Can public space help revive our downtowns?
Four experts share their ideas on how to reinvent downtowns on a more human scale
Across the country, many of the nation’s downtowns are struggling. An epidemic of empty office buildings, falling real estate values and shuttered small businesses has followed the prior years’ COVID-19 shutdowns; in some cities, foot traffic in downtowns is still less than half of what it was pre-pandemic. And while many experts posit solutions to this problem (like converting office buildings to housing, which could help address the housing crisis but that could also be expensive and difficult), others are starting to think more deeply about the more nuanced policies and investments that could remake the nation’s downtowns into more interesting, more desirable and more vibrant places for people.
In the spirit of these challenges, we asked four thought leaders for their ideas about how to solve the nation’s downtown crisis — and to illustrate the key role that public spaces could play in a downtown comeback. As we expected, our experts (Paul Bauknight, Carol Coletta, Brooks Rainwater and Mitchell Silver) had a lot to say.
At the outset, all four experts agreed that the path forward for successful downtowns lay in making them a more human scale, more diverse experience. Downtowns can no longer bank on being “just” the financial district or “just” a place for office workers to work during the day. Instead, downtowns must encompass places to live; places to shop, providing the ability to shop ‘small and local; places to eat; and places to recreate, relax and enjoy oneself.
“With fewer commercial office workers, a successful downtown must provide opportunities for everyone in the community. That means a diverse mix of housing to support the whole range of income and family situations and types. Vibrancy can be achieved by encouraging and supporting exciting street life by providing opportunities for artists, makers, musicians and other creatives to occupy space at the street level and engage and provide services,” says Paul Bauknight, Founder and President of the Center for Transformative Urban Design.
Carol Coletta, President and CEO of the Memphis River Parks Partnership, posits that the experience of a downtown must be one that draws people in to wander at their own pace. “Make your downtown a delightful, alluring place,” she says. “Mix uses, paying special attention to creating vibrant first floor uses. And make downtown the best walking experience in your city–a great walking experience mitigates the inconvenience associated with traveling to and from downtown.”
Mitchell Silver, Principal at McAdams and former New York City Parks Commissioner agrees that the downtown experience is key. “Successful urban downtowns should offer a variety of experiences and destinations for all regardless of age, race, ability, gender or household composition,” says Silver. “I have often stated that older generations are consumers of goods, but younger generations are consumers of experiences. We should not just be planners and designers, but experience builders for people-centered spaces and places.”
Downtowns should not try to get back to normal, but embrace a new normal, says Brooks Rainwater, President and CEO of the Urban Libraries Council. “With remote and hybrid work now firmly entrenched in our cities, downtown business districts will never be the same — but that’s okay, because the future of urban life lies in mixed-use, accessible places all throughout a city. And to get to that future, commercial space needs to be re-imagined, service businesses need to adapt, and our long-range thinking needs to shift toward 15-minute places that drive engagement in our downtowns to places other than offices,” he says.
Many of our experts emphasized that downtowns must be places where people from a variety of racial and socioeconomic backgrounds feel welcome. “A successful downtown is an inclusive one where everyone feels welcome and space is not stratified or policed according to race, gender or economic situation,” says Paul Bauknight.
“Public space is the glue.”
All of our experts noted the critical importance of public space to the health of people, small businesses and communities.
“COVID-19 impacted all of us in our own personal way, from impatience to isolation and trauma. Then we rediscovered our green spaces and soon realized that parks are not just for physical health, but for mental wellbeing as well,” says Mitchell Silver. “Parks became our sanctities of sanity because they have the power to heal and bring joy. In fact, parks should be considered as part of our healthcare system.”
Paul Bauknight agrees. “Public space is the glue that connects the physical downtown environment. Without welcoming and vibrant public space which includes the streets that we have to walk, bike or drive on, downtowns can become soulless architectural canyons,” he says. For Brooks Rainwater, the health of a city’s economy and the health of its public spaces are correlated. “As public spaces become reawakened, so too will the businesses and services in downtown areas. The future of cities depends upon investments in the attractors that make cities great places to live in, visit, and enjoy.”
Carol Coletta notes that public spaces and other amenities must be unique and interesting enough to attract people to enjoy them. “People haven’t rejected being with other people, but have rejected inconvenience and dismal environments,” she says. “If public spaces don’t make the work environment more appealing and productive, and if downtowns can’t offer workers something that is more appealing than what’s offered in their own neighborhoods, then downtowns will continue to struggle.” Coletta also points out that public spaces and downtowns must attract everyone (including people with means to go elsewhere) in order to thrive. “If public space is to be successful, it must be managed in a way that people with options about where they live and work use them.”
Be clear about whom you serve and what you want to catalyze
When asked about how communities should strategically invest in public space downtown, Urban Libraries Council CEO Brooks Rainwater points to the opportunities inherent in the welcoming ‘third place’ that is the modern public library.
“Public libraries provide increasingly valuable third-places for those working remotely, offering internet and device access and physical space to work. Library space is increasingly well designed and intentionally focused on welcoming community members in for whatever they may need, from books to computers to programming, rooms for working and meeting, and more,” he says. “Beyond the space itself, patrons can also take advantage of library programs and resources–-skill-building programs, activities for families, community forums and more.”
Paul Bauknight recommends that communities focus on investments that appeal to people of all ages and family situations.
“Communities should invest in public spaces that support activities and programming tailored to children, seniors, families, singles and everyone in between. A mother or father should be able to take their child or children for a walk downtown and find food, a place to play, a place to sit, see art and hear music, all of it easily accessible,” he says.
For Carol Coletta, the secret to effective investments in downtown public spaces is to be clear who these spaces serve and what the investments might catalyze. “It’s surprising how often public space design and programs are out of sync with the surrounding neighborhood because of a dated understanding of a bureaucratic template for what public space is and the needs it satisfies,” she says. “Also, a lot of public space is just too big or its program is built around an asset — an amphitheater, for example that will be infrequently used. A lot more thinking needs to be done upfront to answer the question, ‘How is this asset expected to contribute to the community’s success?’ And the answers need to be specific.”
Former New York City Parks Commissioner Mitchell Silver suggests that communities could invest in what he calls “the most overlooked public space resource in downtown,” streets and sidewalks. On average, 15 percent of a city’s footprint is parks and public spaces, while streets and sidewalks make up 25 percent.
“Public space is public, and streets and sidewalks must be viewed as publicly owned space and not for the exclusive use of cars,” he says. “There are many low-cost examples of this that are relatively quick to implement: reclaiming oversized streets for public use; extending sidewalks into the street and add furniture and planters; allowing outdoor dining sheds and parklets to be installed; closing streets more often for events; and ensuring there are safe and seamless connections to existing parks, plazas and public spaces.”
Places making progress
Our experts pointed to a few cities and downtown projects that continue to impress them with ambition and innovative implementation. New York City’s work to reclaim streets for people includes making the many outdoor dining sheds spawned during COVID a permanent program and expanding pedestrian plazas; the city also recently hired a ‘Chief Public Realm’ Officer. Memphis will open a 31-acre riverfront park on Labor Day weekend adjacent to downtown and has spawned a River District to tie downtown and the riverfront together for the first time in the city’s history. Detroit, with the help of committed corporate and philanthropic partners, continues to make smart investments in downtown public space. In Cambridge, Massachusetts the Valente Branch Library is built and operated to enhance environmental sustainability and the community’s mental and physical wellness.
Thriving cities have always embraced change, and our era of great change demands that policymakers, advocates and residents envision something more for our downtowns. In the thoughts they shared, our four experts emphasized that supporting equitable, vibrant and welcoming public spaces is core to the future of downtowns.
Reimagining the Civic Commons is a collaboration of The JPB Foundation, the John S. and James L. Knight Foundation, The Kresge Foundation, William Penn Foundation, and local partners.
