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John Krinsky - Who Cleans the Park?: Public Work and Urban Governance in New York City

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Americas public parks are in a golden age. Hundreds of millions of dollarsboth public and privatefund urban jewels like Manhattans Central Park. Keeping the polish on landmark parks and in neighborhood playgrounds alike means that the trash must be picked up, benches painted, equipment tested, and leaves raked. Bringing this often-invisible work into view, however, raises profound questions for citizens of cities.
In Who Cleans the Park? John Krinsky and Maud Simonet explain that the work of maintaining parks has intersected with broader trends in welfare reform, civic engagement, criminal justice, and the rise of public-private partnerships. Welfare-to-work trainees, volunteers, unionized city workers (sometimes working outside their official job descriptions), staff of nonprofit park conservancies, and people sentenced to community service are just a few of the groups who routinely maintain parks. With public services no longer being provided primarily by public workers, Krinsky and Simonet argue, the nature of public work must be reevaluated. Based on four years of fieldwork in New York City, Who Cleans the Park? looks at the transformation of public parks from the ground up. Beginning with studying changes in the workplace, progressing through the public-private partnerships that help maintain the parks, and culminating in an investigation of a parks contribution to urban real-estate values, the book unearths a new urban order based on nonprofit partnerships and a rhetoric of responsible citizenship, which at the same time promotes unpaid work, reinforces workers domination at the workplace, and increases the value of park-side property. Who Cleans the Park? asks difficult questions about who benefits from public work, ultimately forcing us to think anew about the way we govern ourselves, with implications well beyond the five boroughs.

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Who Cleans the Park Who Cleans the Park Public Work and Urban Governance in - photo 1
Who Cleans the Park?
Who Cleans the Park?
Public Work and Urban Governance in New York City
John Krinsky and Maud Simonet
The University of Chicago Press
CHICAGO & LONDON
The University of Chicago Press, Chicago 60637
The University of Chicago Press, Ltd., London
2017 by The University of Chicago
All rights reserved. No part of this book may be used or reproduced in any manner whatsoever without written permission, except in the case of brief quotations in critical articles and reviews. For more information, contact the University of Chicago Press,
1427 E. 60th St., Chicago, IL 60637.
Published 2017
Printed in the United States of America
26 25 24 23 22 21 20 19 18 17 1 2 3 4 5
ISBN-13: 978-0-226-43544-2 (cloth)
ISBN-13: 978-0-226-43558-9 (paper)
ISBN-13: 978-0-226-43561-9 (e-book)
DOI: 10.7208/chicago/9780226435619.001.0001
Library of Congress Cataloging-in-Publication Data
Names: Krinsky, John, author. | Simonet, Maud, author.
Title: Who cleans the park? : public work and urban governance in New York City / John Krinsky and Maud Simonet.
Description: Chicago ; London : The University of Chicago Press, 2017. | Includes bibliographical references and index.
Identifiers: LCCN 2016034613 | ISBN 9780226435442 (cloth : alk. paper) | ISBN 9780226435589 (pbk. : alk. paper) | ISBN 9780226435619 (e-book)
Subjects: LCSH: ParksNew York (State)New YorkEmployees. | ParksMaintenanceNew York (State)New York.
Classification: LCC SB482.N72 K75 2016 | DDC 333.78/309747dc23 LC record available at https://Iccn.loc.gov/2016034613
Picture 2This paper meets the requirements of ANSI/NISO Z39.481992 (Permanence of Paper).
Contents
APSW
Associate Park Service Worker
APRM
Associate Parks and Recreation Manager
CPW
City Park Worker
CSA
City Seasonal Aide
DPR
Department of Parks and Recreation
JTP
Job Training Participant
PEP
Parks Enforcement Officer
P4P
Partnerships for Parks
PIP
Parks Inspection Program
POP
Parks Opportunity Program
PPS
Principal Park Supervisor
PS1
Park Supervisor, Level 1
PS2
Park Supervisor, Level 2
SYEP
Summer Youth Employment Program
WEP
Work Experience Program
Introduction
Central Park, Manhattan. Summer 2009, 9:45 a.m.: A sixty-something-year-old white woman works on her knees, pulling weeds from the edges of a flagstone pathway. She wears a blue t-shirt with the Central Park Conservancy logo on the front and VOLUNTEER emblazoned on the back. She works next to an African American man in his late thirties or early forties, who also wears a Central Park Conservancy shirt, but with STAFF on the back. They work for the next forty minutes before taking a break, pulling weeds together.
Upper Manhattan. Fall 2008, 8:30 a.m.: Ray, a second-generation Latino man in his mid-thirties, a City Park Worker, takes five Job Training Program participants in a van to clean playgrounds in the district. All the JTPs are African American and Latina women from their 20s to their 50s, and each wears a royal blue t-shirt with the Parks Department logo on the front and STAFF written on the back. George, about fifty, also Latino, is also a City Park Worker and wears a dark blue shirt with a Parks Department patch and his name embroidered on the pocket. He takes five additional Job Training Program workers in another van to make the rounds of other playgrounds. Ray will get out of the van and clean alongside them; George will not. Ray, as a low-level permanent parks employee, should not be driving the van and supervising Job Training Program participants. George, who has an official crew chief designation, can do so, and gets paid several thousand dollars more per year than Ray for his supervisory role.
Who Cleans Your Park?
For New Yorkers, if they bother to think about it, the answer to the question Who cleans your park? would be complex: It might be welfare-to-work trainees, volunteers, unionized city workers (working within or outside their official job descriptions), summer youth workers, workers for private, nonprofit parks conservancies, staff of companies working under contract, and people sentenced to community service. Immediately, this answer suggests something important about a larger set of social relationships, namely, that public services are no longer necessarily provided primarily by public workers. Moreover, in spite of the sound and fury about bloated public-sector unions and their distended pay and benefit packages, a greater amount of public service work is being done either for free or at lower cost due to the reorganization of the public workplace.
This book is an investigation of the conditions under which New York Citys parks are maintained, of changing labor relations and contracts of the parks cleaners, and of their relations at the workplace with each other. It argues that we cannot understand these unless we also try to understand the ways in which the citys institutions have changedwith the Parks Department sometimes at the avant-garde. We must also, in turn, comprehend how and why even more encompassing changes in urban political economy shape these institutional changes. Thus, this book is based on a bet, namely, that by looking at who cleans the parks in New York City, we can enter, even provoke, a larger conversation about life in contemporary cities, and New York City in particular.
The Department of Parks and Recreation is a microcosm of New York Citys governance as a whole and a case in which current trends in urban governing are thrown into bold relief. The study seeks answers to several empirical questions, all of which flow from the confluence of several literatures in the sociology of work and urban political economy, public administration, nonprofit organizations, civic service, and volunteering. What does this reorganization mean and entail for workers who maintain the parks and who have different statuses and different places in the hierarchies of the workplace? And what does it mean for the public who enjoys the park, the city government in charge of delivering this public service, and private actors who involve themselves in the governance of parks and may also derive private benefits from it?
Many of these questions can be asked of other workplaces and other agencies or firms, of course. Most of us by now have seen significant changes occur in our places of work, or are aware of how things used to be. For professors in the United States, for example, the shift to adjunct laboroften graduate students, but also others, who teach courses as do regular faculty but with little job protection and at about a quarter of The parceling off of apparently skilled from less-skilled aspects of a job and the redistribution of this work within workplaces is as common in universities as it is in factories or in public agencies. The trick, however, is that the process is often incomplete, so that, as with adjunct faculty, it is also common that people with very different statuses in the workplace with respect to pay, benefits, legal protections, and so forth are doing the same exact work.
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