Beyond I-794: Envisioning a more just and inclusive Milwaukee

Milwaukee, a city grappling with its painful history of urban renewal projects that devastated Black neighborhoods, is now considering removing a portion of Interstate 794 (I-794) in its downtown area. The proposed project, estimated to cost over $300 million, aims to rebuild the elevated freeway between North Water Street and the Hoan Bridge, potentially opening up valuable land for redevelopment and enhancing connections to the lakefront.

As Milwaukee considers removing I-794, it is essential to acknowledge that this decision prioritizes the needs of predominantly white and more affluent neighborhoods. At the same time, the scars left by urban renewal on Black neighborhoods remain largely unaddressed. Before proceeding with any significant redevelopment initiative, the city must engage in a meaningful dialogue with the communities most affected by past urban renewal efforts, acknowledging the harm caused and providing opportunities for community input and involvement in the decision-making process.

Supporters of the I-794 removal argue that the freeway is a relic of the past, unnecessarily dividing the city’s downtown and Third Ward neighborhoods. They believe that removing it could free up land for development, improve access to the lakefront, and continue Milwaukee’s pioneering role in urban freeway removal following the successful demolition of the Park East Freeway.

However, this proposal has also sparked a conversation about Milwaukee’s double standard of urban renewal and the lasting impact of past projects on the city’s Black neighborhoods. While the I-794 removal aims to connect neighborhoods and create opportunities for predominantly white and wealthier areas, the scars left by urban renewal projects in Black neighborhoods remain largely unaddressed.

Midtown Urban Renewal Project: A Cautionary Tale of Misguided Revitalization

The Midtown Urban Renewal Project, which took place in Milwaukee during the late 1960s and early 1970s, is a stark example of how well-intentioned but poorly executed redevelopment efforts can leave lasting scars on the communities they aimed to revitalize. The goal was the removal of deteriorating homes and land uses to create greater neighborhood pride and stop white flight to the suburbs(pg 53). The project, touted as a “conservation project” that promised “urban renewal,” ultimately decimated the neighborhood. By 1975, it had only built 340 new housing units while demolishing 1,700, resulting in a net loss of 1,360 homes and the displacement of countless residents.

The destruction of housing and displacement of individuals due to these projects often sparked opposition from the community, as the lack of citizen involvement in the decision-making process and the top-down approach employed by city planners fueled resistance. The indifference of city officials to the impact of these projects on the lives of Black residents further compounded the sense of injustice and betrayal felt by the community.

Bronzeville: A Thriving Black Community Decimated by Interstate 43

One of the most affected areas was Milwaukee’s Bronzeville neighborhood, a historically Black community that enjoyed a flourishing business district and tight-knit community in the early 1960s. However, the construction of Interstate 43 directly through the heart of Bronzeville as part of urban renewal efforts decimated the neighborhood, disrupting close friendships and destroying homes.

The Hidden Costs of Urban Renewal: Health Disparities and Economic Losses

The impact of urban renewal and highway construction on Milwaukee’s Black communities extends far beyond the physical destruction of homes and businesses. Between 1960 and 1971, urban renewal and highway development destroyed 20,000 homes in Milwaukee, with much of this displacement occurring before the federal government instituted programs to assist communities with housing relocation. These communities also lost jobs that went to the suburbs, affecting working-class Black residents who relied on public transportation to access employment opportunities.

Moreover, those who remained in the community saw their property values decline, and many suffered from lead poisoning and respiratory conditions due to the construction of freeways near their homes. The health and economic well-being of Black residents were sacrificed in the name of “progress,” leaving a legacy of inequality and injustice that persists to this day.

Investing in Milwaukee’s Black Communities: A Path to Reparative Justice

To truly repair the wounds created by urban renewal and highway construction, Milwaukee and Wisconsin must implement comprehensive initiatives to support and revitalize the neighborhoods that have suffered from past projects. This includes investing in affordable housing, economic development, education, and health care services in these communities and preserving and celebrating their rich cultural heritage.

The efforts to revitalize Milwaukee’s neighborhoods, particularly those historically impacted by racial segregation, poverty, and inequality, are important steps toward addressing the legacy of systemic racism and urban renewal policies. The creation of redevelopment plans and investments in cultural institutions like America’s Black Holocaust Museum in Bronzeville are positive initiatives that should be expanded and prioritized.

Transportation and urban planning professionals are crucial in promoting holistic revitalization, capacity building, historic preservation, affordable housing, and economic opportunity in these communities. They must actively seek policy and funding opportunities that address infrastructure needs while prioritizing the voices and needs of marginalized communities. Planners and engineers should work towards reparative justice, striving to undo the harm caused by past projects and ensure that future developments benefit the communities they serve.

Federal Grants Offer Hope for Reconnecting Divided Neighborhoods

The recent announcement of $3.3 billion in grants under the federal Reconnecting Communities and Neighborhoods Grant program is a positive step in this direction. Milwaukee’s $36.6 million grant to rebuild the 6th Street corridor in the historic Bronzeville neighborhood is an example of how these funds can revitalize areas that have been historically overlooked and divided by transportation infrastructure.

By targeting 40% of the benefits of federal investments in climate, clean energy, and affordable housing to disadvantaged communities through the Justice40 initiative, the administration is demonstrating a commitment to addressing the disproportionate impacts of underinvestment and pollution on marginalized communities.

Learning from Other Cities: Bold Initiatives to Repair Urban Renewal’s Damage

Milwaukee can learn valuable lessons from other cities taking bold steps to repair the damage caused by urban renewal projects. In New Orleans, the proposal to remove the Claiborne Expressway, which destroyed a thriving Black business corridor in the Tremé neighborhood, has gained support from neighborhood activists and even President Biden, who singled out the project in his proposal for a $20 billion fund to “reconnect” neighborhoods hurt by highway construction.

The 11th Street Bridge Park: A Model for Equitable Development and Community Engagement

Similarly, in Washington, D.C., the 11th Street Bridge Park project aims to transform an old freeway bridge into an iconic civic space, reconnecting communities and providing numerous benefits to the surrounding neighborhoods. The project prioritizes community engagement and equitable development, with plans to address potential gentrification and displacement concerns through initiatives.

To address potential gentrification and displacement concerns, the project has developed an Equitable Development Plan with 19 recommendations, including a home buyers club to help residents purchase homes before property values increase, tenants’ rights workshops to prepare renters for potential condominium conversions, workforce training, and development to ensure residents are eligible for jobs generated by the project. Creating a Bridge Park Community Land Trust to maintain affordable housing options.

The 11th Street Bridge Park will be Washington, D.C.’s first elevated park, serving as an iconic architectural symbol and a new venue for recreation, arts, and environmental education. The park’s design includes outdoor performance spaces, a playground, urban agriculture and an urban farm run by the University of the District of Columbia, an environmental education center operated by the Anacostia Watershed Society, classrooms, a café, two city overlooks, and kayak and canoe launches. The park will be wider on the east end, providing more green public space to the underserved Anacostia neighborhood, facing significant health concerns and limited access to healthy food options.

In Santa Monica, California, the city acknowledged the harm caused by urban renewal projects like the I-10 Highway in the Pico neighborhood, which decimated the Black community. In response, they created the “Below Market Housing for Historically Displaced Households Pilot” program, which provides affordable housing to displaced residents. However, they also developed an exhibit and walking path in the Belmar Triangle area to commemorate the historical displacement and celebrate the once-thriving Black community.

Berkeley, California is developing the “Equitable 4  Black Berkeley” program to create 4,000 new affordable housing units. Importantly, the program also recognizes the need for additional amenities and opportunities, as urban renewal targeted vibrant Black neighborhoods in Berkeley.

Affordable Housing and Community Amenities: Essential Components of Revitalization

These examples demonstrate the importance of a comprehensive, community-driven approach to repairing the damage caused by urban renewal. Milwaukee must invest in affordable housing and prioritize the development of community amenities, green spaces, and economic opportunities in the neighborhoods that past projects have harmed most.

Developing a Comprehensive Master Plan for Milwaukee’s Black Neighborhoods

Bold ideas like removing I-794 must be accompanied by equally bold visions to revitalize Milwaukee’s Black neighborhoods. The city cannot continue piecemeal development in these neighborhoods; instead, it must develop a comprehensive master plan that addresses the long-lasting effects of urban renewal, redlining, and divestment.

This master plan must be developed in close collaboration with community members, prioritizing their needs, preferences, and aspirations. It should include significant investments in affordable housing, education, health care, and economic development and creating green spaces, recreational facilities, and cultural institutions that celebrate these communities’ rich history and resilience.

Moreover, the plan must be backed by a long-term commitment from the city, state, and federal governments to provide the necessary funding and resources to ensure its success. This includes financial support and policy changes that address systemic barriers to equity and inclusion, such as zoning reforms, fair housing laws, and anti-displacement measures.

Confronting the Past, Embracing the Future: Milwaukee’s Opportunity for Transformation

Milwaukee has a unique opportunity to learn from past mistakes and chart a new course for its future. By prioritizing the needs of its most vulnerable residents and investing in the revitalization of its Black neighborhoods, the city can begin to heal the wounds of the past and build a more just, equitable, and prosperous future for all its residents.

The removal of I-794 may benefit some, but it is essential to recognize that this decision alone does not address the deep-seated inequities and injustices faced by Milwaukee’s Black neighborhoods. True progress will require a sustained, community-driven effort to repair the damage caused by urban renewal, redlining, and divestment and to create a city where every neighborhood can thrive.

Beyond I-794: Building an Equitable, Just, and Inclusive Milwaukee for All

It is time for Milwaukee to think big and act boldly. The city must seize this moment to have honest conversations about its past, confront the racism and inequality that have shaped its present, and work towards a future that uplifts and empowers all its residents, especially those who have been most harmed by past policies and practices.

Only by taking these difficult but necessary steps can Milwaukee become the city it aspires to be – where every resident has access to safe, affordable housing, quality education, good jobs, and a healthy environment, regardless of race, ethnicity, or zip code.

The debate over the removal of I-794 is not just about a highway; it is about the soul of the city and the values that will guide its future growth and development. Will Milwaukee continue to prioritize the needs of its white, affluent neighborhoods while ignoring the suffering of its Black neighborhoods? Or will it have the courage to confront its past, repair the damage it has caused, and build a more equitable, just, and inclusive future for all its residents?

The answer to these questions will determine the fate of I-794 and the legacy that Milwaukee leaves for future generations. This challenge will require bold leadership, deep compassion, and an unwavering commitment to justice and equality. But it is a challenge that Milwaukee must embrace if it hopes to become the city it has always had the potential to be.

If you’re interested in understanding the complex intersection of race, urban planning, and transportation in the United States, “Justice and the Interstates: The Racist Truth About Urban Highways” is a book that demands your attention. Edited by Ryan Reft, Amanda Phillips du Lucas, and Rebecca Retzlaff, this compelling collection of essays delves into the painful history of how the construction of interstate highways has disproportionately impacted and displaced communities of color.

The book, which emerged from a series of articles in the Urban History Association’s publication Metropole, comprehensively examines the mechanisms used with the Federal-Aid Highway Act of 1956 to limit housing and economic opportunities for Latinos and Blacks. The editors skillfully outline how racial zoning maps, adopted by municipalities in the early 20th century, established legal boundaries of segregated neighborhoods, making it easier for those in power to target these communities for disinvestment, demolition, and highway construction.

Through a series of meticulously researched and powerfully written essays, the authors shed light on the often-overlooked stories of the individuals and families whose lives were upended by the construction of urban highways. They explore the long-term consequences of these projects, including the destruction of vibrant neighborhoods, the loss of social networks and cultural institutions, and the exacerbation of poverty and inequality.

Researched and written with assistance from Perplexity AI