Research| The role of farmers' markets as a public space

MASTER’S RESEARCH

THE ROLE OF FARMERS’ MARKETS AS A PUBLIC SPACE: A Case Study Of GrowNYC Greenmarkets

Geslin Reeba George, Cornell University | August 2016

ABSTRACT This research examines the role of farmers’ markets as a public space with the case study of GrowNYC Greenmarkets. With literature reviews, site visits to 15 out of the 53 Greenmarkets, behavioral observations and usage of satellite imagery, this research focuses on the different settings that Greenmarkets occupy and classifies them into five categories– along parks and plazas, in residential neighborhoods, near institutions, inside a building and in a parking lot. In addition, the research analyzes and discusses how the Greenmarkets draw people in, revive existing public spaces, contribute to the quality of life and operate as a successful public space in these settings. The research identifies that people were drawn into markets that operated in open areas of the setting where it is located, in and in the sightlines of people. Greenmarkets in residential neighborhood operate during the weekends and held activities that cater to residents and families, which is in contrast to the markets located in commercial districts. With the acceptance of food stamps and nutritional coupons, Greenmarkets cater to varied income groups and have contributed to ensuring food equity and improving urban health. Furthermore, the research proposes a few recommendations to other cities that seek to increase local food access and enliven public spaces.

where seasons are marked (Whyte, 2000). In thriving public spaces, people encounter differences and learn to appreciate and understand them and eventually, achieve a stronger sense of community and identity.

Conversely, when these spaces are lacking, the community is more likely to drift into an increasingly privatized and polarized society (Shaftoe, 2008).

Nowadays, new forms of open and civic spaces such as ecological gardens, community parks, green streets, skate parks and farmers’ markets have become a part of the diverse public realm of cities and towns. These spaces, present in various localities and settings, offer innovative opportunities for public interaction and activities, and give vibrancy to neighborhoods. Presently, farmers’ markets tend to occupy a variety of settings — parks and plazas, along waterfronts and sidewalks, within commercial buildings and shopping malls, and in parking and vacant lots. They are progressively being used for economic revitalization in large American cities and small towns.

The past two decades has seen a tremendous increase in number and popularity of farmers’ markets in the United States. According to U.S Department of Agriculture’s Agricultural Marketing Service, the number of farmers’ markets have increased almost five-fold, from 1,755 farmers’ market in 1994 to 8,284 in 2014 (USDA Agricultural Marketing Service, Figure 1). This increase in This written sample is the introduction, the number of farmers’ markets could indicate discussion, conclusion and recommendations of the an increased demand for local and regional food research paper. products, and support for the local economy. Under the Farmer-to-Consumer Direct Marketing Act INTRODUCTION of 1976, Farmers’ markets are approved by U.S Public spaces are considered a platform for the public Department of Agriculture and are usually managed by specialized nonprofit organizations. For example, life of a community. These are spaces where people the Pacific Coast Farmers’ Markets Association from different cultures interact, where festivities and California Farmers’ Market Associations are held, where economic exchanges take place and together manage more than 60 different farmers’ This research paper was presented to the faculty of the Graduate school of Cornell University in partial fulfillment of the requirements for the degree of Master of Regional Planning.

markets in the San Francisco Bay Area. In New York City, the GrowNYC program administers over 50 Greenmarkets across the five boroughs.

The GrowNYC Greenmarkets, which first began in 1976 with seven farmers on a parking lot on 59th Street and 2nd Avenue in the Manhattan Borough, eventually grew into one of the largest, most successful and most varied outdoor urban farmers network in the country (Kornfeld, 2013, Figure 2).

With the mission to promote regional agriculture and to ensure that the residents of New York have access to local fresh food from the region, these Greenmarkets have revitalized urban areas as well as rural communities (Greenmarket Farmers Market, n.d.). They ensure food security in urban areas as nearby farms guarantee food access during natural disasters, blackouts, or other disasters. Greenmarkets located in different neighborhoods throughout the five boroughs of New York City draw in visitors and bring money to surrounding businesses. In a recent survey conducted on the Union Square Greenmarket

by GrowNYC, 82% of visitors cited the Greenmarket as the main reason for their visit and 60% spent up to $50 in the neighboring businesses (“Why Buy Local?” n.d.)

Figure 2: Location of GrowNYC Greenmarkets in NYC Data Source: GrowNYC 2016

The aim of this research is to study the different Greenmarkets of the GrowNYC program through site visits in order to examine the various settings they operate in and how they function in these settings and the extent to which they serve as successful public spaces to the particular neighborhood. In addition, this research reviews existing literature to supplement and discuss how these Greenmarkets draw people in, revive existing public spaces and contribute to quality of life.

Figure 1: U.S Farmers’ markets, 1994-2014

Source: USDA Agricultural Marketing Service, Farmers’ Market Surveys

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Figure 3: Greenmarket seasons & Land Use of New York City Data Source: GrowNYC 2016 & NYC Open Data

DISCUSSION From the examination of the typologies of Greenmarkets, I looked at the different settings of the Greenmarkets and how they function in each of these settings and the interaction of people with each other and with the farmers. In the discussion below, I address how the Greenmarkets draw people in, revive existing public spaces and serve as a public space and contribute to the quality of life in the neighborhood that it is located. i. Draw People In In the case studies, it is apparent that the working market realm of the Greenmarket mostly operates in open areas of the setting that it is located in. As they are along sidewalks of busy streets as seen in the case of Lincoln Hospital Greenmarket or operate in spaces close to the entrances of the settings especially seen in the case of Columbia University Greenmarket, they are always in the sightlines of the people.

When people can clearly see the market, they are drawn in. If these markets operated in areas such as deep in the park or in plaza, people would not see it and they will not use it (Whyte, 1980).

Both small and large Greenmarkets through the physical arrangement of working market draw people in different ways. In the case of small markets such as those arranged along sidewalks, the working market occupies the outer edge of the sidewalk keeping the inner edge free for circulation. This arrangement draws in passers-by and even commuters, who then mingle with the farmers and other shoppers and learn more about the market. In larger markets such as the Union Square Greenmarket, displays are arranged on both sides of the promenade which forces people to walk through the market even if they are just passing through the plaza. Such markets also have a well-established market landscape with seating spaces, thus providing a space for social interaction (Francis and Griffith, 2011). Therefore, people of different age groups and cultural backgrounds spend more time in the market engaging with their partners, families or even making small talk with strangers, as they are not compelled to buy things but rather enjoy the market.

Although the Greenmarkets originally operated as a programmatic event in a public space, the

implementation of traffic signs that indicate parking or loading areas for farmers’ trucks established the permanency of the market (Figure 4). Furthermore, the Greenmarkets in various neighborhoods operate on different, but set days. The Greenmarkets in commercial districts, near municipal buildings such as the City Hall Greenmarket in Manhattan or the Bronx Borough Hall Greenmarket or near Hospitals operate on weekdays, thereby pulling in the workforce and visitors. Social interaction takes place as people from different walks of life bump into each other and talk about the fresh fruits and vegetables with each other and with the farmers. Eventually, some people associate a special meaning to the place and look forward to the market each week. In residential neighborhoods, the Greenmarkets such as the Jackson Heights Greenmarket in Queens or the Grand Army Plaza Greenmarket in Brooklyn operate usually on the weekend. This is the place where neighbors and residents catch up with each other, and new acquaintances are formed. Hence, these Greenmarkets make effective third places as they function only once or twice a week (Tiemman, 2008).

With various farmers participating in the market, there is variety in the produce offered which cater to the ethnic and culinary diversity of the neighborhoods. Moreover, the Greenmarkets offer other activities apart from the opportunity to browse and shop for produce. These activities differ in each Greenmarket. In residential neighborhoods, the Greenmarkets offer activities such as cooking competitions, compost raffles and educational programs to target residents and families. In commercial neighborhoods, the Greenmarkets offer quick cooking demos, nutritional and health awareness programs, which draws in visitors and the professionals working in the neighborhood. Hence, Greenmarkets make great ‘mixed-life spaces.’

Figure 4: Traffic sign implemented for GrowNYC Greenmarkets August 2016 | 3

Figure 5: Empty sidewalk of Lincoln Hospital

Figure 6: Vibrant sidewalk of Lincoln Hospital on a Market day

ii. Revive Existing Public Space In many instances, Greenmarkets seem to revive existing public spaces. The Union Square Greenmarket being one such example.

Neighborhood revitalization was not one of the main motivators for the Greenmarket founders Barry Benepe and Bob Lewis, but since its inception in the 1970s, it became evident that these markets can invigorate neglected areas (Kornfeld, 2013). In the case of the St George Greenmarket, the vacant lot that is empty on a weekend becomes a lively space when the Greenmarket is in operation. Similarly, in the case of the Lincoln Hospital, the empty and dull concrete sidewalk with the hospital fence becomes a festive space on market days (Figure 5 and 6).

Moreover, the presence of these markets contribute to the public safety of these spaces. The physical nature of the market with its varied activities and its social nature with the interaction of the people and the various “eyes on the street,” turns these spaces into a safe and a welcoming space and hence, reduce the need for policing (Jacobs, 1961, p. 35; Morales, 2011). The Jackson Heights Greenmarket on the 78th Play Street is a great example, where the market increases the public safety in a residential neighborhood. Additionally, spaces which have more women are perceived as a safe space. Women are more critical of the public spaces they dwell in and are more “sensitive to annoyances” (Whyte, 1980). In many instances during this study, it was seen that the patrons of the Greenmarkets had higher ratio of women to men and also, an equal representation of women and men as vendors in many of the Greenmarkets.

iii. Contribute to the Quality of Life Greenmarkets are great resources for community health through creating more sustainable, environment friendly living spaces (Morales, 2011).

According to New York City Department of Sanitation (DSNY), currently New York City residents recycle only about 16% of their total waste, which is half of what could be recycled under the current recycling program (“New York’s Garbage System,” 2015). Clothing and textiles make up 5.7% of the waste. Therefore, apart from offering on-site cooking demonstrations and educational activities, these markets have become sites of sustainability by offering compost collection including Christmas tree recycling and textile recycling in order to segregate reusable material from waste and thereby minimize the amount of waste that is trucked to landfills and incinerators across the country (Recycling Fact, n.d.).

Currently, ten Greenmarkets offer compost collection and twenty-nine offer both textile recycling and compost collection in the commercials and residential neighborhoods around the city (Figure 7).

Greenmarkets located in different parts of the five boroughs have contributed in improving urban health and food equity. Moreover, with funding from the New York City Council, the GrowNYC’s Healthy Exchange Project has enabled all the Greenmarkets to accept various convenient forms of payment such as cash, Electronic Benefit Transfer (EBT) or Food Stamps, Debit or Credit, and Farmers Market Nutritional Program (FMNP) coupons for women, Infants and Children (WIC) and the elderly (Healthy Exchange, n.d.). EBT scales increased from $1000 in

Source: Google Street View

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2005 to $894,000 in 2015 (Greenmarket Facts, n.d.). In Figure 8, the highest average EBT sales per day is seen in the 175th St Greenmarket in Manhattan and Poe Park in the Bronx, both operate only once on a weekday and are located in low median household income areas. Additionally, the two flagship year-round markets, Union Square Greenmarket in Manhattan and the Grand Army Plaza Greenmarket in Brooklyn, hit high EBT sales.

The Corona Greenmarket and the Elmhurst Hospital Greenmarket located in the residential neighborhood of Queens and operate only once during the week, also averages high EBT sales of about $950.

Furthermore, with the introduction of the Health Bucks program by the Department of Health and Mental Hygiene, EBT dollars has gone further.

For every $5 of EBT redeemed at a Greenmarket, shoppers get a $2 Health Bucks coupon to purchase additional fruits and vegetables, which stretched a Food Stamp budget by 40%. This encourages people to spend more of their monthly Food Stamp allotment on fresh produce from the market (Health Bucks and EBT, n.d.).

GrowNYC’s recent programs such as the Youthmarkets and Fresh Pantry project make Greenmarket food available to a wider range of people (Kornfeld, 2013). The Youthmarket program employs teens to operate farm stands in neighborhoods underserved by supermarkets, increasing local food access and bringing business education to neighborhood youth and residents as well as achieving high revenue for farmers (Youthmarket Farm Stands, n.d.). Youthmarkets serve the neighborhoods of Riverdale and Norwood of Northern Bronx, Ridgewood in Queens and Bronsville and Cypress Hills in Brooklyn, which bridge the gap in the Greenmarket network. There are currently 14 Youthmarkets, all of which accept EBT (Figure 9). Additionally, in partnership with the New York City Coalition against Hunger, Fresh Pantry project coordinates farmers from thirty-five Greenmarkets to donate fresh fruits and vegetables to local food pantries, homeless facilities, soup kitchens and community centers around the city (Fresh Pantry Project, n.d.). Hence, Greenmarkets ensure access to local and regional foods by providing opportunities to residents of various income groups to buy fresh produce while supporting regional farmers and thereby, contribute to the quality of life.

Figure 7: GrowNYC locations for Compost & Textile Collection Data Source: GrowNYC 2016

Figure 8: GrowNYC Greenmarkets’ Average EBT Sales Per Day Data Source: GrowNYC 2016

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Although the GrowNYC Greenmarkets has expanded into one of the largest farmers’ network in the country, there are many median low income neighborhoods located to the East of Queens and Brooklyn and North of Bronx that do not have access to local fresh foods (Figure 2). I propose an extension of the current network into these areas with ongoing research in identifying neglected urban spaces and neighborhoods, studying the surrounding land uses and understanding the needs of the families in these areas. A participatory process involving the surrounding communities with the GrowNYC and City officials as well as the designers is essential to the realization of a market that caters to the people and have a lasting success as a public space. In addition, these markets must undergo continuous evaluation and be adaptive and responsive to the changing surroundings in order to accommodate new functions over time and reflect the community values.

Figure 9: Location of Youthmarkets in relation to Greenmarkets Data Source: GrowNYC 2016

CONCLUSION AND RECOMMENDATION The GrowNYC Greenmarkets has not experienced a smooth sailing from its institutionalization in the 1980s up until now. Although well received in the beginning, several controversies began to emerge with regards to gentrification and class tied to Greenmarkets in the late 1990s. Greenmarkets met with community disapproval in certain neighborhoods as residents believed that Greenmarkets would become a competition to the local businesses (Kornfeld, 2013). Prices of produce had increased and there was an opinion that the Greenmarkets catered to the affluent residents and that revitalization efforts were ahead of the initial goal of increasing local food access. Union Square was touted as force of displacement. With a change in leadership in 2007, Greenmarkets began many initiatives such as to accept EBT and Food Stamps in order to bring back the program closer to the initial goals of local food access, farmland preservation and neighborhood revitalization. And in the first year that EBT was accepted, sales had gone up (Kornfeld, 2013).

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ii. Recommendation to Other Cities: From this study, it is clear that GrowNYC Greenmarkets represent the community and are symbols in the community. What makes the Greenmarkets a significant and memorable public space is their unique role as a social space. This unique social environment is the result of good design with a combination of policy in support of the markets, political commitment on part of public officials, good land use planning and programming by market managers (Morales 2011).

Another factor that contributes to the success of the Greenmarkets is its strict rule that the vendors have to sell the produce that they had grown on their own in the regional farms, thus keeping farms financially viable and also bringing in curious shoppers. An associated positive externality is that it promotes regional economic and agricultural development by creating strong sustainable food networks, linking rural agricultural areas to urban areas. It is also important to program the market according to the neighborhood that it is located in order to draw people in and keep the market functioning successfully. A market in a residential neighborhood is more popular during the weekends as compared to those in the commercial districts.

Furthermore, introducing programs such as the GrowNYC’s Youthmarkets and Fresh Pantry project in addition to the farmers’ market ensures food access to various income groups throughout the city.

Moreover, diversity in produce brings in diverse shoppers which enriches their experiences across race and ethnicity. The diversity in age and gender of shoppers as well as the vendors encourages informal interaction which transforms the market into a safe and welcoming space. Therefore, the GrowNYC Greenmarkets can be seen as a model for other cities who seek to increase local food access and enliven public space and expand the public realm of communities.

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