Adaptation for All
At the Environmental Design Research Association (EDRA) conference in New Orleans, the focus was on change — and how change will impact cities’ search for social equality. Much of urban infrastructure will need to be bolstered to survive population booms or busts, economic growth or stagnation, and climatic shifts and increasingly frequent natural disasters. But as cities adapt to these changing social, economic and climatic circumstances, are the most vulnerable being heard? When cities bounce back from all kinds of disasters, are all communities in the city, both rich and poor, equally as resilient?
Jeff Hebert, executive director of the New Orleans Redevelopment Authority (NORA), said, at its peak in 1960, New Orleans had a population of 630,000. After Hurricane Katrina, the “costliest natural disaster in U.S. history,” the population fell to 220,000. Now, it’s up to 369,000, still way off its peak. “We’ve been losing population for decades. Pre-existing patterns just tend to reinforce themselves in the aftermath of a disaster.” Since 1960, the population has grown in the suburbs while the core has lost density. By 2004, the number of vacant parcels was around 20-30,000. Detroit or Cleveland have a similar amount.
New Orleans is found along the banks of the Mississippi River. Land at the edges of the river is actually highest, as it has slowly accumulated there over thousands of years. Beyond these high points along the river, the city’s geography dips, forming a bowl. The French Quarter and other historic settlements are all found on high ground, meaning they are really just a few feet above sea level. Many low-Income communities like the lower 9th ward are under sea level. These neighborhoods were made possible by a pump system invented by the city. “We started building in swamps, exacerbating other environmental issues. Maybe our ancestors had it right building just on high ground.”
After Katrina struck, some 34 affected coastal parishes and New Orleans began to receive assistance through the federal Road Home Homeowner Assistance Program. As “there was no comprehensive plan, the feds took a piecemeal, local approach.” On a one-by-one basis, people could either come back to their old houses and received funds to rebuild, or got funds to rebuild somewhere else. Some 130,000 people got $8.9 billion in grants through this program. The result: “They left us with a patchwork of land.”
NORA was handed all the leftover, empty lots. They have gotten the inventory down from 5,000 to around half that. “Most of the remaining inventory is on lower ground. Some of those neighborhoods came back and others didn’t.”
So NORA initiated an innovative adaptation program for many low-income areas, with “green infrastructure, lot stabilization, alternative maintenance, and two technical assistance programs: growing green and growing home.” Hebert said these programs are about “connecting with the community about local stormwater and beautifying neighborhoods through great landscape design.”
Getting many locals in the poorer parts of the city to buy into empty lots as stormwater management systems will be tricky. “We have to change what is seen as a black eye into something beautiful that increases the quality of life and property values.” A big part of the campaign is educating many who have been there for generations about hydrology and geology. At least New Orleans is focusing on how everyone must adapt.
Roberta Feldman, an architectural activist and founder of the UIC City Design Center, then discussed how “urban redevelopment screws people,” particularly in cities like Chicago. Cities must be more sensitive to existing populations as they make way for new ones. She said Chicago’s latest housing plan will create “high-density, high-price public housing that is not socially just or cost effective.” Instead of redeveloping existing public housing complexes, the city often just tears them down and asks the poor living there to move into apartments somewhere else in the city or join in a public mixed use development. The problem is their existing community has been dismantled, “and these residents don’t want to move.” These efforts are also not cost-effective, Feldman argued, because creating new housing invariably costs much more per square foot than simply revamping older buildings. If the city had used the money more wisely, more public housing could have been developed. “The housing authority could have renovated 25,000 units for the same price as 9,000 new units.”
Cecilia Martinez, recently head of the UN-Habitat in New York, said “we must blame architects for much of the mess” we face trying to adapt cities to change. “They assume a lot. By World War II, they had initiated the Modern City movement and assumed the car would re-organize the city. Because of the car, we had super-blocks, so no one walks anymore. They said ‘let’s do low density. Let’s put towers in the middle of gardens.’” Graphed on top of this car-based system is a developer-led system, which marginalizes the poor. As a result, “Latin America is either super-highways and super-blocks or slums.” Martinez said this urban model is clearly broken because some 800 million people live in slums without access to public spaces. “While New York City, one of the world’s wealthiest cities, is comprised of some 60 percent public space — when you add in streets, parks, and plazas — the slums in Kenya have maybe 1 percent public space.” To enable everyone to adapt, “we need to focus on walking and biking, public spaces, and mixed social structures.”
“In all of the world’s deltas, large changes are taking place,” said Han Meyer, a professor at Delft University in the Netherlands who offered a broader framework for adaptation. The problem is these deltas and other coastal areas are the site of much of the world’s urbanization. There are multiple dynamics happening at once. “There are the dynamics of the natural environment. One thousand years of land-water relations change. The way deltas carry sediment changes over time. These changes have been caused by climate change since the Ice Age, and the process has been ongoing for a long time. Then, here’s the societal use of the delta. Dynamic land-uses plus nature means a very complex system that will continue to change. We need to be able to adapt both types of environments. They are at different frequencies, rhythms. The problem is nature has a different time scale for change than societies.” So his answer for how to adapt to change: “There can be no final plans. We can only build different scenarios. “