SMART GROWTH IN THE STEEL CITY- LACKAWANNA

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Elizabeth Aranguiz, Rebecca Avorkliyah, Corinne Brath, John Draksic, Dalton Fries, Andrea Harder, Cristian Toellner, Zhitong Wu

Camden Miller

Fall 2022

How can Rust Belt cities frame and address economic decline? Rust Belt cities such as Buffalo, Chicago, Detroit, and Milwaukee, among others, were once known as industrial powerhouses. However, many of these cities have experienced periods of social and economic disinvestment due to the industrial decline. How Rust Belt cities respond to economic restructuring set the datum for this urban planning studio. Students analyzed the struggle Lackawanna, NY, is facing in its attempt to redefine a once-thriving regional economy.

The City of Lackawanna is located on the shoreline of Lake Erie and has a current population of 20,000 residents dispersed throughout four wards. Major New York State Thruway expressways divide the community and delineate the wards. Further, the community remains segregated due to its industrial legacy (land use patterns are defined by the steel industry, and much of the city’s infrastructure is poorly conceived) as well as a history of redlining.

The initial studio research focused on demographics, environmental conditions, and the city’s history. Through an analysis of the general history of zoning in the United States, students compared trends at national and local scales. They found a shift in land use regulations from a Euclidean zoning system separating functions to a smart growth-oriented framework emphasizing walkability and mixeduse/mixed-income environments.

“A focus group was also held to better understand the relationship community members have with the built environment and their feelings towards development.”

- Andrea Harder

The focus group helped to gauge the needs and aspirations of different neighborhoods. Students asked participants to chart spatial data from their own definitions of local boundaries, open spaces, community facilities, neighborhood centers, and areas of disrepair that need improvement. Students then geocoded and mapped the results using this information into one comprehensive map. The results of the activity informed how rezoning could transgress ward boundaries. Areas identified for improvement included former steel production site locations, railroad crossings, and several large land pieces within the wards.

A SWOT (Strengths, Weaknesses, Opportunities, Threats) analysis was also conducted to compare the recommendations put forth by students to the goals and objectives laid out in the city’s 2016 Comprehensive Plan. These objectives were then organized into four key categories: foster regenerative land use, enhance infrastructure and mobility, utilize smart growth principles to transform neighborhoods, and expand commercial spines. Each objective was later revised to better align community goals and land use policies suggested to help achieve them.

At the conclusion of their research, students recommended the creation of a new zoning ordinance, the Lackawanna Regenerative Code. The plan is based on historical research, existing conditions, and emerging land-use regulation trends. To further their study, students met with public officials, community-based organizations, and residents throughout the semester. Meeting with residents and stakeholders uncovered these groups' concerns with the lack of economic development and access to goods and services. Qualitative and quantitative data collected by the students revealed many residents rely heavily on adjacent municipalities for employment, grocery shopping, and other services. These factors informed the decision to recommend densifying the central business district and allowing for mixed-use development in neighborhood edge zones.

Implementing strategies to combat these challenges required students to study precedent cities that have fully adopted form-based codes, including Miami, Denver, and Buffalo. Using the urban transect theory as a resource, a theory that states how a series of zones transition from sparse rural farmhouses to a denser city center, students applied these principles to Lackawanna. Segmenting neighborhoods into north-south corridors broke down how districts could support multi-modal forms of transportation and activate multiple parts of the city.

The findings collected during the semester suggest that the City of Lackawanna is in an ideal position to make changes within the municipality that can contribute to ongoing revitalization efforts and future development. While the city remains diverse in its socioeconomic composition, the struggle lies in the accessibility of resources. This is highlighted by the lack of diverse housing types, scarce affordable housing options, and limited access to fresh food and produce. Smart growth strategies are the key to turning this once thriving city into a community capable of supporting new development. Student research detailed within the Lackawanna Regenerative Code offers a solution.