In the context of intertwined, increasingly urgent social and environmental problems, I argue that knowledge of how community groups secure long-term use of urban land for gardens has practical as well as theoretical significance. My research underscores the political and economic constraints that community-based organizations face and the potential pitfalls of framing the value of urban agriculture in various economic terms. In chapter 2, my analysis begins with an examination of the role that organizational structure and decisions have played in determining the trajectories of urban agriculture in each city. Once their garden programs were initiated, the main urban agriculture organizations in each city sought legitimacy for their activities as a requisite for maintaining their funding and land-use permissions. I show that in pursuit of legitimacy for their specific programs, these organizations also had to build legitimacy for urban agriculture more broadly; that is, they had to justify the unexpected presence of gardens and farms on urban land. As they interacted with funders, city officials and the media in pursuit of necessary resources, leading garden advocates in each city learned what these gatekeepers were most concerned about and framed their work accordingly. Selecting from among the many potential benefits of urban agriculture to frame its value in ways that would resonate with such gatekeepers, how to cure cannabis the organizations legitimized urban agriculture for some of its potential benefits rather than others.
These frames would then influence organizational activities, grant applications, and policy deliberations going forward. I find that in all three cities, the main garden organizations came to emphasize an economic framing—employment in Milwaukee, blight removal in Philadelphia, and neighborhood amenity creation in Seattle—while placing relatively less emphasis on potential social and ecological benefits. I demonstrate how the different organizations’ economic frames have succeeded to varying degrees in convincing city officials that garden sites deserve long-term land access, funding, and other forms of public support. At the same time, I note how these frames leave unquestioned the assumption that economic concerns should have primacy over social and ecological ones, setting the stage for future conflicts as the political-economic system has continued to produce inequality and environmental degradation. In discussing Philadelphia, I highlight the role that Soil Generation has played in producing a counter-narrative that reframes the value of urban agriculture as a facet of community self-determination. Soil Generation’s framing subverts economic arguments and calls attention to the need for more just urban land use policy writ large. This chapter reveals how an organizational imperative— gaining and maintaining legitimacy—can inadvertently structure the subsequent framing process that is so important for a social movement’s scope, strength, and success. Thus, I provide new insights into the challenges that community-based organizations are likely to face when they attempt to hybridize into social movement work, and I offer practical lessons for urban agriculture enthusiasts seeking to build and legitimize new garden programs.
Chapter 3 considers the organizational environments within each city, particularly the locally shared expectations around governance and policy making, or “civic conventions,” which have differently constrained or enabled various kinds of garden advocacy, movement organizing, and land-use governance in each locale. In this chapter, I build on the concept of civic conventions theorized by Beamish and others by reconceptualizing civic conventions as a facet of both political and discursive opportunity structure at the urban scale. My analysis of interview and archival data shows that local civic conventions conducive to bottom-up governance in Milwaukee and Seattle have supported the legitimation of urban agriculture as a land use by bringing resident interests to the attention of policymakers and by facilitating the development of garden projects in line with broader public priorities. In contrast, in Philadelphia many gardens have remained informal because gardeners see no benefit in engaging with the city government. Local civic conventions hold that the government is often ineffective, and gardeners are also wary of top-down interventions that could threaten their use of the city’s vacant land. Compared to Milwaukee and Seattle, garden informality and suspicion of the government in Philadelphia may have hindered gardener organizing efforts and the public legitimacy of gardens; however, in the last decade, widely shared cynicism about Philadelphia’s city government has provided a discursive opportunity structure in which urban agriculture advocates have effectively framed the loss of gardens in terms of perceived injustice and lack of access to decision-making. This frame, advanced by Soil Generation and its coalition partners, has become a rallying cry for broader mobilization around community control of land and resistance to gentrification.
A similar discursive opportunity structure exists in Seattle, where local civic conventions include a distaste for back-room deals and a narrative regarding the need for ongoing public participation in order to hold city officials accountable. In the 1990s, garden advocates effectively leveraged this narrative to mobilize broad public support for their land use initiative and win the long-term preservation of P-Patches. In this chapter, I highlight the importance of local civic conventions for organizational advocacy and social movement organizing by illustrating how civic conventions in the form of policy infrastructure have created important leverage points and interfaces between community-based organizations and the local government, while civic conventions in the form of widely shared ideas are important to movement formation and mobilization. Chapter 4 considers the organizational environment of local governments as they make decisions about land use policy and budget priorities. Comparing the political-economic conditions of each city, such as the availability of public resources and policy at larger scales of government, I demonstrate how the evolving role of gardens in the urban milieu has interacted with distinct growth strategies and political processes at work in each locale. Across all three case-cities, the globalizing competition to attract capital and “win” at urban growth looms large in city officials’ decision-making. Although the cities vary in their recent histories of “winning” and “losing” the competition for growth, all three cases show how urban growth machine logic and the political-economic pressures on municipalities influence the ways in which urban agriculture has been legitimized as a long-term land use. In Milwaukee and Philadelphia, capital flight has limited the public resources available for social services and urban agriculture investment. Many of the cascading challenges and social maladies are similar for all cities coping with capital flight, but Milwaukee and Philadelphia have diverged in how they construct the role of land in reversing the city’s fortune. In Milwaukee, due to state laws limiting the city’s tools for revenue generation, land is a lifeline that needs to be reserved for badly needed property tax revenue. In Philadelphia, reflecting the narrative advanced by PHS, vacant land is seen as a liability that has burdened the city budget and deterred development. In Seattle, indoor grow methods where the local growth coalition has been “winning” in the competition to attract capital and the creative class, land has served as a selling point for the city’s livability. Seattle currently has the most public resources available to invest in its community gardens—but upon close inspection, the benefits still accrue unevenly. In this chapter, I illustrate how pervasively market logic is applied to land use in American cities and how variations in this commodification are connected to the local growth coalition’s status in the global competition for capital. Urban political ecologists have proposed that urban agriculture offers radically transformative potential by nourishing non-capitalist material flows . However, I demonstrate through the varied examples of Milwaukee, Philadelphia, and Seattle that urban agriculture’s radical potential is limited so long as the gardened land remains commodified. Gardens without permanent status are vulnerable to removal in favor of a more economically productive use; furthermore, whether or not gardens are permanently preserved, they may be used as tools to attract high-income residents and new capital investment, displacing low-income residents and perpetuating rather than mitigating urban inequality. In chapter 5, I present a spatial-historical analysis of the accessibility of gardens for marginalized communities in each city. Using a unique dataset developed through my review of historical documents, I demonstrate how the changing locations of gardens reflect the different priorities emphasized by each organization as they pursued legitimacy, and I show how these different priorities led to different outcomes in the proximity of gardens to low-income residents, immigrants, and people of color. Specifically, my spatial analysis indicates that the main citywide programs in Milwaukee, Philadelphia, and Seattle have generally developed gardens closer to marginalized communities than to more privileged ones. Overall, gardens in each city have been located closer to neighborhoods with higher poverty rates and greater proportions of Black and Hispanic residents than to more affluent, whiter neighborhoods. In the 1990s and 2000s, Seattle’s P-Patch program sought to counteract concerns about fairness in the use of public resources by prioritizing new garden development in lower income areas, an effort that worked to flip the relationship between income and garden proximity over time such that communities with higher poverty rates are now likely to be closer to the nearest garden than otherwise similar communities with lower poverty rates. However, over time Seattle’s gardens appear to be growing less accessible for immigrant communities.
Across all three cities, garden proximity to Asian Americans and foreign-born residents has been mixed, despite the significant labor that immigrants have contributed to the development and maintenance of each program’s gardens. In Philadelphia, high rates of garden attrition reflect the Pennsylvania Horticultural Society’s emphasis on greening as a tool for economic development. Indeed, numerous gardens have disappeared in neighborhoods where housing costs have increased and poverty rates have decreased, while garden proximity to neighborhoods with a higher share of Black residents has decreased over time. The examples of Seattle and Philadelphia show how programs can achieve clear outcomes by prioritizing a certain benefit that they want urban agriculture to provide in their city. In contrast, Milwaukee’s historical garden distribution does not show significant changes in accessibility over time, other than a gradual increase in the distance to the nearest garden for all neighborhoods. In this chapter, I show how decisions at the organizational level can impact urban forms and the distribution of growing space across the urban landscape, and I highlight the apparent impacts of the different strategies observed for marginalized groups. Finally, I summarize my major findings and discuss their implications for social scientists as well as urban agriculture advocates and planners. As cities become increasingly important sites of contestation over governance and resource allocation in the 21st century, understanding how community-based organizations interact with local government is critical— not only how these organizations secure resources from public sources, but also how they win policy victories in the face of elite opposition. In developing and defending community gardens, the urban agriculture organizations that are the focus of this dissertation provide instructive cases in the potential power that everyday people have to influence urban land use patterns. At the same time, they demonstrate various ways that organizations are constrained by their environments: insufficient funding led Milwaukee Urban Gardens to shift from preservation to programming; in Philadelphia, two organizations with vastly different relationships to the city’s elite have put forth competing narratives for urban agriculture’s value; and in Seattle, the PPatch program’s public nature has forced its accountability to democratic priorities but has also left blind spots around outcomes like gentrification that were not widely anticipated. In an era of compounding socio-environmental crises, efforts to build recognition, legitimacy, and security for urban agricultural space have implications for the broader conversation around urban sustainability and environmental justice . My analysis highlights the multiple ways that legitimacy figures in the process of contesting urban land, providing empirical support for theories that conceptualize an ongoing interplay between organizational legitimacy and the social forces shaping organizational outcomes . Extending these theories, I discuss how an organization’s pursuit of legitimacy as a community service provider comes to structure its possibilities for hybridizing into a social movement organization, and I highlight ways in which the organizations studied here also shaped the local legitimacy of urban agriculture as a land use by influencing public discourse and the physical landscape to remake human-environment relationships in urban space.Investigating movements that advocate for gardens and the institutions that support and regulate urban agriculture is valuable, both because of farming’s potential to meet important human social and material needs and because of the paradoxical political and economic forces that are exposed when urban land is set aside to be farmed rather than developed.