Comment on David Listokin,Barbara Listokin,and Michael Lahr's “The contributions of historic preservation to housing and economic development”: Historic preservation in a neoliberal age

Abstract

Listokin, Listokin, and Lahr argue that historic preservation can function as a community development tool, but there are numerous deficiencies inherent in this method that make it a less‐than‐desirable way to revitalize. Historic preservation generally leads to gentrification that in turn displaces many low‐income households. The historic rehabilitation tax credit also represents a circuitous means of providing affordable housing that would be more effectively delivered through direct subsidy.     

Comment on David Listokin,Barbara Listokin,and Michael Lahr's “The contributions of historic preservation to housing and economic development”

Abstract

Listokin, Listokin, and Lahr laud the economic benefits of historic preservation but fail to delve deeply enough into the negative impacts and how they might be mitigated. Preservation projects tend to displace lower‐income households and small businesses, and the jobs they generate tend to be low paying. In areas with high potential for displacement, local government and civic leaders should act cautiously and not intervene in ways that overheat these markets. We are unlikely to see new federal policies that substantially mitigate displacement. Nonetheless, the historic rehabilitation tax credit could be revised to encourage more modest and affordable preservation projects.

The extra costs associated with historic rehabilitation standards can be more burdensome than the authors describe. To reduce these costs, the administration of the Secretary of the Interior's Standards for Rehabilitation could be made more consistent and cost‐sensitive.     

Abandoned housing: Exploring lessons from baltimore

Abstract

Population loss and economic decline have resulted in thousands of abandoned homes in major U.S. cities. Although abandoned homes are symptomatic of other problems, they also contribute to neighborhood decline and frustrate revitalization. This article provides an overview of the national scope of abandoned housing and profiles Baltimore's strategy for addressing this problem.

Challenges in Baltimore's revitalization planning include the necessity of and financial requirements for a comprehensive approach and the difficulty of reaching consensus. Widespread property “flipping” hampers prevention. Efforts to acquire and demolish units are constrained by difficulties in tracking ownership, felons’ ownership of derelict units, and a shortage of staffing to process takings. Challenges in rehabilitating and marketing row houses include the need for subsidies to make units affordable to the most likely buyers, the omnipresence of lead paint, and the lack of foreign immigration. The article proposes a more strategic approach to the city's revitalization planning.     

Brownfield redevelopment and affordable housing: A case study of New Jersey

Abstract

A total of 779 New Jersey residents were surveyed to determine the number of people who during the next five years would be willing to move to housing built on brownfield sites that have been remediated to the extent that they pose no plausible brownfield‐related health risk to residents.

Fourteen percent of the respondents said they would be willing to move to and live in housing built on cleaned‐up brownfields. These respondents were disproportionately relatively poor and young and resided in apartments and cities, especially cities where the city government was actively promoting brownfields. These respondents also did not like their current neighborhoods, did not feel threatened by the idea of living on a cleaned‐up brownfield site, and trusted experts to advise them on the health risks involved.     

The myth of social capital in community development

Abstract

This article argues that contemporary interest in social capital by community development theorists, funders, and practitioners is misguided and needs to be thoroughly rethought. It argues that social capital, as understood by Robert Putnam and people influenced by his work, is a fundamentally flawed concept because it fails to understand issues of power in the production of communities and because it is divorced from economic capital. Therefore, community development practice based on this understanding of social capital is, and will continue to be, similarly flawed.

The article further argues that instead of Putnam's understanding of social capital, community development practice would be better served by returning to the way the concept was used by Glenn Loury and Pierre Bourdieu and concludes with a discussion of how these alternative theories of social capital can be realized in community development practice.     

Combining historic preservation and income class integration: A case study of the butchers hill neighborhood of Baltimore

Abstract

For the past several decades in the United States, a tension has existed between the goals of historic preservation, the provision of affordable housing, and the creation of mixed‐income neighborhoods. Historic restoration for residential uses has often been associated with gentrification and the displacement of low‐income residents. This article examines the public and private sector support system for combining historic preservation with the creation of affordable and mixed‐income housing and neighborhoods and analyzes the strategies and experiences of the Baltimore neighborhood of Butchers Hill in taking this approach to community re‐vitalization.

Using historic preservation as a catalyst for community revitalization requires a comprehensive approach to prevent displacement of low‐income residents. In Butchers Hill, the mixed‐income community that was created was an outgrowth of conflict between two community‐based organizations. The case eludes simple typologies of gentrification and indicates the need for additional study of the dynamics and benefits of mixed‐income neighborhoods.     

Credit and social capital: The community development potential of U.S. microenterprise programs

Abstract

This article looks at the community‐building activities of microenterprise programs. These programs build community primarily by creating networks that build social capital. Microenterprise programs build two types of networks—networks within programs that typically involve borrowers and networks between programs and other institutions. The article examines (1) the ways in which microenterprise programs motivate the creation of both types of networks; (2) the extent to which these networks are embedded within program structures; and (3) the process by which network formation leads to the accumulation of social capital.

The networks of relationships that Women's Initiative and Working Capital have catalyzed, both within and between programs, build social capital in important ways. The trust building that intraprogram relationships accomplish and the alteration of norms that interprogram relationships accomplish motivate the creation of networks that build social capital. These changes are not sufficient to turn poor communities around, but they are important first steps.     

The redevelopment of distressed public housing: Early results from HOPE VI projects in Atlanta,Chicago, and San Antonio

Abstract

The redevelopment of distressed public housing under the Urban Revitalization Demonstration Program, or HOPE VI, has laudable social, physical, community, and economic goals. Three public housing projects in Atlanta, Chicago, and San Antonio demonstrate the complexity and trade‐offs of trying to lessen the concentration of low‐income households, leverage private resources, limit project costs, help residents achieve economic self‐sufficiency, design projects that blend into the community, and ensure meaningful resident participation in project planning.

Although worthwhile and ambitious, HOPE VI cannot achieve all these goals. More of them can be achieved by developing strategies related to the strength of the local real estate market. To that end, the U.S. Department of Housing and Urban Development and public housing authorities must use the market‐based tools in the Quality Housing and Work Responsibility Act of 1998. Standards for improved physical design and resident participation and further research on critical supportive services for residents are also needed.     

More than bricks and sticks: Five components of community development corporation capacity

Abstract

Community development researchers, practitioners, and funders have recently begun to emphasize the need for community development corporations (CDCs) to build capacity. However, the practice of using the term capacity without carefully defining it allows for a wide range of meanings to be assigned to the term and hinders efforts to study and measure it. Capacity is often defined narrowly in terms of housing production, oversimplifying a complex concept and process.

To remedy this shortcoming, we create a framework that views capacity more broadly by dividing it into five components: resource, organizational, programmatic, network, and political. We believe that this more concrete way of thinking about capacity will be particularly useful to practitioners, funders, and policy makers. We apply our definitions to CDCs, particularly those that work with local intermediaries called community development partnerships (CDPs), in order to better understand the role of CDPs in the process of building capacity.     

Working together: Building capacity for community development

Abstract

Community development partnerships (CDPs)—local intermediaries that gather support from foundations, corporations, and the public sector—are giving increased attention to building the capacity of community development corporations (CDCs). This article evaluates CDPs’ efforts to help nonprofit CDCs increase their capacity to revitalize low‐income communities. We identified five types of capacity and conducted interviews and focus groups with CDPs and CDCs across the nation. The nature of capacity and capacity building among CDCs, the ways partnerships help increase CDC capacity, what the partnerships and CDCs learn from each other, and how they could better gauge the effectiveness of capacity‐building support were discussed.

We learned that CDCs and CDPs have forged an effective alliance and continue to work together: Community organizations require help in building capacity, and local partnerships provide the requisite funding, technical assistance, and other elements to help them grow and serve their neighborhoods.     

The American metropolis at century's end: Past and future influences

Abstract

The American metropolis at century's end is vastly different than what many expected just 50 years ago. At mid‐century, seers envisioned a clean, rationally planned city of the future, free of long‐standing problems such as traffic and poverty. The reality is more complex. We built a new metropolis that addressed some major problems while simultaneously creating a host of new ones. The next 50 years will undoubtedly contain similar surprises.

In conjunction with the 1999 Annual Housing Conference, which looked at the legacy of the 1949 Housing Act, the Fannie Mae Foundation commissioned a survey that asked urban scholars to rank the key influences shaping the past and future American metropolis. The “top 10” lists that resulted are the focus of this article.     

The challenge of our declining big cities

Abstract

This article describes the population forces that caused U.S. metropolitan areas to grow rapidly after 1940 but caused falling population in many large older cities. It shows why the basic processes that generated the spatial growth and development of American metropolitan areas have also undermined the fiscal strength of many older central cities and inner‐ring suburbs. By concentrating low‐income households in inner‐core neighborhoods, these processes create undesirable conditions that motivate economically viable households and firms to move to surrounding suburbs and not move back.

Three strategies have been suggested for improving these conditions: major structural reform of metropolitan institutions, limited reform of big‐city governments, and community development of inner‐core areas. The first is the most capable of changing the dynamics causing decline, but it lacks political support because it would require the majority of metropolitan residents to sacrifice some benefits they gain from existing arrangements.     

Gentrification in tourist cities: Evidence from New Orleans before and after Hurricane Katrina

Abstract

Tourism‐led redevelopment often provides city residents with increased opportunities for employment, leisure, and cultural enrichment, but it can also have dramatic and unpredictable effects on their lives. One of these effects involves the repercussions of redevelopment that transforms working‐class neighborhoods into middle‐ or upper‐class areas catering to tourists. We use the city of New Orleans as a case study to explore the connections between tourism and gentrification.

We first discuss the growth of tourism in New Orleans, paying particular attention to its geographic scope. We then consider the ways in which gentrification and tourism are connected in New Orleans and what their relationship adds to theories of tourism development and urban revitalization. The analysis concludes with an in‐depth look at one of the nation's oldest black neighborhoods, Tremé, where both tourism and the nonblack population have been increasing in recent years.     

The preservation needs of public housing

Abstract

The paper examines the preservation needs of public housing from the perspective of its physical condition and its ongoing repair and replacement needs. It begins by examining the range of needs that exist today, including the level of expenditures that would be required to put the stock in working order to meet existing codes, and to ensure the long‐term viability of the development. It then explores the level of expenditures that would be required on an ongoing basis to keep the stock in good repair and to meet future capital and preventive maintenance needs. The final section addresses several important policy issues, including overall funding requirements, the cost‐effectiveness of preservation efforts compared with vouchers and new construction, the special problems of troubled public housing authorities, and the need to establish stronger incentives for capital planning.     

Estimating the local economic impacts of HOPE VI

This study identifies and measures the demonstrable changes to local political economies that can be reasonably attributed to HOPE VI redevelopments. It examines the extent to which the developments have contributed to increases in surrounding property values, decreases in serious crimes, additional regional economic activity, and changes in local tax revenues. It weighs these benefits against the public costs associated with the program.

Despite the expenses associated with HOPE VI, the redevelopments generate significant net social welfare benefits. In most cases, the collective tenant and neighborhood benefits exceed the net public costs of redevelopment. In addition, the redevelopments spark additional regional economic activity and contribute to an increase in the local tax base. HOPE VI's effects are far from uniform, however, and depend on the location of the redeveloped property, the characteristics of project funding, the strength of the local real estate market, and the presence of other development pressures.     

Family self‐sufficiency and housing

Abstract

Since the early 1980s, an increasing number of initiatives have been introduced to link housing programs and policies with efforts designed to promote family economic self‐sufficiency. This article reviews a set of programs that have worked to manipulate various components of the housing bundle to improve the economic well‐being of acutely poor families. They include programs that modify the characteristics and services available in the local community, alter families’ residential location, provide incentives and opportunities for homeownership, and link the provision of housing subsidies to increasing local capacity for service delivery.

This article suggests that the centrality of housing in fostering or impeding economic mobility makes it a key element in dealing with acute poverty and part of a creative strategy for intervening in the dynamics of poverty. Several important areas need to be taken into account when evaluating current policy; and multiyear evaluations will be necessary to determine the success of these programs.     

Comment on James R. Cohen's “abandoned housing: Exploring lessons from Baltimore”

Abstract

For most cities, the possibility of transforming unused property into community and city assets is as yet hypothetical. Fiscal constraints limit the amount of land acquisition, relocation, and demolition that cities can undertake. Private investors, unsure of which neighborhoods have a chance of becoming self‐sustaining, are reluctant to take risks in untested markets.

Cities need to create citywide planning strategies for land aggregation and neighborhood stabilization and to develop analyses of the risks and opportunities associated with redevelopment opportunities in specific markets. Research seems sorely needed. Although the policy world cannot and will not stand still waiting for academics to design the perfect study or to collect all the data to model the potential effects of various policy options and investments, analysis that can play a more immediately supportive role can and should be done now.     

Revitalizing the Parramore heritage renovation area: Florida's state housing initiatives partnership program and Orlando's historic African‐American community

Abstract

Housing programs increasingly contribute to broader community revitalization efforts rather than strictly serving production‐oriented goals. As implementation of this strategy moves beyond the traditional housing leaders in cities such as Boston, Cleveland, and Baltimore, an assessment of other areas is instructive. This article examines how the nation's largest housing trust fund, which Florida directs primarily to local governments through the State Housing Initiatives Partnership (SHIP), contributed to Orlando's ambitious community revitalization effort in the Parramore neighborhood.

Given the consistency between SHIP goals and those of the Parramore project and Orlando's experience with developing partnerships and affordable housing initiatives, SHIP should have proven an effective tool. The initial findings demonstrate that housing programs need to be sufficiently flexible to permit a comprehensive approach to neighborhood revitalization. Such an approach should seek a balance between product‐based redevelopment and people‐based housing strategies, expand the role of community development corporations, and create housing choice.     

Counting homeless persons with surveys of users of services for the homeless

Abstract

Because of their comparative economy, the most commonly used methods for counting the homeless focus on users of shelters, food lines, health clinics for the homeless, and other services for the homeless. This paper argues that surveys restricted to shelter users are of limited usefulness, but that joint surveys of food‐line, shelter, and clinic users include very substantial proportions of the homeless in many communities. Such comprehensive surveys can provide an accurate basis for research on the homeless in communities with reasonably capacious service systems. The reliability of such surveys has grown as service systems for the homeless have improved. Groups of the homeless that tend to be missed in service user surveys include homeless youths on their own as well as substantial portions of the rural homeless population and of the doubled‐up or institutionalized homeless populations. Surveys of homeless persons sleeping in known places “on the streets” can be used to supplement surveys of service users. Research in Colorado suggests that such supplemental surveys of the street population provide a practical basis for comprehensive estimates of the homeless street population.     

Smart growth: More than a ghost of urban policy past,less than a bold new horizon

Abstract

Proponents of smart growth tout its more compact, less automobile‐dependent development as a superior alternative to the prevailing pattern of sprawl. Admittedly, smart growth is characterized by the ghost of urban policy past, ranging from inner‐area revitalization to growth management. Yet smart growth incorporates leading‐edge, contemporary components (e.g., encouraging multimodal transportation, strategically locating public employment), and its timing is propitious—as aging baby boomers, rising immigration, and other forces support core‐area revitalization and other smart growth themes.

The future of smart growth is promising, but its success is far from assured. Multiple factors, such as the lack of adoption across governments, market support for sprawl, the automobile's clinging dominance, and a paucity of techniques, could impair broad implementation. However, smart growth is sensible, broadly recognized, and fortuitously timed, and its proponents have learned from the miscues of its historical antecedents.