DEVP0029 PRACTICE2_CLEVELAND

Introduction:
Content: • Background information
• Planning history and key actors (1903-present)
18th October 2022 • Planning approaches analysis
DEVP0029
• Social justice analysis
• Conclusion

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Background info
Krumholz, H. & Equity planning

• Typical & Unique

• Founded 1796 –Simple grid design
• Manufacturing based economy
• Public planning and private planning
• Population from 17,000 to 381,000.
(1850-1900)

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DEVP0029 PRACTICE2_CLEVELAND

Planning History

-- Timeline & Events

Planning history
1903 1915 1949
The City Beautiful
the Downtown Mall Cleveland City Planning
(Daniel Burnham) The City Efficient
Commission the 1949 General Plan
established (Cleveland City Planning Commission)

The mall including City and County

buildings, Federal buildings, Library,
Board of Education, and Cleveland
Public Auditorium.

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Planning history
The Erieview Plan I and II
(The Urban Renewal Plan for Downtown Cleveland)
1959 (Pei and Associates)

1961 1975

Downtown Cleveland Equity Planning—

1975 Cleveland Policy Planning Report
(Cleveland City Planning Commission) (Norman Krumholz)

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Planning history
Civic Vision 2000：Citywide Plan
(Cleveland City Planning Commission)
1988 1991 2020

Civic Vision 2000：Downtown Plan Connecting Cleveland: 2020 Citywide Plan

(Cleveland City Planning Commission) (Cleveland City Planning Commission)

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Planning history

Equity Planning 1975

• Scale:City-wide
• Key actors:City Planning Commision;
3 Mayors;Public and Private stakeholders
• Impacts:
(1)on some of the major issues
(2)on the mayors
(3)on other practicing city planning professionals
(4)on the teaching of city planning

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DEVP0029 PRACTICE2_CLEVELAND

Planning approach analysis

-- case of “Equity planning” 1975

Content
“….the problems of Cleveland and its people have less to do with land uses, zoning,
or issues of urban design – the traditional domain of city planners – and more to do
with personal and municipal poverty, unemployment, neighborhood deterioration and
abandonment, crime, inadequate mobility, and so on.”

“Equity requires that government institutions give priority attention to the goal of
promoting a wider range of choices for those Cleveland residents who have few, if
any, choices”

(The Cleveland Policy Plan Report, 1975)

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 The Cleveland
Policy Plan
Content Report

Commission: Transportation: Housing: Income:

• Vision: Institutions are
established to serve individuals
in their pursuit of their own
goals, also to provide wider
choices.
• Goal: Simple equity requires
that locally-responsible
government institutions - with
limited powers and resources -
should give first and priority
attention to the goal of
promoting wider choices (more
alternatives and opportunities)
for those individuals and groups
in the City of Cleveland who
have few, if any choices.
• A 25cent fare for at least 3
years
• Fare discount for some groups
• Improve sequence and
coverage
• RTA would be prohibited from
spending funds on planning or
developing a downtown
subway or elevated system for
at least 5 years
• Community Responsive
Transit (CRT), a door-to-door,
dial-a-ride service would be
initiated.
• Focusing on building and
leasing low-income housing in
good residential areas instead
of deteriorated neighborhoods.
• To encourage rehabilitation and
conservation of the City’s
existing housing stock.
• Initiation of Federal housing
subsidies in the form of direct
cash assistance to lower-
income families
• Housing for low-income family
housing should be in small-
scale,
• scattered-site developments.
• To assure all Cleveland residents
with household responsibilities
an annual income above the
poverty level, the Commission
supports the following Federal
policies:
a) Basic allowances (payments
made to families with incomes
below the poverty level) should
vary by region of residencies
and should be adjusted
periodically as the cost of living
changes.
b) Benefits should not
discriminate against the
‘working poor’–those who work
full time but at wages below
the poverty level. 11
Analysis

Rational Advocacy Incremental Participatory

Comprehensive planning planning planning (Hirt, 2005)
Planning (RCP)

Use comprehensive The approach to Set up 3-5 years plan Planning through the
research to collect achieve “Equity” for “Equity planning” discussion of various
data and identify Focusing on senior in Cleveland key actors instead of
issues groups, low-incomes, “government’s
disabled people, etc. Negotiate with the decision”
Set up goals and government and
visions to control the Provide wider range institutions for local
city’s growth of choice for people communities and
who have few vulnerable groups
Long-term plans after
The Cleveland Policy
Plan Report

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Towards a postmodern planning (Hirt, 2005)

Five features of postmodern planning

Participatory planning • A growing interest in participatory planning (in lieu of the former
dominance of rational planning performed by value-free experts)

• A search for urbanity, urban identity, and cultural uniqueness (in lieu of
Search
the former focus on functionalism, efficiency, and rational organization
of urban forms)

Traditional urban forms • An appreciation of historic spaces; a return to traditional urban forms (in
lieu of the modernist belief in the supremacy of new forms)

• A mixing of land uses and flexible zoning (rather than strict land-use
Mixing of land uses and
segregation)
flexible zoning
• The pursuit of human-scale, pedestrian-friendly, higher density, urbane,
and compact forms (in contrast to spread-out, low-density, and auto-
Pursuit oriented forms)

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DEVP0029 PRACTICE2_CLEVELAND

Social justice analysis

-- three dimensions analysis

Cleveland and Social Justice
• Why?
-worsening urban environment + face new problems that traditional tools cannot address
social justice and equity planning

REDISTRIBUTION
allocation of material resources that people need to
REDISTRIBUTION participate in social life on equal terms by economic structure.
economic aspect
RECOGNITION
cultural recognition relates to institutionalized value
patterns that allow or deny people the social status, as well as
opportunities for achieving social esteem.
RECOGNITION REPRESENTATION
cultural aspect political aspect REPRESENTATION
how decision rules around membership and procedures can
allow or deny people equal voice in public and democratic
decision-making.
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Redistribution dimension
 Income
• From 1950 to 1980, manufacturing jobs declined by 60 percent
• Nearly 50% of Cleveland’s families ranked in the bottom third of all families in the Standard Metropolitan
Statistical Area (SMSA) in terms of income
• Critical problems are concentrated in low-income neighborhoods
“…efforts to improve the incomes of City residents address the roots of many of Cleveland problems.”
(The Cleveland Policy Plan Report, 1975)

(Kulture Vulturez, 2022) (GHETTO AMERICA, 2006) 16

Redistribution dimension
 Transportation  Housing
• In 1970, 32% Cleveland households did not • Growing poverty rates combined with worsening
have access to cars. housing conditions and abandonment.
• primarily those of the poor and the elderly. • Nearly 1/3 of housing stock was substandard.

Widespread Abandonment
Low income use of Low income &
automobile emigration

Have no access to car scattered development substandard house deteriorating environment

“For those who must depend upon public transit, there
are fewer and fewer places which can be reached, at
higher and higher fares, and with longer and longer
waiting periods.”
(The Cleveland Policy Plan Report, 1975)
“Large areas of the City are rapidly deteriorating
because residents lack incomes adequate to
command standard housing.”
(The Cleveland Policy Plan Report, 1975)
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Recognition dimension Racial distribution map

Regulation Resource Culture

Long-term racial segregation
Media Identity
Gender
Hierarchy Stereotype

Racial prejudice

Difficulties of industrial city

“the problems were based at their roots on poverty and racial

prejudice and were national in origin. Unless there was broad
concern expressed in national legislation and enforcement there
was very little that local politics could or would do.” (Krumholz, 1982)
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(Google earth, 2022; U.S. Census, 2010)
Representation dimension

1 Strong-mayor-council government
• Planners need to convince mayor, city council
• Often takes long term or even decades

2 Passive citizen participation

• Merely invite local institute or passively investigated
• Individuals cannot actively participate in planning process

3 Weak voice from underprivileged group

• Groups who need most and urgent attention
• Do not have time, money and spirit to speak out

(Kellymlacy, 2020) 19
Conclusion of social justice analysis

REDISTRIBUTION
Unequal resource and economic distribution
REDISTRIBUTION
economic aspect
RECOGNITION
Racial prejudice combined with cultural and social
system (City and National scale)

RECOGNITION REPRESENTATION
cultural aspect political aspect REPRESENTATION
Relatively Passive participation system

+Difficulties of industrial city (City and National scale)

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How Cleveland responded to social justice
• Objection focusing actions
-study  definite targeted groups  formulate action-oriented strategies
• Advocate, convince and oppose
• Conflicts: not all problems could be solved successfully
• Income/ transportation/ housing aspects
Income
• assure all residents with household
responsibilities an annual income above
poverty level, the Commission supports the
following Federal policies:
a) Basic allowances (payments made to
families with incomes below the poverty
level) should vary by regions and should
be adjusted as the cost of living changes.
b) Benefits should not discriminate against
the ‘working poor’–those who work full
time but wages below the poverty level.
Transportation
• A 25cent fare for at least 3 years
• Fare discount for some groups
• Improve sequence and coverage
• RTA would be prohibited from spending
funds on planning or developing a
downtown subway or elevated system for
at least 5 years
• Community Responsive Transit (CRT), a
door-to-door, dial-a-ride service would be
initiated.
Housing
• Focusing on building and leasing low-
income housing in good residential areas
instead of deteriorated neighborhoods.
• encourage rehabilitation and
conservation of the City’s existing
housing stock.
• Initiation of Federal housing subsidies in
the form of direct cash assistance to
lower-income families
• Housing for low-income family housing
should be in small-scale
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 Conclusion
• A reflection of industrial city and its
planning.

• Equity planning will always aim at

serving people and city itself, yet it
may come with conflicts and risks,
but it could be manageable.

• Social justice is based on

redistribution, recognition and
representation, but the process,
system and policies involved are
also important.
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Reference
1. Norman Krumholz , Janice M. Cogger & John H. Linner (1975) The Cleveland Policy Planning Report, Journal of the
American Institute of Planners, 41:5, 298-304, DOI:10.1080/01944367508977672
2. Norman Krumholz (1990) Making Equity Planning Work: Leadership in the Public Sector, Temple University Press, Project
MUSE.
3. Norman Krumholz (1982) A Retrospective View of Equity Planning Cleveland 1969–1979, Journal of the American Planning
Association, 48:2, 163-174, DOI:10.1080/01944368208976535
4. Sonia A. Hirt (2006) Toward Postmodern Urbanism? Evolution of Planning in Cleveland, Ohio, Journal of Planning
Education and Research 25:27-42, DOI: 10.1177/0739456X04270465
5. Sara A. L. Smaal, Joost Dessein, Barend J. Wind, Elke Rogge (2020), Social justice‑oriented narratives in European urban
food strategies: Bringing forward redistribution, recognition and representation, Agriculture and Human Values 38:709–727
6. Kulture Vulturez (2022) ‘The Short East Cleveland Ghetto Story’, Available at: https://www.kulturevulturez.com/east-
cleveland-ghetto-story/
7. GHETTO AMERICA (2006) ‘The Short East Cleveland Ghetto Story’, Available at: http://ghettoamerica.blogspot.com/
8. U.S. Census. (2010) ‘Map of racial distribution in Greater Cleveland’
9. Kellymlacy (2020) ‘image of protest’, Available at: https://www.pexels.com/zh-tw/photo/4552852/

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