What Makes Public Space Public
What Makes Public Space Public
What Makes Public Space Public
Matt Patterson
University of Toronto
Presented at the Michigan Social Theory Conference
March 2010
University of Michigan, Ann Arbor, MI
The question I will be addressing in the presentation is what makes public space
public? Focusing on how city inhabitants themselves make this distinction (rather than
representing the collective interest and/or identity of a local public. I will then discusses
ways in which the material features of a space impact whether or not it will gain
legitimacy, and conclude with a discussion of how established legitimacy impacts the
social actions of different groups within the urban environment. My presentation will
draw on examples from a wide variety of urban sociological studies, as well as from my
dissertation work in the area of culture-led urbanization. This subfield of urban studies
investigates the causes and consequences of cultural strategies for stimulating post-
industrial urban economies. Often these strategies include building places within cities
that facilitate the consumption of unique cultural amenities aimed at attracting outside
investment into the local economy (Miles and Paddison 2005). Some of the best known
designed Guggenheim Museum in Bilbao, and the work of Richard Florida (2002) in
promoting the “creative city”. My own research investigates two iconic architectural
Michigan Social Theory Conference 2010 Matt Patterson
Libeskind, and the expansion of the Art Gallery of Ontario by Frank Gehry.
Within the existing literature, scholars have often categorized and evaluated
locally-focused (Sklair 2006, 2005; McNeill 2005), designed for the production of
exchange-value rather than use-value (Logan and Molotch 1987; Harvey 1989), serving
exclusive private use rather than inclusive public use (Lees 2003; Peck 2005; Zukin 1995,
1991), alienating to local residents rather than embodying a sense of local ownership (Ho
elites rather than consensus within civil society (Kaika and Thielen 2006).
What these dichotomies are often implicitly referring to is the broader question of
question considering that these developments often rely on public concessions (Hannigan
1998: 137-143). The literature is generally sceptical on this question, since public space
is conventionally defined as being inclusive and administered by and for the local public.
developments, we must have a clear idea of what makes public space ‘public’ in the first
While they are important, political-economic factors are not on their own sufficient for
determining what makes public space public. To argue this point, I’ll consider two main
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a “public good”. Kingwell (2008) explains that “in classical economics, a good is public
when access to it is not gated by ownership, so that its benefits—what make it a good—
are available to everyone, and one person’s use of the good does not diminish another’s
ability to use it”. However, while this might be the ideal of public space, it has very little
resonance with the history of cities. As Listerborn (2005) argues, we cannot identify any
historical urban spaces that have not been exclusionary to some groups. While in
principle one person’s use of public space should not “diminish another’s ability to use
it”, in practice the use of space is often a zero-sum game (Kingwell 2008). In other
words, space that is occupied by one group or used for one purpose may disqualify its use
by another group or for another purpose. Thus, universal access is not sufficient criteria
ownership and economic function. In this approach, public space is seen as being owned
and administered by a publicly accountable agency, and providing space for free public
what Zukin (1991) refers to as “liminal space”. She describes liminal space as zones that
stand “‘betwixt and between’ major social institutions”, such as between private
commerce and public service provision (p.28). With the rise of shopping malls, gated-
in between traditional notions of public and private (Sandercock and Dovey 2002; Voyce
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2006; Harvey 1989). Indeed, it is doubtful that the institutional division between the
private and public sectors has ever been sharp enough in modern society to serve as a
sufficient explanation for the difference between public and private space.
for understanding space, they are insufficient on their own for fully explaining what
makes public space public. This is because there is nothing intrinsic in the materiality of
space that determines whether or not it is public. Rather, I argue that public spaces
become public because of the meanings that have become attached to these spaces. It is
the inattention to meaning that has limited the ability of urban political-economy to
explain public space. These limitations are evident in the frequency by which urban
political-economy has been stretched beyond its explanatory range in order to make
statements about the meaning of space. For instance, Kaika and Thielen (2006) interpret
capitalist “temptress”. Ho (2006) argues that state control over buildings weakens
architecture as not being “lived space” or “humanized”. These claims may be correct, but
they cannot be convincing until they specify the mechanism whereby the political-
economic characteristics of these spaces lead people to impose certain meanings upon
them. In order to establish this missing link, we must take the production of meaning
economic conditions.
high art, sociology has a long history of attempting to explain how societies symbolically
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divide up the world around them and award special status and authority to certain people
or things. I argue that we can draw on this rich theoretical tradition in order to better
conceptualize public space. In particular, I would assert that public space is public
because it has gained meaningful legitimacy. Public space is public because we, as a
public, have accepted that the space legitimately represents our collective interests and/or
identity.
and it is probably best known from Max Weber’s (1968) discussion of “legitimate
domination”. For Weber, legitimation was closely tied with the idea of political
“interest”. Legitimation requires convincing people that their interests are being served
force that reinforces domination and inequality (Della Fave 1986; Zelditch 2001; Tarifa
1997; Althusser 2001; and the Frankfurt School), but it has also been seen as a force for
change through the legitimation of social movements and new political regimes (Kluegel,
Mason, and Wegener 1999; Ferree and Merrill 2000). It should also be noted that the
Recently legitimation has also been extended beyond the issue of political interest
for instance, have used legitimation to explain how some cultural products become
classified as “art” and are subsequently awarded the cultural status and institutional
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Michigan Social Theory Conference 2010 Matt Patterson
rewards associated with this classification (Baumann 2007a, 2007b; Peterson 2003;
Bourdieu 1983; Becker 1982). Several scholars have also extended this form of analysis
to the study of architecture (Guillén 2006; Molnár 2005; Gartman 2000; Larson 1993),
and in doing so have provided an important precedent for the application of legitimacy to
space – although these studies have focused more on particular architectural styles rather
we must acknowledge both the political interest and cultural status applications of the
concept. Urban development is both a political act that involves one party realizing their
will (even against the opposition of others), and it is a cultural act in that it produces an
object that can be evaluated according to existing cultural values and aesthetic
the general interest and/or collective identity of the local public, rather than representing
the narrow private interests of those who produced the development. Following from the
two approaches to legitimation discussed above, we can specify two dimensions of public
public service as its primary purpose. In this case the function of the building is the
focus of legitimation. Many government buildings would fall into this category.
National museums and galleries, for instance, house and display valued cultural
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specific form of the building is considered valuable and worthy of high status. There
is special monumental status awarded to structures that we feel express our collective
identity in some way. Heritage protection, for instance, is awarded to buildings that
a property that is immaterial and socially constructed. Legitimacy refers to the subjective
meanings that become attached to a space by social actors or groups. These meanings
can range anywhere from full legitimacy (when the actors or groups fully accept that the
space represents public interest and/or collective identity), to full delegitimacy (where the
space is rejected as being a threat to public interest and/or collective identity). The
acceptance of legitimacy can also range in scope. Some public spaces are seen as
legitimate through a broad consensus that spans many social boundaries, while other
public spaces are highly contested and are interpreted quite differently according to
different populations.
central focus of empirical analysis. Social actors and groups develop their understanding
of which spaces represent public interest and/or collective identity through their ongoing
social life within the urban environment. Often the legitimation of a particular space will
not become visible until the space is threatened by another group – prompting some form
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words, we can ask how legitimation emerges out of social interaction within the urban
environment, and we can also ask how established legitimation influences how people act
toward each other and toward the urban environment. In the reminder of this paper I will
be examining these two questions by drawing on existing urban studies research and
presenting initial hypotheses that connect public legitimation back to the political-
economy of space.
spaces as representing the public interest and collective identity. While I have
emphasized the role of meaning as being the defining feature of public space, we cannot
explain the construction of meaning without relating it back to its material context.
Below I provide a brief explanations and preliminary hypotheses for how different
It has been mentioned earlier that public space is often conceptualized as a public
good with universal access. While this ideal may be unachievable in real life, the issue of
that people will develop a stronger meaningful attachment to space that is more
accessible to them. Thus, the more universally accessible a space, the more widespread
legitimacy it will achieve. This connection works through practical legitimacy since
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Michigan Social Theory Conference 2010 Matt Patterson
inaccessible spaces will probably not be seen as serving one’s interests. It also works
through symbolic legitimacy, since one may not identify with a space that is inaccessible
privately-owned shopping mall. While we may agree that the art gallery is more public
than the shopping mall, it may be the mall that is more inclusive. In addition to charging
admission fees, the art gallery may only appeal to a limited group of people who possess
the right cultural capital (Bourdieu 1983). By comparison, shopping malls are relatively
easy to enter and navigate. Therefore, in this case, the most accessible space may not be
economic approaches to public space. It should be noted, however, that ownership is not
necessarily the same thing as administration. Owners do not have total control over the
rules that govern their property. Administration may be diffused between multiple
sources of authority, including the State which has the power to impose rules on space
imposed bylaws which may, for instance, dictate the activities that can occur on the
property, or restrict the physical appearance of the property. As well, with the rise of
liminality (Zukin 1991) and the public-private partnership (Harvey 1989), the
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public legitimation is through the rules and regulations over space that owners or
administrators can impose. This is because the activities that are allowed to occur within
a space are important to the way we understand it. Some scholars have gone so far as to
suggest that established codes of “civility” or conduct are essential for spaces to be
considered public, as long as they are enforced equally (Ghorra-Gobin 2009). Indeed, if
spaces are to represent public interest and/or collective identity, it may be necessary to
impose rules on those spaces in order ensure that they fulfill this function. Commercial
activities and advertising, for instance, are banned in many public spaces because they
are seen to threaten public legitimacy. Lloyd (2005) provides a good example of how
local resistance to the use of the “Urbis Orbis” building in Wicker Park for the filming of
MTV’s Real World: Chicago. By staging a national television show in a building that
some saw as a local “institution” (Lloyd 2004: 354), MTV conducted commercial activity
that seemed to violate the symbolic association many locals made between the Urbis
Orbis building and the collective identity of Wicker Park as a distinct bohemian
neighbourhood. Of course, because they lacked any administrative power, the local
The types of regulations that are enforced within a space also relate closely to the
issue of inclusion and exclusion. This is because regulations often work to exclude those
groups that are either unable or unwilling to follow the rules. There has been a great deal
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of work examining this form of exclusion. Street vending (Anjaria 2009, Duneier 1999,
Orum et al. 2009), skateboarding (Lees 2003), political debate (Orum et al. 2009), and
public sleeping (Duneier 1999) are just a few examples of activities that have been
populations (the homeless, the poor, youth, etc.). Furthermore, many scholars have
argued that the rules governing public space have become increasingly restrictive and
more intensively enforced within the past few decades. It has been suggested that as
cities have adopted neo-liberal governing policies, public spaces have become subject to
increased surveillance and tighter enforcement in order to protect their utility for
capitalist activities (Peck and Adam 2002). The role of private security forces assigned
enforcement within public spaces (Zukin 1995; Shearing and Stenning 1983). The
conventional neo-liberal argument suggests that increased regulation makes public space
hypothesize that increased regulation may decrease public legitimacy among those
groups who get excluded, and increase legitimacy among those groups who benefit from
regulation1.
As I have explained above, legitimation relates both to the function and form or a
particular space. We can examine the impact of the physical design of a space on
1
It should be noted that sometimes a lack of regulation can serve to exclude particular groups. Women, for
instance, have traditionally been excluded from public spaces that are seen as being too dangerous to enter
(Listerborn 2005).
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legitimation through both of these paths. First consider function. In his famous article
“Do Artefacts Have Politics?” Winner (1980) argued that Robert Moses purposely
designed the bridges on his Long Island Parkway to be too low for busses to pass under.
Winner reasoned that Moses made this design decision in order prevent Jones Beach in
Long Island from being accessible to New York City’s low-income and Black
populations, who relied on buses for transportation. Therefore, the argument goes, the
Long Island Parkway continues to function according to Moses’ discriminatory and racist
Although the accuracy of Winner’s historical facts have been called into question
(Joerges 1999), the basic premise of his argument – that urban design can serve political
ends – should be taken seriously. As with the story of the Long Island Expressways, the
design of a space has a real impact on accessibility. In a more recent example, Duneier
(1999) documents how Pennsylvania Station was redesigned so that it would no longer
function as a hospitable space to New York City’s homeless population. These redesigns
included eliminating the “nooks and corners” that the homeless could use to sleep or
panhandle out of sight from police and security cameras (p. 131). What we see from both
of these examples is that spaces can be designed in order to prevent certain activities and
thereby discourage certain populations from entering. Thus, design relates back to my
earlier hypothesis that restricted access to space will also restrict public legitimation (at
design also has a symbolic or aesthetic quality (form). The aesthetics of a space can
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admiration, etc. Furthermore, aesthetic tastes often reflect social differences and serve as
markers for social boundaries (Bourdieu 1983; Lamont and Molnár 2002). Therefore
spaces can be designed to be more aesthetically appealing to some groups rather than
others. Zukin (2008) provides a relevant example by demonstrating how Fulton Street in
New York City – a popular shopping destination for the local African American
population – has been criticized by local Whites who see it as rundown and aesthetically
architecture of housing projects in Hungary. These cases suggest that the design of space
can often be incorporated into “boundary” work that enables groups to symbolically
identify areas of the city that belong to them, and then either colonize or isolate the areas
they associate with outsiders (Lamont and Molnár 2002). I hypothesize is that a space
will gain more legitimacy when its design resonates with the aesthetic tastes of a
particular group – especially when the form is symbolically associated with the collective
4. Age
The relationship between the public legitimacy of a building and its age has been
an important issue arising out of my own research on the Royal Ontario Museum and the
Art Gallery of Ontario, because both projects involve adding 21st century expansions to
early 20th century historic buildings. However, this relationship has been largely
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latter hypothesis. The rise of new aesthetic trends and art forms has been shown to be
2003). In the case of buildings, it may be naïve to assume that old buildings are
more likely is that the artists and intellectuals who have historically appropriated old
buildings in neighbourhoods such as Soho (Zukin 1982) and Wicker Park (Lloyd 2005)
have (intentionally or not) used their position as tastemakers to construct these buildings
as aesthetically valuable. The role of Jane Jacobs and her book The Life and Death of
Great American Cities (1961) in legitimating the historic districts of New York City
Also related to age is the difference between legitimating existing urban spaces,
and proposed urban developments. Both existing and proposed spaces can gain
legitimacy. For existing spaces, legitimacy can be rooted in the “lived” experience of
these spaces (Lefebvre 1991): how they have been used, who has access to them, etc.
of the space. Building new spaces in crowded cities often requires developers to
convince outside groups that their projects will serve the public interest – or at least not
threaten the public interest. Proposed developments that gain legitimacy may, for
instance, be eligible for public subsidies. Those developments that do not gain
legitimacy may be subject to political opposition. I would argue that in the absence of
concrete lived experiences, legitimacy is built on trust. Outside parties must be willing to
trust that major changes to the local built environment will be positive. There are many
strategies that developers use to establish trust including hiring well-known celebrity
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consultation sessions.
While identifying the causes of legitimation is important, the concept would have
little value if legitimation had no consequences for social life. Thus, my final goal of this
paper is to briefly outline the consequences of social legitimacy. I begin with the basic
assertion that people will act differently toward those spaces that they accept as
representing public interest and/or collective identity than they will toward other spaces.
They will also act differently toward spaces they see as a threat to public interest and
delegitimacy helps us to explain urban social life and the production or the urban
landscape.
according to a variety of social factors including class position (Peterson 2003; Gartman
2000; Bourdieu 1983), pre-existing values (Zelditch 2001), and institutional settings
(Bauman 2007a; DiMaggio 1982; Becker 1982). We should also presume that responses
to legitimacy will also differ according to social structural factors. More specifically, the
social actions inspired by the acceptance or rejection of legitimacy are influenced by the
chart offers some preliminary hypotheses about how different groups and institutions
within the urban political realm respond to spaces that they see as publicly legitimate or
publicly delegitimate.
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Table #1: How different groups and institutions act in response to the legitimation or delegitimation of a
space.
variety of social structural factors including institutional and material resources and rules
(Giddens 1984), as well as cultural schema or tools (Swidler 1986; Sewell 1992). In my
study of the Royal Ontario Museum and the Art Gallery of Ontario, the middle class
residential groups who live nearby had the cultural tools available to understand and use
zoning laws and legal procedures in order to press their interests. These options may not
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be available to working class residents who do not possess the same cultural tools.
Furthermore, upper-class residents may have even more options made available through
had considerable influence over the Royal Ontario Museum and Art Gallery of Ontario
because their multi-million dollar donations were needed to fund the expansions in the
first place. Thus, while understandings of legitimation motivate social action within the
urban political sphere, this social action manifests itself within social structures that make
Conclusion
As can be seen from the various examples I have referenced in this paper, the
phenomenon I refer to as “public legitimation” has been observed several times in the
existing urban studies literature. However, these observations have not yet been
formulated into a cohesive theory that relates the establishment public legitimacy to the
legitimation and its constituent hypotheses will form the basis for a new approach to
studying public space and urban development in general – one that takes into account
how the city’s inhabitants socially construct the built environment around them and come
to see certain spaces are legitimately representing them as a public both practically and
symbolically.
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