The following sections provide a brief history of each city’s main community gardening programs, the political and economic conditions in which they have operated, and the policy victories they achieved.Like many cities in the US, Milwaukee has faced economic challenges from the 1960s onward related to globalization and the loss of manufacturing jobs. The challenge has been particularly acute in Rustbelt cities such as Milwaukee, which lost over 100,000 residents between 1960 and 1980—a decline of almost 15%. The city won federal funding to support urban gardening in 1978, and the resulting Shoots n Roots program expanded upon earlier cityled efforts with a focus on making use of vacant lots to mitigate the growing urban blight that had become a visible symptom of the city’s economic decline . The city permitted Shoots n Roots gardens on a year-by-year basis, wanting to ensure that the lots remained available for redevelopment; many sites were only part of the program for a few years. Shoots n Roots was ultimately housed in the University of Wisconsin Milwaukee County Extension, and like other public entities, the Shoots n Roots program was not positioned to engage in contentious politics, which precluded pressing the city for long-term land access. The program gradually came to focus on large, county-owned parcels outside of the city limits as its federal funding was reduced over time. Consequently, while the Extension still supports community gardening activity in and around the city of Milwaukee, this program is no longer the primary administrator for urban gardens in the city. Milwaukee’s primary community gardening program, Milwaukee Urban Gardens , how to dry cannabis was founded in 2000 by local residents who had lost their gardens to development following a period of relatively stable and gradually improving economic conditions in the 1990s.

Originally created to purchase community garden sites and advocate for long-term garden and green space preservation, in 2013 the program merged with an environmental programming organization, Groundwork Milwaukee, and now serves as a single point-of-contact for anyone in the city looking to get involved with a garden or start a new one. Through the MUG program, renamed Milwaukee Grows in 2017, the city grants leases of generally 1-3 years for use of its vacant lots for community gardens. Groundwork Milwaukee also provides liability insurance, educational programming, and a paid youth work force to help residents build and maintain gardens. While the City of Milwaukee does not guarantee that its land will remain permanently available for the roughly 100 MUG community gardens, it has agreed to sell a few lots for urban agriculture projects in the years following the 2008 financial crisis. Furthermore, with an electoral mandate for progressive and environmental policies in the 2010s, the city government became actively involved in developing the local food system through the HOME GR/OWN program. Created by Mayor Tom Barrett in 2013, this initiative seeks to streamline the legal process for residents and groups wanting to build gardens, commercial farms, or new parks on city-owned vacant land. The city partners with a wide range of local organizations to carry out sustainability and economic development projects through this initiative. However, the HOME GR/OWN program could come to an end at the whim of a subsequent administration. Perhaps because the city has been so supportive and not inclined to sell off any of the garden sites, MUG and Groundwork Milwaukee have not been actively advocating for a more permanent legal basis for their gardens in recent years. While the city’s political climate is fairly liberal and recent green initiatives have been popular with the public, local economic conditions remain challenging; the city retains control of vacant parcels in case opportunities arise to generate tax revenue and employment on most of the land that is currently permitted for MUG’s gardens.

To build a more comprehensive and historical understanding of urban agriculture in Milwaukee, I interviewed 18 key informants with firsthand knowledge of activities in the city’s main community garden organizations and those who were directly involved in forming and implementing city policy related to urban agriculture. I gathered archival documents from MUG and Groundwork Milwaukee, the City of Milwaukee, and other organizations that interviewees identified as having contributed to the local popularity of urban agriculture. I also built a historical database of relevant articles from the city’s two main daily newspapers, the Milwaukee Journal and the Milwaukee Sentinel . Combining data from these sources, I gained an up-close perspective on the process of contesting urban agriculture’s value as a land use in Milwaukee, and I developed a unique dataset of Shoots n Roots and MUG-affiliated gardens in order to map their locations over time. The Pennsylvania Horticultural Society was already nearly 150 years old when it began its community gardening program, Philadelphia Green, in 1974. Originally centered around the appreciation of ornamental plants and landscape design, PHS grew into “a more holistic understanding of plants as a tool for urban transformation” when it took on the role of greening Philadelphia in the 1970s. At this time, similar to both Milwaukee and Seattle, Philadelphia’s population was shrinking and the economy was under strain from high unemployment and inflation. Over time, the Philadelphia Green program evolved to offer a range of greening services, and PHS played a role in shaping the larger policy debate around vacant land in Philadelphia. Today, the organization contracts with the City of Philadelphia to maintain parks, greenbelts, and museum grounds, in addition to supporting many of the city’s community gardens. For decades, these functions coexisted as part of the Philadelphia Green program; PHS has recently rebranded the work as a range of initiatives including City Harvest , Neighborhood Gardens Trust , Civic Landscapes , and LandCare .

The program’s urban agriculture network includes 140 current community gardens and urban farms across Philadelphia. The City of Philadelphia has long supported PHS’s greening work on vacant lots, but over decades of collaboration the community gardens were generally viewed as a temporary land use. Philadelphia’s population hit its lowest between the mid-1990s and the mid-2000s, yet this period was also one in which many gardens were lost. Between 1996 and 2008, more than half of the city’s gardens were lost to parcel development or other changing conditions . PHS was involved in some land preservation efforts, but the organization did not pursue a blanket policy to preserve community gardens. As the discouraging trend of garden loss became apparent, and especially when a 2012 zoning amendment threatened the security of 20% of the remaining gardens, the city faced growing pressure to support and preserve its community gardens. Advocates from organizations including PHS, the Garden Justice Legal Initiative, and others sought changes to the city’s land disposition system, which at the time considered lots with gardens to be “vacant,” in order to improve the flow of information between gardeners and the city. They succeeded in halting the zoning amendment and then secured passage of the Philadelphia Land Bank Act in 2013. In the process of streamlining vacant lot disposition to spur economic development, best way to dry cannabis the Land Bank must give gardeners priority to acquire their sites rather than listing these sites as vacant and available for developers. Today, PHS has a mostly indirect role in advocating for garden preservation. Its close affiliate Neighborhood Gardens Trust maintains a voice in policy debates while raising money to purchase and save gardens facing development threats as the city undergoes a period of rapid gentrification. In the last decade, in a context of gentrification and displacement heavily affecting low income residents and communities of color, other organizations—most notably Soil Generation, a Black-and Brown-led coalition of growers—have taken the lead in the citywide efforts to organize and advocate for garden preservation and land use policy. Soil Generation and allied groups continue to press the city for more socially just land dispensation through the Land Bank and for broader responsiveness to resident priorities regarding urban agriculture and other community-oriented land uses. To assess the organizational dynamics and decisions involved in securing land for urban agriculture in Philadelphia, and to enable comparisons with Milwaukee, I collected data from similar sources. I interviewed 20 key informants with firsthand knowledge of activities in the city’s main community garden organizations and those who were directly involved in advocating for or implementing city policy related to urban agriculture. I gathered archival documents from the Pennsylvania Horticultural Society and the City of Philadelphia. I also built a historical database of relevant articles from the city’s two main daily newspapers, the Philadelphia Inquirer and the Philadelphia Daily News. Integrating these data for my analysis, I gained a detailed understanding of the historical process by which urban agriculture’s value as a land use has been constructed and contested in Philadelphia, and I developed a unique dataset of PHS-affiliated gardens in order to map their locations over time. Since 1973, the City of Seattle has managed a network of community gardens through its P-Patch program. Like Philadelphia and Milwaukee, in the early 1970s Seattle was struggling with high unemployment and inflation, and the P-Patch program was created as a way to make unused urban land available for food production. Unlike Milwaukee and Philadelphia, however, Seattle’s P-Patch program is administered by the city itself. For almost 50 years, gardeners have succeeded in convincing city officials to maintain the program’s funding through municipal budget cuts and to avoid selling garden sites when development pressure increased during periods of economic growth . Today, the city devotes many acres of its own land to the P-Patch gardens, including some lots that were purchased specifically for new P-Patches. The city program’s staff assign garden plots, organize events, and train the volunteer site leaders who maintain gardens.

Early in the history of the P-Patch program, volunteer site leaders organized a nonprofit to improve communication and pool their expertise. This nonprofit took on an advocacy role in the mid-1980s when Seattle saw a period of economic growth and gardens began to face development threats. The nonprofit reorganized as a land trust to take ownership of a saved garden, Pinehurst, which became the city’s first permanent community garden. The nonprofit continued to advocate for stronger protections for the P-Patches, winning their inclusion in the city’s 1994 Comprehensive Plan, and passage of the Protect Our Parks initiative in 1997, which makes community gardens and other recreational spaces on city land virtually permanent. This policy ensured that the city could not sell any land used for P-Patches as the local economy has grown, fueled by its strong technology sector, even through a feverish real estate market in the mid-2010s. Today, the P-Patch nonprofit continues advocating for the gardens and providing administrative support to the P-Patches , while expanding out from Seattle to help promote community gardening across the region. To compare the movement strategies, organizational dynamics and decisions involved in securing land for urban agriculture in Philadelphia, Milwaukee, and Seattle, I collected data from similar sources in all three cities. For Seattle, I interviewed 17 key informants with firsthand knowledge of activities in the city’s main community garden organizations and those who were directly involved in advocating for or implementing city policy related to urban agriculture. I gathered archival documents from the P-Patch program office and the City of Seattle Municipal Archives. I also built a historical database of relevant articles from the city’s two main daily newspapers, the Seattle Times and the Seattle Post-Intelligencer. Integrating these data for my analysis, I traced the historical process by which urban agriculture gained recognition and security as a land use in Seattle, and I developed a historical dataset of P-Patch gardens in order to map their locations over time. In chapter 1, I survey prior research on urban agriculture and relevant theoretical frameworks, including food justice, political ecology, urban political economy, community based organizations under neoliberalism, organizational legitimacy, and social movement processes. Situating my work at the intersection of these literatures, I highlight the limited attention paid to land use contestation for urban agriculture, on the one hand, and the broader need for more understanding of how community-based organizations contribute to urban social movements on the other.