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JUN 0 5 1991 Rot.B DANCING WITH THE CITY: THE DUDLEY STREET NEIGHBORHOOD INITIATIVE AND LAND CONTROL IN ROXBURY by Jose Antonio Alicea B.A., University of Massachusetts 1988 Submitted to the Department of Urban Studies and Planning in partial fulfillment of the requirements for the degree of: Master of City Planning at the Massachusetts Institute of Technology June, 1991 @Jos6 Antonio Alicea, 199 All rights reserved ) Signature of Author: Jos6 Antonio Alicea Department of Urba Studies and Planning Certified by: Lisa Veattie, Prof sor Effirita of Urban Studies and Planning Thesis Supervisoi\ Approved by: Don Sch6n, Prof e 'tlroi fTRlfi Thesis Reader Accepted by: Phillip Clay, Associate Frotessor of Lfban Studies and PJ ning Chair, Master in City Planning Committee MASSACjU8j-S TSSTII UTE OF TECHuAne nfy JUN 0 5 1991 LIBRAHitS Rot.b TABLE OF CONTENTS Abstract...............................................................................................................................m D edicate d To ....................................................................................................................... iv Introduction ........................................................................................................................... 1 Definitions..................................................................................................................7 Chapter 1: Theoretical Perspective................................................................................... 10 The Cooptative M echanism ................................................................................... 12 Chapter 2: Econom ic H istory and D em ographics............................................................... 14 The Dudley Triangle.............................................................................................. 14 The History of Roxbury: Displacem ent .................................................................. 15 The History of North Dorchester: Transportation Driven........................................ 18 Chapter 3: Institutional Story.......................................................................................... 22 History of the Boston Redevelopm ent Authority .................................................... 22 This Dance has been Danced Before......................................................................... 26 The M andela Threat............................................................................................. 27 Chapter 4: H istory of D SNI............................................................................................ 29 Brief history of DSNI............................................................................................ 29 "Don't Dum p on Us:" Trash Transfer Closings .......................................................... 33 DSNI: Organizing for Land Control: The Process.................................................... 35 The Dance: A Cooptative Partnership .................................................................. 40 M otive: City.............................................................................................................46 M otive: DSNI........................................................................................................... 48 Funding Sources and Influence................................................................................. 49 Summ ary...................................................................................................................54 Chapter 5: Analysis: DSNI's Story as Cooptative Process ................................................ 55 Organizational Analysis ....................................................................................... 55 Organizational Needs........................................................................................... 56 Ideology....................................................................................................................57 1 Consequences ....................................................................................................................... 59 The non-multiplier effect........................................................................................ 59 DSNI Today ........................................................................................................... 60 W inners and Losers....................................................................................................64 Bibliography....................................................................................................................... 69 Appendix I: Perspectives on the Dance: The Interviews..................................................... 71 Appendix II: Sources of Funds (DSNI and PFD)....................................................................126 Appendix III: Socio-Economic Conditions.............................................................................128 Appendix IV: Political Theories Relevant to the Dance.......................................................137 ii ABSTRACT DANCING WITH THE CITY: THE DUDLEY STREET NEIGHBORHOOD INITIATIVE AND LAND CONTROL IN ROXBURY Jose Antonio Alicea Submitted to the Department of Urban Studies and Planning in partial fulfillment of the requirements for the degree of Master of City Planning at the Massachusetts Institute of Technology June, 1991 We see from where we stand; and why would we look unless we care about how the story comes out?l Through this research I define and describe the process of interaction between the Dudley Street Neighborhood Initiative, Inc. (DSNI) and City agencies, including the Boston Redevelopment Authority (BRA) and the Public Facilities Department (PFD), in the development of the Dudley Triangle Project in Roxbury. DSNI is a community-based organization established to plan and facilitate the development of approximately 500 units of affordable housing in Roxbury/North Dorchester. In order to bring this project into fruition, it has entered into a partnership with the City of Boston. I have looked at this partnership through the theoretical lens provided by Selznick's cooptative theory. In his study, Selznick schematized the implementation of a government agricultural program through grass-roots participation. He postulated that grass-roots organizations could be used through which to administer a top-down program. In this study, I go beyond Selznick, in that I propose that grass-roots organizations (DSNI) derive benefits from cooptation. The mutual benefits derived from a cooptative relationship are not visible from a top-down view. I also explore the organizational needs that motivate behavior, driving organizations into cooptative relationships. I further broaden Selznick's cooptative theory to explore the mutual benefit derived as tied to the overarching ideology, tying the two agents into a dance - in this case citizen participation. The data suggest that the organizational structure through which cooptation works has a pattern characteristic of past government/grass-roots relationships. In this case, the DSNI-City partnership has an underlying organizational structure with serious consequences for the neighborhood: power and control within the relationship creates a dominance and subjugation relationship that in this case drives physical development and deemphasizes human development -both of which are central to DSNI's ideology. Like a tango, the male dancer seems to control the flamboyant female, as he spins her around and around. But it is she that makes the dance.. .Roles reverse and diffuse. Lisa Peattie, Professor Emerita of Urban Studies and Planning, Thesis Supervisor Don Sch6n, Professor of Urban Planning, Thesis Reader 1 Lisa Peattie, Planning: Rethinking Ciudad Guayana, p. 5. DEDICATED TO Christian, Ev6lise, Jose Manuel, and Luis Martin ACKNOWLEDGEMENTS This work has been both enlightening and arduous. Consequently, I have many friends to thank. Professor Emerita Lisa Peattie for your guidance, insight, and more importantly, treating me like an adult. Professor Don Schbn for your honesty and no-nonsense approach. Professor Mel King for being there, when all seemed hopeless. Professor Louise Dunlap for useful comments and an attentive ear. Professor Marie Kennedy for reading material and a different view. To Ramon Borges for encouraging me to come to DUSP. To Mary Grenham for picking me up at times and always finding a way. To Jeannie Washington for sharing. To Harold Raymond for an open door. To Kim Stevenson for moral support. To Lanae Handy for patience and kindness. To Rende Okamura for empathy and sometimes a kick. And special thanks to Dulcinea Starr for your contributions to the dialogue and creating a space for me in your supportive community and the typing. To the people who shared with me their perspectives on the dance...and to my Mom. Thanks! Introduction INTRODUCTION Political officials are not passive bystanders: They are often the source of redevelopment policies and usually have a commitment to carry them out. In doing what they perceive to be their duty, they may resort to behavior that has the intended, or unintended, effect of stifling potential neighborhood response.2 The land control movement in Roxbury has joined a City planning institution (PFD) with an indigenous community planning institution (DSNI) in an inextricable dance. Through this thesis I explore the relationship and interaction between the City, through the BRA and PFD and the Roxbury neighborhood, through
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