CITY SPACE MAKEOVER MANAGING AND CREATING QUALITY PUBLIC SPACES

Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development Zina Ruždić, MSc. Arch. Tijana Tufek-Memišević, Ph.D. Eng. Arch. Research Fellow Massachusetts Institute of Technology Boston, MA zruzdic@gmail.com Candarc LLC Chicago metropolitan area, IL tijana@candarc.com 26 TRANSFORMACIJA GRADSKOG PROSTORA, UPRAVLJANJE I STVARANJE KVALITETNIH JAVNIH PROSTORA CITY SPACE MAKEOVER, MANAGING AND CREATING QUALITY PUBLIC SPACES Abstract Human migration to urban environments is expected to comprise of more than 68 percent of the world population by 2050, according to the UN Department of Economic and Social Affairs new report (UN DESA, 2018). With an increasing urbanization and expected growth of cities, among other demands on the city infrastructure and resources to meet human needs, managing and creating new public spaces presents an additional challenge to sustainable urban development. The need for quality open places that provide safety, accessibility, green areas and services has been especially emphasized during the worldwide Covid-19 pandemic. New global urban development goals responding to contemporary lifestyle, health, business and recreational habits shift towards the 15-min walkability in cities. The general aim is to provide all citizens with access to public open areas and recreation in a walking distance. The main purpose of this paper is to elucidate hidden potentials and possibilities of large and small urban areas to meet these challenges and to demonstrate how redesigning, rethinking, exploring new meanings and converting existing city spaces can lead to new quality open places. Based on a case study of one of the highest-density cities in the world, this paper is explaining applied legal frameworks, management, contribution of the private sector and communities in the process of redesigning the city space of New York. The paper reflects on the important contribution of quality open public space in designing sustainable and livable cities, but as well as contribution to the economic, social and environmental benefit for the communities. Key words: open space, public space, rethink the city, management of public spaces 308 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development 1. Introduction Human migration to urban environments is expected to comprise of more than 68 percent of the world population by 2050, according to the UN Department of Economic and Social Affairs new report (UN DESA, 2018). Increasing urbanization, cities growth and contemporary lifestyle impose new living standards while setting the demands on urban planners to create more sustainable, resilient, agile and livable cities. Among other goals of the 21st century cities, providing a public open area preferably in walking distance became a new significant objective in urban planning worldwide. The presence of quality public spaces and greenery is essentially a barometer of cities’ economical vibrancy, quality of life and innovation. Through Sustainable Development Goal 11 (Sustainable cities and communities), The United Nations recognize importance of creating open public spaces as “universal access to safe, inclusive and accessible, green and public spaces, in particular, for women and children, older persons and persons with disabilities” by 2030 in a process of developing sustainable and livable cities. This target has been integrated into the New Urban Agenda adopted in 2016 at the United Nations Conference on Housing and Sustainable Urban Development (Habitat III 2016). Based on case study and grounded theory this paper elucidates possibilities to meet the challenge of providing quality open public spaces by converting and managing existing city spaces. It also explains the role of public sector and communities in the process of redesigning these areas. The case study examples of this paper are part of a known urban movement called “Placemaking”. Placemaking present the hands-on approach that inspires people to reimagine and reinvent public spaces in a neighborhood, city, or region. The process is based on strengthening the connection between people and communities, as well as designing a space by paying attention to the relation of built structures, cultural usage and social identities that define a place. 2. Definition of open public space In literature we can find different descriptions and understandings of public spaces, but in general we can say that there is a lack of consensus in definition of open public spaces. Open public spaces are often understood as parks and green areas related to recreational activity available and open to all, usually with less focus on other types such as public plazas, streets, greenways, waterfronts etc. which also fall under that category. The 2015 UN-Habitat report defines public spaces as “spaces between buildings and facilities that are open to the public, consisting broadly of three types of urban spaces: streets and pedestrian access; open and green spaces, including parks, plazas, waterbodies, and waterfronts; and public facilities like libraries, community centers, and municipal markets” (S.W. The hidden wealth of cities,2020) According to UNESCO the public space refers to an area or place that is open and accessible to all peoples, regardless of gender, race, ethnicity, age or socio-economic level. These are public gathering spaces such as plazas, squares and parks. Connecting spaces, such as sidewalks and streets, are also public spaces. 2.1. The importance of open public places in 2020 Research has over and over shown that a lack of outdoor activity is detrimental to the physical and psychological wellbeing of people living in highly populated urban areas. Spending just several minutes in a park or a recreational area can have beneficial health impact, reduce anxiety and stress levels. With the increasing level of urbanization, having and sustaining a healthy quality of living is becoming a serious challenge in cities around the world. The importance of access to open spaces has been particularly put into focus during the Covid-19 309 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development pandemic. In the USA many cities experienced an “urban flight,” meaning a significant number of people moved to the outskirts, suburban and rural areas rather than being at higher risk of the virus in dense urban parts. However, the urban flight migration is more common among median and higher income population, while lower income citizens in dense urban areas have been disproportionately more affected by the pandemic. A higher correlation of Covid-19 deaths has been noticed in crowded housing conditions. Other countries with densely populated regions living in poor and low-income housing, such as the favelas in Brazil or parts of Mexico, have also been significantly more affected by the novel virus. In addition to the imposed lockdowns, movement restrictions and reduced or closed public transportations, the importance of walking-distance vicinity to an outdoor recreational area has become particularly emphasized. Therefore, rethinking open public space and providing equal access opportunity to every person, irrelevant of their socio-economic status, age and abilities has never been more imperative than now. 2.2. Quality defining features of public spaces In evaluating the quality of a public space, the Project for Public Spaces organization from New York, USA created “The Place diagram” which offers a comprehensive idea of characteristics and content that make an open public space exceptional. A successful public space should be accessible and connected to its surrounding, visually as well as physically. A convenient connection to public transport and parking is preferred. In terms of comfort and image, a public open space should provide users with safety, cleanliness and availability of resting spaces. Activities that an open public space provides are the main motivation of visitors to use them and continue to return. The more and versatile uses of the space, the better quality. Finally, sociability and comfortable interaction is a characteristic that creates a stronger sense of attachment to the community. Figure 1: “The Place diagram” Source: Project for Public Space2.3. POPS- Privately owned public spaces In NYC during the early 60th the importance of open public spaces had been brought into focus. The city also became aware of the lack of capability to provide the amount of spaces needed and the difficulty to manage and maintain these spaces. City officials came up with an innovative idea by recognizing the potential in private sector to participate in resolving this problem. When the New York City’s Zoning Resolution was 310 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development last overhauled during the 1961 they adopted a program called “Privately Owned Public (Open) Spaces“ also known as POP(O)S. The program has been introduced as a zooning tool that allowed developers to build more usable spaces ( as a floor area) or receive special waivers in exchange to providing spaces for the public inside or outside their building, for example building plazas or arcades that are open to the public. The spaces would be accessible to and usable by the public for as long as the building exists and maintained by the owner. To date, New York City has built over 590 POPS providing more than 3.8 million square feet (cca 353 000 m2) of additional public space in the City. The NYC Department of City Planning designed an interactive map that provides an overview of all POPS in the city, and includes information on location, size, hours of operation and amenities to make it more approachable to citizens. 3. Case study The current Covid-19 pandemic brought into focus a renewed meaning and understanding of public space. The recommendation set by the World Health Organization (WHO) for keeping distance in public spaces and avoiding large gatherings, pushed urban planners to rethink how to utilize existing public and all spaces in general. After months of lockdown and movement restrictions, many cities across the US decided to implement strategies for local retail businesses to survive the economic impact while providing citizens with strongly needed outdoor activities and a form of socializing in the times of “social distancing”. The concept known as “Streatery” is common to many European cities but not as frequent in the US. It esentially means utilizing parts of streets for outdoor dining. Cities in US started implementing this concept by partially or fully closing streets for vehicle transportation, or allowing a reduced speed (of 5 mph) during certain times of the day. Businesses are allowed to utilize spaces previously dedicated to parking spots, sidewalks and pedestrian plazas, for dining tables and retail equipment placed following the pandemic safety guidelines of 6 feet (cca 2m) distance. The concept was greeted with postive response and citizen approval. It shows how successful urban resilience in hard times depends on effort from all stakeholders – government, private sector and communities. Boundaries between public and private have been moved and adjusted in favor of people’s wellbeing, socializing and economic survival. The concept may persist in perpetuity or at least seasonally. It brings into focus the importance of designing, rethinking and providing cities with quality open public spaces. Figure2: Streets closed for traffic to enable outdoor dining and socializing in suburban Chicago Source: author T.T.Memisevic 311 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development Therefore, it is highly important to reflect onto precedent examples of successful open space rethinking and managing such as the case example in NYC since this project has not only provided a new quality of living for its citizens but also strong urban and public resilience during the ongoing pandemic. 2.1. NYC Green Light for Midtown Apart from the existing public spaces and privately owned public spaces, NYC decide to take a step ahead in redesign the city by creating more pedestrian and cyclist friendly streets, transforming the understanding of public spaces and what makes a city more livable and sustainable. The New York Mayor’s office announced an urban development goal of redesigning the city in such a way that every New Yorker has available open public space in a 15 min walking distance. In 2009, Mayor Bloomberg with the New York City Department of Transportation announced the “Green Light for Midtown” pilot project that sought to simultaneously improve mobility and safety along the Broadway Boulevard. Previously, Broadway started to convert into congested avenues with too many pedestrians that were forced onto small sidewalks, which resulted in unsafe pedestrian movement and unpleasant working and shopping environments. Broadway is the only large street that runs diagonally through the Manhattan street grid system, creating irregular intersections and triangular spaces that were causing congestion for car traffic, as well for the cyclers and pedestrians. The project suggested closing traffic lanes along Broadway from 42nd Street to 47th Street to cars and transforming the boulevard into pedestrian plazas while monitoring how the Midtown gridlock would respond. The pilot project manifested itself through several quickly implemented and affordable project along the new Broadway Boulevard including the projects on Times Square, Herald and Greeley Squares and Madison Square Park reclaiming nearly 500,000 ft2 (45,000 m2) of public space (J.Gehl,2010). This experiment shown decreased traffic injuries, increasing the number of on foot visitors to Time Square and not significant effect on traffic. Less than a year that the project launched, the Mayor announced that the pedestrian plaza would be permanent. (New York Times, 2009). The New York City Department of Transportation under the leadership of Janette Sadik-Khan, who Figure3: Intervention points on Broadway 312 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development served as transportation commissioner, launched one of the biggest street transformation projects. One of the oldest streets in the city, the Broadway became the biggest re-purposing project and the most famous Manhattan street. The irregular intersections and triangular spaces it formed with existing street grid, provide space to create world-class open public spaces. The closing section would be from 47th Street to 42nd Street the Time Square area, and Herald Square, from 35th Street to 33rd Street. The project also proposed narrowed Broadway from 42nd Street to 35th Street by setting aside two lanes on the east side of the street for a bike lane and promenade with tables, chairs and planters. (NYCDOT, 2010). In a meantime the project had been expanded from 59th Street at Columbus Circle to 23rd Street at Madison Square and it had been divided in a two phases, Broadway from 23th Street to 59th and from 13th Street to 23rd, insuring more areas to create quality the public spaces. Times Square The closing section from 47th Street to 42nd Street in the Time Square area provided an extraordinary opportunity to create a new public space in the heart of the city. The first edition of the pilot projectl asted for six weeks, but the success creates a basis for an extension of the concept. Figure4: Evolution process of The Time Square redesign Source: www. Snøhetta.com, www.nyc.gov/dot The first intervention was basic and cheap, coloring the parts of the roadbed and placing simple outdoor tables and chair on what was once a highly trafficked intersection. Suddenly, the extremely dense traffic zone transforms into a pedestrian oasis where people casually rest on lawn chairs, enjoy a meal or a cup of coffee. The local artists were encouraged to re-interpret the temporary design face of the square and temporary art installation entitled ‘Cool Water, Hot Island’, was painted as a mural over the road, by Molly Dilworth (NYCDOT, 2010). New Yorkers wholeheartedly voted for the change to stay and project become permanent. In 2010 an international design competition was launched, which was won by the Norwegian renowned firm Snøhetta. Snøhetta’s project stared in 2012 and it was finally open and finished in 2015. Transformations of the public space at Times Square gave 313 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development additional 13 000 sq.m making a total pedestrian area of 25 000 sq.m or increasing a total area for 53%. Success of the redesign project reflected on businesses as well proving the theory that ‘more foot traffic creates more businesses. There was a 71% increase in revenue from businesses and a 180% increase in shops around the square (J.Sadik-Kahn,2013). As a result of this initially experimental project a new “NYC Plaza Program” was developed as an open application program for citizens. The Herald and Greeley Square Figure 5: The Herald Square, street redesign Source: author Z. Ruzdic Part of the initial Broadway project was closing the section from 35th Street to 33rd street and enhancements of The Herald and Greeley Square. The enhancements include expansion of public space, redesign of pedestrian surfaces throughout the plazas, improved pedestrian circulation, new traffic patterns and an enhanced bicycle network. Figure6: Herald Square design Source: www.nyc.gov/dot 314 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development As part of the project two more plazas were created, the Flatiron Public Plaza (Madison Square Park) and Union Square. Renowned architect Norman Foster donated the conceptual design project which added 37 000 square feet of public space. In 2010, the part of the Union Square project was unveiled which consisted of a two-block pedestrian plaza, updated bike lane, changes to the traffic pattern and seating along the east side of a Broadway. Figure7: Flatiron Public Plazas redesign Source: author Z. Ruzdic Project outcomes In a goal to create safe, livable, and pedestrian friendly boulevard NYC Department of Transportation transformed 2.3 miles of Broadway from 13th Street to 59th Street. This created 650 000 square feet (60 400 sq.m) of pedestrian plazas and areas for people to walk or sit down for a lunch in heavily trafficked areas along Broadway, including Times Square, Madison Square and Herald Square, Flatiron Public Plazas and Union Square. The project was designed to enhance mobility by simplifying intersections, removing the conflicts and providing additional traffic and pedestrian capacity where needed. Collected data shows significant improvements of the redesigned area in mobility and safety. The point to point travel times improved, buss travel speed as well, motorist and passenger injuries decreased by 63%, pedestrian injuries decreased 35%, pedestrian volumes increased by 11% in Times Square and 6% in Herald Square where 80 % fewer pedestrians are walking in the roadway and. (Green Light for Midtown Evaluation report 2010). In addition to safety and mobility the project provided new open areas, comfortable walking environment, inviting streetscapes and pleasant places that affect residents, shoppers, and visitor behavior. According to the Report 84% more people are staying longer in Times and Herald Square, 42% NYC residents shop in the neighborhood, 70% of theatre visitors say that plazas have had positive impact on their experience and 26% of Time Square employees repot leaving their office for lunch more frequently. The attractive streetscape and urban public space enhance local business in retail, restaurants, and real estate sector. A survey showed that the new design strikingly changed pedestrians’ negative perception of Broadway. (Chart1) 315 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development Chart 1: Changing Perceptions of Broadway Source: Green Light for Midtown Evaluation report 2010 The project and design of “Green Light for Midtown” benefited from the informed comments and recommendations made by broad interested individuals, space users and organizations. Beside the government representatives the project involved community boards, civic organization, local businesses including hotels, theater, parking, tourism sector, transportation and planning professionals etc. During the pandemic, New York City was one of the most impacted cities with a high number of Covid-19 cases and related deaths. After months of lockdown and a gradual ease of restrictions in one of the most populous cities in the world, NYC is still dealing with the aftermath of the initial impact. Businesses are struggling, cultural activity is mainly paralyzed, tourism is on a hold. However, the project of redesigning the city’s public spaces initiated in 2009 has made it significantly easier for people to access a quality outdoor space. As Broadway theater performances are put on hold, performers came out to the street and performed in Times Square. This demonstration of cultural resilience would not have been possible without the previous recognition and understanding of importance of open public spaces. Figure: Broadway dancers perform in Times Square as part of the Times Square Project Source: metro.co.uk/ Instagram/jenavanel 316 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development 4. Conclusion “Cities have the capability to provide something for everybody only because and only when, they are created by everybody” – Jane Jacobs When looking towards a sustainable urban future it is now impossible to imagine a prosperous city without one of its vital components - the open public space. Never before has the importance of access to quality outdoor living been more emphasized than during the current Covid-19 pandemic. The actions and strategies undertaken by governments, communities and private sector through temporary redesign and rethinking of space makes us seek precedent solutions that offer a longer lasting quality of public spaces. They also brough into focus the importance of collaboration between all stakeholders and the understanding that quality city space cannot be managed through strict decision making on one part only. Without community involvement and flexibility in adaptation of new design decisions that often require observation over certain periods of time, it is hard to achieve exceptional open public spaces. Apart from offering social interaction and economic exchange, these multifunctional areas enhance community cohesion and civic identity. Literature • Jerold S. Kayden, Privately Owned Public Space: The New York City Experience, Wiley, 2000 • Jon Kher Kaw, Hyunji Lee, Sameh Wahba, The hidden wealth of cities, World Bank Group, 2020 • J.Gehl and B.Svarre, How to Study Public Life, Island Press, 2013, • J.Gehl , Cities for People, Island Press, 2010 • Charles Montgomery, Happy Cites, FSG Adult; Reprint edition (October 7, 2014) • Jeff Speck,2012 Walkable City: How Downtown Can Save America, One Step at a Time, North Point Press 2013 • Jane Jacobs, The Death and Life of Great American Cities, Vintage, 1961, Reissue edition (December 1, 1992) • United Nation, Department of Economic and Social Affairr, retrieved from https://www. un.org/development/desa/en/news/population/2018-revision-of-world-urbanizationprospects.html • Our world data, Urbanization, retrieved from https://ourworldindata.org/urbanization • Project for Public Spaces, retrieved from https://www.pps.org/ • 2016. “Brooklyn Strand: Urban Design Action Plan.” Presentation, WXY, Brooklyn, NY. • Jahn Gehl, Learning from Boroadway retrieved from https://gehlpeople.com/blog/learningbroadway/ • UNESCO, http://www.unesco.org/new/en/social-and-human-sciences/themes/urbandevelopment/migrants-inclusion-in-cities/good-practices/inclusion-through-access-to-publicspace/ • NYC Department of Transportation, Green Light for Midtown Evaluation report 2010, retrieved from www.nyv.gov/dot • Bloomberg Cities, How cities are using ‘streateries’ to help restaurants recover? 2020, retrieved from https://medium.com/@BloombergCities/how-cities-are-using-streateries-tohelp-restaurants-recover-c697f1a9c510 317 Zbornik radova 2. Konferencija o urbanom planiranju i regionalnom razvoju_ održivi urbani razvoj Proceedings 2nd Conference on Urban Planning and Regional Development _ sustainable urban development 318 • Janette Sadik-Khan, Snohetta Makes Times Square Permanently Pedestrian, ArchDaily, 2013 retrieved from https://www.archdaily.com/465343/nyc-s-times-square-becomespermanently-pedestrian • Broadway dancers perform in Times Square as theaters remain shut due to coronavirus, August 2020 retrieved from https://metro.co.uk/2020/08/27/broadway-dancers-performtimes-square-theatres-remain-shut-due-coronavirus-13186466/