PROCEEDINGS
August 4, 1997

Metropolitan Initiative Forum
The Pittsburgh Region

Hosted by:
Pittsburgh High Technology Council
City of Pittsburgh
Presented by: The Center for Neighborhood Technology
Sponsored by: The Heinz Endowments

Pittsburgh stands at a crossroads with new opportunities for an era of economic revitalization that has sustainable development and environmental renewal as its centerpiece.

This meeting, attended by over 80 local leaders, was a discussion of how the federal government can be a partner in Pittsburgh's sustainable development renaissance.

Court Gould

August 15, 1997

CONTENTS

Background: The Metropolitan Initiative Forum - Pittsburgh Region
Introduction
Examples of Cooperation in the Pittsburgh Region
Necessary Conditions for Regional Cooperation
Conditions Impeding Regional Cooperation
The Federal Role: Toward More Effective Regional Cooperation
Federal Influences
Opportunities for the Federal Government to Partner in Enhancing Regional Cooperation
Next Steps
Appendix 1 President's Council on Sustainable Development
Center for Neighborhood Technology
Appendix 2 Agenda
Appendix 3 List of Participants

Background: The Metropolitan Initiative Forum -- Pittsburgh, Pennsylvania

Pittsburgh was selected as one of *twelve regions around the country where roundtables were convened for The Metropolitan Initiative, a project of the President's Council on Sustainable Development and the Center for Neighborhood Technology (Appendix 1).

The roundtables serve to collect input toward determining how existing federal programs and policies can better contribute to sustainable growth in metropolitan regions of the United States. Resulting strategies and specific implementation recommendations will be made to the President and other government leaders.

Already, it has been proposed that pilot programs be developed in a small number of metropolitan regions which might, by Executive Order, test strategies including:

• Creative uses of federal money
• Flexible regulations to enable improved community and business performance
• Local government and citizen empowerment via better access to information and data

Seizing the opportunity, Pittsburgh leaders initiated the August 4, 1997 Metropolitan Initiative Forum for the Pittsburgh Region.

The Forum was hosted by the Pittsburgh High Technology Council and City of Pittsburgh and presented by The Center for Neighborhood Technology with sponsorship by The Heinz Endowments.

Over 80 Pittsburgh leaders (Appendix 2: List of participants) participated in the four hour discussion (Appendix 3: Agenda).

The purpose of the meeting was to begin a process of identifying collective goals for the betterment of the region and to identify innovative ways in which the federal government can be a more productive partner in the process.

This document reviews the discussion and recommendations.

* Atlanta, Boston, Chicago, Cleveland, Denver, Detroit, Los Angeles, Miami, New York, Pittsburgh, San Francisco, St. Louis

Introduction

Frank Tugwell, Executive Director of the Heinz Endowments opened the meeting with a scene setting overview of the opportunity at hand. The essence of his remarks follows.

Today the Pittsburgh region is at an economic and social crossroads. It is in a process of reinventing itself; moving from economic and social reliance on resource extraction to a model city and region whose reemerging vitality is based on nurturing a knowledge-based new economy. Inexorably tied to this developing renaissance, sustainable development is a key theme to quality of life and values of establishing Pittsburgh as the world's center for environmental solutions - "The Environmental City". In the process, there are important opportunities to build partnerships with the federal government for technical assistance, finance, and information toward visioning and achieving regional metropolitan development which balances economic growth with environmental quality. Traditionally, the federal government has been more a provider of financial resources and less an innovative partner. The opportunity at hand is to redefine the federal role as a partner in the region's sustainable development.

Martin Spitzer, President's Council on Sustainable Development followed with discussion of their mission to promote metropolitan cooperation by making the federal government more supportive and responsive to regional needs. He noted the Pittsburgh Roundtable appeared to have the greatest number of attendees of the twelve cities. He commended the region for its interest.

Scott Bernstein, Center for Neighborhood Technology introduced the question of how to redirect existing federal authority/dollars and harness our government in less traditional roles as rulemaker to smarter, multi-agency coordinated ways such as:

• Location efficient mortgage funding whose affordable housing incentives make it attractive to live closer to the urban area and result in less car miles and thus savings in the household.
• Seek regulatory incentives for the private sector to reinvest in communities via means such as redirecting sale of emission reduction credits only to others who create local jobs.
• Non-traditional approaches to environmental problems such as New York State's $5 million conservation effort to protect upland watersheds in order to avoid a $7 million urban waste treatment solution.

Examples of Cooperation in the Pittsburgh Region

Facilitated by Rebecca Flora,
Green Building Alliance

Beginning the discussion on a positive note, the group was invited to inventory examples of effective programs in the region which address a wide range of needs and opportunities. A list of examples of cooperation was generated and is included below not in order of priority. It was noted these areas are not prone to heavy regulation; perhaps indicating that less regulation breeds collaboration and innovation.

Economic, Business, and Government Development

• Greening of communities Carrick, Knoxville, and Lawrenceville with lead abatement and weatherization (Conservation Consultants, Inc.) and urban gardens (W. PA Conservancy)
• Brownfield reuse including Nine Mile Run, Washington's Landing, and the Pittsburgh Technology Center to name a few
• AIA committee on reshaping the region
• Working Together Consortium
• COMPAC 21
• Pittsburgh Regional Alliance
• Pittsburgh Regional Partnership
• Pittsburgh High Technology Council
• Pittsburgh Tissue Engineering Initiative
• Reinventing Allegheny County government
• Old ALCOA Building to house economic development agencies
• S.W. PA Growth Alliance
• Port of Pittsburgh
• S. W. PA Resources Development Council

Environmental

• Voluntary Initiative for Pollution Prevention to publicize P2 achievements beyond requirements
• CMU and University of Pittsburgh RISES and Regulatory Brokering Program
• Allegheny Land Trust
• Green Building Alliance
• Ozone Action Partnership
• Environmental City Initiative
• University of the Environment

Cultural & Community Development

• Allegheny County Regional Asset District one percent sales tax supporting cultural attractions.
• Pittsburgh Civic Garden Center's community gardening program
• Horticulture Society efforts to develop a botanical garden
• Welfare reform in Clairton and McKees Rocks
• Pittsburgh Partnership for Neighborhood Development
• Steel Heritage Industry Corporation heritage parks program
• Federal Enterprise Program in Mon valley
• Grant Makers of W. PA

Education

• Mon Valley Education Consortium
• Pittsburgh Voyager math and science education initiative working with 33 school districts
• Pittsburgh Common Knowledge Project
• Youth Works
• Engineers Society
• Local Government Academy

Recreation

• Reemergence of rowing on the rivers with five active colleges and 13 highschools, and hundreds of individuals via the Three Rivers Rowing Association and boathouse on Washington's Landing
• Rails-to-trails via Friends of the Riverfront and the Allegheny Trail Alliance

Necessary Conditions for Regional Cooperation

With the positive initiatives fresh in mind, the group was challenged to identify contributing conditions. Keys to cooperation include:

• Clearly defined mission
• Willingness to collaborate
• Sensitivity to not duplicate
• Commitment to make it happen
• Identify strengths of individual organizations
• Care to not categorize but rather view issues across the board
• Suspending disbelief

The region's strengths:

• Legacy of leadership by corporations and foundations
• Regional banks are cooperating and progressive
• Sense of regional pride and can do attitude
• Diversity of government agencies and lack of a regional entity for decision making makes

cooperation a necessity

• Manageable size and good relationships among the leadership
• Wealth of resources, i.e., nonprofits, universities, foundations
• The environmental/conservation sector works well together and is an effective conduit to positively addressing a wide range of social and economic issues
• People are beginning to recognize effects of suburban sprawl as is the state legislature. The Governor recently appointed a commission to examine a state-wide comprehensive development program
• Appreciation is rising from the inefficiencies for duplication of municipal services in adjoining communities and in general for other liabilities of service delivery.

Conditions Impeding Regional Cooperation

Continuing the circle of inquiry, the group was invited to identify impediments to regional cooperation.

Barriers to regional cooperation may be characterized by suburban/urban spacial differences. Inner city sentiments tend to hold suburban interests as competing with a net neglect of urban problems. Suburban loyalties point to inefficiencies of the urban center as a drain on regional resources. Further exacerbating these differences, proliferation of local governments and authorities has solidified geopolitical boundaries and contributes to lack of municipal cooperation in the region.

The Pittsburgh region has a highly fragmented political system, challenging social, race, and class issues, and a myriad of structures not in step with each other. Population trends have been pronounced. In fact, population loss and industrial decline has hollowed out many formerly prosperous communities. Projections for the next 20 years are flat with Allegheny County ranking among the slowest growing jurisdictions in the nation at 1.2 percent growth. Adjoining counties such as Butler and Beaver are, on the other hand, growth areas.

Specific impediments mentioned are as follows:

Governance

• Lack of an institution to make difficult regional decisions and choices
• Need for a more unified state house and senate delegation
• Question of whether new era of high technology leaders will step to the leadership plate
• Fragmentation of local government and multiplicity of agencies
• Top down decision making
• Lack of leadership by local officials
• Lack of integrated efforts of public, private, and the general citizenry sectors
• Old image of Pittsburgh as the "smoky" city

Race and Income

• Communities are still in economic shock and trying to assess their assets
• Concentration of poor in public housing and lack of concern for quality of life for minorities
• Lack of commitment to equity on a regional basis particularly in terms of opportunity and access to services
• Interests in rebuilding and redistributing the City Housing Authority into middle class

communities are a source of contention

• Race barriers such as understanding and spacial differences
• Lack of labor community involvement
• Violence, drugs, and emerging gang trends

Transportation

• Regional transportation is poor
• Public transit ridership has been trailing off
• The system is well suited for getting people into Pittsburgh but not for providing urban access to suburban growth areas where the jobs exist
• Failure to embrace alternative fuels

Education

• Fragmented school districts
• Need for better coordination between education and industry
• Lack of federal leadership
• Lack of knowledge/communication
• Limited understanding of the values of sustainable development
• Media is too negative
• Lack of data and science
• Lack of community consensus for what constitutes quality of life and its preservation
• Better appreciation is needed for the interrelation between good environment and economic development
• Lack of consistency in education causes families to move out of the city

Landuse Planning

• Overly permissive landuse framework and lack of comprehensive land use planning
• Too many local governments with landuse authority
• Lack of synchronizing development efforts
• Suburban sprawl is now a reality
• Reliance on property tax
• Need for more public access to the rivers
• Lack of coordinated riverfront development and redevelopment
• Conventional wisdom that holds Metropolitanism and Regionalism as negative words
• Old sewer and water infrastructure suffering disproportionate investment in new infrastructure into greenfields compared to upgrades in old communities
• Communities compete for development and redevelopment

Clean Air and Water

• Belief that job creation requires compromise in environment and quality of life
• In expediting utility deregulation, the Public Utility Commission and the legislature seems to not be placing enough care for equity service and low-income energy assistance and weatherization programs, and renewables. Low-income communities may not be able to compete in the emerging free market.
• Lack of land and conservation ethic on par with other areas of the country
• The federally described ozone region does not constitute a level playing field

Brownfields

• Brownfield expenditures which amount to little environmental improvement
• Inconsistency in federal brownfields policy as exercised around the nation

The Federal Role: Toward More Effective Regional Cooperation

Two Sessions Facilitated by Moe Coleman, University of Pittsburgh and Andrew McElwaine, Heinz Endowments

With overlapping themes, these two concurrent discussions are summarized together. The group was led in discussion focusing on where to go from here in terms of best opportunities for regional visioning and structures for cooperation. Retargeting resources and realigning strategies are the order of the day. Observations were solicited on traditional federal incentives and disincentives at work in the region. The group presented ideas on ways in which relationships with the federal government might be recrafted toward a more enterprising partnership and viable region.

Federal Influences

The group noted the federal government role has been remote on regional cooperation and particularly thin on promoting sustainable development, where, for example, prevailing economic indicators only address non-sustainabiltiy. Nevertheless, the Intermodal Surface Transportation Efficiency Act (ISTEA) is lauded as a model for effective linking of planning for transportation with decision making on how public monies are used.

In particular, four programs were noted as ways in which the federal government has engaged and subsidized suburbanization.

1. Federal mortgage policy for years was written to favor homes with large lots and detached garages. The newer vintage programs such as Pittsburgh's HOME initiative are more friendly to low to moderate income housing in the city itself.
2. The Federal Defense Highway Act built the nation's interstate transportation network in a way that served to promote suburban sprawl. Beltways in particular have had the effect of linking suburbs and distancing people from need to visit the urban core. Pittsburgh escaped ring road development and as a result has a high ratio of urban jobs to the region and remains more of a shopper's choice than other downtown regions across the country.
3. Federal water and sewer revolving loan funds, credited for building much of suburban and rural systems, had their share of anti-urban bias. These include the diverging incentives for brownfield redevelopment and incentives which promote infrastructure to greenfields; a contributor to suburban sprawl. In the Pittsburgh region, sewer and water systems in older communities continue to suffer disproportionate investment to that in the suburban areas.
4. Federal designation of air pollution non-attainment regions places metropolitan Pittsburgh at a disadvantage to neighboring upwind states which contribute to local attainment problems.

Opportunities for the Federal Government to Partner in Enhancing Regional Cooperation

As top priority, the group identified the need for developing a common vision and comprehensive public/private process for the region to achieve goals around landuse, economy, transportation, and environment issues; all of which are interrelated. Such a process is needed to overcome political, social, and economic value differences. Planning processes should involve the public, providing opportunity for input and creating a more informed citizenry. In particular, mayors and outlying suburban representatives are integral to the discussion. As a first step, it was suggested Pittsburgh continue benchmarking work similar to that conducted by the Pittsburgh Post-Gazette. Such an expanded effort would consider sustainable development in comparing model metropolitan areas.

Race and Income

• Align surplus labor force with access to jobs and jobs to the people
• Address disparity in location, employment, education, skills gap, information, and opportunity
• Include poverty issue in deliberations of metropolitan planning organizations (MPOs)
• Support entrepreneurship existing in disadvantaged communities through education, technical assistance, and capital
• Retain young talent

Transportation

• Advance a cooperative regional transportation system and federal incentives to address access equity, environmental impacts, more efficient movement of people through ride sharing, public transportation to where the jobs are, and alternative fuels
• Create new ISTEA set-asides for experimentation
• Cluster living and work to reduce need for transportation

Education

• Enhance cooperation among education entities
• Integrate job training and work experience in schools
• Move people from job training into work more expeditiously
• Achieve better cooperation among the region's nine counties having 120 school districts
• Plan for better resource sharing, more equitable and efficient regional bussing, and continuous promotion of community-based education
• Expand Mon Valley Education model
• Work on job skills gap

Governance and Landuse Planning

• Create a regional planning organism/mechanism to balance development and mitigate greenfield/brownfield competition and sprawl issues.
• Local governments, protective of their preeminent zoning rights, are tiring of developer bullying, law suits, and citizen division over development issues. Timing is good for legal assistance or perhaps shifting zoning jurisdiction to higher regional authority.
• Move from top down to a bottom up planning processes to empower communities and the public to be in better position to benefit from federal assistance -- this may require incentive funding for coordination of many interests
• Reinvest in existing infrastructure
• Development must be controlled to maintain the investment

Clean Air and Water

• Level the playing field by focusing less on geopolitical boundaries and more on airsheds and watersheds in order to deal with environmental problems on a regional level; nationally too
• Foster environmental values and ethos in the community as well as more federal incentives and recognition for green business practices (solid waste management, recycling, composting, industrial ecology, clustering industries) and enlightened land use
• Develop new mechanisms to create assets/incentives for landowners to retain open space and manage for habitat and species (one example is carbon offsets for forest cover)
• Bring more assistance from the federal Office of Surface Mining's (OSM) Abandoned Mine Land (AML) Reclamation Fund for clean up of acid mine drainage -- the foremost water quality problem in the region as identified by EPA (AML funds are tied up in federal deficit calculations) - Develop a scorekeeping system for progress on predetermined pollution reduction, energy efficiency, and resource utilization/reduction goals
• Enhance federal incentives for water and sewer infrastructure and to minimize demands and not over-build
• Create a market-based system for quality and supply of water
• Optimize the national trend in utility deregulation for promoting renewables and low income assistance

Brownfields

• Improve communication with and among state agencies for approvals and integrate the state pilot program with new federal government initiatives
• Change EPA policy to permit funding for nonprofit entities via Section 104 Superfund
• Enhance general protections from liability for cleanup and bring consistency within EPA regional offices on this practice
• Follow brownfield remediation with additional green strategies for transportation and expedite building on the sites after clean up

Next Steps

The Pittsburgh region is well positioned to be a model of renewal and metropolitan cooperation. Great potential is seen for cooperation with the President's Council on Sustainable Development (PCSD) to enhance coordination of federal agencies, programs, and incentives toward sustainable growth in the economic, environmental, and social areas. Pittsburgh already is viewed as being an international pacesetter in economic and environmental revitalization. The opportunity at hand is to continue the shift from a legacy of heavy manufacturing to a renaissance having sustainable development and environmental protections as its centerpiece.

The Pittsburgh region's concentration of environmental expertise (business, academic, and conservation leaders) and international leadership in pollution prevention and environmental solutions was noted as one of the region's prime strengths. It was suggested, this well-organized and effective environmental sector may be best equipped to be the lead conduit for embarking on a sustainable development campaign. The point was made that the interdisciplinary nature of environmental interests, affords opportunity to positively address a wide range of social and economic issues. Additionally, the region's environmental business industry offers potential to contribute to both environmental solutions and regional sustainability as, for example, business opportunities lead to jobs and strengthened economy. An environmental sector partner base may be particularly attractive recognizing climate change and greenhouse gases are a charter interest of the President's Council on Sustainable Development. Pittsburgh's environmental expertise and innovation equips it to be an international contributor to this global issue. The Pittsburgh region's new Environmental City Initiative, which seeks to establish Pittsburgh as the world's center for environmental solutions, represents a first step toward addressing regional sustainability from an environmental platform.

Also noted as a contributor to the region's environmental assets are the three rivers which define and distinguish asset of the landscape. The rivers illustrate classic competing views of natural resources for exploitation versus appreciation for their contribution to quality of life and recreation. However, rivers and tributaries provide a common denominator for regional cooperation. They know no geopolitical boundaries, are a great economic resource, and can be a source of civic pride.

Participants suggested timing is good to address sustainability of water and other natural resources on a watershed basis, coalescing many groups around the unifying interests of water quality, habitat enhancement, green spaces, and their collective contributions to economy and quality of life. The group was informed that presently, an effort by corporate leaders is underway to develop such an initiative.

A majority of the participants indicated they would like to sustain interest generated in the meeting and take the dialogue to the next stage to structuring a process for regional visioning and implementation. Several groups expressed interest in serving as a conduit for the process. Commitment was expressed for giving the federal government all the evidence it needs to keep PCSD moving forward. PCSD should be strongly encouraged to declare Pittsburgh a Sustainable Development Zone empowered in new partnership with itself and the federal government. The group endorsed sending a letter to the White House expressing Pittsburgh's interest and commitment.

To obtain additional copies of this document, contact Nicole Newburn, Project Manager, Environmental City Initiative at (412) 687-0200 x212.