Freeway removal is a public policy of urban planning to demolish freeways and create mixed-use urban areas, parks, residential, commercial, or other land uses. Such highway removal is often part of a policy to promote smart growth, transit-oriented development, and pedestrian- and bicycle-friendly cities. In addition to outright removals, some freeways are reconstituted as boulevards, rebuilt below grade via tunnelling or caps and stitches, or are relocated through less densely-developed areas.
Background
Freeway removals most often occur in cities where highways were built through dense neighborhoods - a practice common in the 20th century, particularly in U.S. cities following the 1956 enactment of the National Interstate and Defense Highways Act. These highways often created blight that minimized use of land space and reduced the quality of life for city residents. In the United States, the routes for interstate highways were often built through minority neighborhoods in urban centers, which often led to increasing racial segregation by creating physical barriers between neighborhoods.
Beginning in the late 20th century, as many highways reached the end of their lifespans, urban planners and activists began proposing demolishing or transforming highways in lieu of repairing them in an effort to alleviate the symptoms of displacement and lack of neighborhood connectivity. In many cases, there are political battles between citizens' groups who are proponents of freeway removal proposals and suburban drivers that want to keep the freeways.
In early 2021, U.S. Senator Chuck Schumer proposed legislation that would offer cities federal money to remove urban highways. The pilot program includes $10 billion to cover the inspection of existing infrastructure and possibly cover costs involved in removal and redevelopment planning.
Techniques Freeway-to-boulevard conversion
A freeway-to-boulevard conversion involves demolishing a controlled-access highway with an at-grade boulevard. Land formerly devoted to highway lanes and exit ramps is often repurposed into wide sidewalks, bike lanes, green space, or sold for urban development.
One of the earliest examples of a freeway-to-boulevard conversion was the transformation of the West Side Elevated Highway into an urban boulevard in New York City. In 1971, the Urban Development Corporation proposed replacing the aging elevated highway with a new interstate highway in Manhattan. After fierce local opposition, New York City officially gave up on the proposed interstate project in 1985, and allocated 60 percent of its interstate highway funds to mass transit and setting aside $811 million for the "West Side Highway Replacement Project". In 1987, the commission unanimously agreed to build the highway as a six-lane urban boulevard with a parkway-style median and decorative lightposts, along with a $100 million park on the highway's western periphery.
Another early freeway-to-boulevard conversion involved San Francisco's double-decked Embarcadero Freeway and Central Freeway, which were damaged during the Loma Prieta earthquake in 1989. The Central Freeway was replaced by the multi-modal, landscaped surface-level Octavia Boulevard, and the Embarcadero Freeway was replaced by a boulevard with streetcar and light rail operations in the median, flanked by the restored Beaux-Arts style Ferry Building.
Other early freeway removal projects occurred in Portland, Oregon, and Milwaukee, Wisconsin, USA, that ultimately reduced traffic, spurred economic development, and allowed for the creation of new neighborhoods and commercial districts. The Harbor Drive Freeway in Portland was replaced by Tom McCall Waterfront Park, while the Park East Freeway in Milwaukee recovered prime land for development in the urban core. In Toronto, Ontario, Canada, the easternmost portion of the Gardiner Expressway, which was located between Don Road and Leslie Street, was demolished in 2000 and replaced with an at-grade urban boulevard with traffic lights, railroad crossings and a bike trail.
Underground relocation
In situations where removing an urban freeway is believed to exacerbate traffic problems within a city, urban planners may resort to relocating the freeway underground to reclaim the space previously occupied by the surface highway.
In Boston, Massachusetts, USA, the Central Artery (Interstate 93) ran through the center of the city on an elevated green viaduct from its opening in the 1950s until 2005. The freeway divided historic neighborhoods and business districts in downtown Boston, and it was referred to as Boston's "other Green Monster." During the 1990s and early 2000s, a $15 billion project known as the Big Dig relocated the Central Artery into tunnels underneath downtown Boston; the old viaduct was demolished, and its path was reclaimed for a surface boulevard and park space.
The Alaskan Way Viaduct in Seattle, Washington, USA, was replaced with the tunnel that carries the SR-99 freeway underneath the city.
Notable freeway removals
Completed Highway Location Type Year complete Description Alaskan Way Viaduct Seattle, United States Tunnel conversion 2019 Replaced with State Route 99 Tunnel Autopista de Circunvalación M-30 Madrid, Spain Tunnel conversion 2008 Partial removal: Southern segment relocated underground as part of the Madrid Río project Bonaventure Expressway Montreal, Canada Boulevard conversion 2016 Elevated highway demolished and replaced with an urban boulevard and parkland https://montrealgazette.com/news/local-news/bonaventure-expressway-to-be-reconfigured-into-urban-boulevard Ville-Marie Expressway and Décarie Road Montreal, Canada 2018 Partial demolition only, some ramps reduced along the Turcot Interchange Catharijnebaan Utrecht, Netherlands Removal 2010 Highway demolished and replaced with canal and green space Central Artery Boston, United States Tunnel conversion 2003 Relocated underground as part of the Big Dig project Central Freeway and Embarcadero Freeway San Francisco, United States Boulevard conversion 1993 Replaced by at-grade boulevards following 1989 Loma Prieta earthquake Cheonggye Elevated Highway Seoul, South Korea Removal 2003 Replaced with artificial stream and green space Cogswell Interchange (Harbour Drive) Halifax, Canada Boulevard conversion 2021 Freeway-to-boulevard conversion Gardiner Expressway Toronto, Canada 2001 Partial demolition; exit ramps replaced with parkland Harbor Drive Portland, United States Removal 1974 Demolished and replaced with Tom McCall Waterfront Park Innerbelt Akron, United States 2017 Highway closed and redeveloped into parkland and urban development Inner Loop Rochester, United States 2014 Replaced with surface streets and urban development Interstate 30 Fort Worth, United States 2001 Highway rerouted farther from downtown; elevated highway demolished and replaced with parkland and urban development Interstate 70 Denver, United States Tunnel conversion 2022 CDOT replaced a viaduct with a below-grade highway with a park being built over it Interstate 170 Baltimore, United States 2010 Western stub removed for expansion of the West Baltimore station's parking lot and possible Red Line project Interstate 195 Providence, United States 2011 Highway relocated as part of the Iway project; former highway right-of-way repurposed into urban development NY 895 (Sheridan Expressway) New York City, United States 2017 Freeway-to-boulevard conversion Oak Street Connector New Haven, United States 2013 Highway demolished and replaced with surface streets and urban development; portion of original highway repurposed as entrance to underground parking garage Oklahoma City Crosstown Expressway Oklahoma City, United States 2002 Partial highway-to-boulevard conversion Park East Freeway Milwaukee, United States 2002 Demolished and repurposed into urban development Niagara Scenic Parkway Niagara Falls, United States 2019 Highway removed and replaced with surface streets and waterfront parkland Southeast Freeway Washington, D.C., United States 2016 Partial freeway-to-boulevard conversion Voie Georges-Pompidou Paris, France 2016 Highway removed and replaced with public beaches and urban development West Sacramento Freeway Sacramento, United States 2014 Highway removed and replaced with surface streets and urban development West Side Elevated Highway New York City, United States 1977 Elevated highway demolished and replaced with urban boulevard Zhongxiao Elevated Highway Taipei, Taiwan 2016 Elevated highway repurposed from roadway into elevated park. Section next to the North Gate demolished to give an unimpeded view of the gate.Riverfront Parkway (Chattanooga)Chattanooga, United States 2004Freeway-to-boulevard conversionCypress Street ViaductOakland, United States 2005Freeway-to-boulevard conversion, (NOTE: Destroyed due to Loma Prieta Earthquake in 1989.)Bundesstraße 1Dusseldorf, Germany 1993Freeway was demolished and moved underground via the Rheinufer Tunnel.Perimetral HighwayRio De Janeiro, Brazil 2015Freeway transformed into public space
Planned Highway Location DescriptionInterstate 81Syracuse, United StatesApproved proposal to reroute I-81 traffic around Syracuse via Interstate 481 and downgrade the existing freeway to a business loop boulevard; the plan was halted by judges multiple times and faced strong local opposition, but the construction phase has begun since thenInterstate 375Detroit, United StatesApproved proposal to replace portion of freeway with at-grade boulevard; construction is planned for 2027 and 2028Tokyo ExpresswayTokyo, JapanApproved proposal to replace majority of expressway with an elevated park; construction is planned to begin in 2025Interstate 229St. Joseph, United StatesApproved proposal to replace freeway with at-grade boulevard through downtown St. Joseph. Even though right of way funding for the project has been allocated for the fiscal year of 2027, no additional funding or timeline has been designated for design or construction.Interstate 244Tulsa, United StatesApproved proposal to replace freeway with at-grade streetMassachusetts Route 28Boston, United StatesFreeway-to-boulevard conversion
Proposed