Introduction: 50 Years of Back Seat Planning

Cities face chronic struggles with the planning, implementation, and deconstruction/reconstruction of urban freeways.  Most planners have watched the way cities replace freeways amidst local controversy — with new streets, blocks, parks, buildings, and urban places.  This set of three essays recognizes the importance of such political conflict but focuses more on how urban planners, in response to freeways, have evolved their approach to such issues over 50 years in one city – Milwaukee. 

As a planner I have taught and practiced in Milwaukee since 1972.  During this time numerous freeway-related transportation plans came forward, each with different potential impacts on urban conditions, opportunities and outcomes.  These plans were initiated and largely formalized prior to significant urban planning work aimed at surrounding neighborhoods.  Put another way, work as an urban planners was a bit like backseat driving since the transportation plans always came first.  Now, in 2025, new plans have arrived for new major freeway transportation changes that will also involve surrounding urban places.  This three-part look at both past and current plans for freeway system modification could help Milwaukee make wiser decisions that will impact future generations.

The first essay (Part 1) looks at five projects that occurred prior to 2025. (Locust Street, Park West, O’Donnell Park, and two projects for Park East).  The second essay (Part 2) examines a case study, currently underway – the replacement of HWY 175.  In the WIS 175 plan, three alternatives (two with a boulevard) replace the expressway within a complex set of neighborhoods and parks.  The last essay (Part 3) examines a much bigger, strategic, and more transformational opportunity of replacing the 1.5-mile “keystone” section of I-794 as it traverses Milwaukee’s downtown.  Collectively these essays may offer an urban planning analysis that can help improve our urban freeways, one place at a time.