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Governing Vacant Land Reuse in Cleveland, Ohio

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Governing Vacant Land Reuse in Cleveland, Ohio Crisis-Opportunity, Liability-Asset: Governing Vacant Land Reuse in Cleveland, Ohio by Samuel Walker A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Department of Geography and Planning University of Toronto © Copyright by Samuel Walker, 2018 ii Crisis-Opportunity, Liability-Asset: Governing Vacant Land Reuse in Cleveland, Ohio Samuel Walker Doctor of Philosophy Department of Geography and Planning University of Toronto 2018 Abstract This dissertation contributes to the literatures on post-2007 urban governance and urban greening by drawing novel connections between vacant land reuse, including urban agriculture, and the structures of urban governance. Through a historical analysis of housing vacancy, an institutional analysis of Cleveland’s community development industry’s response to the 2008 foreclosure crisis, and a case study of a vacant land reuse project, I argue that Cleveland’s community development industry shifted towards vacant land reuse and intervention to stabilize property values in response to the foreclosure crisis. This shift reveals a temporary resolution of the failure of subsidized housing construction following the crisis, but does not represent a significant departure from neoliberal community development. While the City has been effective in fostering certain forms of reuse, the heavy involvement of the community development industry and community foundations, combined with a local government facing fiscal pressure, has resulted in a constrained political field of opportunity for vacant land reuse. By devolving the labor of lot maintenance onto residents and continuing to prioritize traditional economic development, many of the possibilities for using vacant land reuse for social and environmental justice have been limited. However, I also show that the incorporation of vacant land reuse within the community development industry in Cleveland was the outcome of a process of weak iii contestation, negotiation, and path dependency, not a simple imposition of neoliberal ideology. Additionally, my findings concerning reuse projects on the ground reveals the shortcomings of relying on under-resourced resident labor and shows cracks in the hegemony of private property and market logics in high-abandonment neighborhoods. My findings point to the importance of studying how greening projects are interacting with preexisting structures of urban governance. It suggests that the commodification of land and market-based community development places limits on vacant land reuse that directly benefits residents and works towards environmental and food justice. iv Acknowledgments First, I would like to thank my supervisor, Sarah Wakefield, for being so supportive and helpful as I worked on this project. She continually offered good advice and kept me on track. My experience was greatly improved by the discussions with my colleagues on the Food, Equity, and Activism Study Team (FEAST). I truly appreciate how Sarah made FEAST a collaborative project. FEAST’s financial support was also pivotal in shaping this research; the project would have suffered without it. I also benefited from discussions and friendship with the other members of FEAST: Jillian Linton, Jina Gill, Lauren Kepkiewicz, Madelaine Cahuas, Madeline Whetung, and Michael Chrobok. Charles Levkoe moved on before FEAST came to life, but he could be considered an honorary member and was an enthusiastic and inspiring mentor to me in Toronto. I was also fortunate to have two very supportive and engaged committee members in Jason Hackworth and Mike Ekers. Jason’s passion for understanding American cities and commitment to clear argumentation and empirics was a major inspiration for my work. Mike provided thoughtful and sincere engagement with my work, including immensely helpful close readings. I also appreciated his help reading Gramsci! My dissertation was helped through its final stages by the insights of David Wilson, Susannah Bunce, and Michael Widener. I am particularly in debt to Michael for his late-stage help with the model found in Chapter 3. David and Susannah put care into their engagement with my work for the external exam. Their feedback will no doubt prove crucial moving forward. Attending the Canadian Association of Geographers in 2017 and the American Association of Geographers in 2016 and 2017 allowed me to receive useful feedback on parts of this work. Thanks to Julie Mah, Maxwell Hartt, Yolande Pottie-Sherman, Maano Ramutsindela, Bram Büscher, and Elizabeth Lunstrum for organizing the sessions, asking the right questions, and ultimately improving my work. Graduate school and my life in general were both made much more enjoyable thanks to the passionate, intelligent, and humorous group of students I got to know while in Toronto. Working with my colleagues in class, through GGPASS, over beers at the GSU, and on the picket line taught me so much. Thanks to: Adam Zendel, Andrew Merrill, Angela Day, Austin Zwick, Becky McMillan, Benjamin Butler, Beyhan Farhadi, Bryan Dale, Caitlin Henry, Charles Chiu, Chloe Fox, Christopher Webb, Cynthia Morinville, Elsie Lewison, Emily Reid-Musson, Isabel v Urrutia, James Nugent, Jeff Biggar, Jeff Biggar, Julie Mah, Killian McCormack, Laura Tozer, Lazar Konforti, Lia Frederiksen, Martin Danyluk, Nick Lombardo, Nicole Latulippe, Raili Lakanen, Robert Kopack, Travis Bost, and Yi Wang. Thanks are due as well to the Department of Geography and Planning, including Jessica Finlayson and other staff who helped me navigate the program. Thanks also to Transcript Heroes for helping with transcription. Special thanks are reserved for Bryan Dale and Kim McFadden. Through countless hours in the basement of Sidney Smith Hall, on the road, around campus, and in their home, they were commensurate hosts and friends. They also played a key role in my continued Canadian education, particularly on 1990s Canadian rock, Juno award winners, and the geography of Ontario! I am fortunate as well for my friends and colleagues from the University of British Columbia. Emily Roseman sparked my initial interest in Cleveland and did not give up on our collaborative project. I always enjoy yelling about political economy over doom metal with Tom Howard. Thanks to Wes Atwell for hanging out and eating donuts with me. Many others at UBC helped me through this process directly or indirectly. Thanks to Carolyn Prouse, Catriona Gold, Craig Jones, Dan Cohen, Elvin Wyly, Jeff Whyte, Mikael Omstedt, and Sage Ponder. Thanks to Jamie Peck and Scott Prudham for letting me participate in their reading and writing groups. My students in Toronto and Vancouver also helped by forcing me to be clear and for being patient and enthusiastic. Also in Vancouver, thanks to Main Squad for providing escape from academia: Chelsea Kenmuir, Hannah Rosenberg, Jamie Spittal, Jenn Dickieson, Jon Hall, Lars Reynaud, Lindsay Vermeulen, Maggie Payne, Mark Keresztes, Matt Hall, Mick Stobart, Rob Bird, Sarah Bergeron, Terra Pope, and Lexie Evers. You did not make me talk about my work when I did not want to and listened attentively when did, and that’s what I appreciates about you. You are all a different kind of nerd, and I am lucky to count you all as friends. Matt Hall deserves special recognition for letting me use his office. Much of this dissertation was written on various pieces of computer equipment generously donated by Jamie Spittal. This research would have been impossible without the help of numerous folks in Ohio. Jason Reece and Matt Martin at the Ohio State University provided me with their digitized shapefile of the 1940 Cuyahoga County Home Owners' Loan Corporation map. Alex Robertson and my other roommates in Cleveland provided a warm welcome and a taste of Midwestern hospitality. I am vi grateful I had the opportunity to talk Cleveland radical politics and food justice with Justine Lindemann. Amelia Caldwell and I had a very useful discussion about historical housing and demographic datasets pertaining to Cleveland. I was very lucky to find many participants who wanted to talk to me about community development, housing, land reuse, and urban agriculture in Cleveland. Many people took time out of their busy lives to talk with me about their experiences, welcomed me into their homes and gardens, and even prayed for me during my surgery. I was so lucky to have such kind, thoughtful, and good-natured participants. I hope this work does our conversations justice. Special thanks are due to the staff of Cleveland Neighborhood Progress and the City of Cleveland for being extremely helpful in meeting with me and sharing data. I offer a critical eye on community development in this thesis, but that does not discount the important work they and others do in Cleveland. My family has always been extremely supportive of my research. I am glad they put up with the lack of common sense and stability and the excess of mobility that accompanied it. My mother, Mary Walker, and father, Andy, have always been cheering for me. I would like to thank my father for stoking my intellectual curiosity. If he had not been an engineer, he would have made a damn good historian. If he ever writes something I will read it; maybe we can trade manuscripts? I would like to thank my mom for always providing a warm welcome down south when I had time off and for coming up to Cleveland to help me recover from surgery. My brother Joe and his fiancée Nova Jean Hubbard provided a welcome escape from fieldwork. I am always thankful for any time we get to spend together and chat about music, food, pets, and politics. My new family in Vancouver has also been tremendously helpful through the process of grad school. Nick and Julia Glass always welcomed me into their home and provided love and warmth through sometimes difficult times. The rest of the Glasses, Leckies, Ryans, and Condies provided encouragement, nourishment, and welcome distraction through this whole process; thanks Alex, Andy, Vaughan, Graham, Emily, Gerry, Penny, Rachel, Glen, Zoe, and Natasha. Thanks are due as well to my canine writing buddies: Desi, Cassie, Hattie, Homer, and Honey Bun.
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