Reimagining Rikers Island: a Restorative Justice Approach
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REIMAGINING RIKERS ISLAND: A RESTORATIVE JUSTICE APPROACH by Max J. Gottlieb Received and approved: _______________________________________________________ Date_______________ Thesis Advisor Signature _______________________________________________________ Thesis Advisor Name _______________________________________________________ Date_______________ Thesis Advisor Signature _______________________________________________________ Thesis Advisor Name _______________________________________________________ Date_______________ Chairperson Signature _______________________________________________________ Chairperson Name REIMAGINING RIKERS ISLAND: A RESTORATIVE JUSTICE APPROACH by Max J. Gottlieb Ⓒ2020 Max J. Gottlieb A thesis submitted in partial fulfillment of the requirements for the degree of Master of Science in City and Regional Planning School of Architecture Pratt Institute February 2020 Acknowledgements I would like to thank my advisors who guided and supported me through this process: Jen Becker and Courtney Knapp, as well as Ayse Yonder, John Shapiro and Beth Bingham. I would also like to thank those who provided the time and patience to share their professional and personal experiences about Rikers Island, land use and incarceration. I am particularly inspired by the writings of Ruth Wilson Gilmore, Jack Norton, Jarrod Shanahan, and Brett Story, all of whom provided great context for understanding Rikers Island in the age of mass imprisonment. This research would not be possible without the dedicated work of communities across New York City challenging the status quo of incarceration and actualizing the dream of a world without prisons. TABLE OF CONTENTS Chapter 1: Introduction 1 1.1 Statement of the Issue 1.2 Goal and Objectives 1.3 Methodology 1.4 Organization of Study 1.5 Literature Review 1.6 Summary Chapter 2: Overview of Rikers Island 21 2.1 Legacy of Rikers Island 2.2 Borough-Based Jail Plan 2.3 Redevelopment Proposals 2.4 Summary Chapter 3: Stakeholder Evaluation and Best Practices 41 3.1 Interview Procedures 3.2 Stakeholder Details 3.3 Key Findings 3.4 Best Practices 3.5 Summary Chapter 4: Recommendations and Conclusion 53 4.1 Findings 4.2 Recommendations 4.3 Limitations 4.4 Areas for Further Research 4.5 Conclusion Works Cited 66 Appendix 74 …It is also time to look ahead to how our city can repurpose this island, which has been a symbol and accelerator of misery for so many, and turn it to the use for public good. — Jonathan Lippman, Former Chief Judge of the New York Court of Appeals New York is like an Island, a big Rikers Island - The cops be out wilding, all I hear is sirens - It’s all about surviving, same old two step. — Nas, "The Don" (2012) “Prisons and prison populations are a reflection of what takes place outside of the prisons. .The direct relationship constitutes the basis by which we propose that there are no prison problems, only community problems. Once we begin to address community problems, prison problems will also be addressed.” — Eddie Ellis, Founder of the Center for NuLeadership CHAPTER ONE: INTRODUCTION 1.1 ISSUE STATEMENT In 2016, then-City Council Speaker Melissa Mark-Viverito launched the Independent Commission on New York City Criminal Justice and Incarceration Reform, which was led by former New York State Chief Judge Jonathan Lippman. The Commission was formed in response to a growing activist movement calling for the closure of Rikers Island, the notoriously violent and deteriorating city jail. A little over three years later, on October 17, 2019, the New York City Council passed a plan that would replace Rikers with four borough-based jails in its stead. The contentious $10 billion plan proposed a downsized Rikers population to be moved to smaller, localized facilities, with greater proximity to courthouses and communities. The plan also included investments in alternatives to incarceration and other neighborhood-centric programming. The plan faces significant challenges ahead, but leaves the fate of the storied 400-acre island unclear. Rarely does such a large parcel of land become available for redevelopment in a city where every inch of real estate is commodified and prized. The island also has severe limitations: limited accessibility, hazardous and contaminated land, and a brutal legacy that has left a devastating impact on communities, families and neighbors. Like most institutions in the criminal justice system, the facilities of Rikers have historically consisted of Black and Latinx men from a handful of outer-borough neighborhoods. These neighborhoods are the victims of racist urban policies of 1 redlining, urban renewal, and zero tolerance policing that have led to their divestment over decades, and still suffer from high rates of poverty, unemployment and high-risk housing. Incarceration is a powerful force in many communities; it interacts with all of the social determinants, impacting the health of people and communities across the country. Reformation of the American carceral system is now in mainstream political discourse. As governments begin to recognize community calls to reassess the impacts of the criminal justice system on low-income and high-needs populations, local officials and planners have an opportunity to work with communities to develop a future for Rikers based on collaborative decision-making. How can the redevelopment of Rikers Island be used to invest in justice-involved communities? Three main research questions guided this thesis: 1. What opportunities exist to redevelop Rikers Island? 2. How can the reimagining of Rikers incorporate a community-driven framework? 3. How are restorative justice frameworks applied in urban planning? 1.2 GOAL AND OBJECTIVES The goal of this thesis is to explore the issues and best practices of facilitating a revisioning of post-carceral land and how this can be applied to Rikers Island. Primarily, this study seeks to contribute to a growing body of research about the intersection of land use, decarceration and restorative justice planning. 2 The first objective of this study is to understand the context of incarceration and its socioeconomic impacts, the current efforts to reuse carceral facilities, and the framework of restorative justice through an extensive literature review. The second objective is to understand the existing conditions and history of Rikers Island and examine redevelopment proposals. The third objective is to understand the development potential of Rikers through the lens of restorative justice. The fourth objective is to provide recommendations to the City of New York for the redevelopment of Rikers Island and incorporate community-led decision- making processes. 1.3 METHODOLOGY This study employs a mixed methodology. The literature review in Chapter One will provide context for understanding the legacy of Rikers Island on New York City’s poorest communities, as well as the opportunity for the redevelopment of Rikers. The literature review is comprised of two major themes: first, a survey of incarceration, decarceration and its impact on community. This includes the spatial and socioeconomic analysis of incarcerated populations and the reuse of carceral facilities. The second section is an overview of restorative justice theory and key concepts as a framework for planning. This section also includes contemporary theories of abolition and equity planning as approaches for the redistribution of power in the context of decarceration. Chapter Two examines existing plans and 3 reports for redeveloping Rikers Island put forth by independent commissions, elected officials, advocacy organizations and design firms. News media, conferences and community meetings regarding proposed plans for Rikers are also utilized. Lastly, Chapter Three utilizes interviews with 13 stakeholders who represent community organizing and policy-making institutions. Interviews provided substantial depth to each of the plans, as well as identify development benchmarks and criteria. Interviews in Chapter Three are supported by ‘best practices’ from three comparable projects. 1.4 ORGANIZATION OF STUDY Chapter One: Introduction and Literature Review Chapter Two: Understanding Rikers: Context, History, Redevelopment Chapter Three: Stakeholder Evaluation and Best Practices Chapter Four: Recommendations 1.5 LITERATURE REVIEW The aim of this literature review is twofold. The first part of the review provides a survey of the prevalence and impact of carceral facilities in the United States. This section builds upon research that explores the disparate impact of incarceration on low-income and Black communities. The section will also discuss approaches to decommissioned carceral land and theory. The second section explores restorative justice as a framework for planning in the context of decarceration. After establishing the impact of correctional facilities on 4 low-income communities, how do we mitigate it using an approach rooted in healing, reintegration and mediation? This section includes an exploration of the work in contemporary fields of scholarship like abolition and equity planning that contribute to the decarceration movement. I. INCARCERATION, DECARCERATION AND REUSE IMPACTS OF INCARCERATION ON LOW-INCOME COMMUNITIES As of 2019, the United States remains the most incarcerated nation in the world: the U.S. justice system holds nearly 2.3 million people between state and federal prisons, juvenile correctional facilities, and local jails, as well as state psychiatric hospitals, military prisons, immigration detention