Reclaiming Vacant Lots

LOTS Of POTENTIAL

Reclaiming Vacant lots in the city of milwaukee

David Lange • Jarred Lassiter • Bre McDonald • Nancy Maring • Jenna Ormson • Lane Masoud

PRePaRed foR the city of milwaukee dePaRtment of city deVeloPment

may 14, 2013

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Executive SummaryThe City of Milwaukee owns and maintains more than 2,700 vacant lots. Vacant lots pose a financial burden on the city both in maintenance costs and lost revenue. They can attract crime and detract value from neighborhoods. This vacant lot reuse plan explores the many ways that vacant land can be—and in many cases already is—an asset to Milwaukee and its residents.

A number of cities in the US have similar challenges in addressing vacant lot issues and how best to return them to productive use. For city governments, productive use usually means generating tax revenue. However, cities across the nation are rethinking the design and use of land. The City of Milwaukee asked for assistance in developing a variety of creative treatment options for vacant property reuse, from urban agriculture and pocket parks, to multi-use development and stormwater management strategies.

The analysis began with in-depth research of what other cities have accomplished in regards to the successful vacant lot reuse. Research was focused on older Midwestern cities that have experienced a decline in their historically prosperous manufacturing base, known colloquially as the Rust Belt. As this situation is also relevant for Milwaukee, it was determined that these cities would be the most appropriate to obtain compatible lessons and strategies from.

Once findings from this research, called Lots to Learn, had been analyzed and categorized, existing policies and programs were explored in the City of Milwaukee to look for areas where these lessons could be applied. Additionally, analysis began on the predefined target area, centered on the Harambee and Brewer’s Hill neighborhoods. This area contains a significant number of vacant lots, under a variety of conditions. It was felt that given these unique circumstances, it could be used as a guide to extrapolate various strategies for use citywide.

Finally, in order to develop a broader, comprehensive strategy for returning vacant lots to productive use, utilization categories were developed to provide an overarching scheme for reuse treatments: Simple Solutions, Development, Urban Agriculture, and Environmental Strategies.

Simple Solutions is a strategy that can be implemented quickly to enhance the appearance of lots and find new or existing management opportunities for vacant properties. Capital Development is a strategy that continues and finds opportunities to enhance the overall objective of the City to return vacant parcels back to the tax base. The Urban Agriculture strategy outlines the challenges and opportunities in producing food on vacant lots. Finally, the last category is Dedicated Environmental Strategies that incorporates the stormwater management needs of the city, such as green infrastructure techniques and passive green space.

The productive reuse strategies developed in this project are grounded in the vision of a sustainable Milwaukee. Nationally, Milwaukee is becoming a leader in water technologies, sustainability and water management. Stormwater management through green infrastructure has been added as an overarching recommendation to each strategy. As Milwaukee continues to be a national leader in green infrastructure and a protector of the region’s abundant water resources, it is important to deeply integrate sustainable practices throughout all parcels in the City.

5ExEcutivE Summary

thE rolE of thE community

All along the way, every possible effort to involve community stakeholders in the process was made. In order for any vacant lot reuse to be successful in Milwaukee, it must actively engage individual members of the community on the ground so that the recommended solutions can accurately reflect the expectations, needs, and desires of the people they would most directly affect.

The meeting took place midway through our research and analysis efforts, and was timed to seek the input of the participants and inform them about what was being learned. The small meeting provided many takeaways from the stakeholders that were incorporated into preparing the final report. The reciprocal nature of this process embodies the overarching theme of the project - that community involvement is crucial and it should always be community members with the biggest stake in the outcome.

After the public meeting, further research and analysis determined the development of a decision-making tool, which City staff can use to determine the most appropriate reuse strategy for a specific lot based on physical criteria. This decision-making tool, called Leveraging Your Lots, is a means to produce a definitive recommendation on a lot-by-lot basis. This way multiple safeguards are built into the process, so that the user can be confident in their final choice.

rEcommEndationS

This report recommends that the City of Milwaukee utilize the decision-making tool, Leveraging Your Lots. The tool was developed to assist and guide the City in efficiently assigning future uses to its inventory of vacant lots. In order to complement the productive reuse strategies, it is recommended in this report that the City make an effort to incorporate stormwater management into every long-term reuse project. The availability of these lots creates a unique opportunity for investment in responsible water resource practices, and Milwaukee can use this to further enhance its reputation as a leader in sustainable land use planning.

Additionally, the City of Milwaukee has been provided with a pattern book, called the Portfolio of Potential, that provides helpful descriptions and illustrations. The Portfolio of Potential is complementary to the Leveraging Your Lots tool by enhancing the criteria and formula involved. However, the pattern book outlines and illustrates many vacant lot treatments. The book is intended for use by City of Milwaukee staff but also for residents and community groups in Milwaukee who are interested in reusing city-owned vacant lots. Throughout the project’s public input process, it has become evident that vacant lot reuse invokes excitement and passion from residents. The Portfolio of Potential can be viewed as a community stepping-stone for creative reuses for vacant lots.

Our recommendations will assist the City of Milwaukee in a more detailed approach to vacant lot reuse strategy on a citywide level that will aid in driving the vision of a sustainable Milwaukee. With the use of Leveraging Your Lots and the complementary Portfolio of Potential Pattern Book, Milwaukee will actively drive reinvestment in communities and create a future of sustainable growth.

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Table of Contentsintroduction

ProblEm

viSion

GoalS and objEctivES lotS to lEarn citizEn EmPowErmEnt lEvEraGinG your lotS StormwatEr manaGEmEnt

ExiStinG conditionS in milwaukEE

lotS to lEarn chicaGo, il clEvEland, oh indianaPoliS, in PhiladElPhia, Pa dEtroit, mi younGStown, oh PittSburGh, Pa Summary & findinGS

utilization catEGoriES SimPlE SolutionS caPital invEStmEnt urban aGriculturE dEdicatEd EnvironmEntal StratEGiES

community StakEholdEr Summary

rEcommEndationS tarGEt arEa analySiS Policy obStaclES to ovErcomE actionS to imPlEmEntation

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11

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1414151515

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181921232527293133

3738405054

60

6468848587

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AcknowledgmentsA special thank you to our clients: Janet Grau, Nolan Zaroff, Yves LaPierre, and Vanessa Koster from the City of Milwaukee’s Department of City Development for offering us their dedication, feedback and support throughout this project.

We would also like extend a special thank you to the following professionals and community members for their support and engagement. Vacant lots deeply affect a community and without their time and valuable input, this report would have not been possible.

Carolyn Esswein - University of Wisconsin-MilwaukeeNancy Frank - University of Wisconsin-Milwaukee Ivy Hu - University of Wisconsin-Milwaukee

Barry Spencer - St. Marcus Church & School Alderwoman Milele Coggs - 6th District Alderman Nik Kovac - 3rd District Dannell Vance - City of Milwaukee, Department DPWRaphiel Cole - City of Milwaukee, Department of DPW

acknowlEdGmEntS

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Midwestern cities face an impasse as vacant lots become more abundant. Vacant properties drain city resources; additionally, they are a detriment to the local economy and social fabric of neighborhoods. The rate of vacant land in Milwaukee is significantly lower than similar Midwestern cities. Therefore, vacant parcels remain a challenge and opportunity rather than a crisis. The City of Milwaukee currently owns and maintains more than 2,700 vacant parcels. In an effort to transform these lots into community assets, the city is seeking assistance to enhance current vacant lot strategies and examine potential short and long-term reuse solutions.

This effort, as requested by the Milwaukee Department of City Development takes a multi-pronged approach in confronting the challenge of vacant lot reuse:• A review of practices and strategies used by

comparable cities that could be applicable in Milwaukee.

• An evaluation of the current situation in Milwaukee focusing on ordinance, code, and procedural challenges that might be slowing or inhibiting progress.

• Identification of vacant lot redevelopment strategies and creative solutions to aid in reinvestment and the health of the City of Milwaukee.

Introduction

introduction

While our project seeks to find solutions applicable to all current and future city-owned vacant lots, a target area was selected to provide a detailed example of how recommendations in this reuse plan might impact any given Milwaukee community. The target area is unique but includes many of the features of Milwaukee: a commercial corridor, historic district, residential development, park space and a business improvement district. It also sits at the intersection of three distinct neighborhoods: Harambee, Brewers Hill and Riverwest.

Most of the area is considered to be in the Harambee Neighborhood. Clarke Street bounds the area to the North, Garfield Avenue to the South, Holton Street to the East, and Martin Luther King Jr. Drive to the West. Vacant lots in this target area were used as examples to show how to use the tools developed to assign reuse strategies.

To identify reuse strategies that are applicable for each individual vacant property in Milwaukee, a GIS analysis was completed using physical characteristics or market factors where relevant. Using specific criteria, a decision making tool was created to guide the City in determining viable reuse strategies for vacant lot reuse.

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Project target area with neighborhood context.

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ProblemThe City of Milwaukee has more than 2,700 vacant lots due to foreclosure, abandonment and tax delinquency. While the city has recently revised many of its land use policies to allow for alternate uses of vacant lots, an overall effective plan to manage these lots is still lacking.

Vacant parcels put a strain on the city’s finite resources, resulting in neighborhood disinvestment, and can foster a negative image. A reuse strategy to guide decision-making for vacant lot use must be developed to encourage creative solutions and drive reinvestment in the city.


Vision

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“A sustainable Milwaukee uses vacant lots as creative assets to neighborhood

communities, involving a network of community groups, businesses, city

departments, and residents invested in the health of the city.

Early beginnings at Walnut Way on Milwaukee’s northeast side.

viSion

”


Goals and ObjectivesThis project seeks to identify efficient and useful strategies for vacant parcels in the City of Milwaukee. Returning vacant lots to productive use will create community assets and improve neighborhood stability. The City of Milwaukee’s main objective is to return vacant properties to the tax base, but other options need to be explored with current market conditions. Traditional productive uses include selling to private owners for development, side yard expansion or adjoining lot sales and preparation for economic development.

However, as Milwaukee transforms into a sustainable city of the 21st century City staff are reconsidering parcel use for environmental amenities, open space, green infrastructure and the growing urban agriculture movement. The following goals and objectives define the purpose and intent of the vacant lot reuse plan: identifying practices in other cities, citizen empowerment, the development of a decision-making tool, and promotion of stormwater management techniques.

Community members and non-profits work together to add color and amenities at Scooter’s Garden of Hope on Milwaukee’s northwest side.

lotS to lEarn

Identify practices implemented in other cities where vacant lots have been successfully returned to constructive uses. Focus on the feasibility and applicability of practices, policies, and strategies in Milwaukee.

A successful program is defined as one that:• Includes a combination of –and often overlapping-

projects that benefit the environment, improve the health and well-being of residents, and foster economic development.

• Reduce the number of unused vacant properties.• Incorporate in-depth input and participation

from the community.• Focus on long-term projects and policies, but

also incorporate interim uses for the short-term uses.

• Include a long-term management plan that identifies responsible parties.

• Takes advantage of opportunities to incorporate green infrastructure.

A feasible program should:• Be financially viable over the life of the given

project. • Whenever possible, incorporate public private

partnerships for lot management or funding alternatives.

15GoalS and objEctivES

citizEn EmPowErmEnt

When viewed as a blank canvas rather than a barren landscape, an empty parcel becomes a tool in the neighborhood revitalization process rather than a detriment. Therefore, implementing reuse strategies will improve the overall perception of vacant lots throughout the city.

• Encourage community members to develop a sense of ownership over vacant parcels in their neighborhoods.

• A feeling of investment in the health of one’s neighborhood.

• Awareness of how one can positively affect their neighborhood, by initiating projects independent of, or in cooperation with, the City or other outside organizations.

• Identify and foster partnership opportunities between the City and residents to help determine and implement solutions.

• Provide residents with a set of tools that will help empower them to lead vacant lot initiatives from within the neighborhood, rather than relying on the City to make changes.

lEvEraGinG your lotS: a dEciSion-makinG tool

Establish a standardized, systematic method to determine how vacant parcels should be utilized, and provide strategies to return lots to an economically productive use.

• Determine and analyze specific nodes of economic development.

• Identify and illustrate specific uses for vacant parcels using the Leveraging Your Lots Tool in the Target Area.

• Identify lessons learned from residents and community groups, regarding which strategies are ineffective or are not feasible in Milwaukee, given various conditions and constraints.

• Identify possible partnerships for management of vacant properties.

• Identify possible funding avenues and resources for vacant lot reuse.

StormwatEr manaGEmEnt

Promote green infrastructure strategies in order to address current stormwater management challenges in the city, as well as, future water problems in the larger metropolitan area.

• For each recommended use, incorporate a stormwater management component, along with possible funding options.

• Identify educational and research opportunities to enhance stormwater management strategies.

• Identify stormwater management strategies based on the needs of the surrounding neighborhood.

The non-profit neighborhood organization, Walnut Way, is renowned in Milwaukee for

reactivating vacant lots and engaging Lindsay Heights neighborhood residents.


Existing Conditions in MilwaukeeThe City of Milwaukee’s current vacant lot strategy is to sell vacant lots and put the parcels back on the tax base to provide economic benefit to the community. This is the City’s main objective with reuse of vacant land. Unfortunately, due to the most recent recession the City has found it to be more difficult to find qualified prospective buyers. The City of Milwaukee continually manages and maintains vacant property across many departments. This work entails such duties as inspection, general landscape maintenance (mowing, plowing), debris removal and more, costing the City on average $3,700 per parcel to maintain a year.

The City of Milwaukee has revised many of its land use policies to allow for alternate uses of vacant lots, but city staff are researching more creative reuse designs to make vacant lots active and providing a benefit to the community. The City has a policy to hold or “land bank” vacant parcels for new construction or infill projects if they are buildable lots. In recent years, the Department of City Development has revised its policy to allow for short-term leases for such uses as urban agriculture on buildable lots. In some cases the City will sell vacant parcels to a community steward or neighborhood that has a track record of good management and land care habits and is up-to-date with their taxes.

The City of Milwaukee markets and advertises vacant parcels for both residential and commercial use on the Milwaukee Department of City Development (DCD) website. Prices for vacant lot range depending on the land use and size of the lot. The city sells vacant lots that are deemed buildable at a price point based on the number of feet of street frontage. When appropriate, the city will price buildable vacant lots at $1 in order to accelerate the purchase and development of the parcel.

Residential development is promoted on the DCD website

as an affordable option to build a new home in proximity to the amenities of urban life: parks, schools, shopping, jobs, and

entertainment.

The range in price is from $2,000 (3239 North Achilles; 2,660 square feet) to $60,000

(5861 North 121st Street; 12,653 square feet). When appropriate,

the city will price buildable vacant lots at $1 in order to accelerate the purchase and development of the parcel.

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Part of the City of Milwaukee’s desire to develop a more definitive vacant lot reuse strategy comes from intensive Environmental Protection Agency (EPA) Urban Agriculture Code Audit that occurred in summer 2012. The audit provided the City with recommendations needed for restructuring agriculture code or zoning definitions and removing potential barriers to urban agriculture in Milwaukee. Working on a more comprehensive strategy dealing with vacant lots will enable the City to enact recommendations made in the Urban Agriculture Code Audit, while meeting other city needs. Across the City of Milwaukee, organizations are acting on the potential that vacant lots possess. Urban agriculture groups are leasing properties - and buying them when allowed by the City - to establish community gardens, hoop houses, greenhouse, and urban farms in neighborhoods. In the last 15 years the City has helped major redevelopment efforts happen, such as the Menomonee Valley, 30th Street Industrial Corridor, Pabst Brewery, and The Historic 3rd Ward. In many cases, development is being coupled with dedicated environmental strategies to provide better stormwater management and community open space for recreation or urban agriculture. The mix and integration of uses in Milwaukee neighborhoods offers a strong promise for a sustainable future.

The City of Milwaukee has worked diligently since its EPA urban agriculture code audit in

June 2012.

Urban Agriculture Code Changes

Completed Underway

Allowing the raising of chickensChicken coops allowedAllowing beekeeping

Increasing seasonal sales from 90 to 180 daysUpdate the agriculture use categoryCreate definition for aquacultureAllow agriculture related personal instruction schoolsClarify that accessory buildings used for agricultural purposes in residential zones are permitted even if there is no principal buildingAllowing the raising of crops or livestock to special use in commercial or industrial districts

Please note this is not a comprehensive list of urban agriculture changes at the City of Milwaukee.

Above is a site in the 30th Street Industrial Corridor, part of a major redevelopment effort in

the City of Milwaukee.

ExiStinG conditionS in milwaukEE


Lots to LearnVacant lots are affecting urban areas throughout the nation. As this issue has grows for many U.S. cities and there are new appeals for urban revitalization. Milwaukee can adapt reuse and management strategies that other cities have employed. Additionally, Milwaukee can learn from policy changes that other cities have made, particularly those that facilitate the productive reuse of vacant lots. This section puts specific focus on cities that were requested for in-depth research, as well as, a few additional cities that have successful programs applicable to Milwaukee.

Some programs discovered, such as those in Philadelphia, have a long track record of success while others are relatively new, such as Chicago’s Green Healthy Neighborhood Initiative and Reimagining Cleveland. These programs offer different options for management and reuse strategies. Many of the strategies used in other cities are those that Milwaukee is currently employing, or strategies that show promise of being successful in Milwaukee.

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Chicago, Illinois

activE vacant lot ProGramS

Neighborhood StabilizatioN Program

The Neighborhood Stabilization Program (NSP) is a federally funded program that aims to combat the challenging housing market that affects neighborhoods across sections of Chicago. • Provides funds to improve housing• Energy efficiency upgrades• Help people stay in their homes

Cook CouNty laNd baNk

The Cook County Land Bank is a long term solution to addresses the vacant property issue on a regional level rather than on a case-by-case basis. • Groups vacant parcels for new development• Controls the release of vacant parcels to the

market• Allow for short-term use for community needs

• Population: 2.8 million (third largest city U.S.)

• 28 square miles• More than 50,000 vacant lots in its land

bank• Large concentration of vacant lots on

Chicago’s south side

lotS to lEarn: chicaGo

greeN healthy NeighborhoodS iNitiative

This program aligns agriculture sites with transportation allows greater access to the site and makes shipping produce easier. GHNI also emphasizes the use of green infrastructure on vacant land, to help alleviate stormwater issues in Chicago. • Promote and increase urban agriculture• Forming partnership management structure• Job Training

NeighborSPaCe

NeighborSpace (NS) is a nonprofit organization that works with the City of Chicago to help manage community spaces. • Acquire and preserve community spaces• Outreach and efforts associated with care of

public open spaces• Land purchasing from the city for creation of

open spaces• Steward for community gardens

CitySPaCe ChiCago PlaN

The CitySpace Chicago Plan was created to preserve open space in the city. The plan brings together multiple government agencies to coordinate the creation of park space and reuse of vacant land.• Guides vacant lot reuse strategies and policy

changes• Created the Cook County Land Bank and

NeighborSpace


Policy

Chicago changed many of its policies to reflect the need to find new innovative uses for vacant land. The city is exploring ways to use vacant land as part of a solution for its larger problems such as stormwater management, healthy eating and living, increasing the ease of transportation, and stabilizing neighborhoods.

lESSonS lEarnEd

Chicago’s various programs provide a vision for long-range planning of open spaces, in addition to opening the door for community advocacy. The city puts an emphasis on having non-profit organizations manage and maintain city-owned vacant lots. • Successful examples are partnered with

community groups• Provide technical assistance to help keep

programs alive• Project advocacy to keep the government and

the public on the same page• Policy changes are necessary to remove barriers

to implementation and reflect changing attitudes

Milwaukee has many similarities to Chicago, especially in terms of where vacant land is located; these are typically in neighborhoods were much of the population was employed in an industry that left the region. Chicago, lacks green space in some of its most densely populated neighborhoods, and could benefit from the increase in open space, as well as promotion of urban agriculture. Lastly, stormwater runoff management is a serious issue in Chicago as well as Milwaukee; water quality and public safety (flooding and basement back-ups) could be greatly improved by using vacant land for stormwater runoff management. Chicago has been trying to incorporate this into its land reuse techniques.

The Humboldt Park neighborhood in Chicago is an example of how a

funding program such as the NSP can increase property values and protect

neighborhoods from economic swings. As of 2012 the program has acquired,

rehabbed and put 28 homes on the market throughout the city. The homes in the Humboldt Park neighborhood are considered the most desirable because

of their access to transportation, architecture and other amenities. This

has helped to revitalize this neighborhood and provide homes in a range of prices to accommodate homeowners with varying

levels of income.

NeighborSpace, Chicago

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Cleveland, Ohio• Population: 393,806 (2011)• Once the fifth largest city in the United

States, the city is now ranked 33rd• 77 square miles • Estimated that the city has 20,000

vacant lots• 5,000 of which (about ¼) are in the land

bank


Cuyahoga laNd baNk

Founded in 2006, the Cuyahoga Land Bank is a nonprofit, government purposed entity in the greater Cleveland area that acquires blighted properties to return them to productive use. Productive use includes selling houses for renovation through deed in escrow, preparing land for economic development, and finding creative alternatives to development.• Prep land for development• Acquires property through bank holdings or

government enterprises• Implement creative alternatives (gardens,

stormwater management or green space)• Promote collaboration with between public

agencies to diffuse risk, employ joint code enforcement and nuisance abatement

ClevelaNd SeaSoNal high tuNNel Pilot ProjeCt

In August 2012, Cuyahoga County received $132,000 in federal financial assistance for urban farmers to construct seasonal high tunnels, otherwise known as hoop houses. Developed by the Natural Resources Conservation Service (NRCS), the program aids farmers in installing the hoop houses, helps to determine the effectiveness of the structures, and provides on-site instruction and technical assistance.• Financial assistance for implementing hoop

houses• Technical assistance with hoop house erection

and farming

reimagiNiNg ClevelaNd

This is a Pattern Book that guides reuse strategies. As a result of efforts from local university students and city government, Cleveland is home to multiple community gardens, market gardens, orchards, vineyards, native planting areas, pocket parks, rain gardens and neighborhood pathways.• Guidebook for acceptable reuse strategies• Technical assistance on reuse strategy

implementation (cost, maintenance)

bioCellarS

In conjunction with Kent State Univeristy, Cleveland has been investigating the use of Biocellars. These are constructed using the foundation of abandoned homes. Homes are carefully deconstructed, leaving the basements intact. Then a glass roofs is constructed over the foundation walls resulting in an in-ground greenhouses. • Provide the ability for year-round growing

conditions• Repurpose vacant lots for agriculture, aquaculture,

solar energy, or stormwater filtration

lotS to lEarn: clEvEland


Neighborhood pathways are being built as a part of the Reimagining Cleveland initiative.

Policy

The City of Cleveland has its own land bank. It sells vacant lots for development and side yards at a cost of $200 per lot. Buyers are responsible for costs related to recording, transfer and other real estate fees. Buyers for both development and side yards must not have any current housing code violations, or be tax delinquent. Vacant lots can also be leased at a reduced rate for urban gardens.

Cleveland adopted zoning ordinances to enhance the nontraditional reuse of vacant lots. In 2010, the city adopted an ordinance (Ch. 337) that established residential urban agriculture districts throughout the city. This ordinance defines urban agriculture and associated practices, locations and restrictions. Another ordinance (Ch. 336A) permits the raising of larger farm animals such as horses, cows and alpacas.lESSonS lEarnEd

Cleveland has a far greater number of vacant lots than Milwaukee, but there are three key points that Milwaukee can learn from. First, the city should establish long-term relationships with academic institutions and community organizations in the area. These groups will help guide and strengthen the process of getting vacant lots back to productive use. Second, the city should develop a pattern book of creative strategies that addresses city-owned property from the date of acquisition. Finally, the city should research an aggressive price point for selling vacant lots as side yards and sites for development.• Successful examples are partnered with

community groups• Provide technical assistance to help keep

programs alive• Innovation gets people interested• Pattern books can be useful education and

implementation toolsAbove: The Cuyahoga Land Bank in Cleveland

turns two vacant lots into community gardens.

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Indianapolis, Indiana• Population: 827,609 (2011)• 372 square miles• Compare educational attainment level

and median family income to Milwaukee• Significant numbers of vacant or

abandoned properties


iNdiaNaPoliS City goverNmeNt aCtioNS

A practice intended to better categorize properties in the city has integrated its city planning department with its public safety program. By relying on officers to provide updated information on city properties, the city is then able to categorize properties into three groups: transitional, distressed, or abandoned. Another staple of Indianapolis’ plan is their focus on receivership. Essentially, the city obtains a court order declaring that a person or group may temporarily be granted ownership rights to a given property, sharing the burden of maintenance and providing for an economic boost. • Use public safety staff to gather data on vacant

parcels• Implement a receivership policy to allow for

ownership transfer to private individuals or groups for improvements and later sale of vacant lots

Policy

For properties that have yet to be acquired by the city, Indianapolis has enacted tough blight fees to penalize owners who are not adequately maintaining their properties. The total penalties, amounting to $2,500 per offense, resulted in approximately $1.8 million dollars of income for the city in 2008. This money could potentially be put towards the maintenance and upkeep of vacant city-owned lots.

Lots that have been acquired by the city land bank can be purchased by nonprofit organizations for $2,500 per parcel (this includes parcels with or without a structure) simply by providing a letter of intent, proof of financing, an application fee, and a development plan. Individuals or private companies must submit a bid for land bank properties. Parcels are awarded based on offering price, the financial ability of the bidder to rehabilitate the property, and the precedent set by good management of past projects.

While the policy outlined above seeks to grow funds, another policy helps to prioritize government spending on vacant or abandoned properties. This has been accomplished by mirroring a common law enforcement practice – the ‘most wanted list’. However, in this case, the city has established a list of the properties in greatest need of revitalization. This list is based on the impact on the neighborhood, the level of disrepair, and reported criminal activity on the parcel. Lists detailing the ‘most wanted’ properties are distributed on a monthly basis, and result in an increased focus (including funding, city attention, clean up, etc.) on these lots. Properties not on the list are also cataloged and given a priority level, with each level requiring an inspection in a given amount of time. For example, the highest priority properties should be inspected within 24 hours, mid-level properties within 48 hours, and the lowest priority properties within 72 hours.

lotS to lEarn: indianaPoliS


lESSonS lEarnEdDespite differences in the size and scale of the problem between Indianapolis and Milwaukee, there are three major themes that Milwaukee may want to mimic in their own vacant land management program. First, enforcement of city codes can provide funding, while working to maintain the integrity of neighborhoods. Second, data categorization is critical to efficiently spending city funds, and this requires up-to-date information. Finally, partnering with other entities, whether they are local residents, a nonprofit group, or a business, can lessen the burden on the City and achieve significant results.• Successful examples are partnered with

community groups• City code revision/reinforcement is necessary• Funding for programs is necessary

Big City Farms (pictured above) is an impressive urban farm in Indianapolis. The farm converts

vacant urban lots to vegetable and fruit producing gardens.

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Philadelphia, Pennsylvania


City of PhiladelPhia vaCaNt lot Program

The City in partnership with the Redvelopment Authority (RDA) created this program to target privately owned vacant lots to reduce the nuisances associated with them.• Works to reduce instances of dumping • Improve maintenance and security of privately

owned vacant lots• Patrols to help reduce crime• Create a work plan and vision for vacant lot

reuse

laNdCare Program

The LandCare Program is led by the Philadelphia Horticultural Society (PHS) in partnership with the City. It leverages public and private investment for maintenance and interim landscaping treatments to 6,000 parcels in key transitional neighborhoods. • Basic lot treatments (mowing, debris removal,

fence installations)• Prepare parcels for the market• Interim landscaping partnerships

lotS to lEarn: PhiladElPhia

• Population: More than 1.5 million• 142.6 square miles• More than 40,000 vacant parcels

throughout the city• Not all the parcels are city-owned

CamPaigN to take baCk vaCaNt laNd

The Campaign to Take Back Vacant Land is a collaboration between faith and labor groups in Philadelphia. This program promoted policy changes that ensured that a land bank was created with a board of directors that includes community representatives. • Coordinate efforts for sales and uses of vacant

lands• Prepare parcels for the market• Management partnerships• Needs based redevelopment

oCCuPy vaCaNt lotS - Philly food foreStS

As a spinoff of the “occupy movement of 2011, the organization works with neighborhoods to convert vacant land to free food-producing space, community orchards, park space, flower gardens, or some variation thereof. • Management partnerships between neighborhoods

and the city• Needs based open space development

Below shows a before (right) and after (left) of the effects of the Philadelphia Horticultural Society (PHS)Landcare Program. Just using

basic lot treatments has proven very effective in transitioning vacant lots in Philadelphia. Over 15% of vacant lots have been sold to

private owners after going through the PHS Landcare Program.


Policy

Currently, anyone who wants to purchase a vacant lot must go through the Vacant Property Review Board; a committee representing several city agencies collaborating on review of plans for reuse. Decisions based on cost and transfers deeds come from this group. In addition to the Vacant Property Review Board development incentives for affordable housing and economic development incentives have been considered. This is thought to be a good practice at getting city-owned parcels off of the books and back on the tax rolls.

City of PhiladelPhia vaCaNt ProPerty PoliCy

In 2012, the City of Philadelphia created a policy to guide the promotion and regulation of city-owned vacant land that is controlled by multiple city entities. The policy was created to be consistent with the guiding principles of establishing a tax base, eliminating blight, and encouraging development. Philadelphia approaches the sale of city-owned vacant property with the intention to promote the most active possible reuse of the parcel. The City accomplishes this through competitive market sales and direct listed sales. This means that the City uses many resources to market the property, such as brokers, websites (including the official City website), and even signs on the property.

lESSonS lEarnEd

The City has succeeded in engaging residents; the revitalization of neighborhoods and greening of lots was due to grassroots activism with city support. Without actively engaging residents, and providing them with a sense of ownership, Philadelphia may have not been as successful with its Vacant Lot Program. Additionally, support from top city leaders was crucial to Philadelphia’s successful program. Milwaukee could benefit from a similar approach.

Taking it one step at a time, the City of Philadelphia was able to establish strategies, policies, and effective organization outreach, to address the large-scale vacancy issues that plagued community neighborhoods.• Successful examples are partnered with

community groups• City code revision/reinforcement is necessary• Funding for programs is necessary• Partnerships are key to manageable programs• Flexible policy for unique situations

Through a neighborhood organization, community members on Rockland Street in

Philadelphia clean vacant lots.

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Detroit, Michigan• Population: 706,585• 143 square miles• Over 100,000 vacant parcels (public &

private)• The number of vacant parcels fit can fit

into an area of 40 square miles


the detroit future City PlaN

The Detroit Future City Plan offers several valuable insights into how Milwaukee might approach revitalization within its own borders. Rather than focusing on the problems associated with the large plots of empty land, the report embraces the vacancies as an asset. The positive, data driven approach to this report, which incorporates substantial public feedback, may play a role in changing people’s minds. • Reverse negative stigma associated with vacant

lots• Collect public feedback on needs• Data collection to drive reuse strategies• Standardize/streamline how vacant parcels are

dealt with• Decision making matrix to guide reuse process

Policy

Because of the magnitude of vacancy in Detroit, the city has tested some unconventional policies and programs in an attempt to lessen the drain on the already financially strapped city. One program, currently in the testing phase, eliminates the policy barriers that might discourage vacant lots from being purchased. It allows adjacent owners to purchase these lots for a standard fee of $200, and removes the requirement for City Council approval of the purchase. The fee paid can be recouped by the owner in the form of credit for fencing or landscaping materials, a benefit paid for by local sponsors. This program was created in an attempt to deal with current policies which make purchasing city owned land a lengthy and inconvenient endeavor.

Detroit is also looking to make changes to ordinances that affect the ability of different forms of urban agriculture to take root on vacant lots. Also, revisions to the tax code, which can reduce the tax rate for sites in and around the city, might further boost urban agriculture activity on vacant parcels.

lESSonS lEarnEd

In addition to its overarching theme, the Detroit plan lays out several major points, three of which are particularly applicable to Milwaukee. First, to accomplish this task, Detroit created a matrix to help guide decision makers. Second, any judgments regarding vacant properties, including whether to put them into the land bank, or determining a use or a buyer, should be made purposefully, with the overall community, and with a single set of principles in mind.

lotS to lEarn: dEtroit


The report further breaks down the points listed above into actionable items which also have some relevance for Milwaukee. First, in economically strong areas of the city, parcels should be acquired with future development in mind. Second, in order to limit a continued loss of population, neighborhoods must be stabilized. Third, open space should be used to inject green infrastructure into the city’s landscape. Within Milwaukee, this could signify the creation of a network of interconnected vacant parcels, linking various areas throughout the city. It could also involve the installation of stormwater management tools to reduce the burden on the current sewer system. Fourth, enhance current landscaping requirements; this can serve to prevent dumping on otherwise empty lots. Finally, use regulations to penalize owners who do not adequately care for their vacant properties. Also, increase the adherence to already established standards for private property maintenance. • Reinforce regulations on delinquent and non-

caring owners• Multi-agency board/ committee for coordination• Funding for programs is necessary• Plan reuse for current and future needs, not just

past use• Reduce grey infrastructure networks through

the use of green infrastructure

With the large amount of vacant lots in urban Detroit, vacant lots are being rethought in new ways such as the examples above large scale

public art installments and community gardens in old asphalt parking lots.

29

Youngstown, Ohio


vaCaNt ProPertieS iNitiative

This program supports small neighborhood workshops, intended to engage the public, and inform them about the reinvestment potential of vacant lots. Their chief objectives are to raise awareness of the effects vacant lots can have on neighborhoods, develop coordination between city and county agencies and public groups, and evaluate model programs for implementation. • Create a coordinated government and public

effort• Collect public feedback on needs• Review successful programs in other cities• Assess vacant properties in Youngstown• Educate/engage the public

youNgStowN Neighborhood develoPmeNt CorPoratioN

This community group was established in 2009 as a joint partnership between the City of Youngstown and a private family foundation. The YNDC seeks to revitalize and strengthen individual neighborhoods within the city through neighborhood stabilization programs. • Create a coordinated government and public

effort• Work with neighborhood groups • Stabilize vacant lots• Educate/engage the public

lotS to lEarn: younGStown

• Population: 66,982• Loss of over 60 percent of its population

since its peak in 1950• 61 square miles• Over 80,000 vacant parcels (public &

private)

The City of Youngstown, OH partners with community organizations such as the

Youngstown Neighborhood Development Corporation (YNDC) to use a variety of vacant lot reuse strategies such as the sidelot expansion

and community garden pictured above.

Side lot Program

This is a program in which vacant land is offered to adjoining property owners, who can obtain clear title to the land, without the burden of any debts it had previously incurred. • Offer vacant land to adjacent property owners• Improve aesthetics• Reduce city performed maintenance


Policy

In Youngstown, the assembly, sale, and transfer of vacant properties is administered through a land bank, the Mahoning County Land Reutilization Corporation. This non-profit, quasi-governmental organization works to acquire vacant or tax delinquent properties for reuse. Its main purpose is to acquire, hold onto properties for potential future use, often during the crucial financing stage of development projects.

lESSonS lEarnEd

Overall, Youngstown’s unique circumstances make it largely incompatible with Milwaukee. Its historic reliance on one key industry hastened and accelerated its decline to an extent that few other American cities can compare. Its national and regional influence is also significantly smaller, as its metropolitan region has never been anywhere near Milwaukee’s, in terms of population.

However, Milwaukee does stand to benefit from the lessons offered by Youngstown groups such as the Vacant Properties Initiative, particularly in the area of public-private and intergovernmental cooperation. Given the severity of its vacancy problem, there has been strong motivation for all of the region’s stakeholders to take action, and work together to achieve larger objectives. It would be wise for Milwaukee to borrow and adapt this same model for its own use, so that it can more efficiently manage its full roster of vacant properties in the future.• Community involvement is key• Multi-agency board/ committee for coordination• Funding for programs is necessary• Plan reuse for current and future needs, not just

past use

31

Pittsburgh, Pennsylvania


greeN uP PittSburgh

Introduced by Mayor Luke Ravenstahl in 2007, the Green Up Pittsburgh Program aims to streamline the conversion process for publicly owned vacant lots, by providing physical resources such as plants and water, working directly with contractors on cleaning up individual parcels in the post demolition stage, and helping local community organizations coordinate and prioritize their list of projects. • Provides vegetation for vacant lots• Debris removal and general maintenance• Coordinate local community efforts

gardeN waiver Program

The Garden Waiver Program allows one or two individuals to obtain a free waiver from the city, which allows them to utilize a vacant parcel as garden space, while official ownership and liability for the property remains with the city. • Waiver program for free garden space• Growing health food for low-income residents• Management partnerships

lotS to lEarn: PittSburGh

• Population: 305,704• 58.3 square miles• Estimates of over 19,000 vacant parcels

in the city

the greeNway Program

The Greenway Program was created to help designate specific vacant parcels as permanent green space, as a means of enhancing natural beauty, identifying properties for with sloped topography. • Coordinate efforts for sales and uses of vacant

lands• Prepare parcels for the market• Management partnerships• Needs based redevelopment

Policy

The Vacant to Vibrant document, authored by GTECH Strategies, outlines the general procedures for purchasing vacant lots in Pittsburgh (see Chapter 2, “City Processes: Acquisition Process”). If a privately owned property is tax delinquent, an individual can send a request to the City Real Estate Division, to have that property put into a Treasurer’s Sale. Pending approval from the city, the property enters a 90-day redemption process. If the owner fails to pay the taxes in full by the end of this period, the buyer must pay for the title, and becomes responsible for any liens attached to the property. If the buyer fails to do this, the city assumes ownership of the property. With city-owned properties, under normal circumstances, an individual can submit a request to purchase to the City Real Estate Division. Pending approval, the procedure for transfer of property is initiated, although bidding is still open for other prospective buyers willing to bid a higher amount. If a parcel is adjacent to occupied structures, and offers the possibility to be combined with the adjoining parcels, it is directly offered for bidding to the owners of that land for a side-yard conversion process. Finally, if any existing liens on the property make acquisition difficult or undesirable, it becomes a candidate for a Garden Waiver.


lESSonS lEarnEd

The abundance of vacant land is clearly a much larger issue for Pittsburgh than it is for Milwaukee, as the problem is more geographically widespread, and more extensive in size, considering the city’s substantial post-industrial population loss. Many programs in Pittsburgh are partially facilitated through the Open Space Neighborhood Advisory Panel (OSNAP), a multi-department initiative that helps review projects and proposals at the neighborhood level. Over the same period of time that the city has begun implementing its green reuse strategies for existing vacant lots, Mayor Ravenstahl has actively pursued measures to demolish and clear away many of the vacant structures left standing. Here are some takeaways:• Successful examples are partnered with

community groups• Multi-agency board/ committee for coordination• Funding for programs is necessary• Plan reuse for current and future needs, not just

past use

The Larimer neighborhood in East Pittsburgh is one of the early success stories for GTECH

Strategies.

A Green Up Pittsburgh project opens a community garden adjacent to a nearby school

after it had been a vacant lot.

33

Summary and FindingsIt is clear that there is no single definitive strategy for managing vacant lots, at least in every circumstance. However, several cities have found considerable success in developing a well-rounded approach to the problem, one that actively involves and engages community residents in the process. The most successful programs incorporate some form of public-private or public-nonprofit partnership. Various coalitions are based on strengths of the various groups involved. Community groups are particularly well suited to help to co-manage vacant lots, and to elevate the needs, desires, and opinions of residents.

SuCCeSSful ProgramS

Success is measured differently for each of the cities considered. Each one has different goals and plans for its future, but most all of them have been successful at demonstrating reuse strategies through active and viable programs. Many of these programs are still in their early stages, but have shown positive results so far. Philadelphia in particular has garnered a lot of attention for its various greening programs, and has piqued the interest of social scientists studying the role that green space plays in the lives of inner city residents. Initial studies show that these types of programs have positive results on the social, economic and environmental well being of these communities. As mentioned above, the most successful programs are those that engage community members, include an available funding source, and are flexible to changing city conditions.

leSSoNS learNed

None of these cities’ programs would work without political support from their respective Mayor’s offices. This type of leadership can help to push these initiatives within city departments. It is important for a city to openly advocate these programs, so that individual city departments can keep them on their radar. Fortunately for Milwaukee, this level of support and effort is already evident from Mayor Tom Barrett. Mayor Barrett was extremely supportive of the “HOME GR/OWN,” submittal to the Mayor’s Challenge, and shows his commitment to finding sustainable solutions to various city problems. Programs such as those in Detroit are successful, despite little city involvement in management operations. However, the examples from Chicago, Philadelphia and Pittsburgh seem to have a wider effect, which highlights the need for government/community partnerships.

In order for a program to be successful, it also must be easy to understand, for both professionals, as well as the public at large. Cleveland has a flat fee for purchasing or leasing lots, and this makes it easy for partnering groups to plan a budget. In addition, easily understood programs and processes helped to foster stronger relationships between city governments and partnering organizations. These groups were not discouraged by having to “jump through hoops” to accomplish their goal.

A third essential element is creating strong partnerships. Milwaukee, just like the other cities, needs community support, in order for these programs to develop and become successful. To obtain this needed support, the other cities sought partnerships with a variety of groups, each with different strengths, such as technical assistance, community organization, and environmental awareness. These partnerships are the key to keeping residents involved and engaged with these programs. They also provide a lifeline for residents to reach out to the city with needs and concerns.

lotS to lEarn: Summary and findinGS


Summary of lessons learned, for program creation and longevity:• Strong leadership from city leaders and the

Mayor’s Office• Simple to follow programs and processes• Partnership building (public/private, public/

nonprofit)• Programs should provide benefits to residents,

not just city government• Community interest and involvement are

required• Target community needs and desires• Support from city agencies • Adequate funding/diverse funding sources• Program adaptability

meaSuriNg SuCCeSS

Success can sometimes be hard to quantify, but is measured in many different ways:

• Decreased crime• Increased community activity• Environmental benefits (water quality, air

quality, habitat)• Increased activity on program sites• Recreational green space provided• Reduce City costs• Tax base building • Decreased blight• Property value stabilization• Improved community health• Improved sense of ownership

HOME GR/OWN is an initiative that would transform foreclosed properties into areas for

urban agriculture, community kitchens and distribution centers, providing healthy food

supplies for Milwaukee.Source: Milwaukee Journal Sentinel

35

ComParative PoliCieS

In order to make these strategies work, cities need to change policies in order to allow for reuses. Many cities, including Milwaukee, did not have codes and ordinances that specifically addressed reuse strategies such as urban agriculture and stormwater management, or have expressly banned some reuses. Of the cities outlined in this report, all have made amendments to local ordinances or zoning codes, to allow for urban agriculture on vacant lots. Detroit has created a comprehensive urban agriculture ordinance in 2012. This is to help improve the structure of urban gardens across the city, and change the tax structure for lots being used for this purpose.

Additionally, cities are changing their policies on the resale of vacant lots. Many are working with land banks that provide long-term reuse strategies for these lots. For example, the Cook County Land Bank in Chicago takes a regional approach to repurposing vacant land, by combining consecutive groups of parcels for larger development projects. Although this program holds onto land, possibly for an extended period, it does allow for temporary reuse in the form of urban gardens and pocket parks.

Cleveland and Philadelphia have changed their vacant lot sale policies. Cleveland sells them for a flat fee of $200. This has helped to keep the process simple, and to entice residents or community groups to purchase lots for reuse. Both cities also allow vacant lots to be leased for community gardening.

lotS to lEarn: Summary and findinGS

maNagemeNt StrategieS

The results of this analysis seem to show that a shared management structure is the most successful at making these programs work. Various groups bring different strengths to the table, and these partnerships contribute to a strong and beneficial management style. Overall, the following styles of management were encountered:

Initially, many strategies develop at the City level, but as budgets tighten, and the issue escalates, many cities have moved away from their traditional approach. City programs have focused on cleaning lots through debris removal and the regular mowing of vegetation. Cities such as Philadelphia focused on beautification, in the hopes of reducing dumping, as well as enticing buyers. This type of management strategy is good for short-term improvements.

Community groups are interested in becoming more involved in the process. They see this as an opportunity for greater participation from local residents, so they can contribute to solutions that directly benefit them. Community groups are responsible for deploying programs, locating funding sources, and determining what needs must be met.

This type of strategy can be helpful, but it has complications. Many times, the ongoing maintenance and management of the lots is more than a community group can feasibly handle on its own. Problems with consistent membership and member involvement are always issues with community management of open space. Additionally, there is the danger of groups disbanding, and members losing interest, or leaving the group entirely. A major component to keeping community interest is engaging locally based groups, rather than recruiting others away from their resident base. Many cities, such as Chicago, have cited this as a reason why they will not allow a full transfer of property to any community group; rather, they create relationships with specific groups beforehand.


Private investment is important. One of the best examples of private investment is from Indianapolis. Big City Farms, LLC is a for-profit business that brings in fees through membership. Private investment will help to drive the real estate market, as it takes some of the burden off of City resources. It also drives revitalization efforts that the city itself would not have the resources to carry out. Additionally, cities typically work with land banks to keep properties for future development. Increased private investment removes a management burden from the city.

Diverse partnerships can help city government manage these programs in many ways. Technical assistance is an important part of any program, particularly for gardening groups, water harvesting, and stormwater management. Existing city staff may not have the required technical skills, or the time necessary to provide such assistance. Indianapolis has compiled a list of groups and individuals with technical skills for carrying out revitalization projects. This gives the city a list of resources to tap into when needed. Chicago’s NeighborSpace program is a prime example of a group that provides technical assistance to gardening and community parks groups. They conducted classes on various aspects of urban gardening and stormwater harvesting.

Aside from technical assistance, community partnerships are extremely important. Community groups, such as neighborhood associations, conservation corps, and local nonprofits, are well suited to connecting these programs with residents. Each of the 6 cities included community partnerships, and these were often given direct credit for engaging residents, and helping to instill in them a sense of community ownership. They can also provide critical financial assistance to the city in the process.

Groups in Milwaukee with

technical skills

• GroundWork Milwaukee• REFLO• Milwaukee RiverKeeper• Milwaukee Urban Gardens• Milwaukee Metropolitan Sewerage District• University of Wisconsin Milwaukee • Transition Milwaukee • Growing Power• Victory Gardens Initiative• Milwaukee Community Service Corps• Walnut Way Conservation Corps• Urban Ecology Center• Menomonee Valley Partners• Washington Park Partners• Southeastern Wisconsin Watersheds Trust• Energy Exchange• Alliance for the Great Lakes• American Rivers

37utilization catEGoriES

Utilization CategoriesOn a case-by-case basis, the City of Milwaukee can choose from four basic utilization categories for its vacant lots. Each has its own set of advantages and drawbacks, depending on the situation. These categories are as follows: Simple Solutions, Capital Investment, Urban Agriculture, and Dedicated Environmental Solutions.

Contained within each of these categories are a multitude of unique strategies to choose from. In the following section, each of these are thoroughly outlined and analyzed, based on their individual components, their relevance for the City of Milwaukee, and their existing track record of success in application.

Community members work together to paint a temporary structure at Scooter’s Garden of

Hope in the Harambee neighborhood.

Simple Solutions

Capital Investment

Urban Agriculture

Dedicated Environmental

Strategies


Simple SolutionsSimple Solutions is the utilization category that provides low-cost remedies to beautify vacant properties in order to quickly return them to a productive use. Enhancements include straightforward techniques such as clearing debris, updating existing signage, and adding aesthetic improvements, help to beautify vacant parcels. The advantage of these solutions is their ability to be quickly deployed with relatively little investment. Additionally, these solutions aim to engage city residents and community groups to aid in management, financial solutions, and to compass a greater sense of ownership for vacant lots at a neighborhood level.

Currently, the Forestry division of the Department of Public Works (DPW) mows lawns, plows snow, and removes debris on vacant land at the estimated cost of $3,700 per year per lot. Challenges exist regarding the maintenance of vacant lots such as illegal dumping, unwanted debris and illegal parking. For these reasons, the city posts signs on each lot that state: “No Trespassing, No Dumping, No Parking.” Another way the city deters illegal dumping and parking are heavy barriers. These barriers are assembled with cement bases connected by railroad ties and that are difficult to move.

Simple Solutions will provide quick and cost efficient fixes for vacant lots. These fixes are typically temporary while the lot awaits plans for long-term use. Often, the treatment will also utilize neighborhood residents or community organizations for management or financial solutions. The treatments are designed to be easy to install and easy to maintain. There is a clear need for short-term solutions for vacant lots located in prime areas for residential or commercial development. A short-term solution is to lease the lot for urban agriculture or public art to activate it in the community. Other possibilities include greening the vacant lot with landscaping, fencing, green infrastructure techniques, or creating a neighborhood pathway.

Finally, a longer term Simple Solution is the sale of vacant land at or below market price rates to city residents or neighborhood organizations. The City of Milwaukee already sells vacant lots to adjacent owners for the purpose of increasing their lot size and this practice is to be encouraged. Often, homeowners incorporate the extra land as a valuable addition to their property, with play space for children and pets, gardens, or space for equipment storage and sheds. In particular, sideyard conversion offers strong potential for small, triangular lots. There are at least 150 of these lots scattered throughout Milwaukee where diagonal streets intersect the normal, cardinally-oriented street grid. This produces blocks with irregularly shaped corners, which are difficult to subdivide for development purposes. In some cases, these occur in commercial zones, such as the intersection of Fond du Lac and North Avenues, where a vacant lot was recently converted into a small public gathering place, Marketplace Triangle. In many other areas, however, the adjoining properties are single-family homes.

Irregular lots in Milwaukee are prime candidates for sideyard expansion.

39utilization catEGoriES: SimPlE SolutionS

A similar situation has occurred in the small city of Sandusky, Ohio. In 2011, that city developed a unique program to deal with these leftover corner lots. Through its “Mow to Own” program, adjacent property owners provide maintenance for vacant lots, in exchange for the ability to eventually purchase them, and convert them to sideyards. [1] Overall, sideyard conversion policies have already been instituted in a significant number of cities, including Dayton (the Lot Links program) [2], Chicago (the Adjacent Neighbors Land Acquisition Program) [3], Flint, and Toledo. As part of a comprehensive set of reuse strategies, sideyard expansion can greatly enhance neighborhood aesthetics, and increase the physical sense of ‘community connectivity.’

Simple solutions are treatments that can be done to vacant lots quickly, without great capital investment, to beautify and repurpose vacant spaces. These treatments vary in intensity and implementation, but all of them provide simple but useful improvements to previously unused parcels. Implementing a simple solution, even the most basic can improve a block and neighborhood, prevent mistreatment of vacant lots, and can act as the first step to future development.

The City posts signs on each vacant lot to deter people from illegal trespassing, dumping or

parking.

A simple solutions technique used by many other cities is securing the vacant lot by simple

fencing and basic landscaping treatments.

Simple solutions might also be a more permanent answer for vacant lots of unusual shapes and sizes that might not be ideal for other situations, such as infill development. Examples include: side lot expansion, creation of a neighborhood pathway, and just basic treatments to beautify the lot such as fencing or landscaping.

All vacant lots in the City of Milwaukee can undergo a simple solution treatment given locational considerations. However, simple solutions should look to engage city residents and community groups to aid in management, financial solutions, and to overall compass a greater sense of ownership for vacant lots at a neighborhood level.


Capital InvestmentCapital investment involves the formal commitment of land to a long-term use requiring man-made infrastructure. Such an investment requires a commitment of funding and resources up front, and is intended to serve as a permanent or semi-permanent use of land space. Given this somewhat broad definition, capital investment can take many different forms, everything from parks and public art installations, to major housing and business developments. The City of Milwaukee’s Department of City Development’s main objective is to return vacant parcels to an economically productive use and return the parcels to the tax base. This section outlines three general sub-types of capital investment: commercial development (industry-oriented), residential development (housing-oriented), and community spaces.

commErcial dEvEloPmEnt

Commercial development involves the transformation of real estate to retail, office, or other business-driven uses. This typically takes the form of standalone buildings or shopping plazas, which are often located in larger commercially oriented districts. However, mixed-use development is common which involves ground floor retail with residential or office units occupying the upper floors. This type of investment offers a unique and diversified approach to tax base expansion, and is often pursued in areas with an existing concentration of commerce and civic activity. It is an especially helpful tool for revitalizing a district that has suffered from disinvestment and blight.

However, many real-world challenges exist in the current market since the real estate and development market is still emerging from the recent recession. Developers and lending institutions remain cautious when committing to major investments in commercial development.

Furthermore, surrounding municipalities are all competing with the City of Milwaukee for development and job opportunities. Vacant lots are vacant because market conditions in the area are not favorable to development.

Milwaukee has created many formally targeted zones for business development and expansion, such as Business Improvement Districts (BIDs), or Tax Increment Financing (TIF) Districts. Milwaukee has a significant number of BIDs, as well as TIFs, so there is already a substantial portion of the City that is ripe for new commercial investment, and this includes a significant number of presently vacant lots.

The Franklin Square development on Milwaukee’s northwest side incorporated

walkable green space.

41utilization catEGoriES: caPital invEStmEnt

There are 170 vacant lots located within a BID, and the majority of these can be found in the following BIDs: 30th Street Industrial Corridor, North Avenue Marketplace, Historic King Drive, and West North Avenue Gateway District. There are also 530 vacant lots located within TIF Districts, and the bulk of these are in the following TIDs: Lindsay Heights Project, Bronzeville, 20th and West Brown Street, and Metcalfe Park Homes Project. In addition, there are 70 vacant lots that are simultaneously located in both a BID and a TIF. Taken together, 24 percent of the City’s vacant lots (a total of 630) are located in a BID, a TID, or both.

Commercial development would also be appropriate for any land that is zoned for commercial use by the City of Milwaukee. Even if such land is not within a formally recognized development zone, the City has determined that it would be best suited for some type of commercial use, as opposed to industrial, residential, etc. Finally, it would also be possible to pursue commercial development on land that is not zoned for commercial use, but happens to be located along a major traffic arterial, with access to public transit. In a limited number of cases, vacant lots will be located along such roads, at highly visible street corners. The lack of commercial zoning would reduce the viability of such lots, but not eliminate them entirely from consideration, assuming the developer has evidence to persuade the city that their investment would likely be successful.

As with residential development, the market will dictate when commercial development will occur. A basic measure of success is to increase the number sales of commercial land. The number of vacant lots in commercial areas that are incorporating alternative reuse strategies should also measure success.

Based on stakeholder feedback and reuse strategies should follow these criteria: • Short-term reuse strategies such as ones

outlined in Simple Solutions should be applied to vacant land at critical commercial nodes.

• Reuse strategies should complement, not detract, from commercial areas based on area needs.

• Reuse strategies should align with Business Improvement District plans and other area plans.

The City of Milwaukee Avenues West

Redevelopment Plan has a list of commercial development objectives that can be useful when

considering vacant lot reuse strategies:

• Clustercommercialdevelopmentatcriticalcommercialnodes.

• Infillbetweennodeswithcomplementaryuses.• Supportthe27thStreetMainStreetInitiative


CommerCial develoPmeNt deCiSioN faCtorS

To consider reuse strategies for vacant lots, analysis was completed based primarily on physical characteristics. Commercial development analysis and criteria inputs were based on the decision factors listed below:

Business Improvement DistrictsFocus development efforts first on vacant land that are critical nodes within Business Improvement Districts such as intersections of major arterial streets.

Buildable LotsFocused development efforts on vacant land that has a contiguous footprint of 3,600 square feet or greater. Parcels with greater footprints are more marketable to developers and have greater potential for development. Building footprint is important but developers may also desire land for parking.

Commercial AreasCommercial-zoned areas not in Business Improvement Districts, such as North Avenue between King Drive and Holton Street, should also be a high priority for commercial development.

AccessCommercial development should be accessible to people using multiple modes of transportation. For this project, we use the criteria that development should be within one fourth mile of a bus stop.


Commercial and Mixed Use Development Preferable Zones


rESidEntial dEvEloPmEnt

Residential development includes the construction of single- and multi-family housing in areas zoned for residential use. According to the 2012 city tax assessments, the median assessed value of residential property in target area of Harambee was $41,950, with an mean of $63,026 [1]. Using 2012 tax rates, the city would generate the following taxes on an average (mean) house in Harambee [2]. The city generates $1,668.30 in property taxes from the average residential home in target area, Harambee. Given the $3,700 maintenance expense for vacant lots, the net gain to the city would be $5,368.30 for eliminating the maintenance cost and improving the lot with a house/lot valued at $63,026.

Large, visible gaps in the urban fabric contribute to a sense of neglect and decay, and foster a negative image in the neighborhood. It can also make the area look and feel unsafe, as large areas of seemingly unattended land may be seen as a potential magnet for crime. When such an environment exists, it would be beneficial to pursue residential development as a means of re-densifying the neighborhood or filling in noticeable gaps. More homes contribute to a sense of safety and security, with the structures themselves serving as collective “eyes on the street” for pedestrians and passersby. New homes bring with them homeowner investments in trees, gardens, fences, and lawn decorations, which further enhance the sense of comfort in walking down the neighborhood’s streets.

One of the policy goals in Milwaukee’s Citywide Policy Plan is to “improve the quality, diversity, and affordability of the housing stock in the city [3].” According to the 2007-2011 American Community Survey, 40.8 percent of the housing stock in Milwaukee was built prior to 1940, and 70.8 percent was built prior to 1960. As the city’s housing stock ages, it is important to provide residents options to live in modern and energy efficient housing. Residential development gives the city the opportunity to increase energy efficiency for the housing stock in the city. Developing vacant lots for residential infill also gives the city the opportunity to address varying needs for its citizens such as affordable housing for seniors, veterans and the disabled. Updating housing stock and pursuing residential infill will increase the supply of housing units and improve the prospects for attracting businesses and jobs to an area, by strengthening its employment base. It also serves as a signal that this community is, in fact, a desirable place in which to live and invest.

However, many challenges still exist to provide infill and new construction of residential development. It is difficult to ensure that the newly constructed homes will be affordable for the average household in a given neighborhood. As the largest concentrations of vacant lots tend to occur in lower income areas, it is crucial that the cost of infill housing be taken into account. An additional challenge for infill housing is the tendency for new homes to be built to modern design standards, regardless of their location. In older, central city neighborhoods, homes were typically built on lots around 50 feet wide, with small yards, and garages in the back, accessible from the alley.


reSideNtial develoPmeNt deCiSioN faCtorS

To consider reuse strategies for vacant lots, analysis was completed based primarily on physical characteristics. Residential development analysis and criteria inputs were based on the decision factors listed below:

Buildable LotsMany of the vacant lots in Milwaukee are irregular size or no longer meet modern construction standards. Adhering to the city’s guidelines for construction needs, the lots must be buildable.

Existing Access to UtilitiesUtilities are in place (gas, electric, water and sewer), but vacant parcels in other areas of the city may not currently have access to utilities. Vacant lots with access should be given high priority for development, due to costs associated with establishing new access.

Accessible to EmploymentResidential development should occur in areas of the city that are easily accessible to employment opportunities. Residential development should be within 1/4 mile of a bus stop, in order to accommodate residents who need or desire to take advantage of transit.

Accessible to AmenitiesResidential development should gravitate toward areas that are accessible to current amenities such as grocery stores, parks, schools, commercial areas and entertainment. This criterion should not to used to rule out any parcels for residential development.

Vacancy RateResidency was in a census tract with a housing vacancy rate of less than 10%.

Foreclosure RateResidency was in a census tract with 10 foreclosures or less (as of January 2013).


Residential Development Preferable Zones


These small parks are typically less than a quarter of an acre of land (about the size of one to three older urban lots) and are easily visible from the street. Pocket parks serve a small area, as people are typically only willing to walk between one to four blocks to reach one [2]. There are two common classifications that characterize pocket parks:• Active: An active park encourages physical activity

and provides equipment to facilitate movement. These are the parks we generally regard as children’s playgrounds, but could also refer to a more adult-oriented space that would incorporate exercise equipment. Community gardening would also be considered an active use.

• Passive: The basic goal of a passive park is to provide an area for people to be outdoors. It usually includes seating and perhaps some landscaping and native plantings.

Development of parks and green space can be especially for cities and administrations on tight fiscal restraints. Therefore, private parks are ways to increase investment in urban green space while maintaining city budgets. Private parks are generally established using one of the following three approaches:• First, it may be built and maintained as a part

of an agreement between the city and a specific developer. While the public space doesn’t necessarily need to be adjacent to the project, in most cases this is how it is designed. The building management company would likely be responsible for maintaining the public space.

• Second, it could operate as a pay-to-use park. Typically under this scenario, the city would maintain ownership, but a third party would operate and maintain the park using fees collected at the entrance. While this method is most commonly used with large state or federally owned parks, it can be applied to smaller spaces, especially when there is a distinguishing factor about the park that is not present in other area parks. For example, residents might be willing to pay a fee to use a dog park or skate park near their neighborhood.

“I go to nature to be soothed and healed, and to have my senses put In order.”

-John Burroughs

community SPacES

Community spaces addresses the structural needs of a neighborhood that require public and private investment. This type of solution is long-term, and requires strategic planning to ensure vacant land is used properly. Community developments include small parks within a neighborhood, known as pocket parks. Additionally, these solutions try to address needs, particularly in terms of green space and areas for outdoor recreation.

Urban green space is important to promoting healthy lifestyles. Many studies have found that access to healthy food and green spaces for physical activity has a profound effect on the weight of children [1]. Currently, the City of Milwaukee and its community partners has several programs that promote healthy lifestyles for children. Utilizing support for current programs could help to promote the creation, increase of and use of these green spaces.

Parks and green space have become the focus of urban planning organizations in recent decades, which has led to the adoption of green space standards. Many cities, including Chicago, are aiming to ensure that all residents have a park within 1/2 mile of their residence. Pocket parks, small urban green space tucked into a neighborhood, are popping up all over cities.

49

• Finally, the park could be funded in part by a private business or community organization where a symbiotic relationship is established between the park and the organization. While this technically represents a public private partnership, rather than a private park, it has similar benefits and has been used by Milwaukee in several instances such as the BID partially funding improvements along the Riverwalk in downtown Milwaukee.

Community spaces can serve residents in other ways such as for accessibility or connectivity. A neighborhood pathway is essentially a green pathway that serves as a shortcut for pedestrians or non-motorized modes of transportation. It connects neighborhoods, commercial districts, schools, and other community organizations to one another and can make bicycling and walking more enjoyable and, in many cases, safer. Typically, neighborhood pathways are located in the middle of a block, in order to optimize the opportunity for bicyclists and pedestrians to reduce travel time [3].

utilization catEGoriES: caPital invEStmEnt

Examples of green infrastructure that can easily be included in a pocket park:

• Rain barrels, which collect stormwater and reduce runoff

• Bioswales, which filter and retain runoff• Permeable surfaces, whether hardscape

or vegetated, which allow a greater percentage of stormwater to be absorbed by the soil

Public art can enliven streets and create a “sense of place.” Small scale, localized projects can help to bring a sense of place to a neighborhood, enhance community character for residents, and help to draw in outsiders. There is evidence that public art has economic benefits as well as aesthetic ones. Two such examples are listed below:• A “Cows on Parade” exhibit in Chicago consisted

of life-size cow statues, each uniquely painted and placed strategically throughout the city. The short-term display was credited with drawing in more than $200 million in revenue for city businesses [4].

• A study of the impact of art in Ventura, California, found that tourists lured by art spent close to 30 percent more than those visiting for other reasons [5].

There is also something to be said for the heterogeneous quality that public art can inject into an economically depressed urban area. Like parks, public art sites can act as meeting places for community members, generating opportunities for new connections between neighbors. Some of the most recognized examples of public art in Milwaukee exist along the RiverWalk, which has been credited with aiding in the revival of Downtown Milwaukee. There have also been a variety of temporary installations put up around the city. For example the “On and Off Capitol” exhibit sought to bring attention and traffic to the area near Capitol Drive, in the Century City neighborhood [6].

Parks, public art, and green space offer enormous value to urban areas. Even without the inclusion of green infrastructure, pocket parks can reduce stormwater runoff and limit the number of contaminants that enter local streams. However, in many cases, pocket parks can serve a dual purpose by incorporating green infrastructure, while providing a gathering space for community members.


Urban AgricultureUrban agriculture involves the use of urban land for growing, processing, and distributing food within a city. It can also involve the raising of livestock, aquaculture, and agroforestry (orchards). Vacant parcels hold significant opportunity for urban agriculture in dense cities like Milwaukee. Often, vacant lots are found in neighborhoods lacking green space or access to fresh, healthy food options. Vacant parcels can strengthen the social fabric of neighborhoods by providing community members with a common goal. They also provide opportunities for residents and children to learn new skills, encourage them to participate in outdoor actives, and can inspire healthier eating habits. Additionally, urban agriculture can be overlap with other uses. For example, rainwater harvesting can reduce stormwater runoff into the sewer system, while providing a water source for crops.

The practice of urban agriculture has experienced a rebirth in recent years after falling out of favor following the era of World War II victory gardens. Milwaukee has received national attention for some of the urban farming efforts based in the city. Moreover, the city has a growing local movement for urban agriculture and urban agriculture many successful examples can be found across Milwaukee.

Due to Milwaukee’s northern physical location, weather conditions present challenges to agriculture not present in warmer climates. Greenhouses or hoop houses can extend the annual growing season and improve growing conditions by sheltering plants from snow, frost, and wind, while maintaining an interior temperature four to eight degrees higher than the outside air [1]. However, challenges exist on the ground for groups that may wish to erect these structures. At this time, the City of Milwaukee does not allow secondary structures without a primary structure on a property. The City of Milwaukee is in the process of making code changes to extend the types of urban agriculture allowed within city limits.

If a parcel is used for urban agriculture, it is essential that it be properly managed. Without proper oversight of a responsible city resident or community organization, the parcel can fall into disarray. There are cases of the improper management of urban gardens that create a condition that detracts from a community more than a parcel left vacant would. Other barriers exist in communication and cooperation across organizations working in urban agriculture. As the urban agriculture network becomes more intensive and integrated, it becomes increasingly important for the City of Milwaukee to work with urban agriculture groups to work towards the vision of a sustainable Milwaukee.

“We need to raIse agrIculture up to another dIfferent level lIke they do In europe Where farmers are on the same level as engIneers and doctors because the food that We eat Is the most Important thIng In our lIves.”

-will alleN, growiNg Power

51utilization catEGoriES: urban aGriculturE

Alice’s Garden became the silver lining years after thousands of lots were cleared for a

highway project that never came to fruition. The garden has been a community asset for

decades and continues to thrive today.

The resurgence of urban farming and gardening is not surprising given their environmental, community, economic, and health benefits. Vacant lots utilized as urban farms preserve the land as green space, thereby helping to reduce stormwater runoff. The impact of urban farming also stretches beyond the borders of the city. Approximately one-fifth of the annual carbon dioxide emissions in the United States are linked to food transportation

[2]. By providing a local source of fresh food, urban farms can help reduce our reliance on imported food products. Urban gardens provide similar benefits. Both urban gardens and urban farms foster physical activity keeping residents healthy [3].

Urban farms or gardens can serve as a point of community pride. They provide opportunities for residents to interact, give neighbors a common goal, and a local neighborhood activity location. While we often envision farms as expansive open areas consuming hundreds of acres of land, a substantial amount of food can be cultivated on a relatively small land mass. A little more than 1,000 square feet of space can grow enough to meet the majority of a household’s annual vegetable requirements (assuming a four month growing period).

Finally, urban agriculture directly serves the cities in which it operates, thereby keeping local dollars in the community. On a small scale, urban farms can also provide area residents with jobs. And because transportation is limited, food prices remain relatively stable regardless of gas price fluctuations. This is particularly crucial in areas where high rates of poverty exist. Urban gardens also provide cost savings compared to purchasing fresh food at a store.

Urban agriculture can aid the city in a number of ways by reactivating vacant parcels. First and foremost, assigning the vacant parcel to an urban agriculture use puts it back into productive use. These parcels will increase the amount of food produced locally, help eliminate “food deserts” in areas that lack access to fresh foods, increase food security and increase urban green space where needed. Finally, urban agriculture parcels will contribute to the future of a sustainable Milwaukee concerns land use with the health of its communities.


urbaN agriCulture deCiSioN faCtorS

To consider reuse strategies for vacant lots, analysis was completed based primarily on physical characteristics. Urban agriculture analysis and criteria inputs were based on the decision factors listed below:

Food DesertsUrban agriculture lots should located more than a quarter mile from a grocery store to eliminate food deserts.

Public EducationUrban agriculture lots when possible should be located within a quarter-mile of schools to optimize educational opportunities.

AccessibilityLots with fresh food, especially when targeting food deserts, should try to be within a quarter-mile of bus stops to provide an equitable amount of accessibility.

Green SpaceUrban agriculture can aid in creating ‘green zones’ with a half-mile of a park in highly dense areas lacking active parks.

Downtown OverlayExcluding the areas zoned as Downtown to ensure code compliance.

Public Health and SafetyNeighborhoods where there are high incidences of obesity or other chronic health problems.

Supportive Urban Agriculture CommunityWithin a quarter mile of existing urban agriculture projects as this indicates community support

Existing Urban Garden Data Courtesy of the City of Milwaukee Office of Environmental

Sustainability (OES)

53utilization catEGoriES: urban aGriculturE

Urban AgriculturePreferable Zones


Dedicated Environmental StrategiesEnvironmental strategies increase green space and wildlife habitat, and also protect natural resources within a city. Environmental strategies can take many forms. One that Milwaukee is particularly interested in is green infrastructure (GI), because of the abundant water resources in the area. Green infrastructure is defined by the United States Environmental Protection Agency as “an approach to wet weather management that is cost-effective, sustainable, and environmentally friendly.” Specifically, “green infrastructure management approaches and technologies infiltrate, capture and reuse stormwater to maintain or restore natural hydrologies.” This means that GI is used to capture and convey stormwater runoff by mimicking more natural processes, and it can help Milwaukee be more adaptable to a changing climate. In addition to GI, Milwaukee has been pursuing the expanded use of alternative energy. This is another environmental solution that can assist in adapting to changing climate conditions, reduce the local carbon footprint, and diversify the city’s energy sources.

Environmental strategies, such as green infrastructure, are extremely important, especially in urban areas that lack greenspace, wildlife habitats, or the ability to infiltrate stormwater. Additionally, many cities have aging infrastructure systems and high levels of pollutants in the air, as well as on the ground. GI is important to the City of Milwaukee because it has both combined and separate sewer systems (see sidebox). This means that Milwaukee needs to be concerned with reducing water quantity within the combined system, as well as improving the quality of water flowing to storm sewers in the separate system. This will help reduce the risk of basement back-ups, flooding, and polluted water entering area waterways.

Urban stormwater runoff is the largest pollutant threat to area waterways, causing them to not meet drinking water or water quality standards (recreation, fishing, etc.). GI can be used to clean polluted urban stormwater runoff by filtering it before it can reach area waterways through storm sewers. The area where the rivers meet Lake Michigan is considered an Area of Concern by the United States Environmental Protection Agency, and it has use impairments linked to degraded water quality. Although much work has been done over the past 20 years, many waterbodies in the City have degraded water quality due to surface conditions and a lack of natural filtering hydrology. Runoff volume to storm sewers, even if the water is free of pollutants, causes increased volume in area waterways, which leads to degradation of habitats and erosion.

the Milwaukee Metropolitan seweraGe District (MMsD) Defines separate anD

coMbineD sewers as the followinG:

separate sYsteM: In most of Milwaukee, sanitary sewers convey wastewater separately from stormwater. Sanitary sewers convey wastewater to water reclamation facilities owned by the MMSD, and the municipal storm sewers convey stormwater directly to area waterways, untreated.

coMbineD sYsteM: In the older, more densely developed part of Milwaukee, sewers convey wastewater combined with stormwater. Combined sewers eventually convey wastewater to the Jones Island Water Reclamation Facility in Milwaukee, which means stormwater is treated as well. Combined sewers provide a unique stormwater quality benefit not realized under separate sewer conditions. On rare occasions, one to two times per year on average, combined sewer overflows occur when there is too much stormwater runoff entering the combined system.

Source: MMSD.com

55utilization catEGoriES: dEdicatEd EnvironmEntal StratEGiES

GI can reduce the volume of stormwater that runs across the surface of the land, capturing and infiltrating precipitation where it falls. In the combined sewer area, reducing the volume of stormwater entering the sewers is important for reducing the risk of basement back-ups and combined sewer overflows.

Additionally, green infrastructure is becoming increasingly important, as climate change occurs and more intense precipitation events are occurring with increasing frequency. Green infrastructure helps to reduce the volume of stormwater that enters Milwaukee sewers, preserving capacity, but can also reduce the urban heat island effect and help to sequester carbon dioxide from the atmosphere. These two added benefits are extremely important – reducing the urban heat island effect can reduce energy use in buildings, thereby saving money and reducing our carbon footprint. Reducing the carbon footprint and sequestering carbon, in soils and woody plants, can help to improve air quality in Milwaukee.

The City of Milwaukee has been very proactive at managing stormwater throughout the city. Mayor Barrett has directed city departments to reduce the amount of stormwater runoff from city properties by 15 percent, and he encourages businesses and residents to do the same. The city is leading by example. City facilities like the municipal building at 809 N. Broadway, the public library and the Public Works Facility on 35th and Capital are managing stormwater on-site through the use of green infrastructure.

Additionally, the city has collaborated with other governments and non-profit organizations to fund a variety of projects to reduce the flow of stormwater runoff into the city’s sewer system. For example, the city has worked with residents in targeted neighborhoods on downspout disconnections, decreasing the stormwater footprint of public housing through green roofs, rain gardens and downspout disconnections, and adding targeting streets to install inlet restrictors to reduce stormwater flow during periods of rain.

Source: MMSD


City staff has also worked to change plant stock within public greenspace and city boulevards. By using native plants, more rain can be soaked up and less water is needed during times of drought. Finally, the city has implemented various green streets, such as S. 6th Street, the city’s first designated “Green Corridor.” The next step is for the city to take these ideas and implement them in areas near waterbodies, where green space is lacking, and leaky sewer pipes significantly increase in-flow into sanitary sewers. It should also focus on areas where basement back-ups and overland flooding are frequent occurrences.

Vacant parcels hold significant opportunity for managing stormwater through the use of green infrastructure. Many times, vacant properties are located in neighborhoods where green space is lacking, and significant numbers of homes have reported basement back-ups and flooding. In areas of pre-1954 housing stock, where roof drains are connected directly into the sanitary sewer, green infrastructure can reduce the amount of water that enters the combined sewer system. This will lead to a reduction in the incidence of basement back-ups and sewer overflows. During times of intense rainfall, areas with large amounts of impervious surface are major contributors to polluted stormwater entering area waterways, or overloading the system. Additionally, green infrastructure installations on vacant lots can be paired with other uses, such as urban agriculture (rainwater harvesting), parkland (stormwater parks), and schoolyard use (outdoor stormwater learning labs). Green infrastructure can be easily woven into the design of other uses, making it an ideal complement to them, as well as a cost-effective stand-alone practice.

Several challenges that prevent green infrastructure from being widely implemented are tied management, cost, and maintenance. Maintenance is necessary for long-term effectiveness and aesthetics. Additionally, it is a challenge to direct stormwater runoff to vacant lots, from nearby impervious surfaces.

Another component of environmental strategies is alternative energy which provides excellent reuse strategies that can help the City of Milwaukee meet its goals of energy reduction, diversification of energy production, and the improvement of air quality through reduced carbon emissions. Alternative energy uses such as solar, wind, water and bio-power can be the sources of energy for making cities run. Some vacant properties offer the perfect conditions for implementing these types of reuse strategies. Alternative energy sources allow additional energy supply to be put back into the current power grid. They can help decrease the need to build new, larger power facilities, because of their ability to integrate directly into the local grid. They also have the ability to be rapidly deployed, as opposed to large coal or gas powered energy plants, which take a longer time to build. Also, by putting these technologies on vacant land, this avoids the complications of installing them on existing buildings.

FUNDING AVENUES

The Milwaukee Metropolitan supports stormwater management through various

green infrastructure funding programs. MMSD’s funding programs offer cost share

incentives for partners wishing to implement green infrastructure. The programs currently

available from MMSD are:• Green Infrastructure Partnership Program

(50% Cost Match Partnerships)• Regional Green Roof Initiative ($5.00 Per

Square Foot Partnership)• Lake Michigan Rain Garden Initiative

(Reduced Cost Native Planting Grant)• MMSD Rain Barrel Program ($49.95 Per

Barrel)

OTHER POTENTIAL FUNDING PARTNERS FOR STORMWATER MANAGEMENT IN THE GREATER MILWAUKEE AREA:• Southeastern Wisconsin Watersheds Trust

(SWWT) Mini-Grant Program• Fund for Lake Michigan (FLM)


Additionally, alternative energy generation is a national goal as well as a local goal. As climate change occurs due to greenhouse gas emissions and the loss of green space, alternative energy sources such as wind, solar, water and bio-power can provide sustainable sources of energy without heavy carbon emissions. Alternative energy also holds energy security for the local region. By diversifying Milwaukee’s energy portfolio, the city becomes more resilient to the wild price fluctuations of fossil fuels. This will be increasingly important, as the supply of fossil fuel dwindles, and prices go up. Sustainable alternative energy sources could be used to fill those gaps. Alternative energy holds great potential for creating jobs. Promoting the use of these types of energy in Milwaukee will bring new jobs in design, installation, and maintenance. Local technical colleges and universities are putting more emphasis on students to enter professions related to this topic, and a local workforce could be well supplied.

The City of Milwaukee has been working towards increasing the use of alternative energy sources throughout its operations. Milwaukee has updated ordinances to allow for the implementation of wind and solar power in various areas of the city. The City of Milwaukee has various partnerships with federal agencies to provide energy efficiency and alternative energy programs. Particularly, Milwaukee Shines, helps to promote solar energy within Milwaukee. It has created jobs and has helped to install solar energy projects. These programs work to incentivize alternative energy and to educate the public, while providing a necessary service: energy creation.

The next step is for the city to take these ideas and implement them in areas where greens pace is lacking, near waterbodies, and where there is evidence of leaking laterals. Goals:• Diversify Milwaukee’s energy sources• Reduce energy use• Educate the public on sustainable energy• Create green jobs

Below is an example of an decorated rain barrel used for stormwater catchment in

Milwaukee.

Solar panels generate electricity at the Milwaukee Public Library which is also home to

a green roof.


dediCated eNviroNmeNtal StrategieS deCiSioN faCtorS

To consider reuse strategies for vacant lots, analysis was completed based primarily on physical characteristics. Dedicated environmental strategies analysis and criteria inputs were based on the decision factors listed below:

Riparian Corridors and FloodplainsDedicated Environmental Strategies should be placed on lots within floodplains or within ¼ mile of waterways.

High Inflow To Sewerage SystemThese strategies should be placed in areas which are considered poorly performing/non-compliant metersheds (metersheds are the geographical area served by a system sewers, including private and municipal sewers that drain to a common point in the regional collector sewers). This can reduce instances of overloading the system.

Green SpaceIn highly dense area lacking green space (greater than 1,000 ft. from the nearest park) environmental strategies can fill an important gap and reduce hardscape.

Public Health and SafetyThese strategies should be placed in areas where private property inflow and infiltration cause basement back-ups and flooding have been reported.

Hardscape and Community SpacesThese strategies should be placed adjacent to large parking lots or hardscape surfaces (schools, commercial and industrial buildings).

Existing Dedicated Environmental Strategies Data Courtesy of the Milwaukee Metropolitan Sewerage

District (MMSD)


Dedicated Environmental Strategies Preferable Zones


Community Stakeholder SummaryPublic outreach is an important component of any planning project, but it is especially important for helping the City of Milwaukee’s Department of City Development determine the best uses for its vacant lots. Residents are highly affected by vacant lots and there is significant opportunity for the city to gain information on how the repurposing of vacant lots can help to achieve neighborhood needs. Residents are a great resource when it comes to obtaining information about neighborhood conditions, needs, and the willingness to support individual programs. It builds a relationship between city governments, community groups, local businesses and residents. These relationships are important because they can foster future coordination, action, and help for managing public open spaces.

CommuNity outreaCh ProCeSS

Public outreach for this project began with project notice letters. More than twenty stakeholders groups received an outreach letter describing the project, why they were contacted, and the role that they can play in the process. A smaller group of stakeholders were also given a list of interview questions specific to their organization and its experiences working with vacant lots in the City of Milwaukee. The purpose of this exercise was to give stakeholders the time to provide complete answers and think of issues they are interested in focusing on. Next, each stakeholder that had been given an interview form was called to discuss the questions and other topics related to repurposing vacant land in Milwaukee. Several stakeholders provided written answers to questions, as well as follow-up phone calls, to keep in contact for the duration of the project.

The next phase of community outreach came in the form of a public meeting. After incorporating initial stakeholder feedback into strategies of vacant lot reuse, all stakeholders received a phone call, email or mailed meeting notice, allowing further opportunity for them to express their ideas, and see what early reuse recommendations were made. The public meeting, held at St. Marcus Lutheran Church, had a small focus group ambiance - there were 12 attendees, and each of the 4 main repurposing categories were presented to the group. The meeting focused on Simple Solutions, Urban Agriculture, Redevelopment, and Environmental Strategies.

Each category was presented for 20 minutes and included an open group dialogue. Discussion was lively and productive, as stakeholders provided valuable input, and gave recommendations on how the city could communicate better with the public, regarding its vacant land policies. Each of the four presentations received positive feedback, as well as constructive criticism.

The semi-formal nature of the “Lots of Potential” community outreach meeting

allowed for open dialogue among presenters and attendees, following the structured

presentation.

61community StakEholdEr Summary

The introductory section involved an overall summary of the project, and its goals and

objectives.

After this portion was completed, the group moved on to open discussion and written feedback. Stakeholders were able to take a closer look at the strategies presented, along with renderings of potential uses for vacant lots in the target area. Below are summaries of each category that was presented, along with some key points that the group took away from individual stakeholder comments.

SimPlE SolutionS

Simple Solutions is possible and will have far-reaching benefits for communities, however, it will need additional funding avenues and maintenance support from residents and neighborhood groups. Funding can come from Targeted Investment Neighborhoods (TINs), grants, or possible incentive programs. Maintenance needs could possibly come from the City of Milwaukee or partnerships with neighborhood organizations. However, if there are many stakeholders invested in an individual lot (i.e. to beautify, activate, and use it over time), it may be difficult to transition to development in later years.

CritiCal iSSueS aNd viewPoiNtS exPreSSed

• The biggest and most important concern was over funding and maintenance with even the small investments required by Simple Solutions. These concerns are very warranted, as the City of Milwaukee has finite resources to dedicate to vacant lots.

• However, many stakeholders agreed that beautifying and greening neighborhoods was important because green space added to the quality of life.

• There needs to be a balance between the temporarily using vacant lots as community assets and later transitioning for development use. As community groups and neighborhood residents maintain and oversee lots in their neighborhoods, a sense of ownership will develop and it may be difficult to later give it up.

dEvEloPmEnt

Residents expressed strong doubts about the viability of development for vacant lots. Overall, stakeholders said the city needs to have a vision for the future, one in which vacant lot reuse can be addressed. This cannot be a traditional vision of cities, but instead something new and forward thinking. Many aspects of the urban environment affect the feasibility of development such as historic district, market conditions, and nearby quality green space.


• Historic district regulations can be problematic for developers because very specific design requirements.

• It’s unlikely that marketing changes will help, whether it involves the price or advertising of vacant lots. The economic market conditions will dictate when vacant lots sell for development.

• Whatever the specific use, new development and redevelopment should align with a citywide vision.

• A short-term reuse strategy needs to be outlined for vacant lots that are reserved for development.


urban aGriculturE

The group of stakeholders gave considerable positive feedback on urban agriculture. While there were a few questions about practicality, most of the group seemed to agree that the social, educational, and community benefits alone could justify further encouraging urban agriculture in the city. Additionally, it was mentioned that urban agriculture projects had the potential to bring indirect benefits to the city, such as reduced crime, and stronger community bonds. There was much discussion regarding the current state of codes, especially the fact that these codes have created several major limitations for individuals and community groups.


• The best maintained community gardens are those that are overseen by local residents. When outsiders manage plots, it is less likely to achieve a long term commitment.

• There is a need to show the economic impact of urban agriculture on a local scale, so that it can gain further support from the city.

• The city needs to move forward on proposed code changes suggested by a recent EPA audit to encourage urban agriculture projects.

• Growing Power has given Milwaukee an amazing educational and community building tool, not including the economic benefits for the city.

• Milwaukee needs a vision for a sustainable city that grows local food.

list of coMMunitY stakeholDers

Janet Grau, City DCD*Nolan Zarloff, City DCDYves LaPierre, City DCDBruce Wiggins, Milwaukee Urban Gardens*Alderwoman Milele Coggs*Alderman Nik Kovac*Steve Jerbi, All People’s ChurchSara Christman, Growing PowerJerome Knapp, Historic King Drive BIDDannell Vance, City DPW*Raphiel Cole, City DPW*Mary Beth Driscoll, Groundworks Milwaukee*Ian Powell, Pampered Produce*Marvin Walker, Marvin L. Walker & Assoc.*Jan Christiansen, Riverwest CurrentsKaren Sands, MMSDOfficer Prince, Milwaukee Police Department District 5Deborah Wallace, Oliver Wendell Holmes AcademyJeremy Davis, Walnut Way*Barry Spencer, St. Marcus Church*Ken Leinbach, Urban Ecology CenterPastor, Time of Grace MinistryPastor, True Church of The First BornAbel Hamdan, Business Owner on North AvenueAndrew Plier, Reflo H2O*Tom Stocco, Riverwest Investment Cooperative*

*Indicates attendance at April 2, 2013 public meeting.

63

EnvironmEntal StratEGiES

The Department of Forestry was interested in using dedicated environmental strategies on the lots that they maintain. The conversation centered on using reuse strategies as job training opportunities for local youth. This was noted as a means to connect with area schools, such as Milwaukee Area Technical College (MATC). The exposure to this strategy was also brought up as a critical issue in overcoming barriers to green infrastructure implementation. Residents need to be educated about these environmental strategies, what the needs and benefits are, and what is needed in order for them to support the project. Finally, there was a great interest in combining these strategies with urban agriculture, as a means to meet multiple goals simultaneously.

community StakEholdEr Summary

Each section featured an in-depth presentation and discussion on a specific reuse option - in

this case, environmental strategies.


• There is a need for green jobs and job training.• Nonprofits and community groups cannot be

expected to maintain these lots on their own. There needs to be involvement and investment from the City.

• There is a need to use these strategies in conjunction with urban gardening, in order to serve multiple purposes.

• Stakeholders brought up concerns over costs and the level of maintenance that will be needed. Is this something that can it be built into the city’s current budget?

• There needs to be an educational component, as many people are unaware of what these strategies are, and what benefits they can bring.


RecommendationslEvEraGinG your lotS: a dEciSion makinG tool

This decision making tool is meant to be a step-by-step guide to help determine the best reuse strategy for vacant lots. Vacant lots are a complex issue influenced by a wide range of factors. Location, economic conditions, previous uses, and lack of infrastructure all contribute in different ways to the deterioration of productive tax-generating properties into idle vacant lots. Due to the complexity of causes and the unique attributes of each lot, a decision making tool was designed as the primary component of the preferred alternative.

This tool takes into account several criteria used to identify desirable uses for each vacant parcel. The general criteria used as the basis for the decision making tool include the following:• Zoning and historic status• Accessibility factors including access to public

transportation, proximity to major roads, and walkability

• Proximity to amenities such as schools, parks, and grocery stores

• Lot size

This tool must be a flexible document that is able to change as technology, culture, and values change in the City of Milwaukee. Additionally, it is important to point out that the tool is designed to be a guide. Some parcels may be well suited for several different types of reuse and it will require the knowledge and forethought of the individual or group employing the tool to judge the most feasible and positive option. To provide a complete analysis, a specific of variables were included for each reuse category.

Leveraging Your LotsSimple Solutions

What is the lot’s development potential?

Strong Weak

Side lot expansion/Adjoining lot sale LandscapingFencing Short-term leasingNeighborhood pathway

DevelopmentNew developmentInfill developmentMixed-use developmentLand assemblyNeighborhood structural needs

Private parks Active parksOff-street parking lotsPublic art

65rEcommEndationS

Leveraging Your Lots Decision Factors

DedicatedEnvironmental Strategies

Urban Agriculture

ZoningAccessibility Proximity to other land uses

parksschools

Is there a need for community passive open space?

Rain gardenTree canopyNative plantingsBioswalesSoil amendmentsGreenseamsAlternative energy

Is there a supportive community for urban

growing spaces?

No Yes

Yes No

Green Infrastructure• Can accompany all reuse strategies on

vacant lots • Manage stormwater runoff to sewers or

the water quality of area waterways• Promote Milwaukee as water hub with

multiple strategies for water management • Enhance the vision of Milwaukee as

sustainable city

Community gardenHoop houseGreenhouseUrban farmOrchardVineyard

ADecision-MakingTool


While an analysis of the preceding reuse strategies provides helpful insight into the options available for specific lots, there must be a means through which their individual criteria can be incorporated into a broader, comprehensive formula. Some lots may be conducive to multiple types of reuse simultaneously. For instance, a given lot may be zoned for residential use, but also located farther than one half mile from the nearest park, as well as the nearest grocery store. As such, that lot could conceivably be used for infill development, a pocket park, or an urban garden. For this purpose, the following decision-making tool was developed.

As an introduction to the process, each individual lot will go through the “Simple Solutions” phase. It will be carefully cleaned and landscaped, cleared of obstacles and debris, and branded with a new, more attractive city marker, to indicate its status as a city-owned vacancy. This will effectively “prime” the lot for its transition to a utilization category. In addition, certain parcels may be recommended as side yard additions to the neighboring properties, while others are given short-term leases, for private upkeep and maintenance, or for urban farming efforts.

Once this phase is completed, the city can go through the process of assessing the development prospects of each parcel. Based on a number of factors - market conditions, location, transportation access and zoning, it can be determined whether these prospects are comparatively strong or weak. If the prospects for a given lot are strong, then it can be designated as a prime development site. As investors are being pursued, these lots will temporarily remain in the “Simple Solutions” phase.

Within the development phase, lots will also be assessed based on the local community need for pocket parks, community gathering spaces, and public art. If such a need is strong enough, certain parcels can be formally set aside for this purpose.

Lots deemed to have “weak” development prospects should be evaluated on their appropriateness as urban garden or environmental strategy sites. If community members generally support the introduction of gardening or farming efforts, and there are groups or individuals prepared to take on the task, then that lot will be set aside for urban agriculture. If these resources aren’t immediately available, then the lot can be formally dedicated to environmental strategies.

Finally, it is also recommended that each lot, regardless of its final use, have at least a small portion of its space devoted to stormwater solutions. This can be as simple as a small strip of bioswale along the frontage of the street, or a rain barrel attached to a building exterior or another permanent fixture. This helps solidify the City’s commitment to the issue of sustainability and stormwater management.

Adding stormwater management techniques is feasible all any lots. At this Alterra near

Lake Michigan in Milwaukee a rain garden was planted space between the outdoor patio and the

public right-of-way.

67rEcommEndationS


Target Area AnalysisAlthough vacant properties exist in many of the 190 formal neighborhoods of Milwaukee, a vast majority of them lie in the dense inner center of the city. In fact, more than two thirds of the city owned vacancies are located within just 10 central city neighborhoods. The target area consists of a portion of the Harambee neighborhood (which, as a whole contains roughly 10 percent of all city owned vacancies), along with portions of Brewers Hill, Riverwest and Halyard Park. The target area itself has just over 40 vacant lots. This area was chosen because of its mix of residential and commercial uses including multiple commercial corridors located on North Avenue, Holton Street, and the Dr. Martin Luther King Jr. Drive.

With city- and privately-owned parcels together, there is nearly 475,000 square feet of vacant land in the target area, accounting for one-tenth its total area, not accounting for the publicly owned right-of-way. While such a figure sounds like it would be a significant burden, it also offers great opportunity, and the right combination of reuse strategies can help weave this land back into the neighborhood fabric.

hiStory

Initially, during the 1800s, Harambee was a German immigrant settlement [1]. By the 1930s, most of the residents were African American, a trend that continued into the 1950s when Harambee became a cultural hub of the African American community. Today, the area is still largely African American. Within the census blocks comprising the target area (not including the Riverwest neighborhood), the racial composition is 73 percent African American, 13 percent Caucasian and 11 percent Hispanic [2].Many of its residents once worked in manufacturing jobs that have since evaporated. In 2010, more than a third of residents were in poverty (as defined by the U.S. Census Bureau), compared with just one-fifth of residents citywide. The average household income is about $10,000 below that of the citywide average and since 1995 home ownership has declined from 54 percent to 45 percent [1].

For the cluster of census blocks specific to the target area, the population density is 6,100 people per square mile, slightly less than the citywide value [3]. Considering its central city location, and the dense arrangement of land parcels, this value would likely be significantly higher if not for the presence of so many vacant properties. Despite these declining factors, there are signs of progress in the neighborhood. For example, school performance has improved in recent years, the number of local jobs has increased, and the area has attracted several new nonprofit organizations [1]. Additionally, the area continues to maintain a strong sense of community identity.

African American culture and identity are strong features of the target area.

69tarGEt arEa analySiS

Vacant Lots in the Target Area


Site aSSeSSmeNt

In early February, each vacant lot within the target area was photographed and a site condition assessment performed. Condition assessments served two purposes: to see how current maintenance needs were met; to get a good idea of lot sizes, surrounding conditions and to brainstorm possible reuse strategies. From the condition assessments, it was determined that the city had done a good job ensuring that all sidewalks were shoveled and that large debris and trash was cleared. Few lots were littered with trash during the site assessments and this was more than likely due to adjacent dumpsters.

Across Milwaukee, most of the city-owned vacant parcels have a consistent, predictable appearance: a flat patch of mowed grass with a small white sign providing notice not to dump on the property. In some situations, there is also a few trees or minor landscaping features left from previous uses. Some lots were equipped with parking barriers to deter parking and dumping. Many lots showed signs of being used by adjacent neighbors such as small gardens, evidence of foot pathways, yard ornaments and in some cases toys.

The surrounding properties were a mix of larger duplexes and smaller cottages. Being in an older area of the city, the housing stock is mature and there are signs of wear, but most houses are well maintained. Also, like many of Milwaukee’s mature neighborhoods there is a significant tree canopy along the streets.

The commercial properties in the area are a mix of historic and modern buildings. Most commercial buildings along North Avenue and Holton Street tend to be two stories or less, with retail on the first floor and residential on the second floor. Along Dr. Martin Luther King Drive the buildings tend to be two- to three-story buildings. Along this business improvement area there are some buildings with mixed use, commercial and residential, but there are also a great deal of buildings with dedicated commercial use.

reuSe StrategieS CurreNtly iN PlaCe

After analyzing the target area, it was clear that urban agriculture was a supported reuse strategy and that there is a currently deficit for neighborhood parks or passive green space. The target area showed that commercial development and residential infill were being sought and supported were feasible. Lastly, there is some stormwater management in the area, but it is most often associated with urban agriculture. As this area is within the combined sewer area (where stormwater and sanitary water are conveyed together to a water reclamation facility) it would be beneficial to capture, infiltrate or reuse stormwater, reducing the stress put on the sewer system.

CaPital iNveStmeNt

Commercial DevelopmentCommercial uses are also included in certain reuse situations, an example is St. Marcus Church and School which has expanded its campus and provided substantial infill development. As mentioned earlier, there are several commercial corridors within the target area, and there has been significant reinvestment and infill along these corridors (MLK Jr. Drive and North Avenue) over the last ten years. There few parks in the target area; one small pocket park is located on the corner of 1st and Wright Streets. Another is the school yard at Oliver Wendell Holmes School.

All People’s Church Community Garden on 2nd and Clarke Streets in the target area.


The target area contains a significant portion of the Historic King Drive Business Improvement District (BID) along Dr. Martin Luther King Drive. This overlaps with the Bronzeville Tax Increment Financing (TIF) District, which stretches west toward Interstate 43, with the bulk of development prospects targeted toward vacant and underutilized parcels on North Avenue, the historic hub of Bronzeville. The King Drive BID has been very successful at revitalizing several key nodes along the King Drive corridor, particularly around the intersections with North Avenue and Locust Street. As this area has already been formally targeted for new development, it should receive priority. New tenants will help contribute additional revenue for the BID, which can be put back into revitalization efforts along the corridor, including streetscape and facade improvements, litter cleanup and maintenance, and public art installation.

The Holton Street corridor, an important arterial connecting Harambee and Riverwest with the east side of downtown, offers promising opportunity and should not be overlooked as a site for possible development. While only portions of this corridor are zoned for commercial use, it is a district comprising multiple historic neighborhood nodes, commonly populated by corner food markets, taverns, and various small shops. Thus, new higher density development would be welcomed here, as a means of neighborhood revitalization. Currently, within the target area, there is only one vacant parcel along this corridor - the site of a former gas station, on the corner of Holton and Meinecke Streets.

coMMercial DevelopMent Decision factors

Business Improvement DistrictsFocus development efforts first on vacant land that are critical nodes within Business Improvement Districts such as intersections of major arterial streets.

Buildable LotsFocused development efforts on vacant land that has a contiguous footprint of 3,600 square feet or greater. Parcels with greater footprints are more marketable to developers and have greater potential for development. Building footprint is important but developers may also desire land for parking.

Commercial AreasCommercial-zoned areas not in Business Improvement Districts, such as North Avenue between King Drive and Holton Street, should also be a high priority for commercial development.

AccessCommercial development should be accessible to people using multiple modes of transportation. For this project, we use the criteria that development should be within one fourth mile of a bus stop.

New Village Townhomes


Commercial DevelopmentAnalysis in the Target Area


Using the decision-making tool lots were chosen and assigned the most productive uses. Below is the rendering of 2219 N. Martin King Luther Drive. This lot was chosen in the commercial corridor to preserve its commercial use but to provide temporarily activate this lot and bring economic activity to businesses in the area.

BEFORE: 2219 N. Martin King Luther Drive

AFTER: 2219 N. Martin King Luther Drive as temporary economically active lot


Residential Development Analysis in the Target Area

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Residential DevelopmentDue to the historic background of the Harambee neighborhood, the housing stock is mixed stock of older homes. Redevelopment and new development in the target area should reflect a considerable amount of investment in the neighborhood to preserve the character of the community. The housing options provided in Harambee should reflect the needs of existing residents, and in no way artificially change the cost of living in this community.

Projects elsewhere in Milwaukee can serve as a model, when choosing to develop residential housing. These include Franklin Square, Heart and Hope Place, and Prince Hall Village. To make such projects viable, developers can utilize various sources of funding assistance, such as affordable housing tax credits, from the Wisconsin Housing and Economic Development Authority (WHEDA).

Community SpacesThere is no formal city or county parks within the target area. The nearest large park is Kilbourn park, in Riverwest, and Rose Park, further north in Harambee. In terms of recreational spaces for children, there is a city-owned tot lot at the corner of 1st and Wright Streets. Given these conditions, there is a clear demand for more areas of open space, either as pocket parks or formal community gathering places.

resiDential DevelopMent Decision factors

Buildable LotsMany of the vacant lots in Milwaukee are irregular size or no longer meet modern construction standards. Adhering to the city’s guidelines for construction needs, the lots must be buildable.

Existing Access to UtilitiesUtilities are in place (gas, electric, water and sewer), but vacant parcels in other areas of the city may not currently have access to utilities. Vacant lots with access should be given high priority for development, due to costs associated with establishing new access.

Accessible to EmploymentResidential development should occur in areas of the city that are easily accessible to employment opportunities. Residential development should be within 1/4 mile of a bus stop, in order to accommodate residents who need or desire to take advantage of transit.

Accessible to AmenitiesResidential development should gravitate toward areas that are accessible to current amenities such as grocery stores, parks, schools, commercial areas and entertainment. This criterion should not to used to rule out any parcels for residential development.

Vacancy RateResidency was in a census tract with a housing vacancy rate of less than 10%.

Foreclosure RateResidency was in a census tract with 10 foreclosures or less (as of January 2013).


urban aGriculture Decision factors

Food DesertsUrban agriculture lots should located more than a quarter mile from a grocery store to eliminate food deserts.

Public EducationUrban agriculture lots when possible should be located within a quarter-mile of schools to optimize educational opportunities.

AccessibilityLots with fresh food, especially when targeting food deserts, should try to be within a quarter-mile of bus stops to provide an equitable amount of accessibility.

Green SpaceUrban agriculture can aid in creating ‘green zones’ with a half-mile of a park in highly dense areas lacking active parks.

Downtown OverlayExcluding the areas zoned as Downtown to ensure code compliance.

Public Health and SafetyNeighborhoods where there are high incidences of obesity or other chronic health problems.

Supportive Urban Agriculture CommunityWithin a quarter mile of existing urban agriculture projects as this indicates community support.

Urban AgricultureThe Target Area already has an established presence of urban agriculture, some of which is currently located on city-owned lots. Two parcels at the corner of 2nd and Clarke Streets have been farmed by nearby All Peoples’ Church for many years. Scooter’s Garden of Hope located across from Oliver Wendell Holmes School is a strong example of an active urban garden. Two additional examples are present on Richards and Buffum Streets, and there is further activity in surrounding neighborhoods, including the garden at Kilbourn Park, in Riverwest.

There is a concern development prospects can make long term investments in urban farming difficult. Stakeholders from the target area expressed interest in having gardens with a long-term presence to be considered for land rights transferal or sale. Long-term presence would mean the garden has been in existence for more than three growing seasons and has been adequately maintained (based on the city’s current standards for leasing), and has an active neighborhood resident presence.

Scooter’s Garden of Hope incorporates many uses along with urban agriculture including public art and stormwater collection. Another successful garden in the area is the All People’s Church Community Garden on the corner of 2nd and Clarke Streets.

Fresh produce at Growing Power.


I 0 250 500 750 1,000125Feet

North Ave.

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. Dr.

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More Appropriate

Less Appropriate

Other StreetsTarget Area

Arterial Streets

Vacant Lots

Urban Agriculture Analysis in the Target Area


Using the decision-making tool lots were chosen and assigned the most productive uses. Below is the rendering of two residential lots are second. These lots do have potential for residential infill, however, with the strong need for neighborhood investment in the target are these lots were chosen to be developed as community assets. With the need for green space, especially an active park and strong support for community gardening, these two lots were rendered as a tot lot and urban garden.

BEFORE: 2540/2536 N. 2nd Street

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AFTER: 2540/2536 N. 2nd Street as a double lot community asset


DeDicateD environMental strateGies Decision factors

Riparian Corridors and FloodplainsDedicated Environmental Strategies should be placed on lots within floodplains or within ¼ mile of waterways.

High Inflow To Sewerage SystemThese strategies should be placed in areas which are considered poorly performing/non-compliant metersheds (metersheds are the geographical area served by a system sewers, including private and municipal sewers that drain to a common point in the regional collector sewers). This can reduce instances of overloading the system.

Green SpaceIn highly dense area lacking green space (greater than 1,000 ft. from the nearest park) environmental strategies can fill an important gap and reduce hardscape.

Public Health and SafetyThese strategies should be placed in areas where private property inflow and infiltration cause basement back-ups and flooding have been reported.

Hardscape and Community SpacesThese strategies should be placed adjacent to large parking lots or hardscape surfaces (schools, commercial and industrial buildings).

Dedicated Environmental StrategiesAt the present time, dedicated environmental strategies have not been formally implemented in any part of the target area or immediately surrounding neighborhoods. Given the prevalence of basement back-ups and flooding in older neighborhoods, the vacant lots of Harambee and Brewer’s Hill offer plenty of opportunity to demonstrate these valuable solutions.

Some of the smaller, unbuildable lots, particularly those along North Avenue, would be well served by the placement of stormwater infrastructure. By using unbuildable lots for dedicated environmental strategies, it offers a unique opportunity for educational outreach coupled with meeting stormwater management needs. In other areas, larger lots can combine these strategies to continue to achieve the benefits of stormwater management. For example, a larger vacant lot can be split in half with one portion being used for a side yard expansion and the other being devoted to environmental use.

Native plantings can be used anywhere.

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Dedicated Environmental Strategies Analysis in the Target Area


Using the decision-making tool lots were chosen and assigned the most productive uses. Below is the rendering of an a lot that is too small to build on along North Avenue in the target area. This lot is perfect for a dedicated environmental strategy as it can still be productive by managing stormwater runoff and providing an educational use to the community. With the need for passive green space in urban area, a rain garden, on this corner lot is a sustainable and manageable use.

BEFORE: 344 E. North Avenue

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AFTER: 344 E. North Avenue as a dedicated environmental strategy


Stormwater maNagemeNt through greeN iNfraStruCture

Today, stormwater runoff from urban areas is one of the largest sources of pollutions that area waterways face. It is important to manage stormwater runoff not only for water quality, but for quantity entering into the sewer systems. There is a need to reduce stormwater from entering the sewer systems because it can cause basement back-ups, flooding and combined sewer overflows. All strategies presented within the pattern book and in the decision making tool should be accompanied by some form of green infrastructure to better manage stormwater runoff from these sites and to not further adversely impact the capacity of area sewers or the water quality of area waterways.

reiNforCe greeN CodeS aNd zoNiNg

The city should continue its work to update codes and ordinances to allow for vacant lot reuse. Stakeholder feedback indicated there are still barriers on the ground to implementing stormwater capture, urban agriculture, parks and other forms of development. The city should continue to work on code and zoning changes recommended in the United States Environmental Protection Agency’s Urban Agriculture Audit; for example, allowing for secondary structures where there is no primary structure present. This presents significant issues, particularly, for urban agriculture where there is a need for cost effective and sustainable water sources. Lastly, the city should look to continue reinforce green codes and zoning to foster consistency between city departments and to support the city’s upcoming sustainability plan.

Policy

Green Codes and Zoning - such as those identified in the EPA Urban Agriculture audit - should continue to be pursued to remove

barriers for community organizations such as Next Door Foundation pictured above.

Green infrastructure is an important part of Milwaukee’s future and can be incorporated into any project such as this rain garden at

Miller Brewing Company.

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CommuNiCatioN aNd CooPeratioN

There are multiple departments involved in managing city-owned vacant lots. Forestry, within the Department of Public Works, leads maintenance efforts such as lawncare and snow removal. Real Estate, within the Department of City Development (DCD), leads sale and leasing efforts. Planning, also within DCD, manages long-range planning strategies. The Redevelopment Authority of the City of Milwaukee (RACM), an independent corporation with board members appointed by the mayor, assembles land for development. The Department of Neighborhood Services responds to resident complaints about vacant lots. Additionally, community groups and residents are very passionate about vacant lot reuse strategies in their neighborhoods.

Based on feedback from stakeholders, more concise and clear communication is needed from the city with residents and community groups interested in vacant lot reuse strategies. Barriers on the ground still exist between the City and residents who desire the same sustainable design and management strategies as the City. However, due to lack of efficient correspondence and cooperation between city departments and the public implementing these strategies has become difficult.

Obstacles to Overcome

obStaclES to ovErcomE

reCommeNdatioN 1: Hire a City of Milwaukee Vacant Lots Coordinator

The proposal of Leveraging Your Lots will provide a structured model for the City of Milwaukee; however, a clear point of contact will be needed for all stakeholders involved. The Vacant Lots Coordinator will facilitate communication between city departments, community stakeholders and other groups involved with vacant lot strategies. With new designs being introduced, new stakeholders will be involved in the vacant lot reuse process. For example, with environmental strategies as a tool for reuse the Milwaukee Metropolitan Sewage District will likely be needed for their expertise in stormwater and green infrastructure management. This Coordinator will also work on community outreach with the public and city-owned vacant lots. The Coordinator would manage a getting information out about vacant lots such as with a website, work with community groups, and facilitate an ongoing dialogue for vacant lot reuse within city departments.

reCommeNdatioN 2: Create a Vacant Lots Multidisciplinary Team

With the limited budget involved with vacant lot reuse, an advisory team can be created to discuss and advise on vacant lot reuse issues as an alternative solution. This multi-disciplinary team would be made up of members of each of the City of Milwaukee departments listed above that have stake in vacant lot reuse. This team would not meet regularly but only to provide input and expert advice on vacant lots that can be community catalysts or points of controversy such as a vacant lot that would be reused for a use other that commercial use in a business corridor.


maiNteNaNCe

The cost to maintain a vacant lot is estimated at $3,700 per parcel according to the budget. Maintenance, contracted through the Forestry division of the Department of Public Works, includes lawn mowing, and snow and litter removal. However, it does not include time and money invested in marketing the parcels for development, surveillance done by the Milwaukee Police Department or the opportunity cost of lost taxes.

Forestry does not have the budget necessary to fund any additional treatments to vacant lots, and the private contractors may not have the capacity or capability to perform alternative treatments. Therefore, alternative funding must be used in order to implement any lot enhancements beyond the basic maintenance.

reCommeNdatioN: When possible, transfer responsibility for vacant lot maintenance to an interested individual, community group, or business. Rather than holding vacant parcels for a specific type of desired development, priority should be to handover ownership and/or responsibility for the property to another entity. To accomplish this, the city must seek alternative reuse strategies. Depending on the type of reuse, it may also generate tax dollars; however, even in cases where taxes are not applicable the $3,700 savings is essentially equivalent to a $3,700 taxable development.

loCal StewardS of the laNd

Based on stakeholder advice, any treatment for vacant lots beyond Simple Solutions should involve members of the neighborhood. For example, if urban agriculture is considered as a reuse solution for a vacant lot, people who live in the neighborhood must be willing to support the effort, whether it is participating in gardening or keeping an eye on the parcel when gardeners are not present. Identifying these stewards of the land and supporters of reuse efforts may be difficult in some neighborhoods with low owner occupancy or residents with undocumented or abject status.

reCommeNdatioN: Actively pursue and establish connections with neighborhood anchors and community groups. St. Marcus and All Peoples Church are examples within the target area of neighborhood anchors. Anchors are institutions that are active in the neighborhood and have long-term plans to remain in the area. Because these types of groups have well established roots in a neighborhood, they are likely to become stewards of the land. Many neighborhood anchors have already initiated programs and activities in their respective neighborhoods that could potentially be extended to include vacant lot reuse.

Walnut Way works within the Lindsey Heights neighborhood as local stewards of the land.

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There are many steps that need to be taken in order to bring the vision of a more sustainable Milwaukee to fruition. A coordinated effort between City departments and community stakeholders will help to address vacant lot issues. This collaboration will ensure that there is a consistent approach to working with vacant lots and that the solution involves invested community participation. Below are steps that the city can take in the short-term (0-3 years) and long-term (3+ years) to ensure the viability of the implementation of the reuse strategies listed in this report.

Short-tErm (0-3 yEarS)

marketiNg aNd outreaCh StrategieS

The City should use third party real estate websites to aid in sell vacant lots. The City’s website presents challenges to even locating the current website and the overall interfaces is not user-friendly. However, third party real estate websites reach a wider audience and can expand opportunities for sale of vacant parcels. The City can still continue to maintain control over what is listed, who it is listed with, and restrictions for the lots or buyers.

A specific marketing strategy can accelerate the sale of highly developable vacant lots by pricing them at $1. This strategy streamlines real estate efforts to specific parcels and allows alternative reuse strategies to occur on buildable parcels that do not fit the criteria. Additionally, without compromising construction quality, offer housing models that better align with the city’s median housing assessment, taking in consideration lot price and possible extra construction fees. To compliment the use of stormwater management, offer housing models that minimize stormwater entering the sewer system.

Actions to Implementation

actionS to imPlEmEntation

Additionally, the city should consider creating an education and outreach campaign surrounding vacant lot repurposing. This program would bring positive attention to vacant lots by explaining the City’s goals for repurposing including acceptable reuse strategies and policy changes that affect reuse. This program should look to have materials that target a number of audiences, such as:• Community Groups• Non-profits• Private Investors• Individual Residents

As part of the education and outreach campaign, there should be a plan to distribute the Portfolio of Potential Pattern Book. The illustrative nature of this book can be a resource for the groups mentioned above, as it lists the acceptable uses, benefits, and local examples. It also includes many renderings of what the reuse strategies might look like in Milwaukee and successful Milwaukee examples already taking place in the city. This tool would be an integral piece of the education and outreach campaign because of its simplicity, as well as, its flexibility across disciplines and interests.

beta-teSt the target area

The City should continue the analysis already begun for the target area. This area can be used as a test case, as antecedent conditions have already been documented, and future data collection could lend itself well to evaluation of the strategies. Because the lessons obtained in the target area are applicable to vacant lots citywide, options that are found to work well in this area could be further promoted or used for education purposes.


lonG-tErm (3+ yEarS)

hire a vaCaNt lotS CoordiNator

Due to budget constraints, hiring a vacant lots coordinator may not be realistic in the short-term, but a dedicated staff member is needed to lead a comprehensive vacant lot reuse program in order for it to successful. Successful programs in other Midwestern cities noted the importance of having a project champion. There is a tremendous amount of work associated with the coordination of city departments and community groups. Having a dedicated staff member that oversees the projects and policies will help to keep consistency with other City sustainability goals and keep coordinated efforts on track.

Create a multidiSCiPliNary team

In conjunction with the vacant lots coordinator, a multidisciplinary team should be created to deal specifically with catalytic vacant lot issues. This team would be comprised of members from appropriate city departments, as well as some non-profits with vacant lot experience in Milwaukee. Lead by the vacant lots coordinator, the team can share plans, information and create a more coordinated and collaborative effort surrounding vacant lot repurposing. This can help to increase consistency of decision-making and guide policy changes.

evaluatioN

Evaluation is important to gauge the effectiveness of the steps taken. Every 3 to 5 years, the City should evaluate the effectiveness of the various strategies employed on vacant lots. The evaluation should also explore changes in social factors such as community anchors, public participation, community group support, crime rates, and illegal dumping. It should also look at economic changes such as property value increases, new investment, market changes, and the size of the vacant lot inventory. Baseline data from the City should be collected within the first year of the program, to evaluate and compare results after the first 3 to 5 years.


SourcesSimPlE SoultionS

[1] City of Sandusky. (2011). Land Reutilization Program: ‘Mow to Own’ Side Lot Disposition Program. Retrieved 2013, fromhttp://www.ci.sandusky.oh.us/documents/MowtoOwnProgram.pdf

[2] City of Chicago. (2013). Adjacent Neighbors Land Acquisition Program (ANLAP). Retrieved 2013, fromhttp://www.cityofchicago.org/city/en/depts/dcd/supp_info/adjacent_neighborslandacquisitionprogramanlap.html

[3] City of Dayton (2011). Lot Links. Retrieved 2013, fromhttp://www.cityofdayton.org/departments/pcd/Pages/LotLinksProgram.aspx

caPital invEStmEnt

Residential Development[1] City Of Milwaukee, Assessor’s Office. (2013). 2012 Assessments and Taxes. Retrieved March 28, 2013, from http://city.milwaukee.gov/ImageLibrary/User/dmalqu/PDF/2012ASSMTandTAXESBOOKLET.pdfhttp://city.milwaukee.gov/ImageLibrary/User/dmalqu/PDF/2012ASSMTandTAXESBOOKLET.pdf

[2] Tax Rates- 1984 to Present (n.d.). In City of Milwaukee. Retrieved March 28, 2013, from http://city.milwaukee.gov/TaxRates1984toPresen725.htmhttp://city.milwaukee.gov/TaxRates1984toPresen725.htm

[3] City of Milwaukee, Assessor’s Office. (2010, March 2). Milwaukee Citywide Policy Plan. In milwaukee.gov. Retrieved March 31, 2013, from http://city.milwaukee.gov/ImageLibrary/Groups/cityDCD/planning/plans/Citywide/plan/http://city.milwaukee.gov/ImageLibrary/Groups/cityDCD/planning/plans/Citywide/plan/

Community Spaces[1] Raucher, L. (2012). A pocket guide to: Pocket parks (Master’s thesis). Retrieved March 13, 2013

[2] Blake, A. (n.d). Pocket parks. In University of Washington. Retrieved March 16, 2013

[3] City of Cleveland. (n.d.). Ideas to action: Neighborhood pathway. In Reimagining Cleveland. Retrieved March 20, 2013

[4] Bodker, M., Miller, B., Johnson, R., Raffensperger,, B., Richardson, K., Figueroa, I., & Stewart, K. (2013, March 11). Public art master plan. Retrieved March 20, 2013

[5] Public art program. (2010). In City of Ventura. Retrieved March 20, 2013[6] On and Off Capitol. (n.d.). In InSite Milwaukee. Retrieved March 20, 2013

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urban aGriculturE

[1] Miles, C. (2013). Hoophouses and greenhouses. In Organic Farm. Retrieved March 31, 2013

[2] James, A. (2012, May 29). How urban farming can transform our cities — and our agricultural system. In Climate Progress. Retrieved April 1, 2013

[3] Bellows, A., Brown, K., & Smit, J. (n.d.). Health benefits of urban agriculture. Retrieved March 29, 2013

tarGEt arEa analySiS

[1] Local Initiatives Support Corporation. (2011). Milwaukee Sustainable Communities Indicators Monitoring Report (pp. 1-3). Retrieved April 17, 2013

[2] U.S. Census Bureau. (2010). Race alone or in combination and Hispanic or Latino: City of Milwaukee, W.I. Retrieved April 19, 2013, from http://factfinder2.census.gov.

[3] U.S. Census Bureau. (2010). Household Population and Household Type by Tenure: Milwaukee County, W.I. Retrieved April 19, 2013, from http://factfinder2.census.gov.

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Reclaiming Vacant Lots

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