Neighborhood GIS: A Tool for Community Participation in Planning

Swasti Shah

 

Abstract

This paper presents the process of building a GIS database that can be utilized by residents for describing, evaluating and prescribing what they believe is desirable in their neighborhoods. A prototypical GIS database developed for the city of Urbana, Illinois brought together information from the US Census, the city planning department and other local data sources to present a multi-faceted view of the community. Different aspects of neighborhood living including proximity to amenities, crime rates, commuting patterns, and housing characteristics formed a part of Urbana’s Neighborhood GIS. Residents from around the city were invited to explore their neighborhoods and the city using this database and to manipulate it to build a new and unique layer representing their perceptions and options. 


 

Introduction

A significant part of Urban Planning concerns itself with maintaining and enhancing the character of neighborhoods. Neighborhoods form the physical and social environment within which people conduct their daily activities and therefore neighborhood quality has a direct and significant impact on the quality of life of its residents. Even though ‘neighborhood planning’ enjoys an elevated position in general planning practice, there is considerable confusion and difference in opinion regarding definition and function of a neighborhood (Hunter, 1979). Planners have turned to residents to get a better understanding of what their local environment means to them and what in their opinion, constitutes their neighborhood. This process of generating meaningful public input to aid planning has however often seen only limited success because of the lack of effective tools for the purpose (Al-Kodmany, 1998). The analytical potential and the spatial explicitness of geographic information systems (GIS) can be a powerful tool bridging the gap between resident comprehension and expression of their neighborhoods and therefore go a long way in making neighborhood planning more contextual and useful.

This research is an effort to strengthen the link between GIS and public participation by taking GIS beyond its conventional role in planning to develop a ‘neighborhood GIS’. A neighborhood GIS is a database for the community that can help the residents visualize, describe and evaluate their local environment and therefore help in planning for it. A neighborhood GIS was developed for the city of Urbana, Illinois as a prototype. The city’s existing GIS was used as the base and several information layers were added to present a multidimensional picture of the community. Several Urbana residents were surveyed using the neighborhood GIS to test its effectiveness as a participatory tool. During the survey, the participants were encouraged to interact with the GIS to the extent that they felt comfortable (with the help of a GIS facilitator) and then respond to several questions about their neighborhood and the city.

 

Advantages of using GIS over traditional techniques

Current methods for expression of individual and group perceptions/preferences include techniques like survey questionnaires (open ended or otherwise), marking up maps, design charrettes and Likert scale rankings (Talen, 2000b). Although these techniques have their own relevance, GIS provides a range of new possibilities by introducing spatial complexity and interactivity. It is widely acknowledged that these additional dimensions can be very valuable in securing meaningful resident involvement in the planning process (Howard, 1998; Kim, 1998; Elwood and Leitner, 1998; Shiffer, 1998; Harris and Weiner, 1998; Al-Kodmany, 1998, 2000; Martin and Myers, 1994; Couclelis and Monmonier, 1995; Hoefer et al., 1994; Florence et al., 1996; Craig and Elwood, 1998; Parker, 1998; Bosworth and Donovan, 1998; and Talen, 2000b).

Spatial complexity

GIS can be used to display most location specific data in a visual format, which is easy to understand and manipulate. While it is true that even traditional paper maps and models can portray data spatially, they are not very good at handling spatial complexity. For example, as the city of Rockford, IL discovered, it is very difficult to simultaneously visualize the impact of poverty, unemployment and education on crime rates in an area using paper maps (Hoefer et al., 1994). The city had to create several maps to represent each variable of interest on transparent sheets of paper that were overlaid to see how the different variables correlated. This cumbersome process is made very easy in GIS – a user can overlay any combination of variables in a single map to analyze situations or express preferences using very basic operations. Also, variables like visual quality, traditionally considered ‘intangible’, can be represented quite well using multimedia tools like ‘hotlinking’ within the GIS system. Issues like an area’s strengths and weaknesses or personal definitions of what constitutes one’s neighborhood can be converted from non-spatially referenced lists and given a meaningful spatial context using GIS (Talen, 2000b). For example, ‘sense of place’ might find a definition in terms of some spatial elements like nature of public spaces, streets, architecture and physical condition of buildings, visual character, distribution of people and their activities (Al-Kodmany, 1998). GIS can therefore equip residents with a more complex spatial vocabulary than simple paper maps and thereby enhance the richness of their expression.

Flexibility and interactivity

Residents can manipulate and interact with the GIS data to query out information that they require to better understand and describe their neighborhood. This is an immense improvement over paper maps or picture slides, which are static representations. The information conveyed in paper maps is limited to what is drawn on the map; users cannot derive any further attribute information pertaining to the mapped data nor can they change the content or the display style of the map. Also, paper maps cannot be redrawn fast enough to keep pace with an individual’s evolving thought process or a dynamic group discussion that might involve multiple variables and alternative scenarios. This can impede discussion and expression – Al-Kodmany (1998) talks about the frustration of using picture slides and paper maps in a community meeting setting in a neighborhood of Chicago. The interactive capability of GIS overcomes these limitations to a great extent. Operations varying from the simple zoom, pan, and copy, paste themes between views to spatial queries like area calculations, location/ number of occurrences of an entity, attributes of an entity, shortest path etc. can be easily performed by residents with the help of a GIS facilitator.

Coupled with the technical advantages that GIS has to offer, the increasing availability of inexpensive GIS data and development of user friendly software, present strong arguments in favor of developing its potential as a tool for community participation in planning (Ammerman, 1997).

 

Examples of GIS applications at the community level

Although community GIS endeavors are not yet common, there are some very encouraging examples where residents with the help of facilitators have used GIS to visualize and plan for their communities more effectively than they had ever done before. This research is based on these efforts and is aimed at furthering them.

Graduate students in the University of Wisconsin-Milwaukee built a GIS database for the Metcalfe Park Neighborhood in central Milwaukee and trained groups of residents in its use. They put together extensive parcel level information that the residents needed but till now could obtain only through a very cumbersome process. Residents are now being able to access vital information in a lucid format and are being able to use it to solve some of the complex problems in their neighborhood (Myers and Martin, 1994).

Students in the University of Illinois at Chicago, under the leadership of Professor Kheir Al-Kodmany have undertaken a similar project for the minority Pilsen neighborhood in Chicago. Using GIS in conjunction with multimedia, three dimensional modeling and traditional tools like sketching, they created a community database that has ‘empowered residents to visualize, evaluate and participate in revitalizing their neighborhoods’ (Al-Kodmany, 2000).

The ‘living neighborhood map’ developed using GIS for the South of Market community in San Francisco by a local non-profit organization (SOMF) has proved to be a powerful tool in the hands of the community for fighting gentrification and strengthening their local economy (Parker, 1998).

The Regional Government for the Portland Metropolitan area is not only using GIS to involve citizens in planning issues like growth management and transportation it is also working on creating ‘value’ data layers for the region. These layers will be based on what residents believe and value about their neighborhoods or the region as a whole to get a holistic picture of the region that goes beyond physical geography (Bosworth and Donovan, 1998).

Development of traffic calming strategies in Honolulu, Hawaii (Kim, 1998) and park planning efforts in Amherst, New York (Howard, 1998) are some other examples where GIS was used for problem solving with community involvement. The NCGIA Varenius project on public participation GIS or PPGIS has brought together extensive research on possibilities and limitations of PPGIS (see http://www.ncgia.ucsb.edu/varenius/ppgis).

 

Prototype Neighborhood GIS for the City of Urbana

About Urbana

Urbana is a small (population 40,000), Midwestern college town, and is the older and the smaller portion of the twin city region of Champaign-Urbana. Urbana has several mixed use, traditionally designed residential areas and a small downtown. The thriving commercial centers in the region, including a large regional shopping mall, are located in Champaign, which therefore has a stronger economic base. Most of the growth in the region, including new, low-density sub-divisions, occurs in Champaign, while Urbana faces a declining tax-base. The flagship campus of the University of Illinois (the University of Illinois at Urbana-Champaign) is geographically situated between the two cities.

Building the GIS

The first step in building the neighborhood GIS was collecting the relevant data. A major concern was that the data had to be at a scale that the residents could use effectively for addressing neighborhood level issues. Abundant GIS data on natural topography, administrative boundaries, infrastructure and demographic characteristics like ethnicity and population density is available for free or a nominal charge through the U.S. Census (http://www.census.gov), the U.S. Geological Survey (http://www.usgs.gov) and Esri, a primary commercial distributor of GIS software and data (http://www.Esri.com). However, most of this data is available at the block-group level, which is not specific enough for neighborhood level analysis. Data from commercial GIS vendors is often more detailed but it is expensive and geared towards business location decision making rather than neighborhood planning. Although the larger-scaled data is useful, neighborhood-scaled data is critical and the local government planning agencies are usually the best source for that.

One of the reasons why Urbana was chosen as the prototype city was the availability of basic data layers from the city planning department. Street network, block boundaries and land parcels with associated attributes like land-use were obtained from the city. Additional information was collected from other local sources like the school district, the park district, police department and supplemented by field surveys. Digital images of buildings, streetscapes and cityscapes were also taken and linked to the maps to provide a realistic and 3-D representation of the urban fabric. The effort was to go beyond conventional GIS to incorporate variables that the residents would value, to present information in a lucid format and, to build as comprehensive an image as possible within the constraints of time and data availability. Arc View 3.2 was chosen as the software for building the GIS project because of its high degree of user-friendliness along with enhanced capabilities through extensions,. Different aspects of the community were presented by combining various data layers or “themes” to form maps or “views” in the Arc View project. Each view was displayed in a separate ‘window’ on the computer screen. For the purpose of resident surveys, ten such different views were constructed. These were –

1.      The Champaign-Urbana region, with population distribution by census blocks, the location and boundaries of both cities and the university, major roads and landmarks of the region. The base map of Champaign County’s blocks was obtained from the Illinois State Geological Survey (ISGS).

2.      Land use (Figure 1), displaying the land parcels along the street network with land uses depicted in different layers representing categorizations like residential, commercial, and institutional Separation of land uses by categories into separate themes made it easy to look at a particular land uses in isolation or in comparison with another use. Each layer contained several finer sub–categories of uses – residential was divided into low density, medium density and high-density areas; commercial was divided into neighborhood retail and regional retail. Vacant land parcels were also indicated on the map.

Figure 1: Land Use  

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3.      Landmarks (Figure 2), highlighting important public spaces and buildings in the city and at the neighborhood level. The county courthouse, the post office, the city building and churches were some of the features located on the street base map as landmarks in a point theme. The landmarks were ‘hot-linked’ to images to assist the residents in relating their real world surrounding to the map on the screen. These images also helped in making any discussion on aesthetics and the physical structure of the city more specific and meaningful. Most of the landmark locations were determined using the address geo-coding function in Arc View while others were digitized in after a field survey of their location.

Figure 2: Landmarks

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  1. Neighborhood amenities (Figure 3), displaying the location and distribution of amenities that most residents would use frequently in their daily life such as schools, parks, stores, churches and health care. The map helped in estimating accessibility to basic services and how it varied in the neighborhoods across the city. The effect of the location of amenities on other variables like housing value in the neighborhood could be estimated by bringing in the housing value layer on to this view.

Figure 3: Neighborhood amenities

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5.      Accessibility to schools (Figure 4), showing the neighborhoods that are within walking distance to schools. The residential area from within which one could reach a school by traveling half a mile along the existing road network was mapped out. This area represented a maximum walk of ten minutes to the school; assuming the average walking speed is half a mile in ten minutes. The Network Analyst extension was used to calculate a half-mile service area along the road network for each school in the city using distance as the cost field. 

Figure 4: Accessibility to schools

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6.      Commuting patterns to work (Figure 5), captured two aspects of the ‘travel to work’ patterns of Urbana’s residents – mode of transportation (personal auto, transit, walk/bike) and travel time to work. Mapping this data helped in differentiating certain areas in the city as ‘less auto dependant’ than the others. This data was presented for the entire Champaign-Urbana region because most residents commute between the two cities. Also, the data was shown at the census block group level, which is the smallest geographic unit that the data is available for.

Figure 5: Commuting patterns to work

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7.      Housing (Figure 6), depicting housing density, mean value of owner occupied housing and the distribution of owner occupied and rental housing units in the city. This map brought out the income differential in the city represented by the range of values for owner occupied housing. Using this map as an overlay with other themes like population distribution by race, the residents could get additional insights in their community. The housing data was obtained from the 1990 Census block level data CD-ROM (1990 Census of Population and Housing Block Statistics CD-ROM) distributed by the U.S. Census Bureau. The data pertaining to the blocks in Urbana was extracted from the census CD and linked to the base map of the blocks in Arc View using the unique block id as the linking field. The relevant attributes were then displayed as different themes.

Figure 6: Housing

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8.      Demographics (Figure 7), displaying population density and distribution of people by race and age. This map when viewed in conjunction with some other variables like housing, or crime proved to be useful in analyzing several issues and concerns. The demographic data was also obtained from the 1990 Census block level data CD-ROM distributed by the U.S. Census Bureau.

Figure 7: Demographics

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9.      Social issues (Figure 8), displaying distribution of variables like poverty, unemployment and education levels in the city by census block groups.

Figure 8: Social issues

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10.  Crime map (Figure 9), showing the total number of crimes committed in the city during a year. A breakdown of the crime type into violent, theft/burglary, drug related and sex related crimes was also mapped to get a clearer picture of the nature and seriousness of offenses and their relative spatial distribution in the city. Crime data was obtained from the Urbana Police department. The police department records all the reported crime incidents in the city by the place of occurrence. The city is divided into several areas called ‘geo-codes’ for this purpose. The number of crimes committed by crime type in each geo-code in the city between January 1, 1999 and January 1, 2000 was obtained from the police department as a spreadsheet. The geo-codes were digitized into the database from a paper map and the crime data spreadsheet was linked to the geo-codes using the unique geo-code number as the linking field.

Figure 9: Crime map

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Resident Survey

Several residents in the city were interviewed to test the effectiveness of the neighborhood GIS in gathering citizen input. The interview was conducted as an in-depth, structured session where the GIS facilitator would have sufficient time to explain the different views in the GIS project, demonstrate basic GIS operations and help the interviewee navigate through the data layers to respond to the survey and ultimately build his/ her own map of personal perceptions.

Because of these constraints, the sample for this survey was limited to 18 people. In an effort to make this sample representative of the whole city, interviews were conducted at two public places – the public library and the downtown shopping mall. A laptop computer was set up in a relatively high traffic area in these locations along with a sign inviting residents to participate in a ‘Neighborhood Mapping Project’. Eleven surveys were conducted in this way. A second approach was used to obtain responses from a targeted population:  neighborhood organization members, city planning staff and city council members were contacted and invited to participate in the survey, and 7 interviews were conducted in this way . Most of the participants were professionals; 13 held white-collar jobs, three were blue-collar workers and the remaining two were homemakers. All respondents were white, although respondent ages varied from late twenties to fifties. A majority of the residents (10 out of 18) had lived in their Urbana neighborhoods for over ten years, 5 of them had lived there for over four years, and the remaining three for approximately two years.

Most of the interviews conducted were intensive varying in length from 30 minutes to 3 hours depending on the extent that the participant wanted to get involved. It was assumed that the participant did not have any prior experience with GIS therefore each interview began with some basic steps to build familiarity with the project and basic GIS functionality before moving onto evaluation of perceptions. The familiarization process consisted two steps. First the resident was introduced to the views in the GIS and the way the different variables are represented for example, parcels as polygons with the color indicating land use, buildings as point symbols, varying crime level through color gradation. The second step involved explaining the use of some basic GIS tools. It was explained how a map could be viewed at different scales by ‘zooming in’ and ‘zooming out’ or moved in any direction by ‘panning’, how distances and areas could be calculated, how attribute information could be obtained by clicking on any feature and how different images could be created by turning layers on and off and by copying and pasting layers from other maps.

This orientation was followed by the survey, which was based on the following three basic questions –

  1. The residents were asked to define their ‘neighborhood’ boundaries and the elements that they considered significant in their neighborhood. To encourage natural rather than conditioned responses, instead of using the term ‘neighborhood’ more descriptive terms like ‘ the area in which you feel comfortable, a sense of belonging, which you feel functions as your neighborhood’ were used. The responses were recorded by drawing either on existing maps or a new map put together by the resident and by annotating features, areas with comments. A careful note was also made of the elements or variables mentioned by residents that were not represented in the GIS.
  2. The residents were then asked to describe their ‘activity area’ within the city – the places that they visited often, the routes that they traveled, the areas that they avoided. Their responses were again marked on the maps considered most suitable by them and supplemented by comments in text boxes.
  3. Finally, they were asked to identify what they liked or disliked about their local area. They were asked to identify elements they perceived as strengths and as weaknesses in their neighborhood or any other general area in the city that affected them, and any facility that their neighborhood or city lacked. Whenever appropriate, the responses were marked on maps; otherwise they were recorded as text.

 

Survey Results

Although all the interviews followed the general structure outlined above, they were fairly open-ended in the sense that the participants were free to interact with the GIS as much as they liked and also to express themselves in any way they deemed fit  - by building new maps, by drawing on existing maps, by verbal descriptions or any combination of these. Most participants showed a great degree of involvement - the length of the interview sessions varied from 35 minutes to 3 hours with the average being close to an hour.

Considering the nature of the research questions and the open-ended, intensive and selective methodology adopted for the survey, a qualitative approach was chosen for summarizing the resident responses. While quantitative methods of analysis rely on unambiguous responses to analyze a definite set of variables, qualitative methods enable the inclusion of open-ended responses and allow contextual modifications in the number and type of variables to be considered. Qualitative methods emphasize ‘the central role of subjective perception and the construction of personal meanings as determinants of how people experience reality’ (Banyard and Miller, 1998) and are therefore extremely useful when a few participants are involved and the questions are framed to elicit broad responses (Patton, 1990; Denzin and Lincoln, 1994 in Suchan and Brewer, 2000). All the individual responses from the survey were studied and analyzed in detail and then pooled together to present a collective image of perceptions and opinions representative of the group as a whole. Some of the individual responses have also been presented separately as maps (Figure nos. 10 -13) to give a picture of the nature of responses that can be expected using GIS. The survey findings have been summarized under different sub-sections to reflect resident perceptions on different aspects of their neighborhoods.

Neighborhood boundaries

As researchers on neighborhood issues have noted earlier, most people tend to have unique perceptions of what constitutes their neighborhood. Every participant felt that they lived in a neighborhood and all of them excepting one, could define a specific physical area as their neighborhood (figure 10 and figure 11). The one person who couldn’t, felt that his neighborhood was not bounded by physical boundaries, it extended out to wherever there were friends in the city. This definition is reminiscent of ‘territorially detached’ neighborhoods described by McClenahan and Sweetzer (Olson, 1982). In the other cases, the size of the defined area varied tremendously from 10 acres to about 400 acres – while some people included only a part of one or two blocks as their neighborhood, for others it extended far out to include a large section of the city. The elements used by them to define the boundaries varied from physical features like street pattern, housing type; social relationships ranging from strong friendships to loose ties built on similar social level and lifestyle; individual activity patterns like walking area, sentiments of place attachment and inherent place characteristics like common history. These varying perceptions reflect the complexity of neighborhoods and re-emphasizes Bardo’s (1984) conception that a neighborhood can serve multiple functions for different people and therefore have multiple meanings.  The people most knowledgeable about planning issues in the community i.e. the city planners, city officials and neighborhood leaders showed a greater propensity for using place characteristics (physical as well as social) like streets or type of people for determining neighborhood boundaries. These people work with formally demarcated physical areas as different neighborhoods/wards and their leaning towards physical elements is probably a reflection of that influence. Figure 11 is representative of such a response. The other residents, tended to have personalized definitions based on elements or activities that involved them more directly; for example, location of friends, degree of familiarity with the area as well as the people living there and the range of a daily/frequent activity like walking (figure 10).

The GIS database had explicit physical data and was therefore particularly helpful for people who used physical characteristics to define neighborhood boundaries. For the others, it had value in the fact that they could translate their social relationships and activities to a physical area mapped out in detail with much greater ease, without having to rely on memory. If the basic physical layout is already present, it is generally easier to concentrate on other qualitative aspects of the area (Shiffer, 1998).

Figure 10: Response map 1: neighborhood boundaries

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Figure 11: Response map 2: neighborhood boundaries

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Neighborhood elements

The residents were also asked to identify the elements that were most important to them in describing the character of their neighborhoods. The residents were asked to choose from the various GIS layers and encouraged to think beyond the existing representation to identify elements that are significant but were not represented.

The most important element that recurred in some form in every response was the location of the neighborhood with respect to other uses in the city. Type of development around the neighborhood and the corresponding effect on travel patterns seemed to be an important characteristic irrespective of whether the interviewee was involved directly in neighborhood planning. The relative importance of proximity to different uses however varied amongst individuals. For most people (13 out of the 18 interviewees), the distribution of neighborhood amenities like schools, parks, stores and religious institutions was important.  Significantly, although the respondents did not define their neighborhood boundaries based on location of facilities, their presence or absence did affect their evaluation of the character of the neighborhood. Therefore, even though residents might not conceptualize their neighborhoods as Perry’s (1929) ‘neighborhood unit’, which is extremely popular amongst planners, they do value its underlying concept of accessibility to basic services. Other significant elements that helped the residents in neighborhood description were population characteristics like racial distribution, education and income level of people; housing characteristics like type and age of houses and crime levels.

Most of these elements were represented well in the GIS and the residents found it easy to build a picture of their neighborhood by combining the different themes. Neighborhood aesthetics was another valued characteristic – the architectural style of the houses, the tree lined avenues, the brick-paving on the streets, the colors and the textures were very important to the residents. This aspect was however rather inadequately portrayed in the present neighborhood GIS and calls for a better integration with multimedia techniques like 3-D visualizations or even traditional techniques like sketching (see Al-Kodmany, 1998; 2000 for more on this integration).

Local activity areas

The respondents were asked to indicate the places or the areas in the city that they visited or traveled through frequently (at least once a week) as a part of their regular activities. They could describe their activity pattern in several ways – as locations of destinations (points), as a general area within which most of their activities took place (polygon), as routes they traveled (lines) or any combination of these. The residents also indicated what they liked and disliked about these places and routes (figure 12 and figure 13).

A majority of the respondents (15 out of 18 respondents) defined their activity patterns in terms of definite destinations rather than a general area. In all cases, very few of these destinations actually lay within the area defined as the neighborhood. The residents traveled to different parts of the city and often into the neighboring city of Champaign to work, for shopping needs, and for recreational activities like eating out. Schools and parks were however often within the neighborhood or very close to it. Even when the activity pattern was defined as a general area, it was much larger than the area defined as the neighborhood. Therefore, neighborhood definition did not correspond to the concept that visualizes them as areas supporting most of the basic day-to-day activities. People also tend to have definite route preferences – most people said they liked to avoid the busy arterial roads not only while walking and biking but even when they were traveling by car to reach different places within the city. They would take longer detours while driving to use the less often traveled path and avoid heavy traffic. While walking or biking, people were more likely to take the neighborhoods roads which were considered pleasant because of the shady trees, good sidewalks, nice houses with well maintained yards and the presence of people (figure 12).

The GIS data layers that were the most useful in evaluating activity areas were those showing the street network, detailed land uses, and point locations of amenities and landmarks. The hot-linked images were found to be highly useful – images of buildings, street intersections and streetscapes helped respondents orient themselves in different GIS views and describe their routes specifically. Respondents also identified missing data that they believed would have been useful in evaluating activity areas; specifically, traffic counts on some major roads, and maps showing bike lanes and transit routes.

Figure 12: Response map 3: activity area

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Figure 13: Response map 4: activity area

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Residents’ likes and dislikes

To develop a good understanding of what neighborhoods mean to residents, it is not only important to know how they define it but also the elements and the issues that they consider as positive or negative in their local areas. The residents were asked questions on what they liked or disliked and perceived as strengths or weaknesses and how these factors contribute to their sense of satisfaction with their place of residence.

There was a high level of satisfaction in the survey sample regarding the present areas of residence. Most of the respondents (14 out 18) felt that their current neighborhood was the best place in the city for them to live. Their proximity to the downtown or to the University campus in the east and the schools and parks were very important to the residents. They also valued the physical appearance of their neighborhood – presence of old houses with unique architecture; shady trees, quiet streets with sidewalks and the walkability that these elements produced. Two respondents who lived a few blocks away in comparatively newer developments felt that the older neighborhoods were better places to live in for these same reasons On the other hand, two residents indicated a preference for newer subdivisions at the outskirts of the city where they could afford larger houses and more open space. The demographic composition of the neighborhood was another significant component contributing to neighborhood satisfaction. Respondents from the old neighborhoods close to the University campus, saw the presence of a large number of the University faculty in their neighborhoods as a big positive.  Another respondent from one of the most racially diverse neighborhoods in Urbana, which has a predominantly white population, felt that the diversity was the strongest and the most attractive aspect of the neighborhood.

Overall, there seemed to be a strong appreciation for the historic charm of the city and its neighborhoods. Residents see Urbana as a beautiful city that has retained its history and ‘small town character’ and to them this is the greatest asset of the city. They like living in its neighborhoods but at the same time, they expressed concern over several issues ranging from those intrinsic to their neighborhood to those affecting the whole city.

In a few cases, there was some dissatisfaction resulting from the behavior of neighbors. In other cases, the physical appearance of the neighborhoods and the city was a major concern –felling of trees by utility companies, increased auto oriented designing of streets, excessively large parking lots, and vacant buildings were seen as detriments to the character of the city. The most significant issue that recurred in almost every response in some form was the lack of diverse businesses in the city and the resultant declining tax base. People felt that there was a need to attract businesses to not only better serve the current needs of the community but to also strengthen its economic base.

In this case, the existing GIS layers seemed to be somewhat inadequate in representing resident expressions. This was mostly due to the fact that like / dislike assessment tended to be based on very ‘broad’ and non-location specific elements, which are difficult to represent using GIS. However, these expressions and assessments can be collapsed together and included as new ‘value based layers’ in the neighborhood GIS. This would take it beyond a database holding factual information into a database containing dynamic insights into the character of the city.

 

Limitations of GIS as a Community Participation Tool

Clearly, GIS offers several advances in eliciting community participation in planning. However, the Urbana exercise also brought forward some limitations and areas for further research and improvement. 

Data availability

As mentioned earlier, finding appropriate data is probably the most difficult part of building the neighborhood GIS. Although it is true that the use of GIS is increasing in US cities and a lot of them have parcel level data, but it is generally geared towards conventional utility and land management purposes and therefore not very helpful for community participation projects. Often, even if the data exists, it is not easily available or available only at a high cost. Also, it is very rare that all the relevant data will be available from one source; to get a comprehensive set of variables, one might have to depend on several agencies or sources. This brings its own problems in the form of data compatibility – if good metadata is not available, it might not be possible to use the GIS data from different sources in one image. In several situations, the only option for a community might be to actually go out and build its own database or to do extensive mapping to build on the existing GIS to make it relevant to their purpose. However, this process could be expensive and difficult to afford for several communities especially the ones with limited financial resources.

Building and managing the GIS

Building and managing a GIS database requires specialized skills and equipment. Even if basic GIS data layers are available from the city, it requires considerable amount of work to collect other data to augment the basic layers and manipulation in GIS to present the data in an easily usable format. Besides personnel skills, appropriate computer hardware and software is also required to build the GIS and to use it. Acquiring all this again involves considerable expenditure, which might be unaffordable for some communities.

Once the GIS database is in place, its efficient management also presents some practical challenges. A database for a city or even a part of it will be very large and complex therefore storage is an issue to be considered. Since the usability of the neighborhood GIS will be tied to the computers that the database is stored in, it is important that it is stored in computers that can be accessed by all the involved parties. The community members would also need to be trained such that they can use the neighborhood GIS efficiently and ultimately take ownership of it. This would require structured training sessions for the residents and sufficient motivation on their part to gain the necessary skills.

Possibility of marginalizing sections of the community

While GIS can be a powerful tool in the hands of the community giving them a new ability to express themselves and actively participate in the planning process, there is a fear that it can also marginalize some sections of the community (Clark, 1998; Harris and Weiner, 1998). To be able to use GIS or to even participate effectively in a group GIS session, residents require some formal training in its functionality. Even though GIS software is becoming increasingly user-friendly, it is not very friendly to people who might not have ever used computers before. Just the aura of ‘new technology’ that surrounds GIS might be daunting to several people in the community.  The use of GIS therefore requires extra sensitivity towards such groups in the community to help them overcome their hesitation in using GIS and be an active participant. However, as pointed out by Leitner et al. (1998) this is not very easy to achieve. There are numerous cases where adoption of a new technology or expertise has created rifts in the organization. The NCGIA specialist meeting on ‘Empowerment, Marginalization and GIS’ held in Santa Barbara in October 1998, brought together research by several scholars on different dimensions of this issue (see http://www.ncgia.ucsb.edu/varenius/ppgis/papers).

 

Conclusion

The positive response of the residents who participated in the neighborhood GIS exercise in Urbana, and the enthusiasm of the city officials, suggest that GIS can indeed be effectively used for enhancing community participation in the planning process.

Several advantages of using GIS have come through this exercise in Urbana making the case stronger for developing GIS as a community participation tool –

It is true that there are still limitations in working with GIS as a community participation tool but as the technology evolves further to become more user-friendly and as GIS data becomes cheaper and more easily available, these limitations will become less significant and hopefully we will see more and more communities benefit from using it.

 

Acknowledgement

Dr. Emily Talen, Assistant Professor, Department of Urban and Regional Planning, University of Illinois at Urbana-Champaign for guiding this research.

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Swasti Shah

MUP 2001, University of Illinois at Urbana-Champaign

Urban Planner

HNTB Architects Engineers Planners

100 Glenborough Drive, Suite 1300

Houston, TX – 77067

sshah@hntb.com