“First you must find... a shrubbery! Then, when you have found the shrubbery, you must place it here, beside this shrubbery, only slightly higher so you get a two layer effect with a little path running down the middle. Then, you must cut down the mightiest tree in the forest... with... a herring!”
From, of course, Monty Python and the Holy Grail. All hail the Knights Who Say Ni, possibly the first stakeholders in a privately-owned public space project.
My day job is in state government, in a program that provides development incentives to local government and the private sector. With my inclination to spend too much time in my head, on occasion I ponder what government’s role in the private and local realm should be. Typically government creates incentives for what we want the incented – whether private or public sector – to do. How effective are we? Is it clear to those who benefit from our incentives what we really want? (Is it clear to us?!)
New York, San Francisco, and other cities reward private developers that incorporate public spaces into their projects (known as privately-owned public spaces). You get a zoning variance for more floors if you have a public plaza outside or public passage inside the building.
However, there are no qualitative controls. Some developers see the public space as an asset to their development, while for others it’s an intrusion. They make seating uncomfortable (or don’t have any), don’t put up signs identifying public space, or just make public spaces so uninviting that the public has no reason to use them. And why not? The private sector doesn’t represent the public interest. Why should we expect them to? Unless public space benefits the development in a concrete way, we can’t expect developers to do anything more than meet the minimum standard.
Then there’s the problem of who maintains privately-owned public spaces. Remember Zuccotti Park from Occupy Wall Street? That’s a privately-owned public space. No wonder developers want to hide their public spaces from the public.
Without some guidance and collaboration between all the stakeholders, you’ll end up with a smokers’ alleyway, not an attractive public asset. Some developers will take the path of least resistance – the cheapest or easiest option. Or the one that is unlikely to be occupied.
There needs to be some middle ground between a big picture outcome (Thou Shalt Make Public Space) and micromanagement (a two layer effect with a little path). It’s not the state’s place to tell developers or local governments where their shrubbery should be. Government could, though, use its incentives to get the kind of process it wants used to reach the public space outcome. If you want, for example, funding for a little path, show us that you went through an inclusive public planning process, or talked to the parks people, and that they want a path in that location, or a piece of art instead of a shrubbery, or whatever.
Some places go a step further and move control away from developers to neighborhoods. In Miami’s Wynwood neighborhood, zoning variances may be approved if developers contribute to a fund used for parks and infrastructure (including big 10 foot wide sidewalks) in the neighborhood. This feels to me a little more like buying indulgences, but on the upside, the public amenities are more coordinated and one big park is probably more desirable than 25 little plazas. Stakeholders from the neighborhood work with city planners to ensure compatibility between development and public spaces. It's a much better system than leaving everything in the hands of developers.
Either way, collaboration is key. Government might facilitate, but shouldn’t be the only ones at the table. Neither, though, should private developers be the only ones deciding what subsidized public space looks like. A stakeholders process is more inclusive (though as I said below, some are more inclusive than others – you could, for example, only solicit input from the other Knights Who Say Ni). State government doesn’t micromanage business or local control. The outcome may be closer to what the state wants. With luck, the resulting public space is truly public.
This article is old, but talks about New York’s approvals for privately-owned public space, and the complete lack of record-keeping after approval. There was an estimated 80 acres of privately-owned public space at the time, and someone finally compiled it in 2000. They have continued to make progress, like the signage pictured above.
This article finds more fault with New York’s (lack of) control or oversight of privately-owned public spaces in the wake of Occupy Wall Street. The author talks about spaces that are badly designed or that closed after a period of time.
Here’s a story about San Francisco’s public-private spaces. Not such a train wreck as NYC, or maybe California’s newspapers are just nicer than New York’s.
This is a video with a more positive spin on New York’s spaces.
This web page has nicely balanced reporting on the private-public spaces in New York.
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