White population increased by ~2,300.
- Harambee and Halyard Park has seen population decline. Though, Brewer's Hill , Haymarket and Westown neighborhoods have seen a decreased share of African Americans, the total African American population in these areas has increased.
- Thirty-seven percent of King Drive rental housing stock is regulated for affordability through Low-Income Housing Tax Credit, public housing, and project-based vouchers, with most of the units located north of Juneau.
- Based on historical rent trends and the estimated impact from the streetcar, ~540 existing naturally affordable units are expected to become unaffordable at the 50% of AMI level over the next 10 years.
GIS Neighborhood Analysis
Through GIS software, I analyzed the cultural landscape of Bronzeville. Specifically, I analyzed the relationship between average household income within walking distance (.25-mile buffer zone) around existing transit nodes. The transit nodes identified in the maps below depict the intersection of two MCTS routes. One could predict that these existing transit nodes will be considered for future streetcar stops, and thus the buffer zones indicate areas with the highest-risk of displacement due to new TOD. The results are startling. According to the King Drive Market Report, published in January 2018, the average household income of the King Drive Study Area is $30,000 (2010). However, when analyzing the potential locations for Transit Oriented Development, the average household incomes are much lower than the city and neighborhood average. According to the King Drive Market Report, the larger study area ranges from $14,000 in portions of Hillside and Haymarket and up to $74,000 in Brewers Hill. In addition, the maps indicate drastic changes in certain neighborhoods, especially neighborhoods closest to the central business district (located directly south of the study area). Further research will show a relation of average household income and race. According to the King Drive Market Report, "While the Study Area saw population growth between 2000 and 2015 (1,565 people), the African American population decreased by ~1,200 people and the White population increased by ~2,300." The report then addresses the neighborhood's concern of gentrification. According to the report, "Communities in the King Drive neighborhood have expressed concern about gentrification, an ill-defined but potent term invoking a mix of socioeconomic and community concerns." The report later states, "Because of the nature of available data, analysis is only possible on a neighborhood-wide level, meaning that the data cannot reflect the way individual households may or may not have been impacted by neighborhood-wide changes." Thus, quantifying gentrification is a challenge, because it is often as a case-by-case analysis. However, tracing historical average household incomes and racial density are two indications of gentrification. |
2010 Average Household Income:
Key analysis from the mapping exercise indicates nearly a shift from low-income to high-income in the southern portion of the Study Area and from high-income to low-income in the northern portion of the Study Area. Multiple factors, including recent development north of downtown in Schlitz Park and Brewers Hill. |
Old Urbanism: What's New is Old and What's Old is New Again
Every once in a while, lightening strikes at a public input session. Throughout this project, I had the opportunity to listen to neighborhood residents provide insightful descriptions of Bronzeville's overall health and quality-of-life. In particular, one resident's vision stood out among the rest. When asked to summarize his thoughts in two-words, he stated, "Old Urban." While the concept of restoring neighborhoods to their pre-deindustrialized state has emerged through the principles adopted by the Congress for the New Urbanism, the resident's vision for Bronzeville lies in historic memories of a thriving Bronzeville. The ability to translate Bronzeville's future as a site for the historical recreation of what once was Milwaukee's thriving African-American cultural district silenced the room of architects, planners, and city officials. The resident's comment drew smiles from elder residents in the room, and thus, the streetcar is more than a new mode of transit. The streetcar is a memory device and one that spurs fond memories of historic Bronzeville. Thus, the streetcar emerges as an intergenerational device, and one that emotionally connects generations.
So, what does Old Urbanism look like? One could begin to understand the "new urbanist" principles through the work of Congress for the New Urbanism:
What's missing? While this list of New Urbanist principles is comprehensive, the list is missing a key term in my eyes: preservation. Perhaps the neighborhood resident shed light on the missing element of TOD, when he stated that the future of Bronzeville reflects the idea of "old urban."
I leave you with a final question, by Kaid Benfield of CityLab. He asks, "Is Gentrification Always Bad for Revitalizing Neighborhoods?" His response, "If done right, cities can preserve their character while bringing in new business."
Every once in a while, lightening strikes at a public input session. Throughout this project, I had the opportunity to listen to neighborhood residents provide insightful descriptions of Bronzeville's overall health and quality-of-life. In particular, one resident's vision stood out among the rest. When asked to summarize his thoughts in two-words, he stated, "Old Urban." While the concept of restoring neighborhoods to their pre-deindustrialized state has emerged through the principles adopted by the Congress for the New Urbanism, the resident's vision for Bronzeville lies in historic memories of a thriving Bronzeville. The ability to translate Bronzeville's future as a site for the historical recreation of what once was Milwaukee's thriving African-American cultural district silenced the room of architects, planners, and city officials. The resident's comment drew smiles from elder residents in the room, and thus, the streetcar is more than a new mode of transit. The streetcar is a memory device and one that spurs fond memories of historic Bronzeville. Thus, the streetcar emerges as an intergenerational device, and one that emotionally connects generations.
So, what does Old Urbanism look like? One could begin to understand the "new urbanist" principles through the work of Congress for the New Urbanism:
- Walkability
- Connectivity
- Mixed-Use and Diversity
- Mixed Housing
- Quality Architecture & Urban Design
- Traditional Neighborhood Structure
- Increased Density
- Green Transportation
- Sustainability
- Quality of Life
What's missing? While this list of New Urbanist principles is comprehensive, the list is missing a key term in my eyes: preservation. Perhaps the neighborhood resident shed light on the missing element of TOD, when he stated that the future of Bronzeville reflects the idea of "old urban."
I leave you with a final question, by Kaid Benfield of CityLab. He asks, "Is Gentrification Always Bad for Revitalizing Neighborhoods?" His response, "If done right, cities can preserve their character while bringing in new business."
Resources
- Barreto, Matt. Sonja Diaz, Tyler Reny. Should I Stay or Should I Go? UCLA. March 2018.
- Benfield, Kaid . Is Gentrification Always Bad for Revitalizing Neighborhoods? CityLab. October 2011.
- Dastrup, Samuel. Linking Residents to Opportunity: Gentrification and Public Housing. New York University. June 2016.
- Durham, Wesley. Parker Evans, Laura Haynssen, Karl Schuettler, and Scott Shaffer. Transit Oriented Displacement. University of Minnesota. May 2016.
- Florida, Richard. Mass Transit Doesn't Cause Gentrification. CityLab. July 2015.
- Funston, Renée. Streetcar in the City: An Analysis of How Streetcars Affect Gentrification. California State University, Sacramento. Spring 2016.
- Hinners, Sarah Jack Ph.D., Arthur C. Nelson, Ph.D, FAICP, Martin Buchert, MA. Streetcars and Equity: Case Studies of Four Streetcar Systems Assessing Change in Jobs, People and Gentrification.
- Milazzo, Katherine. Health Disparities Within Cities: What Does Gentrification Have to Do With It? UA Magazine. February 2018.
- Rosenthal, Tracy Jeanne. Transit-Oriented Development? More Like Transit Rider Displacement. LA Times. February 2018.
- Schneider, Benjamin. How Transit-Oriented Development Can Prevent Displacement. April 2018.
- Simpson, Malcolm Martin. The Insidious Social Impacts of Gentrification. 2017.