29 Jul 2020
More than half the 1.2 million Americans displaced by “urban renewal” were Black.
“At its peak in the mid-1960s, urban renewal displaced a minimum of 50,000 families annually.”
When James Baldwin visited San Francisco in 1963 to film a documentary about U.S. racism, he encountered neighborhoods in turmoil: the city was seizing properties through eminent domain, razing them, and turning them over to private developers. Part of a massive, federal urban renewal program, nearly 5,000 families—no fewer than 20,000 residents, the majority of them people of color—were being displaced from rental homes, private property, and businesses in the Western Addition neighborhoods. Baldwin spoke to a Black teenager who had just lost his home and watched as his neighborhood was destroyed. He told Baldwin: “I’ve got no country. I’ve got no flag.” Soon after, Baldwin would say: “I couldn’t say you do. I don’t have any evidence to prove that he does.”
That young man was one of millions of Americans, disproportionately of color, who lost homes and communities through the federal urban renewal program. In discussing its human costs—colossal in scope and yet profoundly intimate—Baldwin helped popularize a phrase common in Black neighborhoods: urban renewal meant “Negro removal.” To steal people’s homes, Baldwin understood, was to shred the meaning of their citizenship by destroying their communities. And “the federal government,” he said, “is an accomplice to this fact.”
The 1921 Tulsa massacre and redlining have pierced the popular consciousness in recent years as ways that, through murder and markets, Black communities were destroyed. Curiously, urban renewal has so far remained on the margins of these discussions. Yet that program, in operation between 1949 and 1974, constituted one of the most sweeping and systematic instances of the modern destruction of Black property, neighborhoods, culture, community, businesses, and homes. At its peak in the mid-1960s, urban renewal displaced a minimum of 50,000 families annually—a 1964 House of Representatives report estimated the figure at more like 66,000.
“Urban renewal meant ‘Negro removal.’”
At the very moment when the civil rights movement secured voting rights and the desegregation of public and private spaces, the federal government unleashed a program that enabled local officials to simply clear out entire Black neighborhoods. Federal subsidies went to more than 400 cities, suburbs , and towns, supported more than 1,200 projects, and displaced a minimum of 300,000 families—perhaps some 1.2 million Americans. While Black Americans were just 13 percent of the total population in 1960, they comprised at least 55 percent of those displaced. And, while we tend to remember urban renewal as a big-city program, pursued by titans such as Robert Moses in New York, the vast majority of projects were carried out in cities of 50,000 residents or fewer. These were small cities such as Greenville, North Carolina, where 207 families of color and 11 white families were displaced; Tupelo, Mississippi, where 217 families of color and 31 white families were displaced; and Demopolis, Alabama, where 55 families of color and 7 white families were displaced. Urban Renewal was spread as widely as today’s marches for social justice.
Today, as racially disparate rates of eviction, police violence, and capital flight raise urgent questions about the right to live in safe, thriving communities, a more complete reckoning with urban renewal’s record of destruction is necessary. Fortunately, because urban renewal was federally funded, Washington collected data about how projects unfolded; these records also allow us to reconstruct the many costs of urban renewal. Thanks to a recent comprehensive digital mapping project which I helped spearhead at the University of Richmond’s Digital Scholarship Lab, it’s now possible for the first time to visualize how hundreds of urban renewal projects displaced tens of thousands of Americans. While private–public practices such as redlining help explain the staggering racial wealth gap, the history of urban renewal, though no less materially devastating, involved kinds of theft that are more difficult to quantify—thefts that amount to the destruction of entire lifeworlds. And, the political and economic forces that made urban renewal seem like a good idea at the time continue to shape the precarity of neighborhoods of color today. Like redlining, profit— in this case, returns derived from boosting property taxes— continues to define the state’s interest in destabilizing Black neighborhoods.
“While Black Americans were just 13 percent of the total population in 1960, they comprised at least 55 percent of those displaced.”
As the United States emerged from World War II, many cities faced a housing crunch. Whites policed the racial boundaries of their neighborhoods, often violently . And so as greater numbers of African Americans migrated north in search of manufacturing jobs and to escape the South’s more formal system of Jim Crow, Black neighborhoods quickly became overcrowded. Residents were often subjected to exorbitant rents in derelict housing owned by slumlords. Families and friends boarded together. Others sublet rooms to meet extortionate rents. Segregated neighborhoods in northern cities became so crowded that many schools operated in two shifts—half of the students went in the morning, the other half in the afternoon. “Blight” was the term policymakers used to describe the worsening conditions structured by these national practices of urban segregation.
Meanwhile, city budgets teetered on the edge of fiscal cliffs, from which they had only just clawed their way back up. The economic exuberance of the 1920s had produced an urban and suburban “land boom,” as the Wall Street Journal put it—the overheated, last gasp of a period “of great and extended prosperity.” Cities fueled this speculation by taking on staggering levels of debt to support the infrastructure that made private property profitable. Net annual additions to municipal debt between 1923 and 1931 averaged over $845 million (or more than $13.5 billion in 2020 dollars), or enough, as one contemporary analyst accurately predicted, “to keep municipal finance in a turmoil for two decades or more.”
When the bottom fell out of the stock market, the consequences quickly ricocheted through urban land markets and city budgets. Property values plummeted, and tax delinquency skyrocketed. In the Great Depression, some 1,200 local or county governments defaulted or went bankrupt.
“Residents were often subjected to exorbitant rents in derelict housing owned by slumlords.”
The New Deal helped stabilize the situation. Later, defense conversion and contracting in World War II injected desperately needed capital into cities. But cities still held considerable debt, and the New Deal’s public works agenda was not without its own considerable costs —while federally subsidized labor constructed many bridges, libraries, schools, and sewage plants, these public assets had also become new line items on municipal budgets. Moreover, as the Depression shuttered factories and the Great Migration brought new residents, officials worried that property tax revenues would never rise to meet these new burdens.
As early as the late 1930s, New Dealers were increasingly concerned that city budgets were fiscal time bombs that threatened to explode the entire progressive project. And they saw that local governments were already using New Deal works programs to remedy the situation. As Mabel Walker, an urban analyst, noted in 1938, in New York City, federally subsidized works projects had begun “siphoning off [the] slum population,” constructing affordable housing “in cheaper areas,” and might even facilitate the delivery of cleared land to “higher income groups” and “business and industry.” The result, she wrote, was “in effect a gigantic subsidy or bonus handed out to property holders in these slum areas” who could never have assembled enough private capital to reset urban land markets themselves. By 1938 Mayor Fiorello LaGuardia estimated the city had torn down or gutted nearly 9,000 buildings. In Philadelphia federal support for clearance subsidized the demolition of 8,328 structures, releasing land with an estimated value of $11.5 million.
Federal leaders struck on the idea of using urban renewal to harness this haphazard redevelopment of cities and turn it into a more coherent, national program of planning, redevelopment, and housing. They also recognized that the federal government’s budget overwhelmingly depended on capital generated in cities in the form of confiscatory, progressive corporate and personal income tax rates. As one of urban renewal’s federal designers put it, short of “a nation-wide overhauling of our traditional arrangements for taxation and public expenditures,” “it seems only fair that the federal government should aid the local governments to the extent necessary to cover their urgently needed outlays.” Federally subsidized slum clearance and redevelopment could put cities back on the path to fiscal independence—and the federal government wouldn’t have to share much of its precious income tax revenue.
“Property holders could never have assembled enough private capital to reset urban land markets themselves.”
World War II delayed the initiative, but the Housing Act of 1949 set aside significant financing to enable cities to build public housing and to demolish neglected, overcrowded neighborhoods, and antiquated or abandoned industrial properties. As in a number of New Deal programs, the subsidies would be offered in the form of bonded debt, which, after cities delivered a matching share, the federal government would retire. The goal with such a convoluted system of finance was to get capital moving through private financial institutions and to plausibly deemphasize the role of the national government. These were local programs.
This growing mishmash of priorities was a hallmark of midcentury liberalism, which forged cross-cutting relationships with many different interest groups. Some policymakers, for instance, worked closely with real estate interests and business groups and their allies in city halls. Together they hungered for the potential bonanza of private redevelopment and city property tax yields. Others were aligned with progressive public housing advocates or worked closely to cultivate the support of African American community leaders. When he signed the 1949 bill, a signature piece of his Fair Deal agenda, President Harry S. Truman heralded a new front in the war for civil rights: securing a decent home for all Americans. Early on, Black clergy and civil rights activists were among the initiatives’ most hopeful supporters.
Congress soon confronted the reality that few local governments were pursuing the program. Local government officials and their private sector partners were much less interested in creating public housing than they were in commercial redevelopment. But the act’s regulations mandated that housing projects were to be prioritized.
Rather than amend the legislation to offer greater incentives for housing, a revised version of the legislation, the Housing Act of 1954, created the federal Urban Renewal Administration, ceding to the interests of commercial lobbyists and mayors. The act loosened housing mandates and so unleashed a goldmine of federally financed business-oriented clearance and development.
Many of the developments that resulted are among their city’s most iconic. New York City’s Lincoln Square, anchored by Lincoln Center, displaced at least 4,000 families, many of whom were recent arrivals from Puerto Rico. (One imagines some of those residents had been displaced from Puerto Rico, too, where the federal government funded renewal projects in some 30 municipalities, displacing at least 10,000 families.) Pedro Quinones protested displacement by joining a movement called Save Our Homes. As he correctly understood, the program “has come to New York to ‘clean up’ minority groups.” But “we are living there very happily, Puerto Ricans, Negroes, Japanese-Americans and other minorities. . . . We don’t want these communities broken up, but the city wants to have what are called ‘better class people’ there.”
“New York City’s Lincoln Square, anchored by Lincoln Center, displaced at least 4,000 families.”
Other projects underwrote the emergence of the “meds and eds ” economy that fuel so many cities today. The University of Chicago displaced more than 4,000 families in a series of projects. Clearance and construction of Oklahoma City’s University Medical Center displaced at least 700, disproportionately African American families. And Detroit’s massive Medical Center displaced around 2,000 families, again disproportionately of color. That campus now anchors the city’s fashionable Midtown neighborhood. The University of Pennsylvania spurred projects that displaced more than 700 African American families and a thriving Black business district. That community, called Black Bottom, had been owned or occupied by African Americans since at least the Civil War. Many of its men were Union Army veterans.
Just counting families displaced, however, misses important dimensions of what made this so devastating. While they may not have been thriving in the terms that counted on municipal balance sheets, and while many residents were in dire economic straits, the informal, unplanned mix of public and private, business and culture often amounted to thriving communities. In New York, for instance, more than 600 businesses sat within the Lincoln Square project footprint, businesses that defined the commercial and cultural life of the neighborhood: diners and luncheonettes, candy stores and beauty parlors, a “Chinese goods” store, photography studios, a detective agency, and a funeral parlor.
For displaced businesses, federal law authorized a $2,500 reimbursement for “moving and fixtures” (the ceiling was ultimately abolished, but payments were still at local officials’ discretion). But business owners protested that the figure was a pittance compared to the costs associated with moving, reopening, and lost revenue in the meantime. Small businesses operated on vanishingly slim margins. One pharmacist estimated the cost of relocating and reopening was more like $20,000. Many displaced businesses simply closed down. These dynamics played out in small cities such as Rome, Georgia, too. Callie Martin had owned and operated Let’s Eat Café in the city’s cleared Black neighborhood. After packing up, moving, and reopening, she was barely scraping by. “I was able to give work to two people,” she told the local paper in 1971 . “But now I’m just working by myself and not really making ends meet.” Renewal “really caused me to lose a decent living.” Hubert Holland, who lost his barber shop was clearer: “The way I see it, they destroyed the Negro businesses, what little they had.” Two years after clearance, just four of Rome’s 16 displaced Black businesses had reopened. As of 1963, some 39,399 businesses were reported to have been displaced through urban renewal alone (the federal highway program displaced thousands more). Urban renewal would run for another 11 years.
“The way I see it, they destroyed the Negro businesses, what little they had.”
The vast majority of families displaced were renters: a 1968 study found that two thirds of all “relocatees” and three quarters of non-white families displaced were renters. While their landlords—slumlords in many cases—would be compensated for the loss of their property (and some quite handsomely ), very often the families that actually lived in these buildings were not. Instead, federal statutes entitled these citizens to “relocation assistance”—vague guidelines that local authorities assist displaced families with finding temporary housing. The legislation “authorized” local governments to offer up to $300 in relocation grants to displaced families. That figure was raised to $500 in 1964, the first year that relocation funds and rental assistance were included elderly individuals. But in many cities, “relocation assistance” simply amounted to flyers with lists of local real estate brokers.
Because of baked-in local discretion, thousands and thousands of those who were displaced never received any financial assistance. Cities made little attempt to keep track of those who were displaced because if they didn’t know where people went, they couldn’t compensate them; as a result, displacement records constitute one of the archival silences of urban renewal. In one Cleveland neighborhood, 717 families’ homes were razed to clear land for industrial redevelopment. Of them, 224 moved to “unknown” locations (they were likely living with friends and family); 57 moved into other forms of “substandard” housing; and 301 still lived, as the city’s Black paper reported, “in the midst of abandoned housing.” Across a number of Cleveland’s renewal programs, officials admitted not knowing what had become of another 1,194 families.
The transfer of wealth, capital, and land from these communities to large business interests and developers only scratches the surface of the damage done by urban renewal. Ties of kinship and community were shattered. The loss of a sense of “rootedness ” was devastating . Grady Abrams, who was displaced from the Five Points neighborhood in Augusta, Georgia, recalled the traumatic experience of his lost community. “It is one thing to leave your home, your neighborhood on your own, to be forced out is a different manner.” He testified to the lasting trauma: “It was, to me, the closest thing to death I can think of. In fact, my neighbors and I lost relationships forever. There is nothing of the past now in Five Points that I can show my grandchildren and great grandchildren that was part of my past. Nothing at all.”
“The loss of a sense of ‘rootedness’ was ‘devastating.’”
All of these issues were known to federal administrators. As one 1965 report found, thanks to urban renewal, “Nonwhites have been forced into already crowded housing facilities, thereby spreading blight, aggravating ghettoes, and generally defeating the social purpose of urban renewal.” Displaced citizens, another report found, “are faced with having to reconstruct their lives. . . . They must terminate relationships and break routines that—especially for the elderly—have been equated with life itself.” These were connections to tradition, community, and history that the built environment makes manifest—the millions of memories and attachments we make to each other through spaces like street corners and schools, bars and barber shops.
As we try to reconstruct these histories, so far we only have comprehensive family displacement data for the years 1950–66. These figures dramatically under count families of color because in many places Latin and Caribbean communities were counted as white, as in the Lincoln Center project and a number of clearance projects in California. Moreover, the government only counted families for displacement purposes, because they were the primary displaces entitled to the paltry and frequently under delivered relocation assistance grants. Non-elderly single people and nonconforming households—by which officials meant gay and lesbian families and those in which unmarried women and men co-habitated—were not entitled to relocation assistance. They literally didn’t count.
Rather than solve urban decay, urban renewal often exacerbated the problems. Many projects took years to complete. In the state of New York, it took an average of 8 years to develop a project; in New York City the average was 13 years . Those who stuck around their old neighborhoods often lived among boarded-up and vacated buildings or vacant lots. Not surprisingly, crime, which often hadn’t been much of a problem before, frequently took hold. Once optimistic Black residents—who had hoped to take their relocation checks out to the suburbs or use them to secure new homes in their old neighborhoods—couldn’t wait to get out. As one Black property-owner in Cleveland put it, “I’d move tonight if the city will buy my property. I’m ready to get out.” But in Cleveland, as in other cities, the local urban renewal office often intentionally delayed purchasing properties. In the mid-1960s, the federal Civil Rights Commission found that city officials allowed targeted properties to fall into further disrepair in order to secure a lower purchasing price ahead of demolition.
As historian Arnold Hirsch found in his landmark study of midcentury Chicago, clearing out African Americans was often the entire point: as the Chancellor of the University of Chicago put it, the program would act as “an effective screening tool” and as a way of “cutting down the number of Negroes” in the neighborhood surrounding the elite institution. That said, communities of color, immigrants, and the elderly were not alone in shouldering the costs of urban renewal. Many working-class white communities were devastated as well. While white families had more options for neighborhoods where they could move, and greater access to traditional mortgages, the loss of community and history reverberated across the color line.
“Many working-class white communities were devastated as well.”
In Boston, the majority of families displaced to build the city’s new West End and brutalist Government Center complex—nearly 70 percent—were white. Though even that figure suggests that nonwhite Bostonians were disproportionately displaced: as of 1960, they were still less than 10 percent of the city’s population. Still, the sheer number of white families displaced in Boston, more than 7,000, is staggering. And, as in Black neighborhoods, class played an important role in leading officials to choose certain communities—those with fewer resources and less political clout suffered greater losses. In Brooklyn , for instance, white, middle-class gentrifiers successfully blocked or modified key aspects of Robert Moses’s redevelopment plans for Brooklyn Heights and neighborhoods farther south. In the process, they also taught city planners about the potential value to be gained through preservation and gentrification. From these clashes emerged new, subtler and more recognizably modern forms of urban renewal: code enforcement, historical zoning, targeted policing.
In total, at least 550 square miles of U.S. cities were razed through urban renewal. The scale of displacement in big cities was staggering. Washington, D.C.’s Southwest projects displaced more than 4,000 families. The Lubbock, Texas, Coronado project forced out nearly 1,300 families and, federal data shows, managed not to touch a single white family. The country’s single largest project in terms of dislocation was Cincinnati’s Kenyon-Barr, which displaced at least 4,953 families—4,824 of which were African American. However, the intimacy of clearance in small city renewal projects was no less devastating. Communities that had lived and worked beside each other were ripped apart. Tiny Danville, Kentucky—population 9,010 in 1960—cleared out its lone Black residential and commercial district, displacing businesses and at least 48 families of color. When violence erupted in smaller cities in Georgia—Augusta in 1970 and Rome in 1971—a younger generation of African Americans in these communities signaled that discriminatory policing and displacement continued to define their second-class citizenship.
Throughout, local and federal officials kept their eyes on the bottom line: property values and property tax revenues. As the commissioner of the federal Urban Renewal Administration testified before Congress, the leading rationale for the program had “always been to sustain and increase the capacity of cities to meet rising needs for essential public facilities and services”; “private enterprise could not do it alone”; and “the impact of urban renewal upon taxable values is particularly important.” Local officials enthusiastically ratified these commitments. In Chicago, Mayor Richard Daley expected the city’s tax harvest on renewed land to rise from $2.3 million to $4.8 million. The massive Southwest, Washington, D.C., renewal project—estimated to displace some 2,500 black families—was expected to produce nearly $5 million in tax revenue annually against less than $600,000 prior to clearance. Even Tiny Calexico, California, population 7,900 in 1960, situated on the California–Mexico border, predicted a nearly fourfold uptick in property tax yields on its renewed land, from $4,400 to $16,400.
“The country’s single largest project in terms of dislocation was Cincinnati’s Kenyon-Barr, which displaced at least 4,953 families.”
Yet, for many cities, these forecasts were dead wrong. Many projects failed to materialize, often removing otherwise “productive” properties from the tax rolls. The result has been even greater pressure on municipal governments to boost property values and tax yields, goals they have often pursued through greater borrowing and aggressive policing tactics. In the wake of Michael Brown’s killing by Ferguson, Missouri, police, the U.S. Department of Justice found that the city’s harsh policing of its Black residents was the result of a systemic effort to raise revenue. The recent allegations that Breonna Taylor’s murder by Louisville police was tied to a special police squad—“Place Based Investigations”—makes the linkage between policing, municipal revenue creation, and redevelopment even clearer. According to attorneys for Taylor’s family, the warrants associated with narcotics investigations were meant to address one of the “primary roadblocks” to a multimillion-dollar redevelopment initiative. As the attorneys put it, “When the layers are peeled back, the origin of Breonna’s home being raided by police starts with a political need to clear out a street for a large real estate development project and finishes with a newly formed, rogue police unit violating all levels of policy, protocol and policing standards.”
The young man James Baldwin spoke with in San Francisco understood that the fullest expressions of identity and citizenship rest on the most intimate foundations—the spaces of home and community through which our lives take on meaning, a neighborhood to which we might return, memories created and that come rushing back. Returning to such spaces enables us to rediscover our roots, collapsing, for a moment, the distance between past and present. Urban renewal robbed generations of these formative spaces—and much more besides.
As today’s movements for social justice grapple with state-sanctioned violence on communities of color, we must also be alert to the fact that policing is but one branch of the local state. While the audacity and scale of urban renewal was exceptional, the structural conditions and fiscal-political logics that created it are still with us. Indeed, today’s austerity and municipal debt only increases urban budgetary pressures, which helps explain why cities led by Black mayors and councils are as likely as any other to pursue aggressive displacement and redevelopment schemes. These powerful dynamics also help explain why city officials resist calls for defunding the police: they guard present property values and are one among a number of tools for producing the property values of the future. Focusing on policing alone, then, misses this broader picture—of urban real estate, the fiscal bases of city governance, and capitalism. Producing flourishing Black communities today means addressing all of these forces at once.
Brent Cebul is assistant professor of history at the University of Pennsylvania. His first book, Illusions of Progress: Business, Poverty, and Liberalism in the American Century, will be published by Penn Press.
This article previously appeared in Boston Review .
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