Reconnecting Communities and Neighborhoods

Repairing the harm caused by infrastructure choices of the past

Introduction

"Transportation should never divide communities – its purpose is to connect people to jobs, schools, housing, groceries, family, places of worship, and more. That's what the Reconnecting Communities program and the Neighborhood Access and Equity program are designed to ensure."

Secretary Buttigieg 

Secretary Buttigieg in Buffalo, NY

Last year marked a significant milestone as the  Reconnecting Communities Pilot (RCP)  grant program, the inaugural federal initiative to address the repercussions of previous transportation infrastructure decisions, issued its first awards.   

This year, the Reconnecting Communities Pilot joined forces with the Neighborhood Access and Equity (NAE) program, issuing a joint Notice of Funding Opportunity ( NOFO ). The Reconnecting Communities and Neighborhoods (RCN) Program makes available $3.35 billion in FY 2023 for planning, capital, and regional partnership projects that advance community-centered connection transportation projects, with a focus on projects that benefit disadvantaged communities, by:

  1. Improving access to daily needs such as jobs, education, health care, food, nature, and recreation;  
  2. Fostering equitable development and restoration; and  
  3. Reconnecting communities by removing, retrofitting, or mitigating highways or other transportation facilities that create barriers to community connectivity, including to mobility, access, or economic development.

RCN Funding and Distribution FY23

The Infrastructure Investment and Jobs Act authorized $1 billion for RCP from FY 2022-2026, covering planning and construction projects and technical assistance. Simultaneously, the Inflation Reduction Act allocated $3.16 billion for the NAE from FY 2022-2026, with the flexibility for the Department of Transportation to award the entire sum in a single year if necessary. 

The Department of Transportation's Reconnecting Communities and Neighborhoods Program is more than just a program; it represents a core principle that permeates all the agency’s work. USDOT acknowledges the historical injustices wrought by past transportation policy, and is committed to rectifying them through equitable, sustainable development. 

History

Without our impressive network of roads, we would struggle to get to work, visit friends and family, or receive the goods we need. But, as we go from point A to point B, we don’t often think about what these roads replaced, where they were located, or the economic, environmental, or public health disparities our roads have created. Ironically, in too many communities, federal highway policy throughout much of the 20th century served to restrict mobility, access, and economic freedom for many Americans.    

Federal, state, and local governments thought they were tackling two problems at once. By running new highways through low-income communities, they could cut ribbons on new projects while simultaneously achieving “urban renewal” or “slum clearance” initiatives. Due to prejudicial housing practices of the time, the communities that received the brunt of these decisions were often African American. Thousands of families were forcibly displaced, many without proper compensation, to erect loud, dangerous concrete barriers in the middle of neighborhoods. The result was a loss of cultural heritage, increased poverty, negative health outcomes, and heightened social inequality. The negative consequences of these decisions continue to be felt today, underscoring the importance of prioritizing social equity in future infrastructure planning and development. 

Community-Driven Change

In response to the adverse impacts of federal highway policies on disadvantaged communities, activism emerged to promote equitable development and address environmental concerns.  

Community-based organizing has played a crucial role in addressing the consequences of highway policies. Grassroots organizations, often led by residents directly affected by highway construction, have emerged to challenge discriminatory practices and advocate for community-driven solutions. 

Moreover, the rise of the environmental justice movement shed light on the disproportionate burden of environmental degradation and health risks faced by marginalized communities, including those impacted by highway projects.  

Reconnecting Communities and Neighborhoods is a culmination of decades of hard work. Through collaborative efforts and innovative approaches, projects funded through this program will dismantle physical and social barriers caused by transportation facilities, fostering a more cohesive and equitable landscape. Fundamentally, Reconnecting Communities is a policy, not just a program. It represents the Department of Transportation’s commitment to alleviating these historical injustices and fostering more inclusive and just environments. 


2023 Applications

This year, RCN received 682 applications from all 50 states as well as Puerto Rico and American Samoa. $11.6 billion in funding was requested from applicants. This is more than three times the amount available, and more than four times the amount requested in FY22. 84 percent of applications came from disadvantaged communities.

All Applications RCN23

131 of the projects, across 41 States and DC, will be awarded. 18% of the projects are in rural communities, 97% are in disadvantaged communities, and 3.5% are in tribal communities.

There is a noticeable increase in rural representation compared to last year. This surge in interest from rural communities signifies the program's positive change in areas beyond urban centers, fostering a united effort to reconnect communities and neighborhoods nationwide.

RCN23 Awarded Projects


Spotlight Communities

The true purpose of Reconnecting Communities and Neighborhoods can best be understood through communities. This section will take a deeper look at five projects receiving Reconnecting funding this year: the  Chinatown Stitch in Philadelphia , the  West Broad Street BRT in Columbus , the  Stitch in Atlanta , and two projects to mitigate the effects of I-5 in  Portland .

The Chinatown Stitch - Philadelphia, Pennsylvania

This is the first phase of a project intended to cap multiple blocks of the Vine Street Expressway (I-676) to reconnect Philadelphia’s Chinatown.  

“We need an opportunity and resources to plan for the future of our community as an integral whole—for the land use and development in the best interests of the community and the people of Philadelphia in general. We believe that the highway and urban renewal projects surrounding Chinatown, as presently conceived, would only act as a noose—preventing expansion and growth according to the needs of the Chinese community. We ask that Chinatown be accorded its rightful democratic demand to be able to participate in the decision-making processes which directly affect it.”

-Statement from the Chinatown Community, 1973

According to the Philadelphia Chinatown Development Corporation, Chinatown was born in 1871 when Lee Fong, escaping anti-Chinese sentiment in the West, established his laundry at 913 Race Street.  

For almost 100 years, the area was home to generations of Chinese immigrants. Churches, businesses, and other social and cultural organizations helped preserve culture and cultivate neighborhood character. This map from 1944 shows an interconnected street grid with businesses, homes, and parks.

In 1966, PennDOT released its plan for the Vine Street Expressway, a depressed limited-access highway traveling east-west just north of Philadelphia’s Central Business District and through the established community of Chinatown. Pushback to the proposal led to the formation of the Philadelphia Chinatown Development Corporation in 1969.  

Despite years of organized protest, the Vine Street Expressway was completed in 1991. The Expressway connected existing Interstates in Philadelphia, decimating communities and dividing neighborhoods.

Today, the Vine Street Expressway is visible from the air.

The interstate and its service roads consist of 13 lanes of traffic. Residents must endure noise and air pollution, unsafe pedestrian conditions, and a physical barrier separating two intertwined sections of historic Chinatown.   

Today, Philadelphia’s Chinatown experiences a poverty rate of 32 percent—higher than the citywide rate of 22 percent. This is further compounded by language barriers faced by residents: 61 percent of the 37,000 ethnic Chinese residents of Philadelphia are limited-English proficient, which is higher than all other racial and ethnic groups in the city.   

The Vine Street Expressway is a persistent barrier to connection in Chinatown. The mixed-use commercial district to the south of the facility is more touristed. Chinatown North, however, has a mixture of light industrial and manufacturing uses. It is also home to numerous churches, community organizations, and social service providers. As a result, many residents in need of services must cross the Vine Street Expressway. 

Furthermore, this area of Philadelphia sees a higher prevalence of biking, walking, and transit trips than other portions of the city. These walkers and bikers are forced to interact with Vine Street Expressway.  

These adverse conditions have been documented in numerous reports, including the  2016 Every Place Counts Design Challenge , led by the USDOT, the Delaware Valley Regional Planning Commission’s  Reviving Vine Report , and Philadelphia’s  Phila2035 Comprehensive Plan .

Walking along the expressway

The Chinatown Stitch Phase One

In response to years of advocacy and research, RCN is awarding the City of Philadelphia $158.9 million to construct a cap that covers a portion of the existing below-grade Vine Street Expressway with a public park.

This project will ensure that residents and visitors in Chinatown can safely travel by any mode they choose. It will increase access to greenspace, and reconnect the two sides of Chinatown divided by the Expressway.

Specific project components include:  

  1. Construction of a 1.3-acre, 730-foot-long cap over the Vine Street Expressway between 10th and 12th streets, with green space and other community amenities; 
  2. Implementation of a road diet, extensive streetscaping, and other pedestrian and bike improvements along the local Vine Street lanes;
  3. Connection to the Reading Viaduct Rail Park; 
  4. Construction of a signature pedestrian bridge at 9th Street over the Vine Street Expressway; and 
  5. Rehabilitation of the 10th and 11th Street bridges including rehab of the sidewalks and ADA curb ramps. 

The map to the left shows an artistic 3D rendering interpretation by the Department of Transportation of the proposed cap over the Vine Street Expressway. To walk through different perspectives of the project, click the views below.

This reconnection project can trace its roots back to 2004, when the Philadelphia Chinatown Development Corporation and Asian Americans United launched the Chinatown Neighborhood Plan, which proposed a “Vine Street Cover Park.” The Chinatown Stitch also advances several other community-driven plans such as PCDC’s 2017 Chinatown Neighborhood Plan, and the Delaware Valley Regional Planning Commission (DVRPC)’s Reviving Vine report. Phila2035, the City’s Comprehensive Plan, also recommends restoring connectivity in the community through highway capping. 

Because of Reconnecting Communities and Neighborhoods, these plans are becoming a reality. 

LinkUS West Broad Street Bus Rapid Transit – Columbus, Ohio

The Central Ohio Transit Authority, in collaboration with the City of Columbus, Ohio, will receive $41.9 million for the proposed West Broad Street Bus Rapid Transit (BRT) corridor. This project is an excellent example of how RCN funding can be used to connect communities through new transit options.  

Columbus is the 14th largest city in the United States and the largest in Ohio. The Central Ohio region, surrounding Columbus, is experiencing rapid growth, with three million residents  predicted  by 2050. The West Broad Street BRT, as part of the broader LinkUS mobility and growth initiative, will improve mobility, safety, and equity along an important corridor slated to experience tremendous growth in the coming decades.  

This map of Columbus shows the areas identified by the USDOT as “disadvantaged.” Disadvantaged status considers numerous factors, and more information about this designation can be found  here . In this map, disadvantaged communities are shown in blue, while transportation-disadvantaged communities are shown in purple.

West Broad Street (a portion of US 40), shown here in green, is an east-west facility that separates communities in western Columbus. As shown in this map, the corridor divides many disadvantaged communities.

Broad Street is also one of the most dangerous roadways in Ohio, with the 5th highest number of fatal crashes, the 7th highest number of serious injury crashes, and the highest number of pedestrian-involved crashes in the state. 

According to the Central Ohio Transit Authority, the section of Broad Street within the project area exhibits a higher fatality rate (6x) and a higher serious injury rate (4.5x) than the metropolitan area overall.

With RCN funding, this project will transform 9.3 miles of West Broad Street into a bus rapid transit corridor that reconnects communities along this dangerous facility. The BRT will consist of 5.2 miles of dedicated lanes, and 4.1 miles of mixed traffic, and will include 17 stations. The project will also include a new park and ride/transit center.  

The following map shows the location of stops along the proposed BRT.

The proposed West Broad Street BRT

This BRT project will significantly update the Route 10 line that currently operates along the corridor. While the current route sees nearly 4,000 weekday trips, upgrading to BRT will increase ridership to 7,300 trips per weekday by 2040. The larger, zero-emission vehicles will also come more frequently, arriving every 10 to 30 minutes between 5:00AM and 12:00AM, seven days a week. Current fares for Route 10 will not increase.

Importantly, adding BRT service to this corridor will enhance safety. Fewer cars will be on the road, fewer pedestrians will be in harm's way, and street enhancements will ensure more protection for cyclists. The BRT will enhance accessibility for persons with disabilities who may not be able to drive or walk, and enhanced reliability of the transportation network will mean that more people take the bus.

This map shows a rendering of the proposed West Broad Street BRT. Click below to see different views of the project.

Construction is expected to be completed in 2027, and BRT service will begin shortly thereafter.  

The Stitch Phase One – Atlanta, Georgia

The City of Atlanta will receive just over $157.6 million to complete final engineering and construction of Phase One of the Stitch, a project that includes the capping of Interstates 75/85 with a 4-acre park, local street improvements, and rehabilitation of the MARTA civic center station. These improvements will reconnect the street grid of Downtown Atlanta, which was disrupted by the construction of the interstates in the 1960s.  

The Downtown Connector and its Impacts

In 1964, 7.4 miles of Interstates 75/85, known locally as the Downtown Connector, opened after 16 years of construction. Its intent was to bring commuters from the suburbs into Atlanta’s Central Business District (CBD).  

Swipe between the images to the right to see how this portion of Atlanta looked before and after the construction of the Connector. The images, from 1949 and 2022, show a street grid disrupted and businesses and homes destroyed.

City of Atlanta (2023), Reconnecting Communities and Neighborhoods Grant Application

This map shows how the Downtown Connector, shown here in blue, wove around the CBD and through economically disadvantaged neighborhoods. These neighborhoods, having lower property values and lower rates of homeownership, were easier targets for the Connector, as it was easier to secure the property required for construction.

There were also other, more sinister, motivations. Officials saw the construction of the connector as an opportunity to clear out neighborhoods deemed “blighted.” These neighborhoods, populated predominantly by Black Atlantans, were decimated by this decision.

A tour of Buttermilk Bottom before the Downtown Connector

The construction of the Connector displaced an estimated 24,000 people and cut off the historically Black neighborhoods of Buttermilk Bottom and Butler Street from employment and services in Downtown Atlanta. Furthermore, urban renewal programs in the area surrounding the Connector displaced an additional 17,000 individuals. In the 1980s, the Connector was widened, further worsening the divide through Downtown.  

The devaluation of land in Downtown Atlanta was spurred by suburbanization and “White Flight,” both encouraged by the construction of the Connector. Today, land in Downtown Atlanta is far less valuable than in other districts, despite having excellent access to employment, services, and affordable housing. Other disparities persist, clearly demarcated by the Connector.

Today, the Downtown Connector divides Atlanta in many ways. This map shows how it demarcates the predominantly Black Downtown from the predominantly white Midtown.

Further division is highlighted when one examines median household income in Atlanta. Areas to the west of the connector exhibit median incomes lower than the national average, while areas to the east have higher median incomes.  

This effect is also seen when examining population per square mile (4,300 per square mile to the west of the corridor vs. 15,000 per square mile to the east), tax digest growth (8.6x higher to the east), and job growth in the last decade (11% loss to the west vs. 62% increase to the east).  

The cap over Interstates 75/85, the location of which is shown here, is an important step in connecting these separated communities.

Importantly, the proposed streetscape improvements in this project, also highlighted in red, will extend connection beyond just the immediate location of the cap. The project includes protected bike facilities, multimodal safety and complete streets projects, and new street connections.  

These improvements, when taken together, can help right the wrongs of transportation planning of the past. Reconnecting Atlanta over the Downtown Connector will benefit surrounding neighborhoods, the city of Atlanta, and the region. 

This map shows the location of Phase 1 components of the Stitch, which include an interstate cap, almost 8 miles of multimodal improvements to local roads, and the rehabilitation of the MARTA Civic Center Station (which is independently funded, and not part of the Reconnecting Communities and Neighborhoods award).  

Click on different views to see different components of the project.

I-5 Mitigation Projects – Portland, Oregon

This year, two projects addressing the negative impacts of I-5 in Portland, Oregon are receiving RCN funding. The I-5 Rose Quarter Improvement Project will construct a cap over a portion of Interstate 5. The Broadway Main Street & Supporting Connections Project will construct multimodal safety and streetscape improvements to N/NE Broadway and N/NE Weilder Streets, two arterials that cross I-5. These two projects support the reconnection of North/Northeast Portland to Downtown.  

Before these communities were cut off from Downtown by highways, they were redlined.

Redlining, the federal government’s practice of determining home loan-worthiness of neighborhoods, was implemented in the 1930s. The Home Owners Loan Corporation (HOLC) outlined neighborhoods’ desirability by assigning colors based on riskiness of a home loan. Green areas were the least risky (or “Best”), while red areas were deemed the riskiest (or “Hazardous”).

These determinations were made based on myriad factors, including the “infiltration of subversive races,” percent Black population, and estimated annual family income. The outcome was that low income and Black populations were excluded from homeownership and resulting generational wealth. This also made these communities more vulnerable to displacement. Many did not own property, and the property upon which their communities were built was less valuable.

As a result, these communities were often targeted for highway construction, as authorities could seize or purchase property more easily.

Lower Albina Before the Interstate

The historic Lower Albina neighborhood was, due to redlining, racial steering, and other discriminatory housing practices, a primarily Black neighborhood. It was one of the few places Black Portlanders could live and own property. Despite persistent discrimination and government disinvestment, the community flourished.

Homes in Lower Albina before the construction of I-5

In the 1960s, Interstate 5 was routed through Lower Albina, displacing hundreds of residents and dividing the community. This map demonstrates how highway construction in Portland mostly targeted “Declining” or “Hazardous” neighborhoods, as defined by HOLC.

The neighborhood surrounding the interstate changed from a tight street grid and community connection to a massive facility surrounded by an incongruent collection of streets, hindering movement. Those who remained after the construction found themselves in a community fractured.

Construction of I-5 through Lower Albina

Today, Albina is home to civic and entertainment venues, and is a place where people from across the region gather. However, it is also an area home to inequitable development, a lack of affordable housing, disruptive parking lots, and disjointed streets.

This year, two overlapping projects are receiving RCN funding to address these historic wrongs and reconnect this portion of Lower Albina. The I-5 Rose Quarter Improvement Project, receiving $450 million, will design a highway cover over I-5. The Broadway Main Street & Supporting Connections Project will receive $38.4 million to construct multimodal and streetscape improvements on two large arterials that run across I-5.

These projects intersect with a USDOT-defined disadvantaged community, highlighted in orange on this map. This disadvantaged community overlaps almost completely with the community redlined in the 1930s, demonstrating how government decisions made almost one hundred years ago continue to negatively impact communities today.

Reconnecting Communities and Neighborhoods is about rectifying these decisions, and these projects in Portland will help us achieve this goal.

This map shows an artistic 3D rendering interpretation by the Department of Transportation of the two projects. Click on the views below to see different components of the projects.


2022 Applications

FY22 Reconnecting Communities announcement site

In February 2022, Secretary Buttigieg announced a historic $185 million in grant awards for 45 projects through the Reconnecting Communities Pilot Program. Projects included capping interstates with parks, transforming inhospitable areas into tree-lined streets, and creating new crossings.

A list of the FY22 awardees can be found  here .


Moving Forward

The Department of Transportation (USDOT) has a steadfast commitment to addressing the enduring impacts of transportation infrastructure decisions. A progressive financial commitment to the Reconnecting Communities Pilot program underscores this dedication, with $200 million allocated for 2024, $202 million for 2025, and $205 million for 2026.

This substantial funding reflects the government's recognition of RCP’s pivotal role in fostering equitable development and community revitalization.

Beyond financial support, the USDOT elevates Reconnecting Communities as a principle rather than just a program. The sustained funding and institutional commitment underscore the USDOT's vision of this initiative as a comprehensive, long-term strategy rather than a finite project, promising continued efforts to reconnect communities and neighborhoods well into the future.  

To stay up to date with Reconnecting Communities, visit our  website .


Other Programs

Safe Streets and Roads for All 

The  Safe Streets and Roads for All  (SS4A) program, established under the  Infrastructure Investment and Jobs Act , allocates $5 billion over five years (2022-2026) to fund regional, local, and Tribal initiatives aimed at preventing roadway deaths and injuries. With over $3 billion still available, the program supports the U.S. Department of Transportation's goal of zero roadway deaths using a Safe System Approach. As of December 2023, SS4A has awarded $1.7 billion to over 1,000 communities in all 50 states. The program offers Planning and Demonstration Grants for safety action plans and Implementation Grants for projects. More information about award winners can be found  here .  

Secretary Buttigieg learning about Alaska's unique transportation needs

Formula Grant Funding Programs  

The majority of federal transportation funding is channeled through formula grants, wherein allocated funds are distributed to recipients based on formulas established by Congress. The Department of Transportation (DOT) disperses these funds to States, federally recognized Tribal recipients, and transit agencies. Subsequently, there is flexibility for these recipients to further allocate the funds to localities, allowing States, Tribes, or agencies to exercise discretion in the distribution process.   Key formula funding programs include the Federal-Aid Highway Program, distributing funds to state DOTs through a predetermined formula, and the  Urbanized Area Formula Grants , which support transit capital and operating assistance. There are also  Formula Grants for Rural Areas , which offer capital, planning, and operating assistance to States and federally recognized Tribes, aiding public transportation in rural areas. 

More information about other grants can be found at the  DOT Discretionary Grants Dashboard 

 

Credits

 This application was created with ArcGIS StoryMaps on behalf of the U.S. Department of Transportation, Office of Secretary for Transportation Policy, in consultation with the ESRI StoryMaps team. For more information or further questions on the Reconnecting Communities and Neighborhoods program, please email ReconnectingCommunites@dot.gov.

RCN Program Manager

Andrew Emanuele

Author

Isabella Creatura

3D Maps and Renderings

Sharita Underwood

Maps and Data

Alessandra Vennema, Josiah Blackwell-Lipkind

Other Contributors

Amy Nelson, Iftach Pearlman, Carolyn Mulvihill, Erwin Figueroa

The Chinatown Stitch Phase One

City of Philadelphia 2023 Reconnecting Communities and Neighborhoods grant application

LinkUS West Broad Street BRT Corridor

City of Columbus 2023 Reconnecting Communities and Neighborhoods grant application

The Atlanta Stitch

City of Atlanta 2023 Reconnecting Communities and Neighborhoods grant application

I-5 Rose Quarter Improvement Project

Oregon Department of Transportation 2023 Reconnecting Communities and Neighborhoods grant application

Broadway Main Street & Supporting Neighborhood Connections

City of Portland 2023 Reconnecting Communities and Neighborhoods grant application

Images

Getty Images, US Department of Transportation

Secretary Buttigieg in Buffalo, NY

RCN Funding and Distribution FY23

The proposed West Broad Street BRT

Secretary Buttigieg learning about Alaska's unique transportation needs

Walking along the expressway

A tour of Buttermilk Bottom before the Downtown Connector

Homes in Lower Albina before the construction of I-5

Construction of I-5 through Lower Albina