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01-Economic Development Department
CITY OF SAN BERNARDINO ORIGINAL ECONOMIC DEVELOPMENT AGENCY FROM: Maggie Pacheco SUBJECT: Professional Services Agreement with Urban Executive Director Land Institute(ULI) DATE: April 27,2007 ----- ---------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------—--------- Svnopsis of Previous Commission/Council/Committee Action(s): ------------------------------------------------- -------------------------------------------------------------------------------------------------------------------------------------------------------------------- Motion(s): (Community Development Commission) Resolution of the Community Development Commission of the City of San Bernardino ("Commission") approving and authorizing the Chairperson of the Commission to execute a Professional Services Agreement by and between the Redevelopment Agency of the City of San Bernardino ("Agency") and the Urban Land Institute ("ULI"),a non- profit research and education organization, to develop a land use plan and urban design for the greater downtown -area of the City,in an amount of not to exceed$115,000 ------------------------ Contact Person(s): Maggie Pacheco Phone: (909)663-1044 Project Area(s): Central City North,Central City Projects Ward(s): 1 Supporting Data Attached: Z Staff Report El Resolution(s) 0 Agreement(s)/Contract(s) 0 Letter(s)/Memo's,Attachments FUNDING REQUIREMENTS: Amount: $ 115,000 Source: Central City North Tax Increment Funds Budget Authority: 2006/2007 E d et SIGNATURE: fiscal Review: Maggie Pac eco, xecutive Director �arb#Lindseth,Admi istrative Services Director ------------------ i o---n-_/_-------uncil---------No------te-s s--:--------------------------------------------------------------------------------------------------------------------------------------------------------------------- CommissnCo ---------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------- P:Wgendas\Comm Dev Commission\CDC 2007\04-30-07 ULI-Professsional Services Agreement SR.doc COMMISSION MEETING AGENDA Meeting Date: 04/30/2007 Agenda Item Number: ECONOMIC DEVELOPMENT AGENCY STAFF REPORT --------------------------------------------------------------------------------------------------------------------------------------------------------------------------------—---------------—------ PROFESSIONAL SERVICES AGREEMENT WITH URBAN LAND INSTITUTE (ULI) CURRENT ISSUE: The Urban Land Institute (ULI) was established in 1936 as a non-profit research and education organization to promote responsible leadership in the use of land in order to enhance the total environment. ULI maintains a membership representing a broad spectrum of interests and sponsors a wide variety of educational programs and forums to encourage an open exchange of ideas and sharing of experience. ULI initiates research and anticipates emerging land use trends, issues and proposes creative solutions based on that research; it provides advisory services and publishes a wide variety of materials to disseminate information on land use and development. Moreover, their service is unique in that ULI maintains an Advisory Service Department for the purpose of benefiting the general public through improved planning and utilization of urban land. Through its advisory service program, ULI assembles teams of real estate planning, development and financing experts who volunteer their time to provide objective advice on addressing challenging land use issues. ULI is able to draw on the expertise of its more than 35,000 members from 65 countries representing an entire spectrum of land use and real estate development disciplines; it is this extensive experience in land planning and development that makes the advisory service program a unique process that is not replicated by any other organization. This multidisciplinary team assembled by ULI will provide the City of San Bernardino ("City"), Redevelopment Agency of the City of San Bernardino ("Agency") and County of San Bernardino ("County") with an unbiased set of recommendations for strategic actions for moving a community plan forward. The team includes people and expertise that are not available for hire under any other means. ULI has undertaken thousands of studies and assignments for a number of cities and states; (examples of such studies have been transmitted to the Council under separate cover by the Mayor; however, we have attached an example of the panel report prepared by ULI for Tustin California (see Exhibit"1" attached). Accordingly, per the attached Inter-Office Memorandum dated April 25, 2007, addressed from the Mayor to the Members of the Council, it is desirous to enter into an agreement with ULI to assist the City, Agency and County in reviewing its development plans and ideas presently underway or anticipated in hopes of shaping a vision for the future of our City's downtown. ULI's role will be to assist in creating implementable strategies for making San Bernardino a better community with better development. Their recommendations will be based on market realities, sound planning practices, economic and political considerations, and finally real life experiences from realistic practitioners. ULI will also assist the County in evaluating their master space needs in downtown. The County has a need for approximately 450,000 square feet of office space to accommodate existing departments and additional space needs. Hence, it is proposed that the Agency enter into the attached Professional Services Agreement ("Agreement") with ULI for an amount of not too exceed $115,000. The requirements for payments are noted in the Agreement. The Agreement contains the scope of work to be undertaken by ULI and ---------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------- P:\Agcndas\Comm Dev Commission\CDC 2007\04-30-07 ULI-Professsional Services Agreement SR.doc COMMISSION MEETING AGENDA Meeting Date: 04/30/2007 Agenda Item Number: Economic Development Agency Staff Report ULI—Professional Services Agreement Page 2 the area designed for study is primarily downtown,between the I-215 Freeway on the west, Sierra Way on the east, Rialto (Metrolink/light rail line) on the south and 6th Street on the north side of the City. As noted in the Mayor's memo and as confirmed with County Staff, the Agency and County will jointly sponsor the retention of ULI and share in the cost of the $115,000, fifty-fifty. ENVIRONMENTAL IMPACT: This Agreement does not meet the definition of a "project" under Section 15378 of the California Environmental Quality Act (CEQA) and therefore this Agreement is exempt under CEQA. FISCAL IMPACT: The $115,000 will be paid from Central City North Redevelopment Project Area Tax Increment. The County of San Bernardino has agreed to reimburse the Agency 50% of the $115,000. RECOMMENDATION: That the Community Development Commission adopt the attached Resolution. Maggie Pacheco, xecu ive Director ----------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------- P:\Agendas\Comm Dev Commission\CDC 2007\04-30-07 ULI-Professsional Services Agreement SR.doc COMMISSION MEETING AGENDA Meeting Date: 04/30/2007 Agenda Item Number: I RESOLUTION NO. 2 RESOLUTION OF THE COMMUNITY DEVELOPMENT COMMISSION OF 3 THE CITY OF SAN BERNARDINO ("COMMISSION") APPROVING AND AUTHORIZING THE CHAIRPERSON OF THE COMMISSION TO 4 EXECUTE A PROFESSIONAL SERVICES AGREEMENT BY AND BETWEEN THE REDEVELOPMENT AGENCY OF THE CITY OF SAN 5 BERNARDINO ("AGENCY") AND THE URBAN LAND INSTITUTE ("ULI"), 6 A NON-PROFIT RESEARCH AND EDUCATION ORGANIZATION, TO DEVELOP A LAND USE PLAN AND URBAN DESIGN FOR THE GREATER 7 DOWNTOWN AREA OF THE CITY, IN AN AMOUNT OF NOT TO EXCEED $115,000 8 9 WHEREAS, the Community Development Commission of the City of San Bernardino 10 ("the Commission") is the governing body of the Redevelopment Agency of the City of San 11 Bernardino (the "Agency"), a public body, corporate and politic, organized and existing pursuant 12 to the Community Redevelopment Law (California Health and Safety Code Section 33000, et seq.) 13 (the "CRL"); and 14 WHEREAS, the Urban Land Institute ("ULI"), established in 1936, is a non profit 15 organization whose mission is to promote responsible leadership in the use of land in order to 16 enhance a community environment; and 17 WHEREAS, the Agency desires to engage the services of ULI to assist the Agency, City of 18 San Bernardino ("City") and the County of San Bernardino ("County"), in the preparation of a land 19 use strategy for downtown San Bernardino which includes assessing the County's master space 20 needs in downtown San Bernardino; and 21 WHEREAS, ULI and the Agency wish to enter into an agreement pursuant to the terms and 22 conditions in the Professional Services Agreement (the "Agreement") attached hereto and 23 incorporated herein by reference. 24 NOW, THEREFORE, THE COMMUNITY DEVELOPMENT COMMISSION OF THE 25 CITY OF SAN BERNARDINO DOES HEREBY RESOLVE, DETERMINE AND ORDER, AS FOLLOWS: 26 27 Section 1. The Commission hereby approves the Agreement by and between the 28 Agency and ULI in the form as attached hereto and as presented to the Commission upon adoption 1 P:\Agendas\Resolutions\Resolutions\2007\04-30-07 ULI Professional Services Agreement CDC Reso.doc i I of this Resolution, and the Commission hereby authorizes the Chairperson of the Commission to 2 execute the Agreement on behalf of the Agency together with such technical and conforming 3 changes as may be recommended by the Executive Director of the Agency and approved by the 4 Agency Counsel. 5 Section 2. The Resolution shall become effective immediately upon its adoption. 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 2 P:\Agendas\Rcsolutions\Resolutions\2007\04-30-07 ULI Professional Services Agreement CDC Reso.doc 1 RESOLUTION OF THE COMMUNITY DEVELOPMENT COMMISSION OF THE CITY OF SAN BERNARDINO ("COMMISSION") APPROVING AND 2 AUTHORIZING THE CHAIRPERSON OF THE COMMISSION TO 3 EXECUTE A PROFESSIONAL SERVICES AGREEMENT BY AND BETWEEN THE REDEVELOPMENT AGENCY OF THE CITY OF SAN 4 BERNARDINO ("AGENCY") AND THE URBAN LAND INSTITUTE ("ULI"), A NON-PROFIT RESEARCH AND EDUCATION ORGANIZATION, TO 5 DEVELOP A LAND USE PLAN AND URBAN DESIGN FOR THE GREATER DOWNTOWN AREA OF THE CITY, IN AN AMOUNT OF NOT TO EXCEED 6 $115,000 7 I HEREBY CERTIFY that the foregoing Resolution was duly adopted by the Community 8 Development Commission of the City of San Bernardino at a meeting 9 thereof, held on the day of , 2007, by the following vote to wit: 10 Commission Members: Ales Nays Abstain Absent 11 ESTRADA 12 BAXTER 13 BRINKER 14 DERRY 15 KELLEY 16 JOHNSON 17 MC CAMMACK 18 19 20 Secretary 21 The foregoing resolution is hereby approved this day of , 2007. 22 23 Patrick J. Morris, Chairperson 24 Community Development Commission 25 of the City of San Bernardino 26 Approved as to Form: 27 By: /S/ imatff 1.Saga 28 Agency Counsel 3 P:\Agendas\Resolutions\Revilutions\2(N)7\04-30-07 OI.1 Pmlessional Services Agreement CDC Reso.doc EXHIBIT "1" ADVISORY SERVICES PANEL REPORT (Tustin, California) S {4 � � Q wq WIN MNP X i �* i '�4 �'vYi tY ,r'm� �i � •'Ti � .n: � •R. 'dg -y -_.":- � #,�y¢ t t.}�e��e�\--jl .� s���{LL""��•z�f �`��'�x.� � xt+ yr,<e fxr �t�*Y:yy� � �' _•,�.+ tti: •� P',y ,, s� � �„ ��}�����+a,,'.Y�+�}�� � yovk.a��rp.y,,ry�,'{ ��ix'� �,� °� r��� � �� �sY �W-1 � i Tustin California Evaluation of Infill Development Opportunities June 11-16,2006 An Advisory Services Panel Report ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 About ULI—the Urban land Institute LI—the Urban Land Institute is a non- resented include developers,builders,property profit research and education organiza- owners,investors,architects,public officials, tion that promotes responsible leadership planners,real estate brokers,appraisers,attor- in the use of land in order to enhance the neys,engineers,financiers,academics,students, total environment. and librarians.ULI relies heavily on the expe- rience of its members. It is through member in- The Institute maintains a membership represent- volvement and information resources that ULI ing a broad spectrum of interests andsponsors a has been able to set standards of excellence in wide variety of educational programs and forums development practice.The Institute has long been to encourage an open exchange of ideas and shar- recognized as one of America's most respected ing of experience.ULI initiates research that an- and widely quoted sources of objective informa- ticipates emerging land use trends and issues and tion on urban planning,growth,and development. proposes creative solutions based on that re- search;provides advisory services;and publishes This Advisory Services panel report is intended a wide variety of materials to disseminate infor- to further the objectives of the Institute and to mation on land use and development. make authoritative information generally avail- able to those seeking knowledge in the field of Established in 1936,the Institute today has more urban land use. than 34,000 members and associates from 90 coun- tries,representing the entire spectrum of the land Richard M.Rosan use and development disciplines.Professionals rep- President 02006 by ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 All rights reserved.Reproduction or use of the whole or any part of the contents without written permission of the copy- right holder is prohibited. Cover photo by Nicholas Gabel 2 An Advisory Services Panel Report About ULI Advisory Services he goal of ULI's Advisory Services Program pants in ULI's five-day panel assignments are is to bring the finest expertise in the real able to make accurate assessments of a sponsor's estate field to bear on complex land use plan- issues and to provide recommendations in a com- ning and development projects,programs, pressed amount of time. and policies.Since 1947,this program has assem- bled well over 400 ULI-member teams to help A major strength of the program is ULI's unique sponsors find creative,practical solutions for ability to draw on the knowledge and expertise of issues such as downtown redevelopment,land its members,including land developers and own- management strategies,evaluation of develop- ers,public officials,academicians,representatives ment potential,growth management,community of financial institutions,and others.In fulfillment revitalization,brownfields redevelopment,mili- of the mission of the Urban Land Institute,this tart'base reuse,provision of low-cost and afford- Advisory Services panel report is intended to able housing,and asset management strategies, provide objective advice that will promote the re- among other matters.A wide variety of public, sponsible use of land to enhance the environment. private,and nonprofit organizations have con- tracted for ULI's Advisory Services. 111.1 Program Staff Each panel team is composed of highly qualified Rachelle L.Levitt Executive Vice President,Policy and Practice professionals who volunteer their time to ULI. They are chosen for their knowledge of the panel Mary Beth Corrigan topic and screened to ensure their objectivity. Vice President,Advisory Services and Policy Programs ULI's interdisciplinary panel teams provide a Tom Eitler holistic look at development problems.A re- Director,Advisory Services spected ULI member who has previous panel Nicholas Gabel experience chairs each panel. Senior Associate,Advisory Services The agenda for a five-day panel assignment is in- Carmen McCormick tensive.It includes an in-depth briefing day com- Panel Coordinator,Advisory Services posed of a tour of the site and meetings with spon- Yvonne Stanton sor representatives;a day of hour-long interviews Administrative Assistant of typically 50 to 75 key community representa- Nancy H.Stewart tives;and two days of formulating recommenda- Director,Book Program tions.Many long nights of discussion precede the panel's conclusions.On the final day on site,the Lise Lingo/Publications Professionals,LLC panel makes an oral presentation of its findings Manuscript Editor and conclusions to the sponsor.A written report is Betsy VanBuskirk prepared and published. Art Director Because the sponsoring entities are responsible Martha Loomis for significant preparation before the panel's visit, Desktop Publishing Specialist/Graphics including sending extensive briefing materials to Kim Rusch each member and arranging for the panel to meet Graphics with key local community members and stake- Craig Chapman holders in the project under consideration,partici- Director,Publishing Operations Tustin,California,June 11-16,2006 3 I Acknowledgments 0 n behalf of the Urban Land Institute,the as other support staff in various city departments panel would like to thank the city of Tustin who were involved in the preparation for this panel. for inviting us to assist them in the plan- The countless hours that they spent preparing for, ning and redevelopment efforts of the Cen- informing,and assisting the panel were truly ap- ter City,West Village,and Southern Gateway preciated.Their hard work and dedication is an neighborhoods.Special thanks are extended to asset to the city of Tustin. Mayor Doug Davert,Mayor Pro Tem.Tracy Wor- In all,the panel had the opportunity to interview ley Hagen,and Council members Jerry Amante, more than 50 community stakeholders,all of Lou Bone,and Tony Kawashima for their vision whom provided valuable and insightful informa- and leadership in involving ULI in the planning tion.The interviewees included government offi- process.Their dedication,wisdom,and leader- cials,residents,business leaders,developers, ship are examples of what makes Tustin a vibrant property owners,and community activists.Their community. shared perspectives were essential to the panel Special thanks go to Christine Shingleton,assis- process.This group of stakeholders is a major tant city manager;Elizabeth Binsack,community asset in advancing and maintaining the interests development director;Tim Serlet,public works of this community. director;Patrick Sanchez,parks and recreation director;and Scott Jordan,chief of police,as well 4 An Advisory Services Panel Report Contents ULI Panel and Project Staff 6 Foreword:The Panel's Assignment 7 Market Potential 9 Planning and Design 19 Development and Implementation Strategies 26 Conclusion 38 About the Panel 40 Tustin,California,June 11-16,2006 5 ULI Panel and Project Staff Panel Chair R.Terry Schnadelbach Professor and Chairman Richard J.Dishnica University of Florida Department of President Landscape Architecture The Dishnica Company LLC Gainesville,Florida Point Richmond,California Richard Shields Panel Members Partner Mesa Development Ray Brown Chicago,Illinois President Ray Brown Consulting Christine Vina Memphis,Tennessee Special Projects Coordinator City of San Antonio Planning Department Paul D.Charles San Antonio,Texas Executive Director Neighborhood Recovery Community ULI Project Director Development Corporation Houston,Texas Nicholas Gabel Senior Associate,Advisory Services Victor Karen Director of Advisory Services RF Walsh Company,Inc. ULl On-Site Coordinator Boston,Massachusetts Clair Wooley Alan S.Levine Editorial Assistant Deputy Exective Director Seattle Housing Authority Seattle,Washington 6 An Advisory Services Panel Reporl Foreword: The Panel's Assignment t the invitation of the city of Tustin,a ULI In the early 1990s,Marine Corps Air Station Advisory Services panel was convened to Tustin was placed on the Base Realignment and evaluate infill development opportunities Closure Act list.With great foresight,the commu- for the expansion of residential housing nity realized the value of the 1,600 acres of virtu- and for commercial revitalization activities. ally undeveloped land within the city and within increasingly built-out central Orange County.The Background community immediately began to plan for the base's reuse and the subsequent community transforma- Throughout its history,Tustin has been defined tion.In 1999,the air station closed and the city by its role within the context of Orange County began the long and challenging process of using and the region.Initially a farming community, the former base(renamed the Tustin Legacy proj- Tustin built its economy and identity on agricul- ect)to create much-needed community assets such ture after the turn of the last century.Home to as housing,open space,commercial space,and en- thousands of acres of apricot,orange,and walnut tertainment opportunities. groves,Tustin was a regional agricultural center providing fruits and vegetables to the state of After the closure of the base,Tustin experienced California and beyond. the short-term impacts of military personnel and the affiliated workforce With the advent of World leaving the city.This left War II,Tustin began its its agricultural past is rooted in g vacant rental housing first major transforma- in Tustin's older apart- its agricultural history. tion,from a small agri- ment neighborhoods.A cultural community to a rapidly growing Latino rapidly growing subur- population in search of ban city.During the war, housing quickly occupied three military bases housing units made avail- were located within or in able from this transition. close proximity to the Unfortunately,what city.These military in- were once stable apart- stallations were the im- ment neighborhoods petus for hundreds of businesses and thousands of have become overpopulated and have also fallen people moving to the city to work in the war and into disrepair because of the lack of reinvestment postwar industries.The robust growth began to in the aging housing stock. replace the fruit groves as Tustin began to change into a suburban community. Today,Tustin is in the midst of a transformation from a sleepy suburban community to an increas- The Marine Corps Air Station Tustin and the ingly urban city.The changing demographics in rapidly suburbanizing Orange County were the the older apartment neighborhoods and the op- major economic and growth engines for the city portunities in the Tustin Legacy project will for- throughout the 1980s.With virtually all the fruit ever change the city's identity.Tustin is faced groves now gone,Tustin is almost completely built with the challenge of incorporating new growth out and experiencing growth-related problems at Tustin Legacy while welcoming a new popula- such as traffic and congestion,overcrowded schools, tion into the community and strengthening the and loss of open space. older neighborhoods. Tustin,California,June 11-16,2006 7 WW Location map. and north of the current southern terminus of Newport Avenue.This area primarily contains multifamily residential housing units that were constructed in the 1%Os and 1970s.A commercial strip is located along Newport Avenue,as is the new Arbor Walk condominium project. Sacramento West Village San Francis The West Village study area is located east of .San Jose the Tustin—Santa Ana border and west of SR-55 Fresno. between McFadden Avenue on the south and C A L i F o R H i a Main Street on the north.This area contains a \\\ mixture of large-and small-scale multifamily resi- dential housing units and three manufactured home communities.The development in this area is of Los TAngeles 1960s and 1970s vintage.There are very few com- Long Bea -Irvine mercial uses iii this area and very few vacant $an oleg parcels of land. The Assignment The Study Areas With the Tustin Legacy project finally underway,. The most significant population and housing changes the city began to refocus its planning efforts on have occurred in the past 15 years with the influx its older central and southwestern neighborhoods. of Latino households and a concentration of work- Members of the city council and city staff began force households in the single-family,manufac- conversations about possible solutions to combat tured housing,and rental properties in the west the overcrowding,lack of open space,and deterio- and southwest sections of the city.This population rating conditions in the study areas.The panel growth and concentration of low-income families j has primarily been focused on the older apartment was asked to provide input on regulatory policy neighborhoods.The panel has been instructed to enhancements that will empower and energize the address redevelopment strategies and conditions private sector to find market-driven solutions to that would provide market-driven solutions to im- the housing crisis in the study areas.These en- proving three neighborhoods:Center City,South- hancements include incorporating new thinking ern Gateway,and West Village. about mixed land uses and increased densities, Center City and streamlining the planning and development process to make Tustin more competitive in the The Center City study area is located between marketplace. Sixth Street and San Juan Avenue on the north, Browning Avenue on the east,and El Camino The panel has studied the issues and framed its Real and I-5 on the south and west.This 210-acre recommendations with the understanding that the area has a mix of low-density single-family homes, city desires to avoid the use of eminent domain;to strip retail,garden office,public institutional,and minimize commercial and residential dislocations; light-industrial uses.Most of the development in and to use creative techniques,including but not this area was built out during the 1960s and 1970s. limited to overlay districts,to initiate alternative Southern Gateway densities and uses.The panel was also asked to The Southern Gateway study area is located east provide solutions to traffic and crime problems of SR-55,south of I-5,west of Red Hill Avenue, where evident in the study areas. 8 An Advisory Services Panel Report The ULI Process Regional map. Before arriving in Tustin,the panel received a briefing book that included history and back- ground information on the city;demographic and market information for the county,the city,and 4 e� orona the three study areas;descriptions of upcoming and proposed projects in the city;and an overview anta Ana of the planning and development review process.of stin When the panel members arrived in Tustin,they Huntington Beach to e ORANGE '` were briefed by representatives from the city manager's office,community development depart- co? ment,redevelopment agency,public works de- partment,parks and recreation department,and ` o� police department. Panelists toured the three study areas to see the existing conditions and development potential. and framing recommendations,the panel resented They then met with community leaders and stake- its findings and recommendations to the Tustin holders who explained the work that they are City Council and the general public.This report doing in the community,described their successes summarizes the panel's key recommendations and challenges,and shared their hopes for a better and observations. Tustin.After spending the next two days examin- ing the issues,discussing and debating solutions, Tustin,California,June 11-16,2006 9 Market Potential s. ustin began its transformation from an agri- realizing the market potential of these areas affect cultural community with the opening of the a larger area and greater economic issues in Tustin. Marine Corps Air Station during World War The panel evaluated these areas and concluded II.Centrally located in the heart of Orange that it was more appropriate to combine the city's County,Tustin is a great community to live and proposed study areas into one study area that bet- work in.It enjoys excellent access to interstates ter defines the area of influence and opportunity and regional highways,which position the city for the panel's analysis and recommendations.The close to more than 75,000 jobs within a ten-minute new study area is generally located south of First f drive.Interstate 5 bisects the community east- Street,east of the Tustin—Santa Ana border and west,connecting the city to Los Angeles and San SR-55,north of Edinger Avenue,and west of Red Diego.State route 55 connects it to the communi- Hill and Browning Avenues. ties of Santa Ana,Irvine,Costa Mesa,and the coastal community of Newport Beach,and to Key Community issues: High Demand mountain communities to the east. for Housing and Retail 9 The population of Tustin has grown with the oper- Tustin is rising on the tide of strong economic and ation of the base,from 32,000 in the early 1970s to more than 70,800 in 2006.This population growth population growth in Orange County and the suc- cessful redevelopment of Tustin Legacy,the for- occurred in specific phases in response to annexa- mer Marine Corps Air Station.Its central location tions and,more recently,the redevelopment of the in the county,strong adjacency and transportation Tustin Legacy project. access to major employment centers,and historic and varied neighborhoods all are attracting inter- The Combined ULI Study Area est.To address the potential impacts and opportu- This population growth and the concentration of nities created by this strong market demand,the low-income families in the western neighborhoods city asked the panel to consider and recommend create both opportunities for and challenges to de- how these market forces and opportunities can be velopment interest in large areas.They also cre- better used to improve the quality of life and char- ate opportunities to provide affordable housing in acter of the city. the city and a chance to transition renters into The opportunities for and market potential of homeownership.The challenges are the quality new development have a strong foundation in the of the housing stock,the housing policy,code en- economic and geographic advantages of Tustin. forcement and property management,and severe Several new developments have been completed, overcrowding. are under consideration,or have elicited signifi- The panel was instructed to address redevelop- cant interest: ment strategies and conditions that would pro- . The 63-unit Arbor Walk residential townhouse vide market-driven solutions for improving three development completed on Newport Avenue neighborhoods:Center City,Southern Gateway, south of Walnut Avenue; and West Village.Although the market and social environments of these neighborhoods are affected • A 93-unit residential townhouse development by the changing demographics and housing short- along El Camino under construction west of ages in the city,the consequences and impacts of Redhill Avenue; 10 An Advisory Services Panel Report Win.5U;n 11. LJ 13 a t Man 5t . \� \ I� I' O � E ' O S, ►1111 � ,,- ,�,I OO� e I c � 3 -- �yFdln9erAwnue Q/—'� \ ��`✓/ I Key West Village Center City _ VVV © 5outhern Gateway Study Area Boundary • ° 'Combined Study Area Railroad • Assembly of small rental residential complexes, standards,densities,and incentives for the rede- The study area. individually owned,into larger managed rental velopment of properties—which would in turn in- complexes; crease market interest and improve the quality • New retail at Newport Avenue and I-5;and of the community. • A 259-unit senior luxury apartment complex With today's strong housing demand and growth proposed on Red Hill Avenue north of El Camino. and the range of housing diversity and housing prices in Tustin,there is great interest in Tustin These projects demonstrate the market capacity as a place to invest and develop.The current and consumer interest in new development;how- market conditions will support several kinds of ever,these small and disconnected efforts are development. merely reactions to the market,not a response to a broader community vision in Tustin.The estab- Wide Range of Housing Types and income Levels lishment of neighborhood plans that define the The need for workforce housing,for both rental community's vision would serve as the basis for and for-sale units,is great.Absorption rates for creating zoning overlay districts to address design housing sold at market rates run six to seven units Tustin,California,June 11-16,2006 » The challenge to redeveloping sites with such high values is to provide density bonuses on the number of units permitted and other development conces- sions,such as relief from required parking ratios or relief from city impact fees. Market oppoaunities Tustin sits at the center of Orange County,whose economic and demographic growth provides a strong market environment for attracting devel- :a oper interest in acquiring property and develop- ing commercial and residential projects in the city. Employment growth and low unemployment con- tinue to create demand for housing;more than 75,000 jobs are located within a ten-minute drive of Tustin.The city's central location offers an im- portant housing area for a wide range of workers. Congested commutes on the regional highways and rising gasoline prices make Tustin's central i!ie Arbor 41`alk develop- per month per unit type and affordable housing sells location even more valuable. r ent on Ne�,%jpart avenue out at any initial offering. Attntdw on in0 Market-date Housing Tustin has a diverse housing stock in terms of loca- e-and multifamily tion,quality,and range in both type and price point. Market prices for sales of singl housing are currently$375 to$490 per square There are neighborhoods such as Old Town with foot,and unit construction costs are$145 to$180 its historic housing stock and larger single-family per square foot. lots,older apartments and small-lot single-family homes in the study area,a variety of relatively new Neighb ornond 5R i housing types in Tustin Ranch,and new housing Small-unit(less than 9,000 square feet)retail spaces being developed as part of the Tustin Legacy proj- rent for$2.50 to$3.50 per square foot,and shell ect.Within the study area are older single-family construction costs$120 to$140 per square foot. homes that have sale prices lower than those of Ieatsi,en# grpe�tip.: new homes elsewhere in Tustin,as well as avail- able apartments and manufactured homes.The Capital markets allow capitalization rates as low housing scarcity in the county has placed pres- as 3 percent to 5 percent for both retail and rental sure on these housing units in terms of market housing. pricing and value;however,most are still some- In these market conditions,the development po- what more affordable than units in other areas tential could support acquisition costs of$2.5 mil- of Tustin,surrounding communities,and Orange lion to$3.5 million per acre.With an increase in County. the density allowed on sites and with relief from Most of the housing stock in the study area was parking ratio and affordable housing requirements, developed over the past 50 years and is reaching it could be possible for land prices to approach$4 the end of its useful life.It was originally devel- million per acre.In several small and large rental oped to meet the demands of postwar growth and housing and manufactured home sites,incomes to provide market-based housing for military per- and investment environments are such that cur- sonnel at the Marine Corps Air Station Tustin.With rent cash flows and capital markets would price the downsizing and closure of the military facili- developments in excess of$4 million per acre. ties,this housing became available for a large in- 12 An Advisory Services Panel Report flux of immigrants and for workforce housing needs. Hgur Leaving aside the qualitative and social issues in h . �ssM s , olr� re # ' li 1 raw a, � the study area,the existence of this large,fluid rental housing stock in central Orange County ua..j=?e tr .11aj{ provides Tustin with a broader market base of population 70,871 2,964,800 housing than many of its neighbors. - - Median Family Income $60,092 $78,300 If properly managed,this housing stock provides Tustin with greater market depth as it relates to Per Capita Income $25,932 $40,380 I new development and retail and rental housing in- Median Home Price $610,000 $617,000 vestment.In fact,the high demand for housing Workforce 41,600 1,585,500 has created high rents and housing prices,attract- - - ---- ing higher-grade investment and owners into the Unemployment 3.4% 3.8% rental housing and manufactured housing commu- Source:College of Business and Economics,California State University,Fullerton,2006. nities.This could attract new investment to as- Midyear Economic Forecast"Spring Update." semble and redevelop small-unit apartment build- ings into larger assemblies of rental housing. Figure 1 "age rmunly ppyro"P" Empl ymefli change,* 125 Key Construction 120 Leisure and Hospitality Professional and Business ... High Tech 115 110 - 105 _ v ; = V 100 � ' _.. s.•rra........r........ 95 January July January July January 2004 2004 2005 2005 2006 * Selected Sectors,Index January 2004=100 Source:College of Business and Economics,California State University,Fullerton,2006.Midyear Economic Forecast`Spring Update." Tustin,California,June 11-16,2006 13 The market potential for new housing in the study • The Heritage Place senior housing facility east area includes the following: of Newport Avenue on Sycamore. • Transformation of older manufactured home Large Parcel and Assembly Opportunities communities into new manufactured units or The study area and the surrounding neighbor- configurations; hoods contain a number of large parcels that pre- sent opportunities for larger-footprint redevelop- • Redevelopment of manufactured housing sites; ment or easier acquisition and assembly.Along • Assembly of smaller fourplex residential rental the north side of I-5 in the Center City neighbor- properties to create opportunities for phased hood,a number of obsolete commercial develop- rehabilitation and improved management;and ments could be assembled for more intense devel- opment.The Southern Gateway and Central City • Acquisition of larger apartment communities neighborhoods also have large areas that could for rehabilitation or replacement. be redeveloped: Access to 1-5 and SR-55 • A number of larger,single-owner apartment The study area is bisected by or directly adjacent parcels,which present an opportunity to im- to 1-5 and SR-55.Northbound and southbound in- prove access to neighborhoods,enhance their terchanges at Red Hill Avenue and a northbound character,and strengthen the connections be- interchange at Newport Avenue give the area tween them,as well as to increase densities; high levels of visibility and access.Along I-5,de- A number of small,underdeveloped,and obso- velopment parcels are small and generally under- lete retail centers,which if assembled,could developed and do not take advantage of the high make possible higher-density,mixed-use devel- volume of traffic passing the sites or the easy access to the sites.Along SR-55,a major inter- opments that not only improve commercial ser- change provides access to Newport Avenue from vices,but also create stronger identities and the McFadden Avenue ramps at Sycamore Av- enue and direct highway visibility along SR-55. . Tustin High School,which is being relocated Such sites along the regional and interstate high- to Tustin Legacy. ways have seen major development throughout the county and surrounding communities and pro- Tustin Lt:{gw y vide good locations for higher-density retail and The Tustin Legacy project has brought local and employment uses. national attention to Tustin and offers both direct and indirect opportunities to assist with attracting development to the study area.One of the most Located on Newport Avenue just north of the SR- significant urban infill developments in the nation, 55 ramps for Sycamore Avenue and McFadden Tustin Legacy is delivering major new open space, Avenue is the Tustin Hospital and Medical Center. parks,community facilities,and private develop- Growth in demand for medical services along SR- ment,including nearly 8 million square feet of office, 55 and Newport Avenue could provide several op- commercial,and retail space and 4,400 homes.The portunities for development: implementation of the comprehensive development • Medical office building(s),which would improve plan and its early successes have developers,lend- the area's access to medical services and create ers,investors,tenants,and homebuyers looking at stronger ties to the Tustin Hospital; Tustin for other opportunities. • A community pharmacy or drugstore; chanOO o s, tip maruet mar Environment • A stronger relationship between the Head Start The study area is intensely developed,with very program and Tustin Family and Youth Center few vacant parcels—and even fewer parcels owned and the Tustin Hospital;and and controlled by the city.Successfully developing 14 An Advisory Services Panel Report new housing,commercial,or public projects in the residential and commercial).The area has a wide area requires a committed buyer and seller to range: overcome challenges related to site conditions, mapping,market desires,and city processes.The ' Patchwork land use and parcels; marketplace has the capacity to acquire and de- . Development sites that are isolated from the velop within the city.The questions it and the city neighborhoods,limiting development potential, have are these: timing,and economics; • Where can affordable housing be replaced or . "Super blocks"without significant open space removed? or circulation routes for the public; • Where can higher densities be located? • Oddl y shaped ed P arcels;and • How will the city work with developers to facili- . Incompatible uses adjacent to one another. tate land assembly and changes in the require- ments for density,parking,open space,and af- The city needs to overcome the financial expecta- fordable housing? tion of current property owners and to improve the quality of development in the study area by Lack of Neighborhood Plans to Guid€;' creating incentives for owners and potential de- Redevelopment velopers to sell or to assemble parcels for larger Nowhere in the study area are plans adequate to development areas.This can be accomplished by define future land use;community requirements; developing neighborhood plans that create Over- street,park,or school improvements;or business lay zoning,defining new land entitlements and and housing policy requirements.The past incre- higher-density bonuses for assembling parcels. mental annexation by the city of unincorporated county portions in the study area,the current The densities,building heights,parking,and open patchwork of zoning parcels,and years of small- space requirements could be adjusted when lot and large-lot development and redevelopment sizes meet a certain level(either larger or smaller). have resulted in inconsistent land uses,parcel Overlay zoning in neighborhood plans should be sizes,access,and circulation. defined comprehensively for areas or zones,not parcel by parcel.Comprehensive zoning definition The largest contribution that the city can make to provides flexibility in design,encourages land as- create market demand is to work with citizens and sembly,and integrates open space and design va- developers to define neighborhood plans and to riety within the overlay zone.Overlay zoning create entitlements,through techniques such as could also be used to establish new minimum or overlay zoning,for those plans.These plans need maximum lot sizes,which could be tied to density to address not only private development sites but bonuses.In addition to the fractured land parcels, also public needs and requirements such as open a number of very large"super block"parcels im- space,streetscapes,parking,and design standards pose other challenges.Any redevelopment of for residential and commercial areas.At the same these parcels must include new public roadways time the community and the marketplace need to and open space.The city should consider limited work with the city to clarify policy with regard to use of its acquisition powers for public streets and affordable housing,acceptable housing(quality), public open space on such super blocks. and transition policies when affordable housing is Community Context and Quality affected by development plans. A large portion of the properties in the study area Fractured Land Ownership and Lot include buildings and complexes that are reaching Configurations the end of their useful lives.Many are not main- Another challenge to the development potential tained and are managed inconsistently.Develop- of the study area is the large number of individual ers who are interested in areas adjacent to such parcels with different types of ownership(both properties must have assurances that codes are Tustin,California,June 11-16,2006 15 enforced and public safety needs are met.Many The city has no major funds to address the current i of these concerns about the community could be dead-end condition of Newport Avenue,but trans- addressed by establishing performance standards forming neighborhoods to make better connec- for housing maintenance and repair and property tions and creating new parks are both critical to management.The development of such standards attracting greater market interest and values. also allows for proactive enforcement against derelict properties. Very ���� Land Values In the study area,the high occupancy rates and Poor Connectivity the high rents of apartment complexes have sig- The study area has many barriers to vehicular and nificantly increased the values of such properties. pedestrian circulation.l-5 and SR-55 bisect major This is true for the manufactured home communi- neighborhoods,stop traffic flow,and interrupt vi- ties,individual fourplexes,and the larger com- sual connections.Many streets are dead ends,and plexes that have on-site managers.The actual parcels have been developed internally instead of value of these properties is far above the Per- in relation to important streets and the neighbor- ceived value,despite the quality of the housing hood as a whole.Connections between neighbor- stock and the geographic issues associated with hoods and community amenities such as schools crime and the lack of community services and and parks are inadequate or nonexistent.The few parks,because they have very high cash flows. community amenities are a limited number of very small parks and school playgrounds that are not Large apartment complexes.Individual and institu- programmed for use as joint community space. tional investors are producing very high cash Figure 3 "An Price 01 Existing Winge, 340twe's $800 K 50% Median Price* Year-over-Year Percent Change 40% $600 K 30% 20% $400 K - —- -- - — 10% i i I $200 K January January January January January January January 2000 2001 2002 2003 2004 2005 2006 Median price as of January 2006:$699,000. Source:College of Business and Economics,California State University,Fullerton,2006.Midyear Economic Forecast`Spring Update." 16 An Advisory Services Panel Report flows.With strong demand in the capital markets for performing income properties,they are able to achieve very low capitalization rates for any sales or refinancing.(The capitalization rate ex- presses the rate of return that can be expected from a property based on its cash flow,expenses, and price.) Because of the volume of capital in the marketplace and the solid cash flow performance of Tustin's affordable apartments,capitalization rates are at all-time lows,in the range of 3 percent to 5 per- cent.This results in very high leverage values for the properties.When these high valuations are combined with demolition costs,potential reloca- tion expenses,and the cost of replacement afford- able housing units,the acquisition cost of such properties exceeds the fair value for land else- where in Tustin,Santa Ana,and Irvine.In addi- tion,the replacement of the housing stock with new stock for sale or rental would trigger inclu- Manufactured housing areas.The study area con- ioiec , r N sionary housing requirements,further increasing tains several manufactured housing communities. a major problem toc local the cost of development beyond what the market These communities are well maintained and gen- grocery stores a,di a ha%.- erally fully leased,with few vacancies.With more and for parked cats and, would accept. the i c;ildr r1 in than 30,000 manufactured homes in Orange Small apartment units.A large number of small- County,these neighborhoods offer an affordable unit apartments in the study area also have high housing choice that,for some residents,have been valuations,as a result of both high rents and de- enjoyed for more than 30 years.Manufactured mand and the practice of multiple families or housing park operators own the land and lease a renters living in a single apartment. In some pad to an occupant,who owns the home on the cases,individual rooms are rented for as much as leased pad.Pads can lease for approximately$600 $1,000 per month.This creates a valuation for the to$1,000 per month,and the manufactured home property based on its income that is far above its can usually sell for$90,000 to$135,000. appraised value as real estate.If a fourplex apart- ment has incomes of$2,000 per apartment or Owning such areas generates very strong cash $8,000 per month for the four units,it is generat- flow for the landowner.Add that nationally such ing$96,000 in annual income.It might have a com- areas are seeing extremely low capitalization parable value of$325,000 per unit,but on an in- rates,in the 3 percent range.The result:as in the come basis it could be worth significantly more. apartment communities,very high valuations for These kinds of units can be attractive to larger or the property.California sets very specific controls institutional investors,who could assemble the on the use and closure of manufactured home com- small units into larger complexes and,through munities,to protect lessees.However,the owners better management and property improvements, of these properties often use the current cash flow create strong income properties.This could be fa- and hold the property until land values are great cilitated through a community development eorpo- enough to justify its sale.Any decision to close or ration or by providing such investors with other interest to acquire such properties would have to incentives(density or other development rights meet the state requirements to provide a mini- on other parcels)to assemble the properties and mum of 12 months notice to lessees and to pay improve them. mitigation expenses for relocating lessees. Tustin,California,June 11-16,2006 17 I igh Construction Costs The cost of construction has seen double-digit in- creases over the past two years and today is out- pacing increases in sales prices for residential housing.When layered on top of requirements to provide inclusionary housing in redevelopment projects,this burden of high construction costs --- significantly increases the gap between cost and affordable selling price,a gap that cannot be closed without city assistance. Increasing construction costs are changing afford- ability across the nation,making it difficult for mid-and high-rise construction to meet market price requirements for condominiums.Given cur- rent market pricing of sale properties in the study area,larger residential buildings do not look finan- cially feasible today and could not be used to meet affordable housing requirements without large as- sistance to residents to cover the gap. 'o loufnunity Housing Policy Regulatory Environment Many of the maflie V Many of the potential redevelopment sites cur- turetl f�omes �n tine Vut,r;t The regulatory environment in Tustin is another rently provide affordable housing to individuals challenge to the market potential of the study Village are old area in and families.Any redevelopment efforts would af- r�eetl et teplace�r area.The complex planning,zoning,and permit- fect the supply of affordable housing.The need to ting process in both the state of California and the assemble parcels and displace residents could city of Tustin make it difficult to assemble land limit market interest in certain development areas and introduce new land uses in the area.The panel unless the city establishes clear housing and relo- provides specific regulatory recommendations in cation policies.The panel recommends that the the section on development strategies and imple- city establish a community housing policy to ad- mentation strategies. dress affordable housing alternatives and reloca- tion and displacement practices and programs. One potential vehicle for establishing and imple- menting community housing policy is a community development corporation,to assist residents and developers with acquisition,relocation,and hous- ing replacement. 18 An Advisory Services Panel Report Planning and Design he planning and design recommendations in subareas within the study area that present differ- this report are geared to facilitating market- ent challenges and opportunities from the stand- driven private sector redevelopment,with point of facilitating private sector market-driven the public sector providing a guiding role redevelopment.There are four subareas: and priming the pump.This allows the private sector to fully capitalize on the opportunities pre- ' Center City,which contains predominantly com- sented by Tustin's strong position in the market- mercial land uses,to the northeast of I-5 be- place and advance community goals and objectives tween Old Town and San Juan Street on the effectively and efficiently. north and Browning Avenue on the east; The city of Tustin initially requested that the • Southern Gateway,which contains built-out panel consider issues and opportunities in three residential areas,bounded by SR-55 on the distinct study areas—West Village,Southern Vest,I-5 on the north,Red Hill Avenue on the Gateway,and Center City.The panel expanded east,and the current terminus of Newport Ave- these three areas into a somewhat larger overall nue north of Edinger Avenue on the south; study area in order to include several adjoining Newport Avenue corridor,which runs through areas that share common issues and opportunities, both Center City and Southern Gateway;and and to align study area boundaries with major streets.This resulted in the inclusion of several • West Village,which is composed almost entirely single-family neighborhoods. of built-out residential areas. Within the overall study area,the panel's planning The panel believes that the most appropriate gen- and design recommendations are organized in eral design principle for built-out residential areas three categories: in the Southern Gateway and West Village is preservation and improvement.The panel recom- • General design principles and design guidelines mends that preservation and improvement be ac- for maintaining and enhancing the overall char- complished by encouraging incremental changes acter of the study area; that involve both 1)targeted public sector acquisi- tion of certain parcels,to achieve overall public • Ways to help stabilize and revitalize existing benefit objectives within these neighborhoods, residential neighborhoods in the study area;and and 2)private sector redevelopment activities • Suggestions for developing an overall vision for that focus on maintenance,improvement,and an the mixed-use and commercial portions of the increase in the affordable housing stock. study area that can help guide market-driven Portions of the Southern Gateway to the north- development beyond the piecemeal site-by-site west and the southeast of Newport Avenue,cur- development that is occurring now. rently developed with single-family housing,are in very good condition and do not appear to re- General Design Principles and quire any specific improvement.The panel there- Design Guidelines fore does not recommend any incremental changes to the single-family housing in these areas.Within The concept plan on page 20 illustrates the overall Center City and the Newport Avenue corridor, planning and design framework that the panel has however,the panel believes that a general design developed for the study area.It defines distinct principle emphasizing greater density and height Tustin,California,June 11-16,2006 19 beyond what is currently allowed—to five stories process,and promote the public good.The panel —is more appropriate. recommends that the city engage a qualified urban design specialist to create guidelines on urban de- Examples of design guidelines have been devel- sign to be adopted by the City Council and made oped to illustrate the concept plan.Although these an integral part of the city's general plan,as has illustrations may appear specific,they are not in- been done in San Diego and San Clemente,among tended to reflect definitive recommendations for many other cities.Guidelines should address the specific sites so much as to suggest generally ap- following: plicable ways to approach issues and opportunities within a regulatory framework that facilitates A pedestrian-friendly environment that encour- market-driven development. ages the sense of independence and freedom of mobility for those who do not drive,such as se- In order to truly guide market-driven redevelop- nior citizens and youth; ment and effectively respond to the varied charac- teristics of the subareas,these design guidelines • Properly configured streets that provide con- need to be further elaborated.Recommendations nectivity to adjacent areas for both automobiles for achieving this elaboration are summarized and pedestrians; below and detailed in the section describing the . Parking located behind buildings,to allow the definition of a community vision for Tustin. buildings to be brought forward to help define the public realm and create continuity in the Urban Design as Public Polio streetscape and the pedestrian experience,by reducing the number of curb cuts and moving By applying proven urban design principles,cities turning traffic to street intersections; such as Tustin can create a consistent,predictable set of public policies to guide development deci- New land uses clustered along major city thor- T conceQ1 r,+'n. sions,facilitate the development and approval oughfare corridors at natural nodes,such as in- tersections between the thoroughfare and major interstate highways,with infill develop- 55 ment along the thoroughfare that helps define the public realm and forms a continuous pedes- trian experience uninterrupted by frequent curb cuts; i • Civic squares and parks that are large enough tin High for public gatherings,festivals,group recre- 51te ation,and community celebration,to strengthen civic bonds and increase citizens'knowledge of and respect for each other; • Parks and other green open spaces,and land- scaping along corridors that helps both define and connect spaces,districts,and the corridors soy ern themselves.One of Tustin's great strengths lies � ' G teway in the remarkable amount of green space it con- tains.Future development,both private and Key public,should continue this precedent by includ- ing substantial,well-maintained borders and Residential trees.In particular,dense,well-maintained 55 q' Mixed Use hedges bordering surface parking lots reduce Major the visual impact of such lots while enhancing Intersections the continuity of the pedestrian experience; 20 An Advisory Services Panel Report r • Size,proportion,height,bulk,and architectural design of new construction that define the street space and public places of shared use between buildings and reinforce the edges of these spaces. New projects should respect,be compatible with, and link with existing structures.This issue r transcends style but addresses fit and propri- ety.Proper architectural design helps orient people in space,time,location,and culture;and • Appropriate design of streets and buildings that reinforces safe environments while preserving access and openness as well as a sense of com- munity.Street grids that extend through over- sized blocks create more walkable,manageable environments,facilitating access for fire trucks, ambulances,and patrol cars. Built-.Out Residential Areas The West Village,which is primarily residential, • Incremental improvements that can be imple- The lack of harking is a and the residential areas on either side of New- mented to immediately improve the quality of major issue in the study port Avenue in the Southern Gateway are built life in these neighborhoods,with targeted public area, out and densely populated.Occupancy is at densi- sector acquisition of individual sites for neigh- ties that make potential acquisition for redevelop- borhood parks and plazas to open up views and ment extremely expensive. provide access into these neighborhoods;and During the interviews,the panel heard from a ' Methods to facilitate enhancement of the af- majority of stakeholders that Tustin's affordable fordable housing stock,including expansion of homeownership opportunities,in the short and housing stock is a very important community asset, intermediate term,by both not-for-profit and one that should be maintained and improved.If for-profit private sector developers. maintenance of current affordable housing stock is a priority,the economics of development(as de- To help guide longer-term market-driven develop- scribed in the section on market potential)suggest ment for these areas(as recommended later),the that market-driven private redevelopment of overall community vision should include a com- built-out residential areas in the West Village and prehensive housing policy,laying out a financially Southern Gateway is unlikely to occur in the near feasible plan to ensure the community's workforce or intermediate term.Yet because of the signifi- and affordable housing goals and objectives are at- cant strength of the housing market in Orange tained even if large-scale private sector property County,the potential for large-scale private sector acquisition occurs later. property acquisition for redevelopment of exist- ing affordable housing units with market-rate Commercial Streets and Areas housing cannot be totally discounted,especially in the longer term. Center City and the Newport Avenue corridor present the opportunity for more immediate mar- Accordingly,development strategies to implement ket-driven redevelopment by the private sector. the planning and design framework for built-out The area has recently seen significant investment, residential areas in the West Village and Southern including the Arbor Walk,a 63-unit condominium Gateway focus on the following. development on Newport Avenue in the Southern Tustin,California,June 11-16,2006 21 Gateway that was built in 2005 and quickly sold building type in appropriate locations along major out.Another 93-unit condominium development is thoroughfares in the study area. under construction on El Camino Real in Center City,and a senior housing development on Red Development Opportunities Hill Avenue in Center City is under review. Strong market conditions present Tustin with sig- Many stakeholders mentioned that,when these nificant development opportunities in the study projects were first presented for consideration, area.Although the study area is largely built out they provoked questions about the appropriate- and the economics of development make any proj- ness of their design in advancing Tustin's overall ect difficult,the panel believes that the city has a image.Discussion was hampered because Tustin strong foundation on which to build. had not developed and described a community vi- sion.It was therefore impossible to assess the Old Town design of these projects in terms of effects on One concern raised by many stakeholders regard- the community. ing redevelopment within the study area involves the potential impact of such redevelopment on Old Development strategy recommendations for im- plementing the planning and design framework Town.With its low scale,landscaping,and store- fronts,Old Town retains many of the physical de- for Center City and the Newport Avenue corridor sign characteristics that lend such appeal and charm therefore focus on the following: to a small downtown.At the same time,Old Town • Developing and effectively applying design is almost a museum of itself,bravely attempting guidelines that establish a vision to help guide to preserve the feeling of a bygone day with a mix private sector market-driven development; of retail that is ill suited to bringing in the number of consumers needed to create real economic vital- • Linking the consideration of potential densifica- ity.It is populated with marginal businesses such tion in these portions of the study area to the as antique shops and small specialty boutiques, provision of public benefits in the built-out resi- many of which appear to be operated more as hob- dential areas by using a transfer of development bies than as businesses. rights(TDR)concept;and As a result,it is unlikely that any market-driven • Facilitating appropriate private sector redevel- redevelopment that would occur in the study area opment of significant opportunity sites within would negatively affect the activities that cur- these areas,such as Tustin High School,New- rently occur in Old Town by competing directly port Avenue at its new connection to Edinger with them.Moreover,redeveloping sites that the Avenue,and the I-5/Red Hill Avenue node panel has identified in Center City with higher- through design guidelines and techniques such density residential uses could benefit Old Town as overlay zoning. indirectly by increasing its local base of potential Street corridors such as Red Hill and Newport customers. Avenues are particularly valuable places to con- Nevertheless,the panel believes that Old Town struct mixed-use buildings lining the street fronts. represents such a significantly underperforming In this instance,mixed use refers to individual community asset that a more direct approach is buildings that contain retail or commercial uses also required to fully realize its potential.Accord- on the ground floor,with housing or office space ingly,in addition to the existing Tustin Old Town above.Such buildings are historic urban building Association,the panel recommends that the city types that form a more continuous street wall, support the establishment of an Old Town Busi- helping define the public space of the street.Their ness Improvement District(BID),with the follow- ground-floor uses contribute to the pedestrian ex- ing main functions: perience and add life and vitality to the areas in which they are located.The panel recommends Help retain and assist existing businesses in that the city encourage the construction of this their attempts to succeed; 22 An Advisory Services Pane!Report i • Program events that promote Old Town as a $ destination; • Work with merchants on joint promotion,mar- keting,security,parking,and maintenance; • Recruit new businesses to locate on Main A` Street;and 3` { • Keep Old Town clean and safe. The panel also recommends strengthening the identity of Old Town as the symbolic heart and � '" � ' •�'' • soul of Tustin by extending and supplementing the existing identity program with additional signage, banners,light fixtures,and streetscape elements. The historic residences to the west and north lend substantial character and architectural identity to Old Town.The panel encourages their continued restoration and upkeep by individual residents. Finally,to help maintain Old Town's character as future development activities occur,the panel rec- The fourplex block at the northwest corner of Old Town Tustin is a ommends that the city create and adopt design Newport Avenue and Sycamore has a major civic charming commercial guidelines specific to the character and architec- role to play.As a gateway site and much-needed district that ..,ould benefit ture of Old Town,applying to new construction, open space for recreation programs for the south- from the creation of a remodeling,and changes in the public realm,and central neighborhoods,this site should be pur- business improvement specifying minimum standards for property main- chased as parkland.Planned as both a children's district. tenance. playing field,to be used in conjunction with the Tustin Family and Youth Center located at the in- tersection's northeast corner,and an adult and se- Newport Avenue is a major gateway into Tustin's nior citizen's garden,the proposed parkland would center.With its interchanges with both I-5 and set a strong civic focus and image.The architec- SR-55,it is the major commercial thoroughfare for ture and landscape architecture of all three the South Gateway and Central City.The panel parcels at this intersection should be designed as believes that its commercial importance should be one composition.A 20-foot setback and landscape strengthened. development should be required for all street The area in the vicinity of the SR-55 McFadden perimeters. Avenue exit onto Newport Avenue could accom- The commercial strip between Newport Avenue's modate higher-density,commercial and office de- two freeway entrances contains a wonderful as- velopment because of its high visibility.The exist- sortment of ethnic businesses.Its international ing fourplex buildings along the south side of character should be recognized and enhanced in Sycamore at the southeast corner of Newport future development.A streetscape improvement Avenue could be rezoned under a special perfor- project for the public right-of-way could provide mane zoning classification for medical service unified sidewalks,lighting,signage,and street land uses.In conjunction with the adjoining Tustin trees.A planted,curbed median should be installed Hospital and Medical Center,this site could be de- down the entire length of this commercial strip. veloped into a four-story medical arts building with direct access and parking.Its ground floor Several of the panel's recommendations for Old could house a much-needed walk-in diagnostic Town also apply to Newport Avenue,including care facility. the following: Tustin,California,June 11-16,2006 23 DD D OO Medical Arts O Building x u'o 55 fie, 0 Parking Garage 1 Sycd �Oh N Key _Mixed-Use Housing OFountain The panel's proposed Nei,,-:!port Avenue concept. ` 35 Acres -k F 438 Housing Unite 12.5 Dwellings/Acre Key Park Single-Family Homes _ Proposed land use Ala Triplex Stacked Flats plan, the Tustin High Scnnei Parking site. 24 An Advisory Services Panel Report Condominiums/ Seniors'Housing , • Establishing design guidelines to ensure the compatibility and contributions of new con- New Office struction,remodeling,and changes in the public i3uiiding ���� realm;and ~ 04 • Setting minimum standards for property main- s tenance. Modernized Strip Commercial ! It is also recommended that new height limita- tions and alternate building forms be considered along Newport Avenue,not only to add character " and definition to the streetscape but also to in- crease both the number of potential business and job opportunities and the number of potential O customers. Existing Tustin Sc1hooll the High-Density Center City Condominiums Like many residents of Tustin,the panel sees the 5 Stories high school and elementary school in the Center City as the most significant development opportu- nity within the inner part of the city.The panel recognizes that,in order to generate the funds \ needed to construct the new high school at Tustin Legacy,both school sites must be developed for additional housing at densities exceeding twice fled Hill Avenue, and 1-5 that currently allowed. The Red Hill Avenue and I-5 node in Center City The panel believes that establishing a floor/area is yet another compelling development opportu- ratio(FAR)that will allow the city to enforce its nity.Its visibility and its direct highway access, current standards for open space while limiting coupled with its marginal land uses,make this building height to no more than five stories will node a natural for redevelopment,facilitated by achieve two important objectives: appropriate height and density bonuses as part of a zoning overlay.As in the cases of the school sites • Generate the necessary return on the sale of and the Newport Avenue and SR-55 node,the the property;and panel recommends the consideration of an in- crease to a five-story height limit for development • Set aside a portion of the site for community at the Red Hill Avenue and I-5 node. open space,as required by the current regula- tions that govern redevelopment. In establishing this FAR,the city can ensure that a substantial portion of the school site will serve the public benefit without infringing on the needs of the school system and without severely affect- ing the small-town character of the city.Appropri- ate architectural design will both mitigate the ap- parent height and bulk of the buildings to lend proper scale and include sufficient articulation to achieve compatibility with the architectural char- acter of downtown Tustin. Tustin,California,June 11-16,2006 25 Development and Implementation Strategies 0 wring the interviews,when panel members • Neighborhood planning;and queried citizens about what makes Tustin . Regulatory examination. a great place,most defined their city in terms of its central location,its position public Eagaigement. as a"divided community-both geographically and To establish a consistent community vision,the ethnically,"or its former small-town atmosphere city must begin a process of public engagement where one could find quiet refuge at the end of ei- for all segments of the community.This will not ther a long day or a long life.The city proudly dis- only open lines of communication,in terms of dia- plays its logo,but although it is reminiscent of the logue about future growth,but will also allow the agriculture-based community that defined the city to respond in a timely manner to development original city,it seems an unfit reference to Tustin's opportunities,with the assurance that it has the current position in Orange County.When asked support of its constituents. about a location of contemporary civic space,most respondents were at a loss to articulate any notion To implement a meaningful public process,the of a particular place,event,or vision.Neither did panel recommends that the city create a neigh- they understand what Tustin is or might venture borhood association and community organization to be.This lack of a common vision for Tustin must database,with contact information,by surveying be addressed. the following: y • Mandatory homeowners associations; The apparent apathy or lack of understanding of • Voluntary neighborhood associations;and civic engagement is aggravated by the perception . Community or neighborhood-based organiza- of"staff-heavy"interaction and interception in the tions. public process.This is accompanied by the accu- rate public perception of a fiscally responsible Geographic areas that lack representative bodies government,which contributes to the notion that should also be identified.By maintaining a data- the city operates in the black.To establish a vision base of community representation,the city will for a city that has grown to its current condition be able to make contact efficiently and equitably by responsible governing warrants some holistic with citizens with regard to community planning thought.The many neighborhoods that compose and rezoning efforts,infrastructure development, Tustin are an undefined yet integral component of civic discussion on public policy,and communica- the city and require close examination.Until the tion for public interest,community health,and city is clear on its sense of direction,any stated civic events. resolution to resist growth and development will impede its market position. Given the changing demographics of Tustin,it is imperative that cross-cultural discussions begin. As Tustin proceeds,its vision must be derived The city must recognize that,in its quest to pro- from community input and resultant policy,based vide an opportunity for public involvement,out- on discussion regarding the following: reach must take place in many forms and the • Public engagement; means of communication will often be culturally based.The panel recommends that information • City and neighborhood character; provided to specific segments of the community 26 An Advisory Services Panel Reporl be delivered at a minimum in both English and Spanish.The appropriate venues(churches,health and community centers,grocery stores and com- merce locations)for communication should be de- termined,to make sure the city's message is dis- seminated effectively. n As public involvement from varied sectors of the community begins to transform from a"necessity of last resort"to a"preferred first line of defense," the opportunity for meaningful public discussion on the myriad of issues facing the city will become a transforming element in the perception of and trust in the municipal government.An examina- tion of two critical issues germane to the panel's assignment could be used to begin the civic en- gagement discussion process: Redevelopment of the high school site.The pro- posed relocation of Tustin High School could pro- vide a place for much-needed and desired commu- richness in their diversity of ethnicity,age,and p; e Ir i r pity services and open space.The transformation of the school site will require a significant amount household composition. of public discussion and visioning to determine the Parks.A city contributes to the sustainability of best use for the ro ert .Critical to the trans- p p Y community life by providing recreation and social formation is a clear and open civic engagement services.Parks and open space provide much- process;failing that,the project will face strong needed wholesome activities and contribute to a public opposition. neighborhood's quality of life.Tustin has a great Workforce housing arks system that serves the city well.However, g policy.The commitment to ac- commodate workforce housing,generally accepted the parks in the study area are,in many cases,substandard and could easily be considered to be by most residents,should be established as a pol- icy.This policy can outline and define the pre- contributing to the diminished quality of life for ferred manner and means by which affordable both the youth and the adult populations. housing demands can be incorporated into the Parks and schools are the community facilities city structure without compromising quality of life through which social and recreation services are for any citizen.Any policy of this nature must en- provided by the city.They are provided in response gage all sectors of the municipal and stakeholder to specific population characteristics and include community. teen facilities,daycare,Head Start,health services, City and Neighborhood €haracter counseling,and meeting rooms for the elderly. Tustin is a city of diverse neighborhoods.Most Pedestrian-friendly streets.Sustainable communi- often cited as a positive by residents,neighbor- ties have safe and pedestrian-friendly streets.A hoods are the essence of community life.Neigh- system of interconnected streets with sidewalks is borhoods comprise a number of critical elements; a basic component for encouraging pedestrian ac- their interdependence and interrelationships can tivity.Neighborhood plans should define the de- contribute to their greatness.A neighborhood is sired character of their streets.Special attention more than a collection of buildings and housing should be given to night lighting,so that people parcels.People make up the fabric of a community feel safe when walking.Overly long and dead-end and a diversity of peoples makes a community streets should be eliminated,because city blocks rich.Tustin's west and south sides contain such in a grid pattern are safer than culs-de-sac. Tustin,California,June 11-16,2006 27 i a facility.The Beswick School and adjacent Frontier 1 Park,which also serves as a focal point for the IN LAUNDRY Southern Gateway neighborhood,should continue to serve as such. The neighborhood in the expanded study area north of McFadden Avenue and west of Newport Avenue lacks both open space and community ser- vices.The panel recommends that the city acquire land to develop a new one-acre park that is central to the neighborhood.An unsuccessful shopping center in the neighborhood's northeast corner has vacant retail space in the rear that would make an excellent community center if pedestrian access could be provided for the whole neighborhood. Discussions with the owner could be mutually beneficial:for the city,a long-term,low-cost lease and for the owner,increased traffic and potential customers. The vacant parcel of Schools.Ideally,a neighborhood should have an el- Commercial services.Sustainable communities con- land on the corner oll ementary school in a central location that is within tain diverse commercial and retail services that McFadden Avenue and walking distance for the population that it serves. deliver necessary goods and services to the sur- Tustin Village Way is an Children should be provided with a safe and clean rounding population.The quality of these services excellent location for route of daily travel.Streets to and from schools in the study area varies greatly.The Southern neighborhor'rl si,or, should have wide sidewalks and bike lanes.Street Gateway and City Center neighborhoods have a crossings should be protected and manned. range of retail options along Newport Avenue and are sufficiently served.The West Village is defi- Parks and neighborhood schools,along with safe cient in both commercial and retail services.A su- and clean pedestrian routes,should be structures permarket is needed,and the panel recommends common to all Tustin neighborhoods.New blocks that the city begin negotiations with a major chain of owner-occupied housing around these facilities for the development of an urban market on the va- should be encouraged,because they provide com- cant parcel of land on the corner of Williams and munity stability and vested citizenry.Together, McFadden Avenue.This should be a full-service good schools,well-designed parks,and a perime- store,with a deli,prepared foods,international ter of diverse,owner-occupied homes form a foods,a pharmacy,a bank,and delivery service. neighborhood's sense of place and identity.Each neighborhood possesses a distinct flavor,reflect- Neighborhood Planning ing its social composition. An important result of the neighborhood planning It is essential to provide neighborhood parks and Process will be greater articulation of a commu- their much-needed social and recreation services nity vision,based on the collective vision of indi- in the West Village neighborhood.The panel rec- vidual neighborhood plans.The panel recommends ommends that these be located near Heidermann that the city make a commitment of time and re- School to form a neighborhood center. sources to the development of neighborhood plans for the study area neighborhoods.These plans The Currie Middle School and Jeane Thorman El- must be developed with meaningful community ementary School sites are important to the South- input and must address,at a minimum,the issues ern Gateway neighborhood.They should become a of density,open space,community facilities,trans- focal point for the neighborhood;the open space portation connections,and public safety.Neigh- should become a joint park and school-operated borhoods need to be given an overall framework 28 An Advisory Services Panel Report Proper maintenance, managemient and code enforcement are tools used to deter crime in the numerous alleys in the study area. tt within which they can be expected to produce ment,and chamber communities can actively mar- plans that address these issues. ket the city with a coherent message that captures the desired vision of a future Tbstin.Development Neighborhood plans are essential to establishing opportunities will benefit from a less arbitrary ap- the predictability that developers will demand be- proach to site development and design review,and fore they will become active partners in the trans- this approach will ultimately eliminate the current formation of the study area.Such plans will also piecemeal development. inform the investment decisions of individuals and institutions.Many of them base such decisions on Regulatory Examination: Laid Use Designations the anticipated return on investment.A compre- and Zoning Districts hensive set of neighborhood plans will contribute In its discussions,the panel evaluated the current to the perception that Tbstin is a city with a de- land use designations.It is readily apparent that a fined vision for the future and thus,less invest- disconnect exists between the city's commitment ment risk.City leaders in the municipal,develop- to provide additional housing opportunities and Tustin,California,June 11-16,2006 29 nodes and in other neighborhoods—opportunities that will not only capture desired market share but will do so in the context of TustiWs community development goals. Improve Government Effectiveness The city of Tustin would like the development community to see the city as a"can do"place.To show that the city is open for business,it must ex- amine its processes and interactions with both the private sector and public institutions such as the school district and neighboring communities.The city has demonstrated that it can effectively work with the private sector in the Tustin Legacy proj- ect.However,the redevelopment of neighbor- hoods poses challenges not present in the entitle- ment and development of Tustin Legacy.The desired revitalization of the study area neighbor- t is wt uncommon Of both the land use designations and the zoning hoods will require pursuit of a legal process to the garage units if, t+;e code.To address current development opportu- change land uses and densities. study area to be usp:.i tol nities that would integrate mixed uses,it will be Illegal business or gr;'- necessary to revise land use designations and Entitlement Process It is essential that the city make a serious effort to uses other than their zoning districts. improve its entitlement processes.During the in- The revision of land use designations is essential terviews,the panel confirmed the assumption in to allow for higher residential densities and the ULI assignment brief that planning and pro- mixed-use development.The panel recommends cessing actions needed to be streamlined.Many that the city create a land use designation that in- developers indicated that they would never do a corporates a mix of residential and commercial project in Tustin,given any alternative.Specific uses.The designation must address an increase in problems cited included the following: building height limits to accommodate appropriate p g' densities at defined nodes.The new land use des- e The unpredictability of what the city would ignations should include zoning overlay districts in approve; targeted neighborhoods that address residential and commercial character.Such districts would • Conflicting advice from different city staff need to be approved through a commission. members regarding what the city wants to In addition,consideration should be given to re- see happen; viewing the existing code to allow a form-based e Uncertain timetables for approval; or performance-based code within defined dis- tricts.Such codes would better facilitate both • Costly and tardily delivered requirements from appropriate development and efficient review city staff for development improvements; and permitting. • Excessive parking and open space requirements; By providing opportunities for market-driven de- velopment to occur in the context of established • Increased cost and risk to developers from the policies on land use,zoning,and neighborhood process of combining conceptual and detailed character,the city can actively promote and en- land use approvals and subdivision mapping; able development opportunities both at existing and 30 An Advisory Services Pane!Report • An antidevelopment attitude on the part of key does not appear to have all the tools necessary to city staff members. create better development in the city. Although these are the views that developers often The panel recommends an approval process express toward regulators,the panel believes that grounded in neighborhood planning that will give the consistency of expression and the specificity of developers and neighbors the ability to maximize complaints makes these views more than the nor- the benefits of a development to.the community. mal grumbling one would expect from the devel- This should be thought of as a way to create a win- opment community, win situation. Much of the authority for the entitlement process The new approval process should have the follow- is vested in the community development director. ing objectives: The panel recommends a number of changes in the way business is done,changes that it believes will • Offer an alternative to prescriptive codes; result in a process that is predictable,transparent, . Encourage better design; objective,reliable,and flexible. • Allow a project to be responsive to a site's Predictability.Developers need to be able to un- context; derstand what the entitlement process is,how long it will take,and what steps are required. • Enable flexibility in the application of develop- 11ransparency.All interested parties need to be ment standards;and able to understand decisions as they are made, • Engage citizens and developers early in the and the rationale for decisions needs to be clear. process. Objectivity.Entitlements need to be made accord- The panel recommends that the city offer develop- ing to clear criteria that are based on a foundation ers the option of securing land use entitlements of solid neighborhood planning and design criteria without producing more than a concept plan for a that have been subject to public review and project.As an example,developers should not scrutiny before adoption. have to submit detailed building plans with rezon- ing requests.Furthermore,developers who wish Reliability.Developers need to know that once a to follow the zoning ordinance without a variance decision has been made it will not be overturned or departure from the established standards or reviewed outside established processes.The should be entitled to building permits based solely City Council needs to focus on the adoption of on their submission of plans and supporting docu- plans and policies,not the review and approval of mentation that are consistent with the applicable land use and building entitlements.Those tasks codes.It is likely that few,if any,developers will should be delegated to the Planning Commission. avail themselves of this option,given the opportu- Flexibility.Developers are seeking flexibility nity to improve their project through the new rather than the rigid prescription of land use process.The entitlement process should enable codes,to produce projects that will work better developers to negotiate departures from the land for them and for the communities they serve. use codes in exchange for improvements to their projects. Changes to the entitlement process that produce use of planning Commission these results would be a welcome change for the development community and should make the jobs The panel recommends the use of an independent of city staff easier as well. board such as a planning commission to conduct the entitlement process.The commission should Process Changes review projects brought to the city and guide Tustin's entitlement process for land use approvals them through the predevelopment process.The should be revised.Currently the community de- commission should consist of an architect or other velopment department has broad discretion,but it design professional,a developer,and a neighbor- Tustin,California,June 11-16,2006 31 III hood resident.Business leaders and community • Modify the number of required off-street park- organization representatives are also potential ing spaces within a prescribed range or for a members.Staff support should be provided by the fixed set of criteria;and community development department.Two of the . Reduce required open space in exchange for a primary objectives of this approach are to involve contribution to an open space fund. the community early in a project's design,giving the developer the opportunity to respond to com- Planning commission decisions should be binding munity concerns before spending large sums of on the community development director.Appeals money,and to create the transparency that the should be limited to review of the process and development community believes is missing in the questions related to the authority of the commis- current process. sion to authorize certain departures,not the de- sign judgment decisions of the commission. All planning commission meetings should be open to the public.A typical sequence of events would The commission needs to be professionally staffed start with an initial meeting at which a developer by the community development department,and p adequate training for both the commission and de- resents a concept plan and the commission gives partment staff is essential. early design guidance on a variety of issues.This guidance would be informed by neighborhood plans, After the planning commission has approved a the plans of adjacent and nearby property owners, zoning decision,the developer would submit de- and input from the community.Topics to be re- tailed drawings and,after review,a building per- viewed early in the process include the following: mit would be issued. • Site plans,including vehicular access and off- street parking locations; Tustin must improve its relationships with a num- ber of jurisdictions.They are discussed in order of • Bulk and scale,including setbacks,modulation, importance. and lot coverage; lhstin Unified School District.The city and the • Architectural elements and materials; school district need to work together to resolve key problems.The first task is to establish open • Pedestrian environment;and and honest channels of communication between • Landscaping and the streetscape. the two entities.One way to make this happen is to hold joint regular meetings between school dis- The commission would be able to waive or modify trict board members,the City Council,and key any of these requirements in exchange for im- leaders of both entities.A focus on a common vi- provements to the building's overall design and sion for cooperation between the two entities is appearance. essential. Consideration could also be given to allowing the Other agenda items should include discussion of common problems: commission to • Increase building height within a prescribed en- • Youth issues; velope(i.e.,building height could be increased • Property crime; up to a certain percentage within various zones) with or without an increase in the number of • Before-and after-school activities; units; • Joint use and programming of school buildings • Increase the number of units in a project for af- and playing fields; fordable housing purposes(again within a cer- • The location of any new or rehabilitated elemen- tain range); tary and middle schools; 32 An Advisory Services Panel Report • Open space to accommodate the growth in the city's elected and appointed leaders to syn- school enrollment;and chronize their thinking. • Entitlements needed for the existing Tustin Create a Community Development High and Lambert Elementary Schools site. It will take a commitment of time and effort to Corporation; A Better Tustin CDC make this new approach work,but such communi- In many cities,the city government develops the cation is necessary to address these and other housing policy and the private sector implements pressing issues. that policy.Based on the panel's review,it recom- mends the establishment of a community develop- Santa Ana.A number of issues relating to the ment corporation(CDC),charged with responsi- West Village cannot be resolved without the coop- bility for implementing the city's goals for eration of the city of Santa Ana.Only a coopera- providing affordable housing and neighborhood tive effort of community policing between the two revitalization.The city should continue to be re- police departments for the West Village neighbor- sponsible for making and enforcing public policy hood can address issues such as gang activities regarding neighborhoods and affordable housing, and the pursuit of offenders.Many of the resi- while the private sector would be responsible for dents in this area live in a state of fear. implementation. Other government agencies.The city of Tustin rec- A community development corporation is a ognizes that it is located in an environment where 501(c)(3)nonprofit organization that facilitates the change is rapidly occurring,both within and out- provision and maintenance of affordable housing, side its boundaries.In urbanizing areas such as both for rent and for sale,within a service area. Orange County,it is impossible to avoid the im- The corporation would acquire and rehabilitate pacts of these changes.The panel recommends that the city undertake a"best practices"review multifamily properties within the target area.For of the surrounding communities in order to pre- the purposes of this report,the panel has named pare itself for the changing world in which it is lo- cated.Just as the orange groves are not returning 0rtiit to Orange County,the social and political prob- A board of directors consisting of Tustin resi- lems affecting Tustin are not going away either. dents and area stakeholders should govern the 1ntm-Tustin Prttcpsse CDC.The board should seek to include an ethni- One of the problems identified in the interviews is cally diverse group of development,finance,and that key city staff members and elected officials policy professionals,in addition to local residents. have not necessarily bought into the same vision It is important that the board represent all ele- and plans for the study area neighborhoods.Al- ments of the community. though this is understandable,given the lack of Mission planning for these neighborhoods,it is a core ele- One of the main roles of the CDC will be to pro- ment of the lack of predictability and clarity per- vide homebuyer counseling and training,to facili- ceived by many participants and observers.It is tate new homeownership.The CDC's activities very clear what the city does not want to do(i.e., would enhance the quality of life for all residents. use eminent domain to transfer property from one programs could involve safety and security,beau- party to another,become a public developer),but tification and maintenance,area marketing,eco- it is less clear what the city does want to do. nomic development,job training,educational For any enterprise to be successful,all leaders programming and augmentation,community in- must be on the same page.For Tustin to display a volvement and outreach,and building community "can do"attitude,this is an essential step.Given pride.The building of community pride(and en- the part-time nature of the City Council,it is im- hanced quality of life)would parallel improve- portant that adequate time be set aside to permit meats in the built environment. Tustin,California,June 11-16,2006 33 k vested funds should then be leveraged with philan- thropic,public,and private capital. The diversity of the population in the city is recog- nized as one of Tustin's strongest assets.To main- tain this asset,it is important that the stock of af- fordable housing be maintained.The city may also choose to increase the stock of affordable housing 'g available for homeownership for low-and moder- ate-income families and provide a supply of afford- able housing options for growing families. State law requires that 15 percent of dwelling units in a redevelopment project area be allocated for low-and moderate-income residents.The city also has responsibilities under the Regional Hous- ing Need Allocation process,promulgated by the Southern California Association of Governments, New housing develop- At the outset,the CDC should partner with expe- to meet affordable housing goals citywide. ment in Tustin Legacy is a rienced development entities that have the capac- The city of Tustin has encouraged affordable hous- major component of the ity and financial vigor to accomplish the desired ing development through a program that provides Marine Corps Hia Srati r,n, outcomes within a reasonable timeframe.This soft second mortgages or other subsidies for buy- Tustin e partnership should expand the capacity of the ers and developers.Research has shown that CDC to ensure the sustainability of both itself and these programs have resulted in a minimal num- the developments that result from its activities. ber of new housing units.The panel recommends that the city make affordable housing a major tenet in its comprehensive and master plans.The Initially,the CDC should be staffed with an execu- city should commit to providing incentives for a tive director,a project manager,and an assistant. full range of affordable housing units.These hous- The executive director should be responsible for ing units should consist of single-family stand- organization,administration,and relationship alone units as well as units within_ multiunit struc- building,while the project manager should ensure tures(duplexes,quads,etc.). that production and planning goals are established Local conversations revealed that the Community and met in a timely fashion.Additional staffing Reinvestment Act is significantly underused in will be required as the programmatic business this area.The city should leverage public monies lines are established and as they mature.The and its relationships with financial institutions,in- city should provide office space for the CDC in stitutional investors,developers,and government currently vacant or surplus city offices. to amass the necessary funds,while its public pol- icy decisions serve as incentives.A Better Tustin Funding CDC would also leverage funds to reach its goals The panel recommends that the city of Tustin in- of affordable housing production. vest redevelopment funds and other city resources, The Tustin Legacy project has opened up loca- as available and subject to any statutory limita- tions that could be used to address other impor- tions(because only part of the study area is within tant community facilities and generated the tax redevelopment project areas),in funding initial increment to fund such community needs.Tustin startup,administration,planning,and acquisition Legacy also provides new affordable housing capital costs for A Better Tustin CDC.Any in- stock,including units for both rental and sale. 34 An Advisory Services Panel Report This new affordable housing needs clients for both communal play and rest and relaxation,as well types of units.The city should consider these new as to build community and enhance the quality units as places where current renters in the study of life for residents.They could be used for civic area could transfer to new rentals or to homeown- programming,public gardens,or simply open ership.This"Tustin first"relocation approach green spaces. could assist redevelopment efforts in the study area by requiring no new subsidy and by freeing The panel further recommends that the city part- up rental units in the study area for redevelop- ner with community-based service groups in joint ment or rehabilitation. use agreements for some public facilities,to in- crease the amount and effectiveness of program- Improved Property Management of ming offered to residents. Rental Properties Enhanced Community Services While touring the study area,the panel saw that The city's parks and recreation department pro- many multiunit dwellings need significant im- provement.Crime statistics show that a sizable vides many opportunities for recreation,with number of police calls come from these units. opportunities available for providing additional These same units are overcrowded. programmatic services for youth and seniors res- idents.One of the city's services to children and The panel recommends that the city establish an youth in the study area is the Tustin Family and k'large percentage of incentive program that encourages owners of Youth Center.The center is overcrowded and the housing stock in the these properties to maintain them in better physically landlocked,with little expansion space Study area is in poor condition.Incentives should include financial op- foreseeable at the current location and no out- physical condition and portunities such as grants and rehabilitation door recreational space.It is recommended that in need of returbishirent loans and adjustable basis financing,but the city the city make provisions for a larger Tustin Fam- or replar;ennent. should also strengthen its code enforcement ily and Youth Center in order to expand where violations are persistent.The TEAM its capacity. program,wherein the police department and property owners work toward mutually benefi- The shortage of parks cial solutions,should be expanded. and open space in the study Partly, Opea p e , 'lied UNaza The city of Tustin currently requires 30 percent of a new development area to be open space.Existing developed areas have limited open public spaces. The panel recommends that the city acquire(or cause to be acquired)sites in strategically selected areas for open spaces and parks or plazas for pub- lic activity.The city should identify targeted areas that lack open spaces and use parks and recreation or community development funds to acquire prop- erties to convert to public uses.An alternative ac- quisition approach would be for the city to offer a property owner the opportunity to swap land in the study area for an appropriate parcel in Tustin Legacy.It may also be prudent for the city to use its eminent domain powers to acquire these sites. These open spaces would provide gathering places within neighborhoods.They could be used for Tustin,California,June 11-16,2006 35 t a i File'sustir f`4wilA" i area demands better joint programming of avail- Also,the study area lacks comprehensive com- f able spaces.This improvement should include munity health care.Because of the long-term strengthening relationships with the school dis- public policy implications,the city should address trict for joint use of facilities.Program improve- these health care needs.A potential source of re- i ments could temporarily alleviate some of the ef- sources might be the Federally Qualified Health fects of the overcrowded Family and Youth Center. Centers,which have been used in many cities The city should also look to other service providers across the nation. to enhance the capacity to serve the needs of the study area.Examples might include the Orange Public/Private Farmers ig ftaleoieS County Office on Aging,the Boys and Girls Club, the YMCA,and others.A proper mix of fee ser- To maximize the impact of neighborhood revital- vices and free services should be provided. ization,the production of affordable housing,and t i� The rear portion of the Tustin Freeway Shopping - Center on Newport Avenue is an exceiien. location for a car:munity center. 36 An Advisory Services Panel Report the achievement of community services objectives, The panel further recommends that the city de- the panel recommends that the city work with A velop and pursue a plan to leverage Caltrans high- ` Better Tustin CDC to pull together a full range of way improvement plans with city goals and objec- potential financing mechanisms.The entities to in- tives.The current plans to widen SR-55 and I-5 volve include the private sector,the legislature, will affect the neighboring communities,and the and the city.An organized consortium of funding city should ensure that these effects will be miti- and financing sources will provide capital for oper- gated.These mitigation measures should enhance ating programs as well as projects.This approach the master plan for the neighborhoods affected. will ensure that public funds are leveraged with private sector investment and ensure the long- The city should use a public/private partnership term viability and success of the master plan. approach similar to this recommendation to ad- dress externally generated community impacts, The panel also recommends that the city promote whether they are environmental,traffic and trans- a physical and programmatic connection between portation,demographic,or public policy impacts. Tustin Legacy and the study area.These connec- tions should include vehicular and pedestrian ac- cess.Public transit connectivity should also be added. In the proposed move of Tustin High School to the Tustin Legacy site,students will be forced to create new pathways to get to and from school.These connections could be encouraged to accomplish some of the city's societal goals within the study area. Tustin,California,June 11-16,2006 37 Conclusion he city of Tustin is at a unique moment in its advance private sector market-driven redevelop- history.It has an opportunity to capitalize ment of sites that offer significant opportunity. on a convergence of community needs and And fourth,the city should foster the application strong market dynamics.A strong commu- of a full range of public/private financing mecha- nity visioning process can bring these elements to- nisms to support the creation of new affordable gether to create a location that will foster a sense housing and community revitalization. of place for residents and establish the study area's role within the city and the region. These are not easy tasks;accomplishing them will require strong leadership and cooperation from all The dynamic neighborhoods in the study area involved parties.The city of Tustin must step up offer tremendous opportunities for improved to identify all community stakeholders and bring housing and commercial space.However,if these everyone to the table.The city's leaders will send neighborhoods are to share in the successes of the a strong signal to the development and invest- Orange County real estate market,the city must ment community that they are serious about take a number of actions.First,it is imperative wanting successful neighborhood revitalization that the neighborhoods are stabilized and ready and that the city is"open for business."Although for redevelopment.Second,the city must formu- the panel's recommendations may seem extensive late plans for the study area that reflect the com- and overwhelming,the panel strongly believes munity's needs and desires,to guide private sec- they can be implemented if the city can establish a for development in a way that helps achieve the community vision,set policies that encourage re- community's vision more effectively and effi- vitalization,and streamline the development ap- ciently.Third,the city should create a CDC to proval process. assist in the acquisition and assembly of land for development;encourage property management improvements for existing rental properties;and 38 An Advisory services Panel 8epor About the Panel Richard J. Dishnica site of the former Winterland Auditorium.In addi- tion he was involved in developing three other Panel Chair apartment projects comprising 1,012 units in the Point Richmo�ul,California San Francisco Bay Area.He was responsible for Rick Dishnica is president of the Dishnica Com- obtaining tax-exempt bond financing at lower pany,LLC.The Dishnica Company was formed in floater rates for all of these projects,a new tech- 1999 to pursue Dishnica's individual investment nique for financing apartments in the 1980s.All goals,to develop infill housing,both for sale and these projects were in infill locations.From 1989 for rent,in the Bay Area and to provide real es- to 1993,he also served as the chief financial officer tate consulting services.Current major develop- and chief operating officer of K/W Realty Group,a ment projects include obtaining entitlements for Klingbeil-affiliated company in housing sales.His (1)the final phase of a residential project next role in this company included overseeing the joint to the Lafayette BART station in downtown venture development of 42 subdivisions with more Lafayette(the first phase of 75 apartment units than 4,000 units of housing for sale,most located was successfully completed and leased in 2001) in three major metropolitan markets. and(2)the adaptive reuse and conversion of the San Francisco Armory,a building on the National From 1980 to 1982,Dishnica was a principal of Register of Historic Places located in the Mission Comstock Ventures Limited,a real estate venture District of San Francisco. capital company.From 1978 to 1980 he was vice president of Fox and Carskadon Financial Corpo- Dishnica was an executive vice president and the ration,where he was responsible for the solicita- chief operating officer of American Apartment tion,analysis,negotiation,and management of Communities,a privately held real estate invest- real estate development joint ventures.From ment trust,from 1994 through March 1999,with 1973 to 1978,Dishnica was an assistant vice presi- responsibility for all apartment operations,devel- dent with Union Bank in San Francisco,Califor- opment,and rehabilitation.Until its merger with nia,with responsibility for commercial lending, United Dominion Realty Trust in December 1998, real estate construction lending,and loan work- American Apartment Communities owned and managed directly or through subsidiaries,54 outs.Prior to his employment with Union Bank, apartment communities containing 14,141 units in he served as an officer in the U.S.Navy,achieving nine states(California,Colorado,Florida,Indiana, the rank of lieutenant with assignments in Viet- Kentucky,Michigan,Ohio,Oregon,and Washing- nam and as the officer-in-charge of a minesweeper. ton).The total asset value on the date of the Dishnica received his master's degree in business merger was$787 million.Another portfolio con- administration from the University of Southern taining 4,000 units was retained to continue the California in 1974 and his bachelor of science de- business of American Apartment Communities. gree from Ohio State University in 1968. Dishnica also served as an executive vice presi- Dishnica is a member of the Urban Land Insti- dent of the Klingbeil Company,the predecessor to tute,serves on the Multi-Family Residential American Apartment Communities,with operat- Council as its program vice chair and serves on ing responsibilities for the western United States. the San Francisco District Council Executive He was directly responsible for the development Committee.He is also a member and was a direc- of 304 apartment units in San Francisco on the for of the National Multi Housing Council. Tustin,California,June 11-16,2006 39 I Bay 8rown ten years,he has led the NRCDC in the develop- ment and redevelopment of affordable housing Memphis,Tennessee and commercial real estate projects. Ray Brown offers architectural and urban design Charles holds a bachelor of science degree in civil services as a consultant to Memphis architectural engineering from the Technological Institute(now firms for individual projects.As needed,he pro- vides creativity,skills,experience,knowledge, the McCormick School of Engineering)at North- and ideas in fields of specific expertise the firm western University.He is also a graduate of the may need,such as architectural and urban design, Amos Tuck School at Dartmouth College,with a project direction,and project development.He master of business administration in general man- seeks projects that have the potential to improve agement.Charles is a registered,licensed engi- the quality of life for disadvantaged residents by neer in California,where he worked as an engi- transforming at-risk urban neighborhoods into neer and a real estate consultant for a number of more livable communities. years.He has also held positions with large-scale Brown directed the design and construction of master plan developers,as well as other commu- AutoZone Park in Memphis-America's finest nity-based organizations. minor league baseball park,and a crown jewel in Charles is active in a number of civic community, Memphis's downtown renaissance.As vice presi- and professional activities both locally and nation- dent for development at the Memphis Center City ally.He is president of the Houston chapter of the Commission,Brown set the framework for the National Black MBA Association;a member of downtown urban design plan,facilitated new de- velopment,recruited new businesses,and admin- istered design standards. treasurer of the CDC Association of Greater Houston;president of the Texas Association of For 26 years,Raymond Brown Architects spe- Community Development Corporations;assistant cialized in providing municipal and private clients treasurer of the National Congress for Commu- with architectural and urban design projects,fo- nity Economic Development(cochair of the Bud- cused on downtown redevelopment and planning. get and Finance Committee);a member of the Brown taught architectural design at the Univer- Texas Department of Insurance Economic Devel- sity of Cincinnati and was the downtown planner opment Roundtable;chair of the Third Ward Re- for the city of Dayton.He is a member of the development Council;an Inner-City Adviser for Memphis Habitat for Humanity"Green Hat"con- the Urban Land Institute;and a member of the struction committee.Brown holds a bachelor of Executive Committee for the Urban Land Insti- science degree in architecture from the Univer- tute Houston Council,the Tuck Alumni Advisory sity of Cincinnati. Program,and B1uePrint Houston.Charles is also involved in the Advanced Practitioner Program Pau! 0. Charles through the Hauser Center for Nonprofit Organi- Houston, Texas zations of the Kennedy School of Government at Harvard University.He serves as a mentor and Charles is the executive director of the Neighbor- chaperone to the Leaders of Tomorrow(a mentor- hood Recovery Community Development Corpo- ing program).Charles also has served as national ration(NRCDC)in Houston,Texas.For the past treasurer of the National Society of Black Engineers. 40 An Advisory Services Panel Report 3 Charles has received numerous civic awards,in- California;St.Julien's Creek Naval Annex in cluding Outstanding Young Men of America(three Chesapeake,Virginia;and Lowell,Massachusetts. times)and the Leadership Award from the Ameri- can Legion,and is listed in Who's Who Among Ex nI ecutives and Professionals. Seattle, Washington Victor Karen As deputy executive director,Levine manages Boston,Massachusetts the Seattle Housing Authority's development and asset management programs.Major projects have Karen is director of advisory services for the RF included four HOPE VI redevelopment projects Walsh Company,aBoston-based development and construction management firm that provides including NewHolly,which has received ten major awards,including the HUD-CNU Award for Chang- clients engaged in complex real estate projects ing the Face of America's Public Housing. Chang- with a wide breadth of services from concept de- velopment through construction.As part of RF Working with public,nonprofit,and private part- Walsh's predevelopment planning team,Karen ners,the agency currently has more than 200 focuses on urban projects that require a balance acres in development,including affordable and of public and private interests.His experience in- market-rate rental and ownership housing,retail cludes managing entitlements for the Channel centers,and institutions.When completed,the Center mixed-use project in the Seaport District Authority's four HOPE VI projects will represent adjoining downtown Boston and assisting Beth Is- rael Deaconess Medical Center,in Boston's Long- areal estate investment of well over$1 billion. wood Medical and Academic Area,in creating a The Asset Management Group oversees a real es- partnership with a private developer whereby ex- tate portfolio of more than 7,000 units and is ac- cess medical center property will be developed tively selling and acquiring properties consistent into a biomedical research center. with the agency's strategic plans. Before joining the RF Walsh Company,Karen Levine originally worked for the Seattle Housing was director of real estate development for Mass- Authority from 1971 to 1980 and organized the Development,a state development finance agency, Neighborhood Housing Rehabilitation and the in which capacity he oversaw state involvement Scattered Site Housing Programs.He worked in in reuse planning for a 1,500-acre naval air station a variety of private sector positions,including his that was closed in 1995.Before that,he was deputy own development and consulting business from director of the Boston Redevelopment Authority, 1980 to 1998.In 1998,he returned to the Seattle the city's planning and development agency,where Housing Authority as asset manager,responsible he managed public review and approval of down- for organizing and implementing an asset man- town and waterfront revitalization projects,in- agement program that resulted in new budgeting cluding the 100-acre Charlestown Navy Yard. protocols,staff and agency reorganization,and Karen is a registered architect with bachelor's and the introduction of private sector property man- master's degrees from the Massachusetts Institute agement methods.In 1999,Levine was named of Technology.He served on previous ULI Advi- director of development and,in 2000,deputy exec- sory Panels for Treasure Island in San Francisco, utive director. Tustin,California,June 11-16,2006 41 Levine received his bachelor's degree from Hunter Schnadelbach has designed public spaces and College of the City University of New York and waterfront parks in Trenton,Baltimore,Denver, his master's degree in urban planning from the Boston,New York,Baltimore,Washington,and University of Washington. Philadelphia.He directed more than 350 contracts in executing and coordinating the 1976 American R. Terry Schnadelbach Bicentennial site improvements throughout the historic and central business districts of Philadel- Gainesville,Florida phia.More than 1 million visitors attended that Schnadelbach,professor of landscape architecture July 4th celebration.In Baltimore he was asked to at the College of Planning,Construction,and De- submit designs for a park to complete the cultural sign,at the University of Florida,is former princi- and commercial Inner Harbor development and pal of Schnadelbach Associates(1969-1995).He link that development to the newly built Camden has had major commissions throughout the United Yards baseball stadium,home of the Baltimore States,Europe,Southeast Asia,and the Middle Orioles.He has been the site planner and land- East.He has consulted in London,Paris,Rome, scape architect of the U.S.Open Tennis Facility, Seville,and Berlin to governments,institutions, the largest tennis facility in the world,which st- and private industry. tracts more than 50,000 spectators a day.Located in Flushing,Queens,New York,the facility is con- Schnadelbach earned degrees in architecture at sidered the most urban experience on the Grand Louisiana State University and in landscape ar- Slam circuit. chitecture at the Harvard Graduate School of Design.He was the 1964 and 1965 winner of the In Europe,Schnadelbach has worked extensively American Academy in Rome's coveted Prix de in France,Germany,and Spain.He has been the Rome in landscape architecture.He has received landscape architect for corporate headquarters awards in urban design from the U.S.Depart- and industrial plants,including Centre Thomson, ment of Housing and Urban Development,the Gennevilliers,a national competition won in 1986 Bard Award of the City Club of New York,and and completed in 1988;the new headquarters for design awards from the American Institute of Messier-Bugatti in Villacoublay;the Centre du Architects,the New York State Association of Techniques,EDF/Electro Division de France,in Architects,the American Institute of Steel,the St.Denis;and the GE Medical Division's produc- National Association of Home Builders/Institute tion plant at Buc,ile-de-France.Schnadelbach of Residential Marketing,and the Philip N.Winslow has been commissioned to design a new water- Landscape Design Award of the Parks Council of front for the Saone River,in Lyon.Phase I of a New York City. six-year master plan has just been completed.He designed the Longwy Ferrous Museum and In- Schnadelbach's work has been exhibited at the dustrial Archeology Centre,a Grand Project of Museum of Modern Art,the Whitney Museum, President Frangois Mitterrand;the Plaine de and the Urban Center in New York City,the 1'Est,in Lyon,winning project of an international Nelson Atkins Museum in Kansas City,and the competition;and ecological studies and highway Boston Museum of Fine Arts.He has taught land- alignment selections for Sophie Antipolis,in the scape architecture at the University of Pennsylva- French Silicon Valley near Nice,and for Brest,Fin- nia,the Harvard Graduate School of Design,and istere,Brittany.In Spain,Schnadelbach planned the Rhode Island School of Design.He has also for the cascade entrance between the city of taught environmental design at the Massachusetts Seville and the Expo 92 World's Fair.This plaza Institute of Technology,and real estate develop- was traversed by more than 100,000 visitors daily. ment at the School of Architecture of Columbia University.He has lectured at colleges and uni- Schnadelbach has been a ULI member since 1989 versities throughout the United States,including and has served on numerous Advisory Services Cornell University and the University of Virginia, panels,many specializing in the revitalization of and in France. inner-city neighborhoods.He was a member of the 42 An Advisory Services Pane!Report i panel on the South Central corridor in Los Ange- Services panels for Ft.Meade housing and the les after the 1994 riots.Other panels on inner-city St.Elizabeth hospital site development in Wash- revitalization include those in Fort Wayne,Atlanta, ington,D.C. and Trenton.He teaches studio and conducts lec- tures on urban design at the University of Florida. Christine Vi11a His studio research includes urban districts in Jacksonville,Miami,and Orlando,Florida. San Antonio, Texas Vina,a special projects coordinator for the City of Richard Shields San Antonio Planning Department—Neighborhood Chicago,Illinois and Urban Design Division,works primarily with a diverse range of citizens from inner-city neigh- A principal of Mesa Development,LLC,Shields borhoods,to facilitate the public input process for is a leader in large-scale land and public and pri- both community planning efforts and design stan- vate sector developments.Mesa is a Chicago- dards development.In her six years with the city, based national real estate developer and investor she has developed a zoning overlay program to as- who is committed to developing residential and sist neighborhoods that want to protect neighbor- mixed-use projects in major cities and urban hood character,through an objective review areas.Through exceptional design and site selec- process that uses specific sets of design standards tion,Mesa seeks and delivers"best of market"liv- for each neighborhood.She provides extensive ing choices with a focus on urban living.Sensitive presentation and editorial material for the depart- to social,contextual,and market opportunities, ment and research and analysis on Zoning and Mesa works with leading architects,engineers, Board of Adjustment reviews.She also supervises contractors,and investors to identify,plan,ac- the plan review process for the department's quire,zone,market,and construct developments neighborhood and corridor overlay districts. that have received significant market success and industry praise. Vina is currently in charge of an extensive com- munity plan for the near west side of San Antonio, Major developments Mesa has worked on include most widely known as the true heart of the city's The Heritage at Millennium Park,a 57-story high Mexican American culture.The primary commer- rise,and the Legacy at Millennium Park,a 72- cial corridor through the community was the focus story high rise,both condominiums in the east of one of two recent Advisory Services panels that loop of Chicago;One Market Square,a 29-story the city hosted within a short three-month span. condominium on the former Market Square Arena The ULI report,Avenida Guadalupe,and the revi- site in downtown Indianapolis;and the 1,316-unit talization strategies outlined in the report will be Park Boulevard project,a 30-acre mixed-use, used to organize the community plan and its urban mixed-income development on a former Chicago design component.She was also the lead staff liai- Public Housing Authority site.Other developments son to a second ULI panel visit and report,on the include a large-scale lakefront development on St.Paul Gateway District,for the near east side of former landfill in Milwaukee,Wisconsin,involv- San Antonio,which once was the center of the ing more than 1,500 residential units. African American community and culture. Shields also led the redevelopment of Glenview Prior to her service with the city,she served for Naval Air Station and Fort Sheridan,both in Illi- five years as the executive director of the South- nois,and the 1,089-acre Orlando Naval Training town Mainstreet program,acting as the liaison be- Center in Florida.Shields has served as an ad- tween property owners and the city for a three- viser to the Secretary of the Army on privatiza- corridor area just south of the Central Business tion;to the National Trust for Historic Preserva- District.Southtown is designated as both an offi- tion regarding the preservation of Ford Island at cial national Main Street program and a local Pearl Harbor in Hawaii;and on the ULI Advisory Neighborhood Commercial Revitalization program. Tustin,California,June 11-16,2006 43 Vifia holds a bachelor's degree in architecture from Texas Tech University.She spent ten years in Washington,D.C.,with several architectural, engineering,and interior design firms,and was also the assistant director for Internship Pro- grams for the National Council of Architectural Registration Boards.Prior to returning to Texas, she held a position providing housing market re- search in the multicounty D.C.metro area. 44 An Advisory Services Panel Report CITY OF SAN BERNARDINO MAYOR'S OFFICE INTEROFFICE MEMORANDUM TO: Members of the Common Council FROM: Mayor Patrick Morris SUBJECT: Special Meeting re: Agreement with the Urban Land Institute(ULI) DATE: April 25,2007 CC: City Clerk;City Attorney;City Manager I am calling a special meeting of the Mayor and Common Council/Community Development Commission for this coming Monday,April 30,at 4:00 p.m. in the MIC Room of City Hall. The sole purpose of this meeting is to consider an agreement with the Urban Land Institute(ULI) to develop a concept plan and urban design for the downtown area. With so many major projects underway in the downtown area, including this County's Government Center, it is important that we take a comprehensive look how government and I private uses should intermix and relate to each other. While many downtown studies have been completed through the years, they have not included implementation plans to bring them to i fruition. At the suggestion of Councilmember Neil Derry,I have been in contact with ULI,and I 1 t am recommending that we contract with them to complete this important task. The Urban Land Institute (ULI) is a nonprofit research and education organization whose mission is to promote responsible leadership in the use of land. Through its Advisory Services Program,ULI assembles teams of real estate planning, development, and financing experts who volunteer their time to provide objective advice on addressing challenging land use issues. The multidisciplinary teams assembled by ULI provide communities with an unbiased set of recommendations for strategic actions for moving a community forward. Each panel team is composed of some of the nation's most highly qualified professionals who volunteer their time to j ULI. Several samples of ULI advisory reports are attached for your review. 1 I presented the concept of ULI's work to the County Board of Supervisors today,and asked them to collaborate with us in this visioning process. Following our discussion, the Board unanimously agreed to partner with us. It is clear to me that there is a sense of urgency on the part of the Board of Supervisors to move this ahead quickly. ULI is available to bring a panel of experts to San Bernardino the week of June 23, 2007. However, it is important that they secure appropriate hotel and meeting facilities for their panel team and group meetings as soon as possible. Given that logistical issue, along with the County's need to move forward quickly with their plans,a special Council/Commission meeting warranted to consider a Services Agreement with ULI. The cost for this work will be$115,000, with EDA bearing 50% of the cost ($57,500), and the County reimbursing the Agency for the other 50%of the cost($57,500). Agenda materials for the special meeting will be provided to you by the end of the week. Included in those materials will be more details concerning the ULI work methodology, and the role that various stakeholders will play in that effort. ULI staff will also be on web conference with us at Monday's meeting to make short presentation and answer questions. In the meantime,if you have any questions regarding this effort,please feel free to contact me. Patrick J.Morris Mayor URBAN LAND INSTITUTE PROFESSIONAL SERVICES AGREEMENT (ULI Advisory Services Agreement) This PROFESSIONAL SERVICES AGREEMENT(the"Agreement")is made and entered into as of April 30, 2007, by and between the REDEVELOPMENT AGENCY OF THE CITY OF SAN BERNARDINO (the "Agency, or Sponsor"), a public body, corporate and politic and URBAN LAND INSTITUTE, a non-profit research and education organization (the "Institute"). RECITALS WHEREAS,the Redevelopment Agency of the City of San Bernardino(the"Agency")is a public body, corporate and politic, organized and existing pursuant to the Community Redevelopment Law and its mission is a focused, diversified organization to enhance the quality of life for the citizens of San Bernardino by creating and retaining jobs,eliminating physical and social blight,supporting culture and the arts, developing a balanced mix of quality housing, along with attracting and assisting businesses both independently and through public-private partnerships, including, but not limited, their appropriated planning and land uses; and WHEREAS, the Urban Land Institute ("ULI"), established in 1936, is a non profit organization whose mission is to promote responsible leadership in the use of land in order to enhance a communities environment, and through improved planning and utilization of urban land; and WHEREAS, ULI is able to draw on the expertise of it's more than 35,000 members from 65 countries representing an entire spectrum of land use and real estate development disciplines,including a team of people and expertise that is not available for hire under any other means; and WHEREAS,the Agency and the County of San Bernardino ("County") are jointly sponsoring the retention of ULI to assist the Agency,City of San Bernardino("City")and County in obtaining advice and recommendations from ULI regarding the revitalization and land use strategies for downtown San Bernardino,including,but not limited to,assisting the County in evaluating the county's master space plan for its office needs in the downtown San Bernardino area; and WHEREAS, ULI and the Agency wish to enter into an agreement pursuant to the terms and conditions in the Professional Services Agreement(the"Agreement")attached hereto and incorporated by herein reference. NOW,THEREFORE,in consideration of mutual covenants set forth herein and the mutual benefits to be derived therefrom, the parties agree to enter into the Agreement as follows: 1. TERM. This Agreement shall commence as of the day and year first written above and shall remain in full force and effect through June 30, 2007, or at the conclusion of the Institute's assignment per the attached Scope of Services. 1 P:Wgendas\Agcnda Attachments\Agrmts-Amend 2007\04-30-07 ULI 2007 Professional Services Agreement.doc 2. INSTITUTE'S RESPONSIBILITIES. The Institute shall perform the following services ("Scope of Services")described below and within the times specified herein: 1. The Institute is to provide a panel of persons composed of members of the Institute and others who collectively have a varied and broad experience and knowledge applicable to the particular problems to be considered,including the planning,development and redevelopment of land and the ownership, management and financing of real property. It is the Institute's intent to have the panel of experts led by Bill Hudnut, former Mayor of Indianapolis. 2. The Institute is to arrange for the panel members to visit the location upon which its recommendations are sought for a period of not less than 5 days starting on or about June 24,2007 through June 29, 2007. During that time, the panel, directly and through its staff, will study the designated area, the Central Business District of the City of San Bernardino (Designated Area is primarily defined as 6`h Street on the north,the Metro link/light rail line on the south, Sierra Way on the east, and the I-215 Freeway on the west. The greater downtown area is defined as Baseline Street on the north, Mill Street on the south,Waterman Avenue on the east, and the I-215 Freeway on the west. The designated study area will also help define how the downtown district links to key areas of existing or planned development and activity outside of the greater downtown area such as: San Bernardino International Airport;Hospitality Lane Retail/Office Areas;National Orange Show Events Center/Inland Center Mall; and San Bernardino Santa Fe Depot Train Station/Mt. Vernon Corridor. The panel will consult with public and private officials,representatives of other relevant organizations, and other individuals familiar with the problems involved; and prepare its report, conclusions and recommendations which will be presented to the Agency/Sponsor and its invited guests in oral form at the close of the on-site assignment. Moreover, the Institute's role will be to assist the Agency, City and County in the implementation of the County's master space plan for its office needs in downtown San Bernardino. The Institute will review the County's needs in the context of the City's vision and plans,and make a recommendation for how those needs can be best accommodated. 3. The Institute will provide the Agency with a written report of the study, its conclusions and recommendations.The Sponsor will be furnished 100 copies of the report,including such exhibits as may be necessary to augment the text. The Sponsor will also receive one(1)original of the Report. 4. The Institute will absorb the travel and living expenses of its panel and staff while in San Bernardino. 3. AGENCY RESPONSIBILITIES. The Agency shall provide the Institute with any documentation,records, reports, statistics or other data or information pertinent to the Scope of Services, including,but not limited to,the following: a. Furnish each panel member, not more than 10 days in advance of the panel meeting of June 24, 2007, such pertinent background data in the form of reports,plans, charts, etc., as may be presently available or readily developed for the preliminary study of the panel, prior to its inspect of the 2 P:WgendasWgenda Atlaclnnents�Agrmts-Amend 2007\04-30-07 ULI 2007 Professional Services Agreement.doc designated area. Two (2) copies are to be sent to the ULI Project Manager. Attachment A: is a Sample Briefing Book Outline that the Agency must prepare for the Institute. Attachment B: is an outline of the Agency's Responsibilities for the 5-day panel. b. to arrange,insofar as possible,to have appropriate persons,including public and private officials, ` representatives of the relevant organizations,and others,available for the purpose of consulting with and furnishing information to the panel on specific matters relevant to the assignment as may be necessary and advisable during the period of the panel's visit. 4. CONFIDENTIALITY OF REPORTS. The Institute shall keep confidential all reports, information and data received, prepared or assembled pursuant to performance hereunder. Such information shall not be made available to any person, news release, firm, corporation, or entity without prior written consent of the Executive Director of the Agency or his/her designee. 5. COMPENSATION. In return for the advice and recommendations of the Institute,the Agency shall pay the Institute the total sum of One Hundred Fifteen Thousand Dollars ($115, 000). The first installation of$55,000 will be paid upon signing of this Agreement. The second installment of$55,000 will be paid the week of the on-site panel. The third installment of$5,000 will be paid upon delivery of the final written report to the Agency. In the event the Agency cancels the panel assignment, the initial payment is non-refundable and expenses incurred by the Agency become the responsibility of the Agency. It is understood that the compensation herein paid by the Agency to the Institute, is to be used to cover the costs of the panel assignment and to support and encourage the Institute's scientific and educational programs. 6. USE OF FUNDS. The funds paid to the Institute shall be used solely for the purpose as set forth in this Agreement and in accordance with the Scope of Services. The Institute shall remain in compliance with all state, federal and local laws prior to the receipt of any reimbursement hereunder. 7. NONDISCRIMINATION; MONITORING AND REPORTING WORK PERFORMANCE. The Institute shall not discriminate because of race, color, national origin, creed, religion, sex, marital status, or physical handicap. At the request of the Chairperson or Executive Director of the Agency, or his/her designee, the Institute shall provide reports, graphics, or other work products. Failure to provide such work products may prevent payment of the Institute's requests for compensation,and may justify the temporary withholding as provided herein. The Agency reserves the right to waive such breach,without prejudice to any other of its rights hereunder,upon a finding by the Chairperson or Executive Director of the Agency or his/her designee that such failure was due to extraordinary circumstances and that such breach has been timely cured without prejudice to the Agency. 3 P:\Agendas\Agenda Attachments\Agmts-Amend 2007\04-30-07 ULI 2007 Professional Services Agreement.doc i 8. CONFLICT OF INTEREST. The Institute shall maintain a code or standard of conduct. The Institute shall neither solicit nor accept gratuities, favors, or anything of monetary value for work completed under the Scope of Services. To the extent permissible by state laws,rules and regulations,the standards adopted by the Institute shall provide for penalties, sanctions, or other disciplinary actions to be applied for violations of such standards by the Institute. 9. INDEPENDENT CONTRACTOR. The Institute shall perform each element of the work set forth in the Scope of Services as an independent contractor and shall not be considered an employee of the Agency. This Agreement is by and between the Institute and the Agency,and is not intended,and shall not be construed to create the relationship of agent, servant, employee,partnership,joint venture, or association,between the Agency and the Institute. 10. SUCCESSOR AND ASSIGNMENT. The services as contained herein are to be rendered by the Institute whose name is as appears first above written and said Institute shall not assign nor transfer any interest in this Agreement without the prior written consent of the Agency. 11. INDEMNIFICATION. The Institute agrees to indemnify, defend and save harmless the Agency and the City of San Bernardino (the "City"), its agents, officers and employees from and against all liability, expense, including defense costs and legal fees,and claims for damages of any nature whatsoever,including, but not limited to,bodily injury,death,personal injury or property damage arising from or connected with the Institute's operations, or its services hereunder, including workers' compensation suit, liability or expense, arising from or connected with the services performed by or on behalf of the Institute pursuant to this Agreement. 12. INSURANCE. The Institute shall maintain insurance policies issued by an insurance company or companies authorized to do business in the State of California and must maintain during the term of the policy a "General Policyholder's Rating" of at least A(v), as set forth in the then most current edition of "Best's Insurance Guide," as follows: Automobile Insurance. The Institute shall maintain comprehensive automobile liability insurance of not less than One Million Dollars($1,000,000)combined single limit per occurrence for all vehicles leased or owned by the Institute and used in completing the work required under this Agreement. Comprehensive General Liability and Automobile Insurance. The Institute shall maintain comprehensive general liability and automobile liability insurance with a combined single limit of not less than One Million Dollars ($1,000,000)per occurrence. 4 P:Wgendas\Agenda Attachments\Agrmts-Amend 2007\04-30-07 ULI 2007 Professional Services Agreement.doe Worker's Compensation Insurance. The Institute shall maintain worker's compensation coverage in accordance with California workers' compensation laws for all workers under the Institute's employment performing work under this Agreement. Concurrent with the execution of this Agreement and prior to the commencement of any work by the Institute, the Institute shall deliver to the Agency, certificates evidencing the existence of the insurance coverage required herein, which coverage shall remain in full force and effect continuously throughout the term of this Agreement. Each policy of insurance that the Institute purchases in satisfaction of the insurance requirements of this Agreement shall name the Agency,its officials, officers, employees, attorneys, representatives and agents as additional insured and shall provide that the policy may not be cancelled,terminated or modified,except upon ten(10)days prior written notice to the Agency. 13. COMPLIANCE WITH LAWS. The parties agree to be bound by applicable federal,state,and local laws,regulations and directives as they pertain to the performance of this Agreement. 14. SEVERABILITY. In the event that any provision herein contained is held to be invalid,void or illegal by any court of competent jurisdiction, the same shall be deemed severable from the remainder of this Agreement and shall in no way affect, impair, or invalidate any other provision contained herein. If any such provision shall be deemed invalid due to its scope of breadth, such provision shall be deemed valid to the extent of the scope or breadth permitted by law. 15. INTERPRETATION. No provision of this Agreement is to be interpreted for or against either party because that party or that party's legal representative drafted such provision,but this Agreement is to be construed as if it were drafted by both parties hereto. 16. ENTIRE AGREEMENT. This Agreement supersedes any and all other agreements, either oral or in writing, between the parties hereto with respect to the retention of the Institute by the Agency and contains all the covenants and agreements between the parties with respect to such retention. 17. WAIVER. No breach of any provision hereof can be waived unless in writing. Waiver of any one(1)breach of any provision shall not be deemed to be a waiver of any other breach of the same of any other provision hereof. 5 P:Wgcndas\Agenda Attachments\Agrmts-Amend 2007\04-30-07 ULI 2007 Professional Services Agreement.doc i 18. CONTRACT EVALUATION AND REVIEW. The ongoing assessment and monitoring of this Agreement is the responsibility of the Executive Director of the Agency or his/her designee. 19. TERMINATION. This Agreement may be terminated for the convenience of either party by giving written notice of at least three (3) days. 20. NOTICE. Notices herein shall be presented in person or by certified or registered United States mail, as follows: To Institute: ULI- Urban Land Institute Attn.: Tom Eitler, Director, Advisory Services 1025 Thomas Jefferson Street,NW Washington, DC 20007 1 (202) 624- 7186 To Agency: Redevelopment Agency of the City of San Bernardino Attn.: Maggie Pacheco, Executive Director 201 North"E" Street, Suite 301 San Bernardino, California 92401 Phone: (909) 663-1044 Fax: (909) 663-2294 Nothing in this paragraph shall be construed to prevent the giving of notice by personal service. 22. ENTIRE AGREEMENT. This Agreement constitutes the entire understanding and agreement of the parties. 6 P:\Agendas\Agenda Attachments\Agrmts-Amend 2007\04-30-07 ULI 2007 Professional Services Agreement.doc x IN WITNESS WHEREOF, the parties hereto have caused this Agreement to be executed the day and year first written above. REDEVELOPMENT AGENCY OF THE CITY OF SAN BERNARDINO, a public body, corporate and politic Date: } Patrick J. Morris, Agency Chairman Approved as to Form and Legal Content: By: /S/J .Saba. Agency Counsel ULI- URBAN LAND INSTITUTE, a non-profit research and education organization Date: Cheryl Cummins, President ULI—The Americas Date Marta Goldsmith, VP Community Group Date: Tom Eitler, Director, Advisory Services 7 PAAgendas\Agcnda Attachments\Agrmts-Amend 2007\04-30-07 ULI 2007 Professional Services Agreement.doc EXHIBIT "A" SAMPLE BRIEFING BOOK OUTLINE E i i 1 I 8 SAMPLE BRIEFING BOOK OUTLINE I. Introduction A. Title page B. Table of Contents II. List of sponsors A. List of official sponsors with organizational background information III. The Assignment A. Summary of the problem B. Questions to be addressed by the panel IV. History A. Overview of the history of the study area and environs B. Regional and city economic change and development; major employers; economic trends; effect on the study area C. Metropolitan land use and development patterns; development trends; effect on the study area. Note development of major transportation or other area-wide facilities affecting development in the study area V. Description of the Study Area (as relevant) A. Physical description 1. Location 2. Boundaries, size 3. Land uses within the study area (residential, commercial, industrial, institutional) ; surrounding land uses 4. Topography, vegetation, natural resources, drainage, natural or manmade barriers or development constraints 5. Transportation and access 6. Infrastructure and utilities - availability, location, capacity, condition 7. Vacant land - location, ownership, history 8. Special features, characteristics, and considerations B. Economics of the study area 1. Employment types and trends 2. Major employers a. Location b. Size - Number of jobs c. Types of jobs 3. Unemployment - level and trends 4. Income data (individual and household) Sample Briefing Book Outline Page l 9 C. Demographics 1. Overview of city and study area population trends 2. Population size and distribution within the study area 3. Age distribution (by five-year cohorts), number of households, household size 4. Educational levels 5. Special features, such as university students or public housing residents D. Housing market 1. City market conditions and trends 2. Housing types within the study area - SF, MF, ownership, rental a. Location and number b. Age, condition, occupancy status c. Sales prices or rent levels d. Tenure of occupancy: current estimate and past trends 3. Current and planned residential development 4. Competitive or alternative residential locations E. Commercial development - current conditions and historical trends 1. Retail a. Overview of area-wide retail markets b. Retail development within the study area: 1) location 2) size 3) type 4) tenant mix: goods and services offered 5) parking, access 6) lease rates and terms 7) physical condition 8) economic condition 9) unique competitive strengths or weaknesses c. Competition (nearby commercial areas) - size, type, age, condition, access, tenant mix, level of activity 2. Office (as above, if applicable) 3. Industrial (as above, if applicable) VI. Government A. Federal government activity affecting the study area B. State laws or activity affecting the study area C. County, if applicable: type of government; departments or agencies affecting the area such as police, fire, or health departments; relevant policies, programs, plans and regulations. Sample Briefing Book Outline Page 2 10 D. Local government 1. Type of government--structure; roles and responsibilities 2. Sources of revenue; taxation 3. Current plans affecting the study area, such as comprehensive plans, area plans, school system plans, capital improvement programs, etc. 4. Laws and regulations impacting land use and development in the study area (note any unusual or constraining provisions) 5. Agencies or departments with responsibilities in the study area; relevant local policies and programs (such as inclusionary or subsidized housing programs, economic development programs, school busing requirements, social service programs, etc.) 6. Local political representation: key issues; type and level of interest/activity VII. Private Sector Involvement: Name, location, and, briefly, the history, interests, policies, programs, resources, representation, and activities of each (as relevant) A. Neighborhood associations or community development associations active in or affecting the study area B. Schools, hospitals, churches, etc. within or affecting the study area C.Financial institutions, foundations, major corporations active in or interested in the area D.Business organizations E. Others as appropriate (such as private social service providers) VIII. Interviewee Information A. Name and affiliation of people to be interviewed To include on the resource table: 3 Copies of relevant documents Current, proposed, and recent policies, plans, and regulations affecting the area 3 Maps Location map (within metro area) Land use map of study area Zoning map of study area Aerial photo of study area Base maps Sample Briefing Book Outline Page 3 11 EXHIBIT "B" SPONSOR'S RESPONSIBILITIES FOR 5-DAY PANELS 12 Sponsor's Responsibilities for 5-day Panels • Designate a liaison for the panel. This person serves as the sponsor's representative and main contact, throughout the process, for the ULI Advisory Services staff member responsible for the panel. (Contact information for this person should be noted on the application.) • Prepare briefing book. This is a major task and, once the application is accepted, the sponsor should immediately begin assembling materials. ULI will provide an outline. The briefing book should be sent directly to each panelist, and two books sent to ULI, two weeks prior to the start of the panel. • Schedule the advance trip. This should be planned as soon as the sponsor can arrange for the participation of key people. Advisory Services staff will provide an advance package of items to cover during this visit. (The advance trip generally requires a full day.) Participants may include those who will assist in the preparation for and the support of the panel, as well as key stakeholders in the community invested in the process. The sponsor needs to arrange a tour of the study area and a visit to the hotel/conference facility where the panel will stay. (ULI staff will make the initial hotel contact.) All facets of the panel process will be discussed, including expertise necessary to address the specific issues. During this visit, the assignment is oftentimes refined in collaboration with the sponsor. • Identify local resource people for interviews. The sponsor should schedule these interviews for the panel. Typically, approximately fifty people are interviewed in the course of a day. Interviewees should include members of the business and development community, representatives of key public agencies and community groups, political leaders and others who can provide information and insight to the panel. This list should be included in the briefing book with the name and organization represented. Advisory Services provides a sample letter requesting participation and a matrix to use for scheduling purposes. • Schedule and arrange dinner on Sunday night. The sponsor is asked to make dinner arrangements for the panelists and other key people designated by the sponsor. The only requirement is that the group dines in a private room or setting conducive to informal discussion about the project. ULI may ask the sponsor's permission to include local ULI District Council members. (Their costs will be covered by ULI.) 13 • Arrange and conduct the briefing and tour on Monday. The briefing should expand upon the information in the briefing book. This usually lasts one and one half to two hours. Presenters can expect questions from the panelists. Supplemental resource materials, particularly maps, relevant but not warranted for inclusion in the briefing book, should be made available to the panel. The briefing, typically held in the hotel where the panel is staying, should culminate in a tour of the study area. The sponsor needs to arrange for transportation so that the panel and sponsors can tour in one vehicle. Each panelist should be given a map of the study area for note taking purposes. The sponsor should also arrange for lunch, at which time the final list of interviews can be discussed. Oftentimes, the tour continues after lunch. ■ A reception is usually held late Monday afternoon. This is optional and can be arranged by the sponsor at whatever venue is deemed appropriate. The purpose is to allow people in the community not scheduled for interviews to feel part of the process by being able to informally meet with the panelists. Also included should be those scheduled for interviews as a way of thanking them for their time. Generally, the reception lasts about one and one half hours. It should be noted that this is the only event in which the sponsor pays the costs associated with the panel's participation. (ULI covers the cost of meals for the panelists at all other times.) ■ Assist on Tuesday for interview day. The panel is divided into four teams, typically including market potential, planning and design, development strategies, and implementation. These subject areas should be taken into account when the interviews are scheduled. The interview sessions are, in effect, conversations between the panel members and the local resource person. No particular preparation is required but interviewees may be encouraged to bring relevant data if not included in the briefing the book. Each interview lasts an hour. Interviewees can be grouped and a few sessions may only require a half hour. This can be determined in discussions with ULI staff. Maps of the study area and locational maps should be provided for each of the four interview rooms. The sponsor should have one or two people available to assist ULI staff throughout the day. ■ Wednesday and Thursday are panel workdays. The panel spends this time determining its recommendations for the draft report and preparing for the presentation. It is asked that the sponsor be available to respond to requests for additional information. 14 ■ Friday morning presentation. The sponsor determines location and attendees. Presentation begins a 9:00 AM, generally lasts for 11/2 hours followed by an hour for questions. The panel departs at 11:30 AM. (It should be noted that any press inquiries during the week are directed to the panel chair. If the press is invited to the presentation, the panel chair and other panelists may be available to meet with the press following the presentation.) Checklist • Designate panel liaison. • Assemble the briefing book. • Schedule/conduct advance trip. (Sponsor provides transportation.) • Schedule interviews with key stakeholders. o Send letter (sample provided) to schedule interviews. o Fill-in the matrix (provided). • Send briefing books to panelists and ULI. (Mailing addresses provided.) • Arrange Sunday night dinner. (Determine place and contact invitees.) • Conduct Monday briefing and tour. (Provide transportation for the tour.) • Arrange Monday reception. (Determine place and invitees.) Note this is an optional event. • Assist ULI staff with interviews on Tuesday. • Provide additional information on Wednesday and Thursday, if needed. • Arrange location for Friday morning presentation. (Work with ULI staff on AV needs.) 15 CITY OF SAN BERNARDINO I A1'IR, i+ 4 L 0 MAYOR'S OFFICE INTEROFFICE MEMORANDUM TO: Members of the Common Council FROM: Mayor Patrick Morris SUBJECT: Special Meeting re: Agreement with the Urban Land Institute (ULI) DATE: April 24, 2007 CC: City Clerk. ity Attorney; City Manager I am calling a special meeting of the Mayor and Common Council/Community Development Commission for this coming Monday, April 30, at 4:00 p.m. in the MIC Room of City Hall. The sole purpose of this meeting is to consider an agreement with the Urban Land Institute (ULI) to develop a concept plan and urban design for the downtown area. With so many major projects underway in the downtown area, including this County's Government Center, it is important that we take a comprehensive look how government and private uses should intermix and relate to each other. While many downtown studies have been completed through the years, they have not included implementation plans to bring them to fruition. At the suggestion of Councilmember Neil Derry, I have been in contact with ULI, and I am recommending that we contract with them to complete this important task. The Urban Land Institute (ULI) is a nonprofit research and education organization whose mission is to promote responsible leadership in the use of land. Through its Advisory Services Program, ULI assembles teams of real estate planning, development, and financing experts who volunteer their time to provide objective advice on addressing challenging land use issues. The multidisciplinary teams assembled by ULI provide communities with an unbiased set of recommendations for strategic actions for moving a community forward. Each panel team is composed of some of the nation's most highly qualified professionals who volunteer their time to ULI. Several samples of ULI advisory reports are attached for your review. I presented the concept of ULI's work to the County Board of Supervisors today, and asked them to collaborate with us in this visioning process. Following our discussion, the Board unanimously agreed to partner with us. It is clear to me that there is a sense of urgency on the part of the Board of Supervisors to move this ahead quickly. ULI is available to bring a panel of experts to San Bernardino the week of June 23, 2007. However, it is important that they secure appropriate hotel and meeting facilities for their panel team and group meetings as soon as possible. Given that logistical issue, along with the County's need to move forward quickly with their plans, a special Council/Commission meeting warranted to consider a Services Agreement with ULI. The cost for this work will be $115,000, with EDA bearing 50% of the cost ($57,500), and the County reimbursing the Agency for the other 50% of the cost ($57,500). ONOWNWOft s Agenda materials for the special meeting will be provided to you by the end of the week. Included in those materials will be more details concerning the ULI work methodology, and the role that various stakeholders will play in that effort. ULI staff will also be on web conference with us at Monday's meeting to make short presentation and answer questions. In the meantime, if you have any questions regarding this effort, please feel free to contact me. v Patric�Jo�rris Mayor AN ADVISORY SERVICES PANEL REPORT Springfield . V 0 . . irginia .R s '- •_ c era r Urban land Institute Springfield Virginia Strategies for Revitalization May 21-26,2006 An Advisory Services Panel Report ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 About--UL-1—the Urban Land Institute LI—the Urban Land Institute is a non- resented include developers,builders,property profit research and education organiza- owners,investors,architects,public officials, tion that promotes responsible leadership planners,real estate brokers,appraisers,attor- in the use of land in order to enhance the neys,engineers,financiers,academics,students, total environment. and librarians.ULI relies heavily on the expe- rience of its members.It is through member in- The Institute maintains a membership represent- ing a broad spectrum of interests and sponsors a has been able to set standards of excellence in wide variety of educational programs and forums development practice.The Institute has long been to encourage an open exchange of ideas and shay- recognized as one of America's most respected ing of experience.ULI initiates research that an- and widely quoted sources of objective informa- ticipatesemerging land use trends and issues and tion on urban planning,growth,and development. proposes creative solutions based on that re- search;provides advisory services;and publishes This Advisory Services panel report is intended a wide variety of materials to disseminate infor- to further the objectives of the Institute and to mation on land use and development. make authoritative information generally avail- able to those seeking knowledge in the field of Established in 1936,the Institute today has more urban land use. than 34,000 members and associates from 90 coun- tries,representing the entire spectrum of the land Richard M.Rosan use and development disciplines.Professionals rep- President 02007 by ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 All rights reserved.Reproduction or use of the whole or any part of the contents without written permission of the copy- right holder is prohibited. Cover photo©Virginia Department of Transportation. 2 An Advisory Services Panel Reporl About ULI Advisory Services he goal of ULI's Advisory Services Program pants in ULI's five-day panel assignments are is to bring the finest expertise in the real able to make accurate assessments of a sponsor's estate field to bear on complex land use plan- issues and to provide recommendations in a com- ning and development projects,programs, pressed amount of time. _ and policies.Since 1947 this program has assem- bledwell over 400 ULI-member teams to help A major strength of the program is ULI's unique sponsors find creative,practical solutions for ability to draw on the knowledge and expertise of issues such as downtown redevelopment,land its members,including land developers and own- management strategies,evaluation of develop- ers,public officials,academicians,representatives ment potential,growth management,community of financial institutions,and others.In fulfillment revitalization,brownfields redevelopment,mili- of the mission of the Urban Land Institute,this Advisory Services panel report is intended to tart'base reuse,provision of low-cost and afford- able housing,and asset management strategies, provide objective advice that will promote the re- among other matters.A wide variety of public, sponsible use of land to enhance the environment. private,and nonprofit organizations have con- tracted for ULI's Advisory Services. ULI Program Staff Each panel team is composed of highly qualified William P.Kistler professionals who volunteer their time to ULI. Executive Vice President,Exchange Group They are chosen for their knowledge of the panel Thomas W.Eitler topic and screened to ensure their objectivity. Director,Advisory Services ULI's interdisciplinary panel teams provide a Nicholas Gabel holistic look at development problems.A re- SeniorAssociate,Advisory Services spected ULI member who has previous panel experience chairs each panel. Carmen McCormick Panel Coordinator,Advisory Services The agenda for a five-day panel assignment is in- Yvonne Stanton tensive.It includes an in-depth briefing day com- Administrative Assistant posed of a tour of the site and meetings with spon- sor representatives;a day of hour-long interviews Nancy H.Stewart of typically 50 to 75 key community representa- tives;and two days of formulating recommenda- Laura Glassman,Publications Professionals LLC tions.Many long nights of discussion precede the Manuscript Editor panel's conclusions.On the final day on site,the Betsy VanBuskirk panel makes an oral presentation of its findings Art Director and conclusions to the sponsor.A written report is prepared and published. Martha Loomis Desktop Publishing Specialist/Graphics Because the sponsoring entities are responsible Craig Chapman for significant preparation before the panel's visit, Director,Publishing Operations including sending extensive briefing materials to each member and arranging for the panel to meet with key local community members and stake- holders in the project under consideration,partici- Springfield,Virginia,May 21-26,2006 3 Acknowledgments 0 n behalf of the Urban Land Institute,the Marianne Gardner,Peter Braham,and St.Clair panel would like to thank Fairfax County Williams of the DPZ;Kathy Ichter of the DOT; for inviting it to assist in the redevelopment and Paula Sampson,Harry Swanson,Bob Fields, efforts for Springfield.The panel would like and Bridgett Hill of the HCD.Finally,the panel to thank the Board of Supervisors,the Department would like to thank the more than 80 community of Planning and Zoning(DPZ),and the Fairfax members—including government officials,resi- County Department of Housing and Community dents,business leaders,neighborhood organiza- Development(HCD).The panel sends its thanks tions,and property owners—who volunteered particularly to Supervisor Dana Kauffman,whose their time,thoughts,and experiences during the interest and support for the greater Springfield interview process.Their insights provided valu- area has been exemplary.The panel also extends able information that was critical to the comple- its thanks to Supervisor Elaine McConnell and the tion of the panel's recommendations. other elected and selected officials from Fairfax County who participated in the panel process.The panel wishes to thank Jim Zook,Barbara Byron, 4 An Advisory Services Panel Report Contents ULI Panel and Project Staff 6 Foreword:The Panel's Assignment 7 Market Potential 11 Planning and Design 15 Transportation 22 Implementation 30 Conclusion 40 About the Panel 41 Springfield,Virginia,May 21-26,2006 5 ULI Panel and Project Staff Panel Chair David Plummer&Associates,Inc. David L.Leininger Coral Gables,Florida Chief Financial Officer John Shumway City of Irving Principal Irving,Texas The Concord Group Newport Beach,California Panel Members Ross Tilghman Donald R.Bauer Director Owner/Founder Tilghman Group Bauer Planning and Seattle,Washington Environmental Service,Inc. Irvine,California ULI Project Director Daniel Brents Thomas W.Eitler Consultant Director,Advisory Services Houston,Texas David N.Goss ULI On-Site Coordinator Consultant Carmen McCormick Hertford,North Carolina Panel Coordinator Philip Hughes President Hughes Investments,Inc. Greenville,South Carolina Michael J.Maxwell Managing Partner Maxwell+Partners LLC Miami Shores,Florida David S.Plummer President ti An Advisory Services Panel Report Foreword: The Panel's Assignment he Fairfax County Department of Planning f PENNSYLVANIA --------- and Zoning in conjunction with the Depart- OH o ry MARYLAND h. ment of Housing and Community Develop- B 1L ment asked ULI's Advisory Services Pro- WEST Y,R R,N,A gram to organize a panel of experts that could Fex9 "4 a .F; Manaseaa jw{nyfiel4 help identify redevelopment opportunities and -- identify and address issues of concern regarding f, transportation for the Springfield area.The KENTUCKY e 4� •Rmn ��` panels recommendations consist of a series of Y I R 6 I N I A , physical,organizational,and administrative ac- 1-� New �vews tions to implement a vision for Springfield.The r,rgn,a 5eacb Nc Ik purpose of this ULI panel report is the rebirth of F ------_..__..__ Springfield,Virginia,with an emphasis on creat- TENNESSEE N o R T N C A R O L I N A ing a vibrant,economically viable place with a mix of uses and public plazas where people may enjoy Location map. living,shopping,working,and recreating. MON MERY as Summary of Key Recommendations To help execute this rebirth,the panel has sug- 295 Regional map. gested a series of physical and procedural im- on• ao provements that will allow the Springfield area to 29 2 reach its full economic and civic potential.Key fea- no o D.C. tures of the panel's recommendation include: • A civic strategy of increased awareness and FAIR F 210 and ' action; 123 prin 301 • A new development policy to attract high- WIUiAM quality developments; • A new town plan for the center of Springfield; Background • Better local road connections among all the quadrants of the study area,including a new Springfield is located in northern Virginia at the bridge on Backlick Road over Old Keene Mill juncture of Interstate 95 and the Capital Beltway Road; approximately 20 miles south of Washington,D.C. This area evolved from the early 1950s through • A plan and strategy for nonroad public improve- the mid-to late 1970s with the conversion of green ments;and fields into low-density,single-family residential • A marketing approach that plays to the areas and strip shopping and services.The area strengths of the community and the trends in became a principal crossroads before the construc- the marketplace. tion of 1-95 and the Capital Beltway. Springfield,Virginia,May 21-26,2006 7 The Springfield inter- change dominates the skyline in the study area. i As I-95 and the Capital Beltway evolved in the Bowl because it involves three interstates,has mid-1970s,Springfield's location at the confluence two exits less than a half mile apart,has two un- of these arteries brought development of the connected roads going over or under one of the in- Springfield Mall,which elevated the area from terstates less than a half mile apart,and is further strictly neighborhood and community services to a complicated by the presence of a separate,re- regional shopping center.With the growth of de- versible high-occupancy-vehicle(HOV)lane pass- fense contracting from Fort Belvoir and the Pen- ing through the center of two of the interstates. tagon,Springfield's residential,office,and hotel Major road projects have primarily concentrated market responded to accommodate demand. on moving traffic through Springfield,mostly at The continuing expansion of I-95 and the Capital the expense of local businesses. Beltway eventually turned what had been a posi- A suburb with a somewhat transient population tive condition for growth into a series of trans- and little local culture,what Springfield is and portation detriments for local businesses and how it fits into the larger suburban pattern of property owners.The almost continual construe- Fairfax County is difficult to explain to someone tion of ever more complex interchanges inhibited from outside the area.Military families are preva- new investment and eroded Springfield's tradi- lent in the Springfield area because of its proxim- tional retail and service bases.Governmental solu- ity to nearby Fort Belvoir and the Pentagon. tions seemed to focus on solving present and fu- Springfield is characterized by a strip malls and ture regional traffic issues without considering how those solutions would affect the local neigh- retail plazas,stand-alone restaurants,and car borhood and community retail and service centers, dealerships.Some of them are quite old and have been remodeled repeatedly over the decades be- Springfield is dominated by the over half-billion- cause of their continuing economic viability.A pos- dollar Springfield interchange highway project. itive note is Springfield's considerable popularity The interchange is popularly known as the Mixing for its affordable multiethnic cuisine,including 8 An Advisory Services Panel Report Chinese,Mexican,Afghan,Vietnamese,Thai,and Fort Belvoir Engineer Proving Ground(EPG)- Indian eateries. are less certain and required the panel to make various assumptions based on best available infor- Springfield's emblematic destination point is the mation.The panel's analysis makes clear that Springfield Mall,a large indoor shopping mall.It Springfield needs a serious planning effort and is typical of American shopping malls designed concentrated attention from the Board of Super- andbuilt in the 1970s and remodeled periodically. visors if it is to reach its full economic,commu- . The mall has a variety of stores,along with sev- nity,and civic potential. eral anchors,such as Macy's and JC Penney,two sets of multiplex movie theaters,and a food court. The panel sees the Springfield redevelopment Springfield Mall is particularly popular with teen- area as two distinct zones:a regional center and a agers and the local Hispanic community.In recent town center.The regional center is located east of years,the mall has fallen behind other area malls I-95.Its large blocks of land are owned by a few in aesthetics and,to some degree,reputation. primarily institutional owners and include the shopping mall,office buildings,auto dealers,and The Assignment hotels,as well as big-box retail,multifamily hous- ing,and entertainment uses.The area's draw is The ULI panel met in Springfield for five days to regional in nature with patrons desiring goods and address a series of questions and concerns posed services available from national chains,big boxes, by Fairfax County.Two recent proposals to rede- and large entertainment venues. velop the older parts of Springfield have emerged. The first is the high-rise mixed-use development The town center is the west side of 1-95,located called Midtown Springfield that fronts on I-95 in and around the community shopping area of generally on the location of the existing Spring- Springfield.This area draws patrons from the field Tower and Holiday Inn.The second is the immediate neighborhood and surrounding commu- renovation and rebuilding of the Springfield Mall nity for local goods and services.The large and Bi- as a mixed-use lifestyle center.Although the panel verse ethnic aspect of its shops,food,and restau- encourages most elements of KSI's Midtown rants is perhaps its greatest untapped strength. Springfield development and the redevelopment Because the area is characterized by relatively of the Springfield Mall by Vornado,other potential small parcels owned by a large number of individ- economic drivers—such as the General Services uals,it will not emerge from its chrysalis all at Administration(GSA)site and Base Realignment once,but rather it will evolve over time through a and Closure(BRAG)proposal associated with the series of projects.The panel sees this area emerg- Existing retail in down- town Springfield includes many ethnic businesses. Springfield,Virginia, May 21-26,2006 9 ing as a traditional town center that becomes the retailing—mixing these vibrant ethnic restaurants, heart and soul of the Springfield community. food,and specialty stores with traditional neigh- borhood retailing and personal services.The panel The panel believes that Springfield has the poten- believes that the growing ethnic diversity pre- ; � �� tial to reinvent itself as a distinct place within the sents a special opportunity to create a distinctive Washington metropolitan area and as one of the food-based marketplace,similar to that of Cham- PARKING° area's most affordable and desirable close-in com- blee,Georgia,that would attract customers from ���� .��� munities.Springfield is experiencing an influx of a the local area and ultimately become an excep- 5;0 .�1;pppm higher-income,ethnically diverse population of tional regional draw. east and west Asian and South American immi- T. grants.As the population mix has changed,so too has the nature of neighborhood and community Springfield Plaza provides commuter parking for hundreds of cars. 10 An Advisory Services Panel Report Market Potential he market potential for the Springfield area covering approximately 185 acres.This area is en- is strong.The panel took note of the basic visioned as serving both the town and regional market conditions in northern Virginia,com- centers within Springfield and comprises three pared the Springfield area to similar areas subareas:North Old Keene Mill area,South Old in the region,and has identified some of the trends Keene Mill area,and North Old Franconia area lo- that should be leveraged to realize the economic cated east of the CBC. rebirth of the area. North Old Keene Mill.This area has approximately Regional Context 110 acres and is situated in the northwest section of the CBC,north of Old Keene Mill Road.Ap- With the completion of the massive reconstruction proximately 1.4 million square feet of commercial and expansion of the I-95/495 interchange project, space currently exists in this area,which is best Springfield is receiving new interest from residents described as older surface-parked shopping cen- seeking a shorter commute into Arlington and the ters,stand-alone banks,restaurants,garden District of Columbia,office users with government apartments,and older office buildings.The contracts,and commercial tenants wanting to serve Springdale/Richard Byrd Library is also located the increasing number of military and Department in this area.The development firm KSI is plan- of Defense clients based at Fort Belvoir.In the ning 1.24 million square feet of mixed-use develop- past decade,Springfield was not prepared to take ment on nine acres,with 968,000 square feet of advantage of these emerging business trends,so residential space,or about 800 apartment/condo- retail and office customers went elsewhere in the minium units;87,000 square feet of retail;40,000 metropolitan area.At that time,Springfield lacked square feet of office;a 160-room full-service hotel; good road access,available office space,and prox- and 6,000 square feet of civic uses.(For the pur- imity to clients.These circumstances have changed Poses of this panel report,the ULI panel desig- recently,and the panel believes that the Spring- nated this area as the Northwest Quadrant.) field area is poised to capture much of the south South Old Keene Mill.This area has approximately Fairfax market. 60 acres and lies to the south of Old Keene Mill The study area consists of approximately 586 acres Road along both sides of Backlick Road and characterized primarily by industrial and retail Amherst Avenue.The area has approximately land use.Approximately 18 percent of the total 660,000 square feet of older retail and commercial land area is vacant. space,much of which is automotive related.This area was the most heavily affected by widening The study area has been described by Fairfax and realignment of Old Keene Mill Road,which County generally as separate areas: isolated access to the Springfield Plaza and Bland Avenue retail area.Fairfax County is considering • Springfield Community Business Center(CBC); a 1,000-car parking garage at Amherst and Old • Franconia/Springfield Transit Station;and Keene Mill to replace leased surfaced lots.(The ULI panel designated this area as the Southwest • Engineer Proving Ground. Quadrant.) Community Business Center North Old Franconia.This is the smallest area, The Springfield CBC is located in the northwest with only 15 acres.This quadrant is located west quadrant of the study area,east and west of 1-95, of I-95 between Commercial and Franconia roads Springfield,Virginia,May 21-26,2006 11 0 Quadrant map. U_ Y U C6 s . x sT . ■ Z R ! �r G Northeast - M O eerie M\\\R®ad W Franconia °a saa Southwest Southeast 01,peld Parkway 0 s� .o J and the northbound I-95 on-ramps.The area has present mall size to 2 million square feet.Plans approximately 440,000 square feet of commercial also call for 1 million square feet of office space in space characterized by hotels,a new banquet fa- towers on the edges of the mall;2.8 million square cility,and older single office and retail uses.(The feet,or 2,400 units,of mid-to high-rise residential ULI panel designated this area as the Northeast apartments and condominiums;and a new 300- Quadrant.) room,full-service hotel.When complete,the total Franconia/Springfield Transit Station footage at the mall site will be approximately 4.58 The transit station is divided into the following million square feet.(The ULI panel designated two distinct areas. this area as the Southeast Quadrant.) North transit Station Area.This site is in the geo- South 1lransit Station Area.This site is owned and graphic center of the Springfield Commercial Re- primarily occupied by the General Services Admin- vitalization District at the intersection of Frontier istration(GSA)with a small industrial park and Drive and Franconia Road.Primarily occupied by mid-rise multifamily housing on the fringes.Fair- Springfield Mall,the area has numerous big-box fax County's Comprehensive Plan programs this tenants,including Home Depot,Barnes&Noble, area to accommodate a mix of land uses that,if Circuit City,and Bed Bath&Beyond.The mall is built,would total approximately 1.3 million square slated for a major renovation,repositioning,and feet allocated as follows:1.1 million square feet for the addition of a lifestyle center,offices,residential research/industrial uses,160,000 square feet for uses,and a hotel by its new owner,Vornado Re- hotel/conference center uses,30,000 square feet alty Trust,a multibillion-dollar real estate invest- for office uses,and 10,000 square feet for retail. ment trust.Principally lifestyle oriented,500,000 Other options include an ideal site for a medical- square feet of new retail space will increase the related use.GSA has been reluctant to relocate 12 An Advisory Services Panel Report its facilities to another site,which makes the time- Figure 1 line for eventual redevelopment of this site un- Comparable Mail Property Values known.(The ULI panel designated this area as the GSA site.) Assessed Value/Square Foot Engineer Proving Ground Office . Retail The EPG is separated from the preceding areas Springfield $128 $173 and is situated to the east of the Newington Road/ - - 1-95 interchange.This facility is approximately Tyson's Corner $185 $289 800 acres and is planned to accommodate approxi- Source:Fairfax County Department of Tax Administration, mately 6.1 million square feet,of which 3.5 million UL Panel Briefing Book. square feet is planned for office use.All develop- ment on site,if it occurred,would be strictly for government use and most likely self-contained. side its boundaries.Only 1,800 persons,or 680 The panel felt that the topography and access is- households,live within the study area,with an av- sues would significantly limit the ability to use erage household income of$76,000.Ethnically, portions of the site for new buildings.Completion these households are approximately 50 percent of the Fairfax County Parkway by 2011 was also white,14 percent African American,22 percent questioned by the panel,but again,little informa- Asian,and 14 percent Hispanic. tion was available from the army and its consul- tants at the time this panel was conducted. The demographics of the immediate area indicate that demand is strong and income is growing. What is important to understand is that the GSA With the anticipated growth in population result- site and the EPG account for approximately two- ing from BRAG,incomes will continue to improve. thirds of the gross potential development of the This growth will place pressure on the older hous- total study area.The rest of the potential develop- ing stock,likely increase pricing over time,and ment is to the north in the town and regional cen- will be a driver for increasing multifamily housing ters.Because the county does not control the na- units in the centers and fringes of the new town ture or the timing of the development of the GSA centers. and EPG sites,the panel recommends that the county seek a federal partnership to ensure that Information provided to the panel on Fairfax the infrastructure to accommodate the eventual County property assessments indicates that development of these sites is in place. Springfield Mall declined by 5.5 percent in as- sessed value between 2000 and 2005.The same Competitive Conditions information also indicated that assessments for neighborhood and community retail and service The study area's competitive market area—the uses within the study area declined,but by 10.8 area in which similar areas compete against other percent,nearly double the decline of the mall over market areas—is defined as the Southeast Fairfax the same period.The study indicates that Spring- County market. field Mall is the county's second-largest regional mall in terms of revenues,although assessed prop- Demand in Springfield already exists.It is strong erty values were below market for comparable re- and growing stronger.No question exists that gional malls(Figure 1). Springfield can support higher-quality and more specialized uses.According to the Fairfax County The study also noted that the average value per Tax Increment Financing(TIF)Study,Springfield square foot of in-line retail space at Springfield is one of the most affordable areas within one of Mall does not command rental rates comparable to the wealthiest counties in the nation.Population other Fairfax regional malls.The per foot value of of the study area is not currently a reliable predic- Springfield Mall is$77.47,or 33 percent less than tor,because virtually everyone who uses the the average of three comparable malls in Fairfax study area's retail and other services resides out- County(Figure 2). Springfield,Virginia, May 21-26,2006 13 Figure 2 Competitive large-scale shopping,office parks, Comparable Retail Rental Rates and mixed-use centers are considered the primary competition to Springfield as a whole.Springfield Rent per enjoys the advantage of its location at the conflu- Mu °e Foot ence of major arterials,Metro,and regional train and bus lines.Once considered"far out,"its loca- Springfield Mall $157.48 tion is now"close in."Although Springfield has Tyson's Corner Center $215.69 significant competition from Tyson's Corner,the _._. Dulles area,and even communities farther away, Fair Oaks Mall $200.17 it has benefited from the growth of new centers to Tyson's Corner $289.00 the south and east.Significant new competition is planned in the metropolitan area(Figure 3). Average without Springfield $234.95 The panel considers that the best way to capture Source:Fairfax County Department of Tax Administration, the growing affluent market and change the per- ULI Panel Briefing Book. ception of Springfield is to take what had been seen as problems and turn them into opportuni- Barriers to entry for new regional malls and shop- ties.The half-million cars that daily pass the study area are potential patrons.The large and diverse ping centers are extremely high in the metropoli- ethnic population presents an opportunity to Cre- tan area and have created a significant opportu- ate a shopping district that celebrates and concen- nity for redevelopment of the Springfield Mall by trates these commercial assets into a"marketplace" a well-capitalized owner with vision and experi- that is locally and regionally identifiable;however, ence.By leveraging off the adjacent power cen- the devil is in the details of implementation. ters,offices,hotels,and residential areas and adding additional density,activities,and market segments,the mall's new owners can catalyze the creation of a highly definable and visible regional center.Springfield Mall is not only well located at the intersection of 500,000 daily passing vehicles, but also it can become the shopping locus for the surrounding residents. Figure 3 New Mixed-Use Centers in the Washington, D.C., Area Main Mixed Residential Retail Office Hotel M,gme A",,,s 1�frppt Use (Units) (Square Feet) )Square Feet) Rooms -- -- Madison Crescent 43 yes yes 200 124,000 250,000 120 Potomac Center 95 yes yes 433 650,000 200,000 Lansdowne Town Center 24 yes yes 207 188,000 700,000 --- ..-..-..--------- Falls Church 22 yes yes 400 99,000 200,000 Midtown Springfield 9 yes yes 800 87,000 40,000 160 Source:City Center Update,City of Falls Church, Virginia,September 2005,and Costar Comps Professional,Spring 2006. 14 An Advisory Services Panel Report Planning and Design urrently,Springfield exists as a place-name street,or in lots,and then walk.In either center but not as a place.It is unincorporated and they should be able to stroll down decorated has no recognizable boundaries,no compel- streets and sidewalks laced with benches,distinc- ling history,and little authenticity. tive banners,kiosks,artworks of all kinds,gather- ing places with fountains and water features(the Creating a Sense of Place "springs"of Springfield),and trees—the fine details,spatial quality,and amenities that make Perhaps the most important element to create an places and create distinct identities.The town image that defines Springfield in the minds of pa- center should have a town square as its central trons and the region at large will be a strong iden- gathering place for civic celebrations,festivals, tity that brands Springfield as a special place in and programmed events that enliven it and re- the region.Most northern Virginia communities inforce the sense of Springfield as a distinctive generally have a similar appearance,feature the environment. same design elements,and use the same materi- als.Distinct architectural images are necessary to To be successful as retail locations,each center differentiate the regional center from the town must supply goods and services that are distinct center.Springfield should,as one of its organizing from those the other offers.The regional center principles,create its identity with strong visual should be limited to primarily regional-destination iconography,which the panel calls"by design and goods,services,and entertainment typically avail- with design."The panel encourages the use of new able only from national retailers and service pro- architectural icons and styles,especially for devel- viders.In contrast,the town center should focus opment in the regional center east of I-95.Use of its offerings on neighborhood and community goods more"historical'themes,traditional spatial char- and services typically available only from indepen- acteristics,and materials should be reserved to dent and small mom-and-pop retailers,ethnic food create the form for the town center.Scale,density, establishments,and personal service providers. and form should be the harmonizing elements with The panel sees a particular opportunity for Spring- the surrounding residential areas. field to celebrate its diversity by concentrating its Access plays a key role in both the regional and many ethnic restaurants,food stores,and imported the town centers.The regional center will be specialty goods in the town center.Restaurants and food markets should feature the multiethnic accessed primarily from regional highways and cuisines,styles,groceries,and specialty crafts transit,whereas the town center will be primarily a and goods of the local populace.Sidewalk cafes accessed from surrounding neighborhoods by au- tomobiles,bikes,and pedestrians.Pedestrians and coffee and tea shops as well as quiet bars, have only one opportunity to cross I-95—on Com- galleries showcasing multiethnic arts and crafts, clothing boutiques,and specialty uses—as well merce at the center of Springfield.Pedestrian ac- as hardware stores,plant stores and nurseries, cess,while a goal,should be looked upon as prac- cleaners,and banks that support the neighbor- tical only within each center rather than between hood and community—should line the streets. them.After arrival at either center,a strong Such a concentration of uses would be similar pedestrian orientation is essential to reinforce the to a"Chinatown." look and feel of being in special people places.Al- though most patrons to both centers will likely One of the best examples the panel found to arrive by car,they will park in garages,on the illustrate this idea was the transformation of Springfield,Virginia, May 21-26,2006 15 ( Springfield to become known as a regional place of excellence in which to do business and to host cul- tural gatherings,exhibits,and activities.The con- Fairfax o ference center should not compete with existing businesses but cater to corporate,civic,and cul- tural functions that are communitywide and re- gional in nature.More information about this ap- proach is included in the Implementation section 1 of this report. Both the town and regional centers should contain a variety of for-sale and rental residential products, from upscale condominiums for empty nesters to lofts for young professionals,to multifloor apart- ments and townhomes that appeal to all segments p` of the local and regional market.Ground-level commercial space with living space above will ap- peal to those seeking active urban lifestyles.Be- Pa!� ehsts Dona Bauer a ou Chamblee,Georgia.That community was typified cause the population is aging,accommodation of F,ass Tilwiii iaii o,, the by several strip centers that failed after a large seniors in immediate proximity to the centers '01!r shift in the ethnic makeup of the area.Turning a should be planned.The centers should engage and problem into an opportunity,strip centers evolved embrace people of all cultures,heritages,and ages into a dense concentration of Asian restaurants, to be vital and to enjoy as gathering places. food markets,greengrocers,specialty goods,and If well planned,designed,and executed with de- crafts.Additional information,including strate- tail and high quality,the dynamic mix of uses and gies,demographic trends,and marketing,can be activities can create a heart and soul within an obtained from the ULI InfoPacket Series titled area that historically had no"there,there."All of Ethnic Retail(No.3002,July 2005). this change will take time and require the deter- Both centers must contain a common theme of mined cooperation of government and business. water to reinforce Springfield's image of"springs," Both leadership and certitude that government for which the original community was named.This will get it done in a quick,cooperative manner imagery should also be used in all communications. that transcends political administrations are es- Fountains and water features should be integral sential.With both the public and private sectors to pedestrian environments and visible to cars on investing millions of dollars in building and infra- local streets,the interstate,and public transit.In structure,both sectors should look at the revital- addition to incorporating water as art,Springfield ization as a marriage to which each brings one-half should be known as the only area that integrates of the relationship.Both sectors need to be com- large-scale public art in high-density development mitted to investing in the relationship so that it throughout both publicly and privately developed works well and lasts a long time.The panel hopes spaces.Art in all its forms engages residents and Fairfax County will take a proactive lead with visitors and is an icon of Springfield that lays the generous investment in time,land assembly,and foundation of the community as a place that cher- infrastructure and a new form-based approach to ishes a high-quality lifestyle of beauty and ideas. zoning that achieves excellence with all develop- ment partners by design and with design. A four-star conference center or perhaps a civic center needs to be woven into the community Overview and Context fabric.Such a use will stimulate and support re- development of the business environment to Although community involvement exists with higher-quality offices and hotels that will enable some revitalization efforts,the panel's opinion is 16 An Advisory Services Panel Report that a civic vacuum remains,with little leadership, Branding organization,and participation from either resi- Commercial product branding has evolved over dents or merchants.From a spatial perspective, the last 200 years to a fine art.Everyone knows the development is fragmented,with disparate the Coca-Cola or Nike brand.Community brand- uses and property ownership as well as incom- ing is analogous to product branding as a process plete and incoherent circulation patterns.Devel- of creating the perception in the minds of the pub- opment has no shared architectural vocabulary lic that a product,or in this case the community,is or meaningful skyline and is characterized by a the best to serve a specific need and desires of an prevalence of hard surfaces and a complete lack individual or group.The goal is to evoke instant of visible natural areas and other community recognition of the benefits of the community in amenities,such as water features.Thus,attempts the public eye. to beautify and revitalize the"downtown"with such things as pavers,lighting,and sgnage,al- The branding process must differentiate Spring- though well intentioned,still result in an area field from every other retail concentration in the that continues to be featureless. area.Principles of branding include establishing and identifying the qualities of the community To redress these problems,the panel recommends using an"umbrella"concept.The umbrella con- changes that can unify the area and create a dis- cept establishes the overall feel and recognition tinct and attractive community.These changes in- within a master identity system,but it often in- clude recommendations on governmental struc- eludes districts that are distinct and individual ture,leadership and responsibility,infrastructure, while continuing to reinforce the overall identity. branding and identity,and plan revisions. Each shopping neighborhood should be distinct and allow shoppers to determine where they are Development Objectives but bind them back to the overall theme.Signage, The panel thinks the county has correctly identi- public art,advertising,wayfinding,and public fied the challenges facing this area.The objec- open space should all relate to the umbrella theme. tives that follow are steps needed to address Branding is a specialized and complicated process. those challenges. It cannot be done on a shoestring budget by the • Unify the area. lowest bidder in a field of local advertising com- panies.It requires intense research,artistic apti- • Create a distinct and attractive community. tude,and sustainable funding.It also needs buy-in • Develop coherent community circulation. from the community that is going to use it in the long term.The panel suggests that the county re- search successful branding exercises and then ini- Development Principles and Guidelines tiate and implement the branding development The planning proposals(see Plan Essentials)ad- process. dress how to develop continuity in circulation and Landscaping Design land use throughout the study area.Remaining As noted earlier,the panel saw a complete lack of objectives are to unify the area and create an at- landscaping and water features within the study tractive community environment. area.Also,the paucity of public and private open space,public art,attractive hardscape,and ap- Elements that can be used to create a distinct pealing entry features affected the panel's space identity and unify the disparate properties to perceptions and sense of proportion and scale. create a"sense of place"include(a)branding, The absence of these elements results in a lack of (b)landscaping,(c)wayfinding,(d)visual relation- congruency and a feeling of emptiness and leaves ships,(e)guidelines and controls,(0 public spaces Springfield undefined,so that a visitor cannot eas- and amenities,(g)pedestrian and nonvehicular ily tell if he or she is actually entering or leaving circulation,and(h)infrastructure. Springfield.To address this deficiency,the panel Springfield,Virginia,May 21-26,2006 17 Form-Based Codes Form-based codes address the relationship between building facades and the public realm,the form and mass of buildings in relation to each other, and the scale and types of streets and blocks.The regulations and standards in form- based codes, presented in both diagrams and words,are keyed to a regulating plan that designates the appropriate form and scale (and,therefore,character) cial meaning for Springfield because the panel be- of development rather than distinctions only in land use types.This focus is in lieves visitors have great difficulty finding their contrast to conventional zoning,which addresses the segregation of land use way around the study area. types, permissible property uses,and the control of development intensity People who find themselves in unfamiliar environ- through simple numerical parameters (e.g., FAR,dwellings per acre, height ments need to know where they actually are in the limits, setbacks, parking ratios). Not to be confused with design guidelines or complex,the layout of the complex,and the loca- general statements of policy,form-based codes are regulatory, not advisory. tion of their destination so they can formulate Source:Definition of a Form-Based Code,June 27,2006,Form-Based Codes Institute, their action plans.En route to their chosen desti- www.formbasedcodes.org/definition.html. nations,people are helped or hindered by the building's architecture and signage.The physical environment,including the effect of how users recommends significant physical changes within perceive the wayfinding system,is extremely in- the study area. fluential in determining whether someone identi- fies the location positively and therefore returns Water Features.In addition to encouraging indi- or suggests that others visit the location. vidual private developers to incorporate foun- tains,ponds,and lakes within their developments, Wayfinding is not signage,although signage is an the county should undertake the analysis,plan- important part of wayfinding.Wayfinding strate- ning,and construction of a water features pro- gies should include identity signage,directional gram for public properties for all of Springfield. signage,vehicular and regulatory signage,banner These features should include simple fountains systems,boundary markers,pattern character, and urban streams or basins but could also include and maps.Wayfinding also includes a process of an iconic feature that would draw visitors and visual relationships,use of landmarks,and knowl- help establish the branding identity previously edge of site organization.The county has an excel- mentioned.By way of example,the panel suggests lent opportunity to create a consolidated and Ion- a water feature similar to the Crown Fountain in sistent wayfinding system on both sides of 1-95 by Chicago or the Bellagio fountain in Las Vegas. encouraging land use applicants and property Public Art.Public art should be combined with owners to collaborate on a common theme.Future the water feature program as another method of revitalization efforts,including the public square building identity into Springfield.In numerous at Springfield Plaza and the redevelopment of the cases,municipalities have acquired public art GSA site,can incorporate the same system of through competition processes.All public open wayfinding. spaces and most private open space should include Guidelines and Controls public art.Public art could include elements of off- A fine balance always exists between encouraging site advertising,but,at a minimum,should be in- and requiring good design.The urban design cluded in all entryways and other common public guidelines for Springfield should include a healthy spaces,such as bus stops,crosswalks,and informal mix of building types,architecture,and signage gathering areas.The county should enforce stan- and streetscape elements.The county should im- dards for lighting,colors,and generalized content, mediately undertake a design guideline exercise but an arts forum or arts advisory council specific for Springfield.One way of implementing the to Springfield should determine and establish branding,landscaping,and wayfinding mentioned standards. in previous sections can be through a form-based Wayfinding code.Form-based codes are a method of regulat- Wayfinding is a process during which people must ing development to achieve a specific urban form. solve a variety of problems in architectural and Form-based codes create a predictable public urban spaces that involve both decision making realm by controlling primarily physical form,with (formulating an action plan)and decision execut- a lesser focus on land use,through city or county ing(implementing the plan).Wayfinding has spe- regulations(see box). 18 An Advisory Services Panel Report Although the county has no zoning control over Circulation should be used to activate open space, U.S.government properties,the federal govern- not just as a connection to essential uses.Bike- ment(GSA and army)should be encouraged to co- ways and bike lanes should be part of any new de- operate with the county on design,particularly at velopment,and the new bridge proposed for Back- locations with high visibility,such as the GSA site lick Road should provide convenient connectivity and EPG. between the Northwest and Southwest quad- Public Spaces and Amenities Program rants.Specific areas should be designated for bike A significant piece of the urban and community storage(including lockers)at transit locations,the fabric that is missing from Springfield is public mall,the town square,and all new private devel- open space.The panel recommends a number of opment within the confines of the study area. basic steps to improve public open space in Spring- field.These not only should be quantitative but Plan Essentials also should include all the qualitative aspects that Overall strategies for urban design should make open space the key factor in improving the social intercourse in a community. • Calm and reroute traffic to create pedestrian- First,a town square should be created in the friendly local streets; Northwest Quadrant.This square should be sub- • Incorporate public amenities and open spaces; stantial(approximately one to two acres in size) and should be designed as a primary gathering • Seize opportunities to improve and clarify ve- point as well as terminus or bookend of the new hicular and pedestrian circulation; street connecting Springfield Plaza with the KSI . Create developable land parcels; development.The space must be able to accom- modate events,festivals,and celebrations.The • Improve street and pedestrian connections; square should be designed to accommodate sus- tained activities and should include such amenities • Use tall buildings to create a community skyline as a robust electrical connection system for per- identity; formances and water service for farmers markets, restroom facilities,and a substantial water fea- ' Develop landscaping to soften and humanize the ture.A centerpiece for the square should include area;and a substantial structure,such as a band shell or • Create active streets with community character. bandstand-style gazebo.The square needs to be a "people place."The adjacent development should Although each of the five districts in the study include a relocated and improved library.Uses area will carry its own design criteria,two areas that front on the square should be oriented in a are covered by this panel report. manner that reflects the square as a centerpiece Northwest Quadrant for the quadrant.Finally,new development in the area should be consistent with the intent of the The Northwest Quadrant should unite around public square as the new center of Springfield. two emblematic areas:the KSI Midtown devel- opment and the proposed town square in Spring- Additional public spaces should be located in each field Plaza.The two areas should be connected of the quadrants,including a substantial connec- by a new main street(currently Bland Avenue), tion across Loisdale Road from Springfield Mall. and a new bridge for Backlick Road over Keene Pedestrian and Nonvehicular Circulation Mill Road should be paired with the existing Key features of a successful pedestrian system are bridge over Amherst Avenue to form a couplet moving one-way traffic through the core area of continuity,sufficient sidewalk width,through the quadrant. streets,safety,and lighting.Where appropriate, separation should be provided between heavy The Midtown development should be dense and traffic corridors and pedestrian thoroughfares. urban and should transition along a new main Springfield,Virginia,May 21-26,2006 19 1 I i I qua 5 uare :`. o ter, � r '` � Suggested design for the Northwest Quadrant. � y t� 3 " Midtown tj r 5pringfield New brill e - s - over Old Keene Mill Road t2o — �-o � a !1L_, street to the more villagelike town square.The di- bility factor across Amherst Avenue and Backlick viding line between urban and village should be Road along Bland Avenue.Finally,Bland Avenue the AmherstBacklick couplet road.The scale and should be renamed with a more exhilarating and style of the town square should re-create a village stimulating moniker. or old town with abundant green space,water fea- Southeast Quadrant tures,and a connection through the old shopping center area to the Cumberland Avenue area and Vornado is proposing to reinvent Springfield Mall. single-family residential area beyond.Uses Although the panel was impressed with most of around the town square should include 14-to 16- the development changes proposed by Vornado, foot-tall ground-floor retail,second-floor office or more could be done to connect the site with the residential,and at least one civic use—such as the nearby commercial properties on Loisdale Road relocated public library,a band shell/gazebo,or a and more could be done on site to make the mall community center.The main street connection to work better.While the Vornado proposal will act midtown should include abundant green space, as a catalyst to other properties in the area rede- wide sidewalks,and retail uses.KSI's Midtown velop,the county—through its previously men- Springfield proposal should include significant tioned branding,landscaping,and wayfinding ini- street-level activity.The panel believes the main tiative—should strengthen the boundary markers challenge to creating this new space is the walka- and entranceways with green space and civic art. 20 An Advisory Services Panel Report Additionally,a new civic center,or alternatively a conference center,should be considered for the of- fice area across from the mall on Loisdale Road.A common complaint of suburban communities is that residents,schools,and employers often have -- to host their events(graduations,tournaments, A t annual banquets,corporate meetings)outside the 5 community because of lack of appropriate facilities within the community.Most hotels are reluctant to construct meeting facilities that exceed 10,000 , to 20,000 square feet of such space.Private entre- preneurs are similarly reluctant to offer such facilities. a o o° 5prin0Held Mall A properly designed and operated community civic complex,containing 50,000 to 100,000 square e feet of space capable of accommodating events at- tended by 6,000 to 8,000 individuals,can be a tremendous asset for a community.If the architec- ' _ ture is distinguished and if the facility is properly located so it is integrated with other public and commercial facilities,the community complex can be a source of continuing pride and use to a com- munity.Although it would serve community inter- r ests,especially on the weekends,it would also be capable of accommodating a wide variety of busi- ness groups and association meetings.An inter- esting architectural design,with well-conceived facilities and access to interesting experiences (town centers,lifestyle retail,and visitor attrac- Suggested design for the tions)can be a compelling and sufficient reason Southeast Quadrant. for meeting planners to consider holding one-to three-day meetings in Springfield.These meet- �� Office buildings along Loisdale Road ings offer additional opportunities to showcase provide both redevelopment and Springfield in a new and different manner.This rehabilitation opportunities. community complex should be considered in addi- tion and complementary to the existing banquet facility in the Northeast Quadrant. The panel believes that such a complex is appro- priate for Springfield.Although costly to con- struct and operate,the concept should be dis- cussed and debated.Such facilities are reemerging as a market niche.Some are being paired with ad- jacent hotels,and cross-management operating agreements are negotiated for operations of the complex. Springfield,Virginia, May 21-26,2006 21 1 � Transportation ransportation is normally a component of local streets,such as Loisdale,Franconia,and Old the planning and design recommendations in Keene Mill roads.Another forthcoming project most ULI Advisory Services panel reports. will connect Franconia/Springfield Parkway to Springfield,however,presents so many sig- 1-95 to and from the north.This connection will nificant transportation challenges that the panel allow some traffic now using Franconia/Old Keene felt strongly that transportation should stand Mill and Backlick roads to shift farther south, alone as a major topic. using 1-95 and reducing through traffic in the core commercial area. Context The panel's transportation specialists agree that Springfield has contributed greatly to improving they would customarily plan a transportation sys- regional transportation by accommodating major tem to support proposed land uses.Roads,paths, highway and transit facilities.As a result,its resi- and transit can be quite flexible in adapting to dents and businesses benefit from a high level of specific land use requirements. In some cases, access to other parts of Fairfax County,northern however—and Springfield is one of them—a Virginia,and the District of Columbia.However, basic transportation network needs to be defined the scale of transportation infrastructure over- in advance to foster better-quality redevelop- whelms portions of the local community.As the ment.A large percentage of development in Fair- early highway crossroads expanded,they con- fax County has been fairly low density,involving sumed land used by small-scale commercial devel- new construction on greenfield sites.However, redevelopment in Springfield will undoubtedly be opments,severed existing connections between denser and more urban because of its location as neighborhoods,blocked potential connections,and a transportation hub,market demands,and exist- grew to become the dominant image of Spring- ing physical and land use constraints.Thus,even field.Springfield also suffered traffic congestion without knowing the specific land uses,the county as it funneled traffic to 1-95 on local streets such needs to create a more efficient and effective as Backlick Road as alternate routes to reach the transportation network. I-495 Beltway. Springfield has shouldered more than its fair bur- Large interchanges,complex ramp systems,high den for the sake of regional transportation.Al- volumes of traffic,and fragmented streets create though not without benefit,the regional improve- substantial barriers to movement within the com- ments have come at a high cost to building and munity,especially for pedestrians and bicycles.Al- rebuilding the local community.The panel's trans- though Springfield enjoys a high level of transit portation recommendations address ways of cap- service from Metro and Virginia Railway Express turing the benefits while also overcoming the im- (VRE)and their supporting bus routes,the trans- posed burdens. portation barriers complicate access to the Metro- rail station. The panel made a number of observations con- cerning the existing transportation network in Ongoing transportation projects are helping to im- the study area.Within the study area—with few prove highway operations.These in turn will ben- exceptions—area streets function as highways, efit local streets.The Springfield interchange major arterials,or driveways.Little difference ex- project,nearing completion,has already improved ists in terms of speed,design(width,landscaping, traffic flow on I-95 and has reduced backups on and lighting),or volume to distinguish one street 22 An Advisory Services Panel Report The Franconia/Springfield Metro station is a multi- modal transit center with passenger rail, Metro, bus,and vanpool service. from another.Grade-separated and high-volume Auto dealerships line the roadways create major barriers in the middle of Amherst Avenue corridor. the community:I-95 sharply divides the east and west portions;Franconia Road's"great wall" separates the north from the middle;and the Franconia/Springfield Parkway seals off the mid- dle from the south(and the Metro station).Pedes- trian walkways are remote,sparse,and intimidat- ing.Many barriers are simply unwalkable.Bicycle paths and routes do not exist in many key areas. Drivers face many decisions about lane choice in order to navigate from east to west and from north to south.Discontinuous streets force multiple turns (the AmherstBacklick transition from one-way to they create a poor image.They can and should be two-way flow is an example). better. On those streets that are continuous,name The panel was fascinated with the commuter changes diminish their continuity(Franconia/Old °'slug"process,a quasi-formal carpool system op- Keene Mill,or Loisdale/Commerce).This system erating throughout most of the Washington,D.C., complicates signage and creates confusion.With area.The slug system allows drivers to take ad- the exception of the Amherst Bridge,streets, vantage of the HOV lanes by picking up"slugs," walls,overpasses,and stations are harsh,barren, or passengers,in an ad hoc fashion.This process and unattractive.Given their dominant presence, has been operating successfully in Springfield for Springfield,Virginia,May 21-26,2006 23 i i Commuters crossing a term,as the study area develops,the county will dangerous section of Old . , need to revisit this possibility,especially south of Keene Mill Road on their the Franconia-Springfield Parkway near EPG. way to the"slug" line. Because of the heavy use of the Metrorail system ------- in peak periods,the Washington Metropolitan Area Transit Authority(WMATA)should seri- ously consider adding more Springfield-related commuter bus service to maximize the areawide advantages associated with the existing HOV net- work serving the community.The quality of VRE commuter-rail service to and from the study area could be vastly improved if a dedicated rail right- of-way could be acquired from CSX and property more than 30 years.Although the slug concept is was available for a new station site. well accepted and effective in encouraging HOV use within Springfield,the lack of control of Transportation Principles pedestrian movements across arterial streets be- tween official park-ride facilities and unofficial Given its observations,the panel recommends slug pickup sites creates a major safety issue. these principles guide development of the transportation system: tem: The current plan to build a commuter parking fa- cility on the south side of Old Keene Mill Road is a ' Create a hierarchy of streets to serve both local very sound idea that the panel encourages.The and regional trips,using all modes of travel. "level of service"rankings of the major arterial . Increase continuity and connectivity of local streets within the study area,especially in peak streets. periods,are generally poor—typically E or F.Be- cause major changes in this street network are • Maximize opportunities for HOV and non- generally physically impossible or difficult to auto use. achieve and the study area will become more urban in the future,the county will have to contin- ' Provide signage to improve wayfinding and uously manage this situation to support desired local identity. new development initiatives.The Metrorail sta- . Focus on appropriate services for identified tion is the study area's most important transporta- transit markets. tion facility/opportunity and its use must be con- tinuously promoted and encouraged. • Improve appearance of transportation facilities (roads and transit)—they can and should be at- The growth of the interstate highway network in the tractive features. study area has had serious negative development- related effects over the past decade.However,with Furthermore,Metrorail and VRE service are the completion of the Springfield interchange proj- important for residents heading out of,and for ect,Fairfax County must take maximum advan- employees heading into,Springfield.Such ser- tage of the improved operation of the interstate vice is also important for hotel guests with busi- system to attract new residents and to market ness in Washington,D.C.,according to local hotel aggressively the new Springfield brand/image to operators.Metro's regional experience shows interstate users. that in suburban areas such as Springfield,resi- dential land use tends to make the greatest use The panel evaluated several bridge-crossing op- of transit—more so than offices. tions for I-95 to accommodate improved east-west circulation.The panel concluded that while such Achieving high levels of rail use among residents crossings were not a high priority in the short requires that housing be located within one-half 24 An Advisory Services Panel Report mile of the station,and preferably within one- tions on Amherst,creating even longer backups quarter mile.Similarly,offices must be located than occur today. within a short walk(or shuttle ride)of the sta- tion to achieve 10 percent or more transit use. The one-way scheme may provoke controversy in Pedestrian walks linking nearby development principle,but the seriousness of the quadrant's with transit stations should be ample,convenient, traffic circulation problems warrants its careful and safe.Locations farther away can be expected examination.Accordingly,the panel recommends to attain lower transit use,assuming reasonable that the county undertake local traffic modeling to bus connections. determine potential demands more precisely and to test the recommendations.This model should In addition to proximity to transit,paid parking at the worksite is frequently a major determinant of provide sufficient detail on local streets to provide transit use.Where parking costs more than tran- meaningful results.The recommended"couplet" of one-way bridges would also serve the following sit fares,transit use tends to be high,and where parking costs less than fares or is free,transit use purposes: is low. • Increase connectivity between the Northwest and Southwest quadrants; Travel Demand from New Development • Add needed capacity without having to widen The Springfield Mall and Midtown projects pro- streets; posed for Springfield could create 1 million square feet of new office space,more than 500,000 square • Increase continuity on Amherst and Backlick, feet of new retail,160 new hotel rooms,and 3,200 which are already one-way streets north of the new housing units.Market opportunities appear study area,eliminating the forced turns at strong for additional mixed-use development.On Cumberland Ave; the basis of these projections,the panel recom- mends the following for transportation. • Reduce turning conflicts and simplify signal timing—this in turn reduces wait time for Northwest Quadrant pedestrians(e.g.,pedestrians often wait more This quadrant contains several key arterial road- than two minutes to cross Amherst today);and ways,as well as a confusing local roadway network that needs to be modified to serve new develop- • Offer two bike lanes connecting north and ments.The recent enhancements to Commerce south. Street as part of the Springfield interchange proj- ect will help facilitate the movement of morning The estimated cost of this project is$5 million to peak traffic to 1-495 North from Old Keene Mill/ $6 million in 2006 dollars. Franconia Road.Commerce Street also provides Additionally,the panel recommends a new grid of high-quality loop road operation on the northern local streets to serve the Northwest Quadrant. edge of the quadrant. These new streets would: The panel's major recommendation is to build a • getter distribute traffic from arterial streets to second bridge over Old Keene Mill Road on Back- lick Road and for Backlick and Amherst to oper- local streets to reach new homes,shops,and of- ate as one-way streets through the commercial fices,helping to separate through traffic from area.Although aone-way system has been a poor local traffic; solution in many communities,the panel believes • Create enhanced pedestrian circulation; that the Northwest Quadrant will need additional street capacity to support potential development. • Support mixed-use development by creating Without extra connections,too much demand is more-accessible vehicular and pedestrian likely to be concentrated at one or two intersec- routes;and Springfield,Virginia,May 21-26,2006 25 i The GSA warehouse is strategically located adja- cent to the Metro station. • Enhance transit access by giving shuttle/circu- Southeast Quadrant lator buses greater proximity to the sources of The transportation system enhancements in the demand in homes and offices. Southeast Quadrant are primarily focused on im- proving the local arterial street system to provide Southwest Quadrant more of a grid pattern and better direct connec- Transportation improvements proposed in the tions between the peripheral areas surrounding Southwest Quadrant are similar to those proposed Springfield Mall and the mall.The bulk of the spe- for the Northwest Quadrant,including continua- cific roadway improvements should be finalized tion of the one-way bridge-couplet operation to as the new mall area is revitalized.However,as the current point of intersection of Amherst Ave- part of this revitalization process,making ade- nue and Backlick Road,south of Old Keene Mill quate provisions for facilitating improved pedes- Road,and modifications to the local street net- trian,bicycle,and shuttle/circulator bus circula- work to improve east-west traffic flows within the tion is important. quadrant.The major change will require moving GSA Site the Springfield United Methodist Church parking The transportation-related opportunities associ- lot from the west side to the east side of the build- ated with this site are directly related to its prox- ing and purchasing some commercial properties imity to the Metrorail[VRE facility;however,the along Amherst Avenue. current difficulty in accessing the facility from a security and environmental perspective limits fu- In addition,the panel recommends providing the ture use potential.Hence,the provision of high- proposed commuter garage on the Circuit City quality vehicular(auto/shuttle bus),pedestrian, site,with applicable access considerations. and bicycle connections to GSA and the Metro 26 An Advisory Services Panel Report must be given priority.This connection can be ronmental issues within the parkway right-of- provided primarily by extending Frontier Drive way have been resolved. south to the Loop Road within the transit facility site.This connection,most likely afour-lane di- • Extension of Metrorail.To maximize the usage vided roadway,will have to be designed to prop- of Metrorail by EPG employees,the panel rec- erly cross the existing stormwater retention area. ommends that the Metrorail system be ex- In addition,separated pedestrian and bicycle ac- tended south,in the existing railroad right-of- In should be provided on this roadway way,to an area adjacent to Fairfax County extension. Parkway.The inclusion of a parking garage with at least a 5,000-space capacity,which will also As the Frontier Drive extension enters the serve commuters coming from the south and Metrorail/VRE station area,a short portion of going to other locations in the region,would be the existing roadway will have to be converted appropriate.The panel recognizes that this from a one-way to a two-way operation;additional process is a complicated regional project and right-of-way appears adequate to accommodate this will hinge on the final plans proposed by the enhancement.In addition,a traffic signal will need U.S.Army. to be placed at a T-intersection with the Metrorail loop roadway to accommodate left turns to the ' Shuttle-bus service.The various entities to be Metrorail/VRE facility.No Frontier Road trips located within the EPG need to develop apro- should be routed through this critical Metrorail/ gram to collectively provide shuttle-bus service VRE internal road system. between the new Metrorail station and applica- ble buildings within the EPG. The missing section of the planned Loop Road on the GSA site should be completed as soon as possi- AreaWide Public Transit ble.As the proposed site development occurs,the Recommendations capacity of this Loop Road will have to be in- creased(probably to four lanes)to accommodate The panel makes the following recommendations the resulting increased vehicular traffic. with respect to transit. Short Term:Shuttle/Circulation Bus Services Engineer Proving Ground Currently,WMATA,Fairfax County,and the When the scale and scope of the EPG program as Transportation Association of Greater Springfield a result of BRAC is known,the following trans- provide relatively extensive collector and shuttle- portation initiatives should be undertaken: bus services within the Springfield study area.As new developments are built within the study area, • Completion of Fairfax County Parkway.Cur- Fairfax County will have to evaluate how these rent plans for the design of the remaining two- services should be modified to better serve new mile section of the Fairfax County Parkway and markets that will be generated by these develop- proposed interchange(s)with EPG will need to ments.At some point,these modifications will re- be revisited to adequately reflect the new esti- quire additions to current bus fleets.Hence,ade- mated volumes of vehicles to be generated. quate lead time will be required to make sure These estimates should assume that approxi- funds are available to purchase the necessary mately 15 percent of the employees will use equipment and provide the additional services. public transit.In addition,assuming that the Suggested areawide shuttle/circulation services number of projected employees will be quite include the following: high—up to 18,000—at least two entrances to EPG should be provided,one off Backlick Road • Between Southeast Quadrant and Metrorail and the other directly connected to the park- station.Within the quadrant,adequate bus way.Construction of the remaining parkway stops need to be provided to serve mall patrons section should begin as soon as the current envi- as well as new office and residential complexes. Springfield,Virginia, May 21-26,2006 27 A separate shuttle service should be considered design should be developed for this circulator con- to serve existing and proposed developments cept as part of the Station Area Vision Plan Scope east of Frontier Road,south of Spring Mall of Services for the Franconia/Springfield Metro- Road,and west of Loisdale Road. rail Station recently proposed by WMATA. • Between Northwest Quadrant mixed-use facili- To facilitate high-quality service,these circulators ties and the Metrorail station.Service is needed should operate in an exclusive right-of-way to here primarily during peak rush periods,and avoid being delayed by the extensive surface traf- between the Northwest Quadrant and the mall fic within the study area.The proposed Phase 1 during midday periods. circulator alignment would link the Metrorail sta- • Between the GSA site and the Metrorail station, tion with the Southeast Quadrant,primarily the using the proposed new Frontier Road exten- mall.The panel recommends,at a minimum,that sion.In the early years,this service would pri- the circulator must be in the Center Road align- marily serve the community college and exist- ment.Moreover,the panel strongly recommends ing residential developments.However,as the that no additional commuter parking be provided development vision for this GSA site becomes within the Southeast Quadrant as part of the cir- reality,the level of service will need to be in- culator concept.The primary objective of the cir- creased substantially to serve new residential culator is to make this quadrant a major destina- and office-related markets. tion attraction for transit users as well as to For a circulator bus system to work properly,the provide high-quality access to Metrorail for future quadrant residents. system should include the following characteristics: • Short,reliable service headways that match The proposed Phase 2 circulator alignment would Metrorail schedules for those shuttles serving link the Metrorail station with the GSA site when Metrorail station; this site achieves a critical mass of residential and the Metrorail office development. • Smaller vehicles with easy access and that are more maneuverable than standard transit At this time,the panel does not envision that de- buses; mand would be sufficient to justify a circulator ex- tension to the Northwest Quadrant.Nevertheless, • Free fares; this situation should be continuously monitored as • Frequent stops; the various proposed developments in this quad- rant are completed. • Well-maintained vehicles; • Friendly and polite drivers;and Areawide Roadway Recommendations • No outside advertising on buses. The following areawide roadway enhancements need to be initiated as soon as possible to ensure Because of the unknown nature of the EPG,this acceptable future levels of service on study area potential market should be continuously evalu- roadways: ated by the Fairfax County Department of Trans- portation. • Commerce Street exit ramp to 1-495 North.This improvement is scheduled to be completed by Long Term:Springfield Bus Circulator summer 2006 as part of the Springfield Inter- To maximize public transit use to,from,and change project. within the Springfield study area and to provide premium circulator bus service,the panel recom- • Franconia-Springfield Parkway single- mends that exclusive bus lanes be considered for occupancy-vehicle ramps to I-95.Final design the Southeast Quadrant and GSA site street net- for these ramps has been completed,and when works.As a first step,a sketch-level preliminary constructed,should relieve traffic flows on 28 An Advisory Services Panel Report north-south arterial streets in the study area— manage the increased traffic volumes that will especially Backlick Road. be generated by the development initiatives • Widening of Loisdale Road north of the Fairfax recommended by the panel. County Parkway.As the EPG and south transit preawide Pedestrian/Bicycle area sites develop,the two-lane portion of Loisdale Road north of the parkway will need Circulation Recommendations to be widened to four lanes to accommodate in- As stated previously,the majority of enhanced creased traffic volumes. pedestrian circulation opportunities are within the • Extension of Frontier Drive south to intersec- various development districts.The complex na- tion with Loisdale Road north of the Fairfax ture of the arterial street network and the rela- County Parkway.The alignment of this exten- tively long distances between districts preclude sion would be parallel to the existing railroad an effective areawide pedestrian circulation net- right-of way and may require the acquisition of work.Wherever possible,however,high-quality additional right-of-way.However,the proposed pedestrian accommodations need to be provided south transit station area development scenario or enhanced between the Metrorail station and will require this new north-south arterial road- the Southeast Quadrant and the GSA site. way to accommodate projected traffic growth. Recommended bicycle network improvements in- • More park-ride facilities.To reduce growing clude the following: peak-period traffic volumes in the study area, • Striping bike lanes on Amherst/Backlick roads additional park-ride facilities to serve commuter (reconfiguration of traffic lanes will create room buses and car/van pools should be provided for bike lanes); wherever possible.The proposed new park-ride facility on Backlick Road,north of the fire sta- • Reviewing opportunities to restripe other arte- tion,is a good example and should be con- rial streets to include bike lanes;and structed as soon as possible. • Including bike lanes on new arterial streets • Enhanced directional signage.The roadway wherever possible. network within the study area is very complex The transportation improvements outlined here and especially confusing to visitors.Hence,the are based on the panel's expertise and the best panel strongly recommends that Fairfax County available information obtained by the panel in undertake a comprehensive program to design summer 2006.The cost of such regional improve- and implement special directional signage,using ments should be borne by the federal government a new study area logo,to inform people of de- in conjunction with BRAC actions. sired travel paths to major attractions within the area. • Transportation demand management(TDM). Fairfax County needs to continue to give high i priority to an effective TDM program to help I Springfield,Virginia,May 21-26,2006 29 Implementation pringfield has the opportunity to signifi- • A visioning process to create a master plan for cantly improve its future and to better con- future growth; trol planning for its destiny;however,the county must first take appropriate steps to ' A marketing strategy;and implement a coordinated strategy to achieve the . A major investment in nonroad public improve- high-quality developments that Springfield desires. ments such as landscaping,open space creation, Springfield began as a suburban,postwar bed- public art,and pedestrian connections. room community benefiting from its proximity to Washington,D.C.,and nearby military and gov- Civic Leadership Issues ernmental institutions.Over the years,Spring- Civic leadership happens in a variety of ways,but field has been significantly affected in a negative it often revolves around one entity that can act as manner by the continued expansion of the Wash- the primary advocate for the community.The civic ington metropolitan area and its need for wider leadership for Springfield should be an active and through roads and highways that serve the contin- visible organization that can use its influence to uing population growth to the south.Although persuade both the private and public sectors to co- high-quality developments are scattered through- operate in a common plan for the rebirth of the out the greater region,the older residential and community. commercial developments at the main intersec- tions in Springfield seem to have prevented any create a Dedicated Community Governance significant new developments from locating there Structure and improving the tax base,as well as rejuvenat- Over the course of the interview and information- ing the community. gathering process,the panel became aware that no organization or full-time staff is dedicated to Because of its great location with multiple trans- the development and redevelopment of the portation options,Springfield is now on the verge Springfield community.Although any number of of a development renaissance.How this renewal is agencies,organizations,and individuals are in- managed will affect not only the immediate future volved in the affairs of Springfield,it is not the of Springfield,but perhaps more important,man- priority of any one group or person. agement of the first major new redevelopments Springfield is not an incorporated city,and as only will directly affect the type and quality of future one modest-sized bedroom community of many developments.The increasing demand to locate in within Fairfax County,the area is hindered by the Springfield is best demonstrated by the current lack of a sense of local"ownership"and the result- interest in two major redevelopments,the KSI ing civic pride commonly found in other similar- project and the mall project.To properly address sized communities.In terms of both public and the many aspects of this great opportunity,the private ownership,well-established leadership panel recommends that Fairfax County initiate: and"city elders"solely focused on the betterment • A civic strategy of increased leadership,aware- of Springfield are clearly lacking.No mayor,no ness,and action; staff,and no major private or corporate benefac- tors are in place to constantly focus on the issues • A new development policy to capture high- of improving Springfield.This situation needs quality developments; to change. 30 An Advisory Services Panel Report The absence of a local government entity,with a Implement a Community Action Plan to Promote mayor and city council and the associated local Civic Pride services,such as libraries,parks and recreation, Civic pride for the citizens of Springfield in gen- police,fire protection,planning and zoning,build- eral can be improved by having local civic groups ing inspection,convention and visitors bureau, and commercial organizations implement a series and so on,has created a clear void of community- of relatively simple policies and programs,includ- based organizations and citizen volunteers.The ing the following: usual mix of advisory boards supporting parks,li- braries,convention and visitors bureau,planning, • Rediscover Springfield's history and celebrate and even school board is simply not available.Par- its past.Do this often and consistently(at ticipation on such boards and committees allows a Springfield Days,school initiatives,merchant community to benefit from the input of a broad contests,and special events). base of community leaders and build a solid base . Identify a logo or symbol that reflects Spring- of individuals dedicated to the interests of the field.Use it often and everywhere. local community.Essentially,these community or- ganizations are a training ground for future lead- • Nurture and recognize citizen benefactors for ers and community advocates and a community support of civic projects.Seek out new projects suffers a great void if they do not exist at all.As a for civic improvement annually. consequence,a local area is left to rely on ad hoc community initiatives and a variety of nonap- • Create common communitywide improve- pointed and sometimes nonsanctioned individuals ments.These could include a flower box pro- to assume the mantle of leadership.The results of gram for commercial shop windows and facade such an environment are at best uneven and occa- improvement programs.(The Interservice Club sionally problematic. Council may coordinate new ideas.) The panel recognizes the difficulty of addressing • Establish a local,effective programming plan this sensitive issue of civic pride and leadership to support special events.In addition to Spring- and intends to focus on the future and the positive field Days,consider adding special events such benefits these solutions will bring instead of re- as a July 4 celebration and fireworks,Christmas flecting on or guessing why it occurred.The panel Parade,Cinco de Mayo celebration,high school understands incorporation as a city,and the re- graduations,and a series of special events sulting increased taxes,is not a favorable sce- unique to Springfield. nario,especially because the area is already a "donor"community,paying in more taxes than are • Establish performance guidelines and review returned for community improvements.Although for new improvements.This will create a sense incorporation as a city typically generates numer- of pride in new developments.These improve- ous leadership opportunities and civic pride,other ments could include attractive,iconic architec- ways exist to foster leadership in Springfield that tural design on high-rise buildings;fountains will hasten and facilitate improved economic de- placed throughout the redevelopment area;uni- velopment. form"cool"lighting standards;specially de- signed transit and maintenance vehicles;and The panel encourages Fairfax County to give improved"welcome"monument and signage. some careful consideration to this problem.Sev- eral of the recommendations in the panel's report • Develop civic facilities that inspire citizens' address aspects of the issue.Perhaps the imple- sense of pride.Such facilities could include an mentation of each of them will,in the aggregate, iconic water feature to reflect"SPRINGfield"in resolve the matter.(Community Development Au- a highly visible location,a new library with out- thorities,or CDAs,however,are typically not ex- standing architectural attraction,or a new civic pected to be the vehicle that provides overall com- building with special architectural features visi- munity direction and governance.) ble to all. Springfield,Virginia,May 21-26,2006 31 Establish a"Leadership Springfield" Program An appropriate development initiative for Spring- In addition,the panel recommends Springfield field will capture its share of the future waves of consider implementing a special program designed development that spread out from Washington specifically to mold future leaders.Given the ap- and that have often passed over or around Spring- parent absence of leadership development struc- field in the past.Many redevelopment possibilities tures within the Springfield community,another exist because of the older style of development type of community-based organization may be re- that makes up a large part of the central district. quired to directly address leadership develop- Aging strip centers close to major intersections ment.A common program seen in many commu- have created seas of asphalt that have much nities is a leadership orientation program.It is higher and better uses today.Springfield should commonly sponsored by the local chamber of com- enact a development plan to implement a best merce,but not necessarily.Emerging leaders practices policy so it can now capture cutting-edge within the community are invited to participate in developments that embody the best planning and a yearlong series of meetings and events that in- architectural ideas.If implemented properly,this clude sessions with the county executives and pro- civic-minded focus will help improve Springfield gram directors,discussions with corporate execu- to a new level of desirability,well ahead of its sis- tives whose firms have a presence in the local ter communities in the area,and revitalize the community,meetings with real estate developers community as well as preserve and improve prop- and bankers investing in the local area,and orien- erty values. tation sessions with local arts and cultural organi- Consider Appropriate Corporate Structure zations and local advocacy groups.In the current instance,specific sessions with key military and An organizational structure that would appear es- government agencies with a major presence in the Pecially appropriate is a Community Development local area would be included. Authority.The entity would most likely be funded through the CDA vehicle.Under Virginia law, The mere fact that the panel is suggesting a Lead- legal authority exists for such an entity,and ership Springfield program is instructive.Given precedent exists within the state for using that the absence of a local city government structure authority.Guidelines for forming such an entity that organically allows local leadership to emerge, are clearly outlined within the legislation.A CDA such a program takes on greater importance. is an independent legal entity with a separately constituted board of directors and a dedicated Economic Development Strategy funding source. As an unfortunate consequence of the inherent The panel has been advised that most of the bene- structure of local governance in Virginia,limited fits of a tax increment financing arrangement can county and state resources for community im- be achieved through a CDA,while avoiding some provement are spread thin over a large and grow- of the limitations of a TIF.Most notably,a CDA ing area,perhaps favoring other communities with can issue debt that does not become a full-faith- higher profiles than Springfield's.Fairfax County and-credit obligation of the issuing government, provides caring politicians and concerned staff therefore not reducing general government debt who understandably must spend their time and ef- capacity.The panel was further advised that the fort in many other places.Unintentionally,Spring- bond market is increasingly comfortable with CDA I field has missed opportunities in the past to better bonds,thus reducing the cost of issuance and the position itself to take advantage of various plan- recurring cost caused by interest rate differentials ning and development opportunities.The panel between such bonds and general obligation debt. recommends the establishment of a new commu- Moreover,the CDA is apparently capable of con- nity development strategy focused specifically on structing programs of work and terms and condi- Springfield with a qualified individual to lead this tions of financing and repayment that are flexible new initiative. and adapted to the specific needs of the project. 82 An Advisory Services Panel Report A properly constituted entity,with a good board Funds from the CDA should be geared toward of directors and proper funding,that has a good one specific improvement.These improvements local government contractual arrangement with include the new bridge over Old Keene Mill Road; Fairfax County,is most likely to provide a devel- the new Town Square and the supporting pedes- opment management platform that can be sus- trian system;and the landscape,hardscape,and tained through the critical early years of the wayfinding systems to link the revitalizations i initiative. together. Without regard to the actual amount of project Begin a Visioning Process to Create a funds that would be administered by the CDA,the Master Plan independent legal status of the entity will prove As observed repeatedly,Springfield has a partic- useful to the board and the development director ular history mired by an overgrowth of roads,but in addressing program stakeholders,including the it may soon reemerge with the fulfillment of pro- county,the private developers,the local property posed projects and the potential for many other owners,and the local area residents.Clarity of high-quality new developments.Visioning the purpose and specification of distinct geographic future and creating a detailed master plan are boundaries will make clear the mission of the en- necessary. tity and the subjects it can appropriately address. No open greenfields are available near the trans- The CDA will become an obvious and easily acces- portation hubs—where new development wants sible forum for the development community to to locate—to accommodate free-flowing mega- seek out in regard to Springfield development developments.These areas have long been de- matters.Because of the current local leadership veloped,and the general vision now is entirely on vacuum,the CDA may need to assume a promi- redevelopment of older areas.The panel under- nent role in leadership development. stands Springfield's often-subdivided landscape has created the necessity for potential developers In addition,the CDA might need to serve as the or- to spend years trying to accumulate the sizable ganization vehicle through which a true community- tract that a major development requires today. based visioning process is undertaken and the re- Developers must plan a large endeavor to justify sults implemented.Again,given the absence of the time,trouble,and expense of working through local community governance structures,the need these obstacles.The land must be accumulated at for developing a clear and contemporary vision for extremely high costs,plus holding costs,and the Springfield is immediate. risks taken are without any certainty that zoning, proffering,and permitting will allow for an eco- The CDA should approach the development op- nomically successful project.And all this prepara- tion time and expense is in addition to the very a master developer.In other words,the entity real market risks of another 9/11,an economic should evaluate the specific development oppor- downturn,and the potential of general overbuild- tunities associated with various areas of the local ing in this market area. market,such as the Northwest Quadrant,the Springfield Mall area,the GSA site,and the EPG. A sense of urgency should prevail.Much has been The CDA should approach individual developers written lately of the fall of the condominium mar- who possess the background and qualifications ket,and office demand is weakening nationwide. needed and establish ongoing relationships to gen- Remaining an older bedroom community was not erate awareness,interest,and ultimate invest- the desire of anyone interviewed.Nor did the ment in these areas.The economic incentives and panel find additional big-box retail as the main de- other inducements the CDA has available(public/ sire of the people it interviewed.Mixed-use devel- private projects,direct development funding, opments were often mentioned as highly desirable grants)should be presented to these groups and and seem to be the product of choice of those in- continually updated and modified to address the terviewed,and the panel fully concurs.The issue changing situation within the marketplace. of small available parcel size and lack of inventory Springfield,Virginia,May 21-26,2006 33 emerges as a significant impediment to high-quality delivered as an example of its best ideas as to how mixed-use projects.Such projects typically need the community may consider planning its future. several acres of land to create the critical mass The panel recognizes working with existing own- and scale that justifies a decision to begin con- ers to implement any plan is important,and not all struction.To help create the greatest potential for will be pleased or cooperative,but this process is attracting these desired projects,the panel recom- the reality of change.Frequent,direct,and honest mends Springfield consider revisiting its existing communications among all parties will greatly redevelopment plan with the objective of creating help this challenging process. more fertile ground for sizable mixed-use projects to locate in the areas most beneficial to redevelop- Externally,the master plan will be a valuable tool ing Springfield. in the work to seek out and attract superior devel- opments and win them over to a revitalized com- The community must come together as a whole munity with sites ready for development in a sup- to decide and agree on its common vision for the portive environment.The fact that this ULI future,and then those concepts can be accurately advisory panel has been convened in Springfield reflected in the master plan.The visioning pro- demonstrates the strong desire to do more than cess must be well publicized and all-inclusive. just sit and wait for the next developer to knock After everyone has had an opportunity to under- on the door with any plan in hand.Springfield can stand the process and been afforded the chance form its own master plan and create the market- to be heard in this visioning process,then the mas- ing materials and support personnel to execute a ter plan can emerge to reflect the desires of the proactive strategy in planning,marketing,and community. funding. The panel wishes to emphasize that although As important as having the correct physical char- mixed-use development would be its professional acteristics in each new project is,creating the cor- recommendation,this decision lies entirely within rect process and procedures to make it all possible the purview of the local community residents and is equally important.To help create and imple- their elected officials.It is their community and ment much-needed new procedures,the panel rec- their decision alone.After the panel's interviews ommends Springfield initiate a model program to with more than 80 people,the panel has proceeded successfully implement the objectives. on the basis that high-quality mixed-use develop- ments are desirable in Springfield,and its proposed Recruit a Full-Time Development Team master plan generally reflects that assumption. for Springfield As has been previously noted,the Springfield This special community has special needs.With a community does not have a dedicated develop- good master plan to guide it and the appropriate ment professional or team focused exclusively on professionals to assist it,Springfield has the economic and community development initiatives chance literally to shape its own future.It will in the Springfield area.Given the level of develop- need to be bold in adhering to its plan.If it decides ment activity under consideration and given the to work toward attracting mixed-use projects,as- sembling underused properties to create a mar- scope of development that is likely to ultimately ketable site will require strong leadership.A rede- occur at the EPG and GSA sites,an abundance of velopment plan in any built-out community is work needs to be overseen by an accomplished de- expected to encounter some tough choices,and velopment professional and a small but effective pressing forward may be hard at times.Often the support staff. desirability and success of the finished develop- The charge for this position is relatively straight- ment is in direct proportion to the difficulty of the forward.The individual needs to be planning preparation beforehand.The panel en- courages Springfield to hang tough in the hard • The development"point person"for the Spring- times and keep focused on the overall goal.The field community,serving as the liaison among panel's suggested master plan is conceptual and the public and private sector agencies and indi- 34 An Advisory Services Panel Report viduals that are actively pursuing development understand the entire development process from projects in the area; the private sector viewpoint and be ready and ca- pable of assisting the developer through every • The"go-to person"for accurate,timely,and rel- governmental approval process quickly and re- evant development information on the local sponsively.This go-to person must be,in essence, market,including good maps,information on "Springfield's developer,"acting on the behalf of discrete market segments(residential for sale, multifamily rental,office,retail,and hospital- Springfield while assisting the developer's project ity),ownership data,and access to robust Geo- to reach timely completion.His or her knowledge graphic Information Systems(GIS)capabilities; and competencies should include the following: • The promoter and advocate of strategic devel- • Must personally know details of each potential opment opportunities within the community; land site,with ownership,survey,topography, and pricing,and relevant purchase information,and must market this knowledge effectively to high- • The manager of the economic incentive process quality-oriented local,regional,national,and in- for the area,including structuring and negotiat- ternational developers. ing economic incentive offers,overseeing pro- grams such as a CDA and securing and distrib- • Must know access issues,utility capacities, uting bond financing secured under its auspices, telecommunications,and all general infrastruc- and facilitating developer incentive applications ture information and assist with letters of con- to county agencies. firmation to developers from all service providers and government entities(in the event Although the charge is not difficult to understand, any service is not available,must assist in ob- the performance of the duties is by no means easy, taining it or finding a suitable alternative). nor is it easy to recruit the appropriate person with the necessary qualifications—especially be- • Must be empowered and actively help create cause of the high level of access this position needs high-quality sites for development or redevel- to function effectively. opment in accordance with an approved master The individual in the position must be known to plan,including land assembly of underused,va- have easy access and the"ear of'elected officials, cant,or closed properties.Specifically,with pro- senior real estate development executives,archi- fessional help,a master plan must be estab- tects,engineers,planners,and commercial bro- lished for the entire redevelopment area, kers.This level of access suggests someone who identifying those parcels that are underused or has been in the general area for some period of vacant.This person must assist in efforts to ac- time,who has a high level of credibility,and who is cumulate the property to create attractive de- nonthreatening to appointed staff. velopment sites.Once cleared,if an immediate opportunity is not in the pipeline,a site may be Establishing such a role is even more important used on an interim basis for shared ride or slug because of the current absence of a broad base of parking until an appropriate project materializes. local development leadership.Given the various audiences this position must address,placing the • Must know all requirements and provide one- position within a to-be-established independent stop information permitting with all forms and development corporation,such as the CDA previ- schedules for zoning and complete construction ously described,is an appropriate consideration. review and approval. Attract High-Quality Developers • Must create and provide a simplified flow-sheet Springfield's point person must recognize that the diagram showing zoning review,architectural real estate developer is the"client"as Springfield review,and approval process.Although all pro- seeks out the best potential opportunities to im- cedures should have a rapid turnaround,highly prove its future.In this regard,this person must desirable projects—such as qualified mixed-use Springfield,Virginia, May 21-26,2006 35 projects—may justify a faster response with The substantial amount of funding that a CDA greater leeway for approval. may be capable of generating through incremental tax revenues justifies the inclusion of a financial • Should review zoning if consideration is given to position whose responsibilities would be to sup- permissive mixed-use overlay zoning or elimi- port the CDA board and executive director in ad- nating the multitude of zoning classifications al- ministering project fund applications,awards,and together,in favor of a more generalized zoning. progress payments,as well as actively participat- e Should work with the county to implement a ing in the detailed and time-consuming deal struc- zoning and development streamlining program ture negotiations associated with complex devel- that encourages high-quality mixed-use devel- opment projects. opments with a fast"time to market"turn- The panel feels that because of the particular tim- around. ing of currently proposed developments and the • Must work to create incentives for desired proj- need for an immediate master plan and marketing ects and have the authority to make timely,def- materials,this team may not justify a long-term inite commitments,especially for appropriate commitment.Immediate assistance is recom- mixed-use projects and projects generally im- mended to help land the KSI and Springfield Mall proving the civic character of the Springfield redevelopment projects.These two projects are community. vital to jump-start high-quality private redevelop- ment in the entire area,and even more critical for The panel strongly recommends that the develop- appropriately redeveloping the"heart"of Spring- ment team be fully authorized and given the pol- field.In all positions,consideration may be given icy tools and personnel assistance as necessary to to establishing time limits on employment con- attract high-quality developments as described. tracts,or outsourcing for specific periods of time, With the position comes the understanding of all in line with a clear and realistic timetable for pro- parties that the goal is to help facilitate,not im- ducing the desired results. pede,high-quality development by maintaining an inventory of available sites,promoting/making use The panel is quick to note that the recommenda- of flexibility in mixed-use developments,and giv- tion to establish some dedicated staff for the pur- ing authority to offer real incentives that will at- pose of local economic development purposes is tract desirable development.This market is very not a call for a high-cost and unaccountable over- competitive;being able to market,invite,and as- head department.A talented manager can achieve sist high-quality projects that will be an asset to considerable visibility for the community and in- the economic,social,and aesthetic needs of the fluence important development decisions and community is very important. transactions without the need for a large staff of development professionals.Much,if not most,of Limit Development Team to a Select Few the actual work assignments can be outsourced to A number of transportation projects are under- area development specialists and service way and proposed.Given the complexity associ- providers. ated with the integration of regional and local serving systems,the addition of a full-time trans- A Marketing Plan portation engineer to the team has merit.This person could be an extremely valuable informa- The image identifying Springfield is presently tion resource to the participating agencies and the being defined,in the main,by outside individuals developers attempting to understand how these and entities.A review of available published ma- systems affect the development project they are terials does not provide much insight into a vision considering.Not uncommonly,state and federal and an aspiration for the future of Springfield. funding support are obtained for transportation This situation is not uncommon for a community, planning initiatives.Such grants might fully offset especially if the community came into being as one the costs of this position. or a series of subdivision developments.But it is 36 An Advisory Services Panel Report always preferable for the community itself to pre- • What is the product?Being able to enumerate sent its vision and aspirations. what is available to procure(development parcels,buildings,recreational services,afford- Springfield is in transition and aspires to introduce able homes,great neighborhoods,and great fundamentally different forms of development and schools)is important.Of special importance is create different experiences.Therefore,establish- the ability to demonstrate that the products, ing what these aspirations are is especially impor- even though similar to products in other com- munities,so they can be effectively communicated. are made better by virtue of their lo- Accepting that Springfield is poised to prepare cation in the subject community. and present a new vision and a new set of aspira- Adhering to the type of information framework tions,the marketing of these messages to the broader development community can begin in outlined is important in the marketing of a com- earnest.Given the amount of development activ- munity.If the community representatives are un- ity currently under consideration,time is of the able to provide cogent,coherent answers to the essence. points listed,outside interests cannot reasonably be expected to do better.Managing the image of a On one level,marketing entails the familiar tasks community and the manner in which this image is of design and production of attractive collateral presented is a key responsibility of the leadership materials,active participation in key networking of the community. events and meetings,and direct mailing to tar- geted prospects.However,these initiatives are The overall approach is to establish a sense of often ineffective. place for Springfield.If the effect is to establish a certain gravitas within the northern Virginia re- Establishing a marketing message for an estab- tail,office,and restaurant market,then the ap- lished community is similar,in many ways,to de- proach will have been successful. veloping a marketing message for a new master- planned community.The materials must address An Argument for a Marketing Center the following overall aspects: Asking commercial brokers where they meet a prospect who is going to tour the area is always • Where in the world is this community?All good instructive.Usually,the location is a hotel,restau- marketing maps show the community in the rant,or country club that has nice drive-up appeal middle of the market.In this instance,a 15-mile and is pleasant and attractively decorated.When radius map with Springfield in the middle would the answer differs and is,instead,a location such demonstrate how many attractions and facilities as a conventional coffee shop or a franchise restau- are nearby. rant,then concluding that the community is being • What is the"big idea"?Although inelegantly introduced through an image quite common and put,the point is obviously the importance of often undistinguishable from similar places in any being able to succinctly state the important number of other communities is reasonable.In overarching idea that is associated with the other words,a location that is unlikely to be mem- community(for example,Silicon Valley,Gate- orable.The message is,of course,that nothing way to the West,Athens of America). special exists to suggest as a meeting point. • Who is behind it?Namely,how credible is the Springfield currently suffers in this regard.Al- promoter(in this case the local community)and though some wonderful meeting places may exist is it likely to be able to accomplish what it is ad- in three to five years with the proposed develop- vertising?In the case of a community aspiring ment at the Mall and Midtown,currently a void to bigger and better projects,including the sub- exists.Thus,an argument can be made that the stantial,credible,private partners that are community needs to consider developing a well- going to assist in making the dream a reality be- located,well-appointed real estate marketing comes important. center to introduce the brokerage and develop- Springfield,Virginia,May 21-26,2006 37 ment community to a fresh view of the Springfield munities in which ULI panels serve,attracting opportunity. the interest of several qualified development or- The introduction of a marketing center can be an ganizations is not the major need. energizing project that creates renewed enthusi- Rather,in the near term Springfield leadership asm among local property owners.Done well, needs to concentrate on facilitating the develop- much goodwill and positive recognition are to be ment activity currently underway.The KSI and gained from the creation of such a facility.This Vornado projects represent hundreds of millions project would be especially helpful in the next of dollars of new investment of the precise type three to five years,when no completed projects the community and Fairfax County indicate they would yet be available to tour. desire.Neither of these initiatives is completely Multipurpose Public Assembly Facility negotiated and difficulties could easily emerge On a grander scale,Springfield may want to con- that could slow or derail them altogether.The first sider a multipurpose public assembly facility to priority,therefore,is to demonstrate a genuine both serve the community and attract hospitality commitment to the consummation of these deals. business to the community.As noted earlier,a fa- GSA Site.Panel members were impressed,as cility with highly adaptable space from 50,000 to were virtually all other planners and developers, 100,000 square feet,if properly designed architec- with the development potential associated with turally,would be a symbolic and recognizable fea- the nearly 70-acre GSA warehouse site.Located ture that would take advantage of regional high- on a site nearly contiguous to the Metro station way access,the mall amenities and visitation,and and near a major intersection of I-95,the parcel easy access from the Metro station.If the hospital has to be included in any development plan.It is is located on the GSA site,it could serve the med- an outstanding development opportunity.The ical community as a location for conferences and panel believes that the propinquity to the Metro exhibitions.The panel's observation is that such a station,the mall,and the Northern Virginia Com- complex might be quite appropriate for Spring- munity College Medical Education campus makes field.Although costly to construct and operate, the location perfect for relocation of the army hos- the concept should be discussed and debated.Such pital that is currently being considered for the facilities are reemerging as a market niche.Some EPG and the even more remote main base at Fort are being paired with adjacent hotels,and cross- management operating agreements are negoti- ated for operation of the complex. Although the site will ultimately become available The proposed CDA board of directors should take for development,the panel was advised by numer- up this type of project.It should be evaluated in ous individuals that near-term prospects for active the context of the vision statement and commu- redevelopment of the parcel are remote.GSA has nity objectives that have been developed.Finally, been approached any number of times about relo- the financial cost/benefits should be analyzed and cation and has indicated limited interest,espe- then a determination made if such a complex cially without an alternative and suitable site and should be underwritten,at least in part,by pro- a mechanism to finance the relocation and new ceeds of CDA bond issue. construction. Addressing the Development Opportunities The local Springfield development leadership within Springfield team should be actively involved in nurturing this The Springfield community has the good fortune opportunity.A way through the maze will eventu- of being in a robust local economy,with strong ally be identified.The leadership team could play local development firms and with the additional a vital role in facilitating and expediting this possi- and more important benefit of a substantial bility.If the team could simply become the point of amount of developer interest in project develop- contact between the GSA and the local commu- ments of significance.Therefore,unlike some com- nity,a great deal might be gained in regard to the gg An Advisory Services Panel Report ability to establish and maintain a dialogue about in the ULI stakeholder interviews,even though future site redevelopment. they were invited. Nevertheless,active programming and site devel- Nonetheless,a great deal of serious planning and opment planning are not appropriate without analysis is obviously occurring at the present GSA's support.Therefore,planning discussions time.Consultants'reports and subsequent staff VO about this site should be limited to preparation of recommendations are due out by fall 2006.Assum- development scale assessments to assist planning ing the additional need for review and evaluation agencies in ascertaining the amount of new de- at higher levels,six to 12 months more may elapse mands that will ultimately be generated when before the military's intent and development pro- reuse actually occurs. gram are clear.Any proposal that includes relocat- ing personnel and missions to EPG will need to be EPG.The development status of the EPG can be accompanied by significant off-site infrastructure best stated by quoting several of the members of a improvements,including roads and utilities. group currently evaluating the site:"It's all up in the air!"The conflicting information that emerged The-Springfield development leadership must about the status of development plans,access to track the decision-making process closely.To the the interior of the parcel,total amount of develop- extent possible,they should seek and get a place ment likely to occur,and the nature of such devel- at the planning table as a participant in the mili- opment(for example,secured versus unsecured, tary's committee of community leaders.Like the all military,mixed use with provisions for contrac- GSA opportunity,when the development decisions for offices)makes providing conclusions and rec- are finalized,the opportunities they will afford the ommendations an unproductive exercise.Even Springfield community are considerable and need within the panel,a consensus could not be devel- to be understood. oped whether the EPG site was likely to be devel- oped as suggested by the army.Although the in- terviewees from the National Geospatial Agency and the army medical agencies(likely tenants of the EPG)were helpful and encouraging of plan- ning cooperation,Fort Belvoir officials who are leading the relocation options did not participate Springfield,Virginia,May 21-26,2006 39 Conclusion ork needs to be done in Springfield,im- a single decision made within the agency could mediately,in the near term,and in the suddenly and abruptly change the situation en- mid to long term.Fortunately,the chal- tirely.As the panel noted,GSA could be a good lo- lenges are spread across a span of years, cation for the army's proposed hospital.Finally, thus permitting the leadership team to prioritize any proposals that significantly increase traffic its efforts and carefully allocate resources.The should be accompanied by a means to pay for county should focus its efforts by quadrant and en- transportation improvements. gage the community to determine specific needs. Although large and exciting development projects Physically,the county should plan to make a vari- are under consideration,they are not reality.The ety of improvements.In the Northwest Quadrant, county must never lose sight of the fact that any the proposed street"couplet,"acquisition and con- number of situations could occur that could cause struction of the town square,and connections be- these projects to be curtailed.Constant vigilance tween developments should take priority.In the is demanded of the Springfield leadership team Southwest Quadrant,the construction of the com- as well as a willingness to devote the seemingly muter parking lot and the street"couplet"con- sometimes endless hours to work through dilem- struction should be completed.In the Southeast mas that will inevitably emerge as these projects Quadrant,the connections should be strengthened get closer to actual construction and development. between the office parcels east of Loisdale Road and the new mall improvements. The panel has recommended a number of steps that will help make Springfield a destination,not In the immediate future,attention must be given just a place to pass through.The time has come to creating a CDA or CDA-type entity and hiring for the county to implement an approach that will associated staff members,conducting a commu- allow Springfield to confront its future and take nity visioning process,and implementing a near- its place among the other destinations of north- term marketing plan and program,including a ern Virginia. marketing center. Although the GSA and EPG projects are more distant,their scale and potential impact require that some time be devoted to them beginning im- mediately.In regard to the GSA site in particular, 40 An Advisory Services Panel Report About the Panel David L. Leininger DFW airport,where he served as the vice presi- Panel Chair dent and general manager of the Las Colinas Irving, Texas Association. Leininger joined the city of Irving,Texas,in June He began his career in the public sector in 1971. 2003,and he serves as its chief financial officer.In During the period 1971-1978 he was employed by that capacity,he oversees the departments of Fi- the city of Dallas in a variety of capacities,includ- nancial Services,the Irving Visitors and Conven- ing budget director,assistant director of housing tion Bureau,Information Technology,and the Las and urban rehabilitation and director of economic Colinas Tax Increment district. development.During the period 1974-1976,he was the fiscal services administrator for the city of He also serves as staff coordinator of the redevel- Garland and served as chairman of the finance opment planning for Texas Stadium,current home committee of the Texas Municipal Power Pool. of the Dallas Cowboys.The stadium area,at the nexus of three limited expressway freeways,will Leininger is a contributing author of Golf Course be served by a new light-rail line connecting the Development in Residential Communities,pub- Dallas/Fort Worth(DFW)International Airport lished by the Urban Land Institute(ULI).He is a and downtown Dallas.In addition,all three of the full member of ULI and serves as treasurer of the interchanges serving the 400,000 vehicles passing North Texas District Council.He has served on through daily will be reconstructed by 2012. four Advisory Services panels previously. Before joining the city of Irving,Leininger was associated with Economics Research Associates Donald R. Bauer (ERA),where he served as senior vice president Irvine California and director of the firm's Golf and Recreation Real ' Estate strategic business unit.In this capacity he Bauer is owner and founder of Bauer Planning coordinated the activities of ERA industry practi- and Environmental Service,Inc.With more than tioners throughout the firm. 28 years of experience in urban and regional plan- ning,he has expertise in strategic planning,eco- Over the course of his career,Leininger has been associated with a number of private sector firms. nomics,and design for new communities and During his tenure at C1ubCorp International from large-scale development programs.His emphasis on the quality of life,environmental integrity,and 1986 until 1996,he served in a variety of capaci- ties,including chairman and chief executive officer long-term economic value and return of new de- for C1ubCorp Realty and managing director,New velopments has resulted in a number of national Business Development,Europe. and international projects. From 1983 to 1985 he was associated with Triland Bauer's experience includes residential villages International,the Dallas developer of Valley and commercial complexes for The Irvine Com- Ranch in Irving.He held a number of positions,in- pang;large mixed-use projects in Baltimore, cluding executive vice president and chief operat- Washington,D.C.,Miami,Fort Lauderdale,bal- ing officer.Prior to Triland he was associated with las,Orlando,and Denver;new towns such as the the Las Colinas development,a 6,500-acre master- Woodlands,Texas;and resort communities,includ- planned development located between Dallas and ing Ventana Canyon in Tucson and the Cojo- Springfield,Virginia,May 21-26,2006 41 Jalama Ranch in Santa Barbara.His international David N. GOSS work includes projects in Indonesia;the summer Hertford,North Carolina national capital of Saudi Arabia;the new national capital of Nigeria;Colombia;China;Kao Shung, In 2005,Goss retired and moved to North Car- Taiwan;and the Bahamas. olina where he is presently a part-time economic Bauer is a member of the American Planning As- development consultant to Perquimans County. sociation.Between 1992 and 1996,he was ULI Prior to retirement,Goss was the senior director, District Council coordinator for Orange County, transportation and infrastructure,for the Greater California.He studied sculpture and architecture Cleveland Partnership.In that capacity he man- at the University of Oregon and participated in an aged a regional development/transportation pro- exchange program at the University of Florence, gram that identified,prioritized,and facilitated Italy.He is a frequent university guest lecturer. strategic regional infrastructure investments that supported northeast Ohio's physical development Daniel Brents agenda. Houston, Texas Goss has also served as the vice president,Eco- nomic Development for the Gateway Economic Brents recently retired as a principal with Development Corporation—the not-for-profit en- Gensler,where he led the firmwide planning and tity responsible for the construction of Jacobs urban design practice.Recent projects include the Field and the Gund Arena,and as the executive di- design of hotels,convention centers,mixed-use rector of Clinitec,Inc.—a wholly owned,for-profit centers,and educational campuses in the United subsidiary of the Cleveland Clinic Foundation.In States and abroad.He now consults on selected the latter position,he managed the Cleveland projects. Clinic's real estate interests,identified and pur- sued new health care business opportunities,and Previously,Brents was the vice president of archi- provided general management for the clinic's for- tecture and planning for Disney's real estate de- profit ventures and technology transfer programs. velopment group in France at Disneyland Paris, Goss has 11 years of management experience in responsible for negotiations with French authori- the public transit industry and was an original ties and the development of the 4,800-acre, member of the Transportation Review Advisory $4.5 billion resort and mixed-use project. Council of the Ohio Department of Transportation. Brents was the Houston Sports Authority's devel- opment coordinator for the$250 million downtown Philip Hughes Minute Maid ballpark.He has been a consultant to Greenville,South Carolina Ross Perot Jr.'s Hillwood Development Corpora- tion on multiple projects.Previous experience in- Hughes is president of Hughes Investments,Inc., cludes Wintergreen,a 15,000-acre resort in Vir- a commercial real estate development firm estab- ginia;South Shore Harbour,a 1,500-acre resort lished in 1990.His development experience,from south of Houston;Sony Center in Berlin;and the Alabama to Virginia,has included the develop- Philippines National Centennial Expo. ment,ownership,and management of retail shop- ping centers,office buildings,industrial facilities, Brents has served on eight ULI Advisory Ser- apartments,and golf course and residential vicespanels.He is a registered architect in Texas, devel- opment. Maryland,and Florida;a Fellow in the American Institute of Architects;and a member of the Hughes Investments,Inc.,specializes in commer- American Institute of Certified Planners.He has cial projects and land accumulation to support a bachelor's degree in architecture and a master's them.Recent development projects include degree in urban design. mixed-use projects that blend traditional uses 42 An Advisory Services Panel Report with new urbanist design.Sample projects include medical offices,clinics,and residential care facili- RiverPlace,Chanticleer,and CenterPointe,all in ties,and leading the development of luxury homes South Carolina.Other developments Hughes has on infill sites in Miami's Upper East Side.Maxwell's undertaken include a downtown Greenville office work has been honored throughout his career building for the National Bank of South Carolina with awards for historic preservation,innovative in the central business district along with a 12- industrial buildings,and outstanding renovation story,256,000-square-foot,mixed-use project in- projects. cluding office,retail,and residential uses,as well as four other central business district offices. He holds a BA from the University of Texas at Austin,where he studied architecture and city Hughes received a degree in political science from planning,and received a master of planning de- Duke University.He earned his MBA and law de- gree from the University of Virginia,with special- grees from the University of South Carolina. izations in real estate and urban design.Maxwell began his career with a Texas homebuilder;has Michael J. Maxwell held positions in government;was vice president of Codina Development,leading the initial devel- Miami Shores,Florida opment of the award-winning$400 million Beacon Maxwell is founder and managing partner of Center in Miami;advised institutions and govern- Maxwell+Partners LLC,a real estate develop- ments;worked out loan portfolios;and partnered ment,project management,and investment advi- in developing Caribbean hotels and luxury homes. sory firm.Over the course of his career,he has A skilled and effective communicator,he is known built a reputation of successful accomplishments for his organizational and leadership expertise. in leading real estate organizations and planning Maxwell's professional affiliations include the and developing land,homes,retail,office,indus- Urban Land Institute,where he serves on the Ex- trial,and resort properties.As an adviser and ecutive Committee of the Florida/Caribbean Dis- project manager he has worked out,restructured, trict Council as vice-chair of membership.He is a and strategically repositioned over$500 million in Florida-licensed real estate and mortgage broker real estate assets for corporate,private,and insti- and holds the prestigious AICP designation from tutional investors. the American Institute of Certified Planners.He Involved in real estate development for more than is a board and executive committee member of the 30 years,Maxwell founded Maxwell+Partners in Greater Miami Urban League and is founding 1992 to assist lenders and investors in restructur- chairman of New Urban Development LLC,the ing loans and assets with strategic planning,due affordable housing development arm of the Urban diligence,asset management,marketing,financial League. planning,capitalization,and mergers and acquisi- A graduate of Leadership Miami and former ex- tion services.Advisory clients include investment ecutive committee member,Maxwell has served bankers,banks,savings and loans,life insurance on numerous community boards in various capaci- companies,brokers,and private investors as well ties.He served as an adjunct professor of Florida as governments.His work ranges from complex International University's Graduate School of environmental negotiations,establishing and lead- Business in real estate development and manage- ing successful real estate development and finan- ment and is a guest speaker on issues of urban cial service firms,to restructuring companies and development. assets and leading mergers and acquisitions. .. Maxwell is an expert witness in real estate and David S. Plummer development issues in state and federal courts. Maxwell has built Maxwell+Partners into a niche Coral Gables,Florida developer,project manager,and adviser.His most Plummer founded David Plummer and Associates recent work includes developing and repositioning in 1978.The firm provides a wide variety of engi- Springfield,Virginia,May 21-26,2006 43 neering services with emphasis on traffic and John Shumway roadway design.His engineering career spans more than 35 years and includes some of the most Newport Beach,California significant projects in Florida. Shumway is a principal with the Concord Group, Plummer's public engineering experience involves which has offices in Newport Beach and San Fran- local,county,and state jurisdictions where he pio- Concord Group is a real estate advisory firm pro- neered studies of street protection systems tore- viding strategic advice and analysis for land use duce crime and traffic.He was affiliated with the issues in the development of residential,commer- Criminal Justice Institute in South Florida and cial office,retail,and industrial projects.The com- promotes close cooperation between law enforce- pany's broad range of clients includes land devel- ment and traffic engineering. opers,homebuilders,institutional investors,and family landowners as well as public agencies and In 2004 Plummer founded,and now administers, universities throughout the nation. The Transportation Exchange at Florida Atlantic University.The exchange provides training in a Shumway has extensive experience,spanning 20 variety of transportation subjects to practicing en- years,in the evaluation and analysis of both resi- gineers and planners.The programs include tran- dential and commercial properties.He has partici- sit,traffic operations,and transportation planning. pated in numerous engagements that focused on The programs are creditable toward the continu- the optimum mix of land uses that would ensure ing education requirements of Florida's Regis- timely absorption of the property and bring en- tered Engineers and the ITE Professional Traffic hanced land value to the landowner. Operation Engineers License. Shumway's professional affiliations include the National Association of Home Builders,the Build- Formerly,Plummer was the assistant director of ing Industry Association,the National Association engineering at the Traffic Institute at Northwest- of Industrial and Office Parks,and the Urban ern University,Evanston,Illinois.While in that Land Institute.He is a frequent guest lecturer be- position he developed and published materials re- fore the professional organizations,University of lated to capital improvements for transit,guide- California,Irvine and Los Angeles,classes,as well lines for driveway design,intersection capacity as other academic groups.Shumway has also spo- analysis,and traffic accident reconstruction. ken overseas,including a recent lecture to a group of key Japanese homebuilders interested in learn- In addition to Northwestern University,previous ing strategies to expand market penetration in a employment included the California Department downsizing economy. of Transportation and the Illinois Department of Transportation.He was a graduate of the training Shumway is a graduate of the University of Ore- programs of both public organizations,which in- gon with a degree in business/economics.He is cluded planning,traffic engineering,design,mate- very active in local community and civic groups. rial testing,and construction. Ross Tilghman Plummer is involved in professional committee service.He was a member of the Coral Gables Seattle,Washington Planning and Zoning Board,Dade County Impact Tilghman heads up the Tilghman Group,a division Fee Committee,and a member of the NW Dade/ of Leora Consulting Group,providing real estate SW Broward Planning Committee.In Florida he planning services.He brings 20 years of urban has been involved in the Florida Supreme Court planning experience,including serving as execu- Transportation Training,the Criminal Justice In- tive director of a downtown business improve- stitute,and committees of the Florida Depart- ment district.He provides transportation-related ment of Community Affairs. revenue projections,market studies,planning, i 44 An Advisory Services Panel Reporl and development strategies to government,not- For the last five years,Tilghman has been work- for-profit,and private sector clients facing real es- ing with the city of Tacoma,Washington,to ad- tate development challenges.His projects typi- dress its downtown parking needs and the parking cally involve downtown revitalization,academic plan for the city's new convention center.He pro- and institutional campus planning,historic district vided the revenue forecasts used to issue parking redevelopment,mixed-use projects,special event revenue debt. access,and parking. Tilghman also served three years as director of a Frequently working with nationally recognized downtown business improvement district in Illi- planning teams,Tilghman recently has detailed nois.He oversaw maintenance,facade improve- transportation requirements for downtown mas- ments,parking,and upper-story redevelopment ter plans for Evansville,Indiana;Natchez,Missis- efforts in concert with Main Street redevelopment sippi;St.Louis,Missouri;Green Bay,Wisconsin; principles.He successfully authored a$1.9 million and Parker,Colorado.He has provided parking grant to fund a streetscape construction project studies to determine future demands and market completed in 2002. requirements for Savannah,Georgia;Portland, Oregon;Sioux City,Iowa;and Olympia,Washing- Tilghman frequently participates in national re- ton.He conducted transit market studies in Den- source panels assisting communities with develop- ver and Los Angeles. ment questions.Recent assignments include ULI Advisory Services panels in St.Louis,Los Ange- Tilghman has also specialized in transportation les,Fort Lauderdale,and Port St.Lucie,Florida; planning for state capital campuses,working with Mayor's Institute on City Design teams in St. Washington,Iowa,and Minnesota to improve Louis and Cincinnati;an AIA R/UDAT team in their access and parking programs.Additionally, San Angelo,Texas;and Ohio Design Assistance he has completed special event and recreation Teams in three Ohio communities. area transportation plans for San Diego's Balboa Park;Joe Robbie Stadium in Miami,Florida;the Tilghman received an AB,history,Washington Iowa Events Center in Des Moines;Stones'River University,St.Louis,Missouri,and an MA,geog- National Battlefield,Murfreesboro,Tennessee; raphy,University of Washington,Seattle. Shreveport Riverfront,Louisiana;and Vicksburg, Mississippi's Downtown and Riverfront. Springfield,Virginia,May 21-26,2006 45 it i 5 i 3 ULI—the Urban Land Institute 1025 Thomas Jefferson Street, N.W. Suite 500 West Washington, D.C. 20007-5201 AN ADVISORY SERVICES PANEL REPORT 'Salem "re,on r r i ull Urban land institute Salem Oregon Strategies for Redevelopment of the Downtown Boise Cascade Site June 25-30,2006 An Advisory Services Panel Report ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 About ULI—the Urban Land Institute LI—the Urban Land Institute is a non- resented include developers,builders,property profit research and education organiza- owners,investors,architects,public officials, tion that promotes responsible leadership planners,real estate brokers,appraisers,attor- in the use of land in order to enhance the neys,engineers,financiers,academics,students, I total environment. and librarians.ULI relies heavily on the expe- rience of its members.It is through member in- The Institute maintains a membership represent- volvement and information resources that ULI ing a broad spectrum of interests and sponsors a has been able to set standards of excellence in wide variety of educational programs and forums development practice.The Institute has long been to encourage an open exchange of ideas and shay- recognized as one of America's most respected ing of experience.ULI initiates research that an- and widely quoted sources of objective informa- tion emerging land use trends and issues and tion on urban planning,growth,and development. proposes creative solutions based on that re- search;provides advisory services;and publishes This Advisory Services panel report is intended a wide variety of materials to disseminate infor- to further the objectives of the Institute and to mation on land use and development. make authoritative information generally avail- able to those seeking knowledge in the field of Established in 1936,the Institute today has more urban land use. than 32,000 members and associates from 90 coun- tries,representing the entire spectrum of the land Richard M.Rosan use and development disciplines.Professionals rep- President 02006 by ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 All rights reserved.Reproduction or use of the whole or any part of the contents without written permission of the copy- right holder is prohibited. Cover photo by Nicholas Gabel. 2 An Advisory Services Panel Report About ULI Advisory Services he goal of ULI's Advisory Services Program pants in ULI's five-day panel assignments are is to bring the finest expertise in the real able to make accurate assessments of a sponsor's estate field to bear on complex land use plan- issues and to provide recommendations in a com- ning and development projects,programs, pressed amount of time. and policies.Since 1947,this program has assem- bled well over 400 ULI-member teams to help A major strength of the program is ULI's unique sponsors find creative,practical solutions for ability to draw on the knowledge and expertise of issues such as downtown redevelopment,land its members,including land developers and own- management strategies,evaluation of develop- ers,public officials,academicians,representatives ment potential,growth management,community of financial institutions,and others.In fulfillment revitalization,brownfields redevelopment,mili- of the mission of the Urban Land Institute,this tart'base reuse,provision of low-cost and afford- Advisory Services panel report is intended to able housing,and asset management strategies, provide objective advice that will promote the re- among other matters.A wide variety of public, sponsible use of land to enhance the environment. private,and nonprofit organizations have con- tracted for ULI's Advisory Services. U`I Program Staff Each panel team is composed of highly qualified Rachelle L.Levitt professionals who volunteer their time to ULI. Executive Vice President,Policy and Practice They are chosen for their knowledge of the panel Mary Beth Corrigan topic and screened to ensure their objectivity. Vice President,Advisory Services ULI's interdisciplinary panel teams provide a Thomas Eitler holistic look at development problems.A re- Director,Advisory Services spected ULI member who has previous panel experience chairs each panel. Nicholas Gabel Senior Associate,Advisory Services The agenda for a five-day panel assignment is in- Carmen McCormick tensive.It includes an in-depth briefing day com- Panel Coordinator,Advisory Services posed of a tour of the site and meetings with spon- sor representatives;a day of hour-long interviews Yvonne Stanton Administrative Assistant of typically 50 to 75 key community representa- tives;and two days of formulating recommenda- Nancy H.Stewart tions.Many long nights of discussion precede the Director,Book Program panel's conclusions.On the final day on site,the James A.Mulligan panel makes an oral presentation of its findings Manuscript Editor and conclusions to the sponsor.A written report is Betsy VanBuskirk prepared and published. Art Director Because the sponsoring entities are responsible Martha Loomis for significant preparation before the panel's visit, Desktop Publishing Specialist/Graphics including sending extensive briefing materials to Craig Chapman each member and arranging for the panel to meet Director,Publishing Operations with key local community members and stake- holders in the project under consideration,partici- Salem,Oregon,June 25-30,2006 3 i Acknowledgments 0 n behalf of the Urban Land Institute,the ated.Their hard work and dedication are an asset panel would like to thank the city of Salem, to the city. the Strategic Economic Development Cor- poration(SEDCOR),and Boise Cascade for In all,the panel had the opportunity to interview inviting it to assist in the planning and redevelop- more than 75 community stakeholders,all of whom ment efforts on Boise Cascade's riverfront proper- provided valuable information and insight.Those ties.Special thanks are extended to Mayor Janet interviewed included government officials,resi- Taylor and Jim Gosnell,plant manager for Boise dents,business leaders,developers,property own- Cascade,for their vision and leadership in involv- ers,historic preservationists,and community ac- ing ULI in the planning process.The panel would tivists.Their shared perspectives were essential also like to recognize Ray Burstedt of SEDCOR; to the panel process.This strong group of stake- Bob Wells,city manager of Salem;Rick Scott of holders serves as a major asset for advancing and Salem Urban Development;and Larry Glassock. maintaining the interests of this community. Their dedication,wisdom,and leadership help The Salem panel was partially funded by a grant make Salem a vibrant community. from the Oregon State Lottery through the Mid- Special thanks go to Courtney Knox and others on Willamette Valley Community Development Part- the city's urban development staff.The countless nership for the purpose of promoting economic and community development. hours they spent preparing for,providing informa- y tion to,and assisting the panel were truly appreci- 4 An Advisory Services Panel Report Contents ULI Panel and Project Staff 6 Foreword:The Panel's Assignment 7 Overview and Summary of Recommendations 11 Market Potential 15 Planning and Design 24 Development Strategies 32 Implementation 39 Conclusion 44 About the Panel 45 I Salem,Oregon,June 25-30,2006 5 ULl Panel and Project Staff Panel Chair George Ochs Vice President Charles A.Long JPMorgan Asset Management President New York,New York Charles A.Long Properties Berkeley,California G.Craig Schelter Principal Panel Members Schelter and Associates Philadelphia,Pennsylvania Charles J.Berling Executive Vice President Ranne P.Warner Berling Equities LLC President Denver,Colorado Ranne R Warner and Company Inc. Pawtucket,Rhode Island Jack Illes Managing Partner 01.1 Project Directors Urban Labs Del Mar,California Nicholas Gabel Jeffery D.Jeep Senior Associate,Advisory Services Attorney at Law Prema Katari Gupta Jeep and Blazer LLC Scholar in Residence Hillside,Illinois Anish Kumar 111.1 On-Site Coordinator Director,Urban Design Romana Kerns Hillier Architecture Department Coordinator,Policy and Practice Philadelphia,Pennsylvania Anita B.Morrison Principal Bay Area Economics Silver Spring,Maryland 6 An Advisory Services Panel Report Foreword: The Panel's Assignment t the invitation of the city of Salem,Boise Cascade,and the Strategic Economic De- F - velopment Corporation(SEDCOR),a ULI Advisory Services Program panel Beaveton was convened to evaluate development opportu- Salem, nities for Boise Cascade's riverfront properties in va..r.. Corvallis downtown Salem.The panel was asked to con- sider possibilities for profitably redeveloping the Eugene Springfield properties and relocating within Salem the jobs _ the company contributes to the community.As its Willamette riverfront is reinvented as a com- munity amenity and its economic base makes the transition from industry to services,Salem is at Medford an important juncture in its development history. Background Throughout its history,Salem has been defined velopment of more advanced means of transporta- Location map. by its relationship to the Willamette River.Early tion and power has resulted in the relocation of Anglo-American settlers were drawn to the many of the city's traditional industries away from Willamette Valley via the Oregon Trail by its fer- the river.Salem,like many other communities tile agricultural lands.After gold was discovered making the transition from an industrial to a ser- in California in 1848,Salem profited from shipping vice economy,recognizes the potential to reinvent wheat,timber,and other goods from the area by its riverfront as a regional amenity.To that end,it steamboat to California via Portland.The river has made great strides in purchasing key under- became Salem's competitive advantage and,as a used and flood-prone riverfront parcels and rede- result,the city flourished and in 1851 became the veloping these areas as parks. state capital. However,one major piece of the puzzle is miss- As the city's manufacturing base expanded,a ing from the city's riverfront redevelopment dense concentration of industrial uses developed and reclamation efforts—the Boise Cascade along the riverfront—a common pattern in manu- riverfront properties.It can be argued that these facturing communities because of the reliance on properties are the linchpin in Salem's riverfront the river both as a power source and as a means of redevelopment. transporting goods,livestock,and people. Today,the city's character is shaped more by the The Study Area Willamette River and its adjacent parklands than The Boise Cascade-riverfront property consists of by the historic mercantile buildings of the down- nearly 324 acres in two parcels separated by the town,the modernist state Capitol office complex, Willamette Slough.Occupied by Boise Cascade or the varied residential neighborhoods.The de- and its predecessor companies since 1862,the area Salem,Oregon,June 25-30,2006 7 The Boise Cascade prop- erties consist of nearly 324 acres on two parcels separated by the Willamette Slough. is roughly bounded by the Willamette River on tains unpaved surface parking and tractor-trailer the west,Riverfront Park on the north,Commer- turnarounds. cial Street on the east,and Minto-Brown Island The remaining 310 acres of the Boise property Park and Oak Street on the south.Downtown constitute aflood-prone,undeveloped site on Salem,Riverfront Park,the Salem Conference Minto Island originally used for settlement la- Center,Minto-Brown Island Park,the Salem Cen- goons for Boise's now-defunct downtown paper ter Mall,Willamette University,Bush's Pasture manufacturing operation.The balance of Minto Park,the Civic Center,and the Oregon state Capi- Island is a widely used regional park,Minto- tol are all either adjacent to the property or Brown Island Park,which is maintained by within a short walk. Salem,though the tip of the island is a bird sanctuary overseen by the local chapter of the A 13-acre parcel of the property adjacent to down- Audubon Society. town Salem is occupied by a complex of large in- dustrial buildings that house packaging and distri- The Assignment bution operations for Boise Cascade.At the site, giant rolls of paper manufactured elsewhere are In mid-2005,Salem and Boise Cascade began dis- onverted into packaged paper products ready cussing the possibility of relocating company oper- corsale. ations from the downtown location to another site within the city and redeveloping the riverfront This parcel is divided into four nearly equal-sized parcels.The discussions also covered the future quadrants—along the north-south axis by the of Boise's ownership of the northern portion of Burlington Northern Santa Fe Railroad tracks, Minto Island.During these conversations,Salem and along the east-west axis by Pringle Creek. established the following priorities: One of the Boise plant buildings is built over the • keep existing jobs and expand employment op- creek,covering it completely.The site also con- portunities in Salem; $ An Advisory Services Panel Report The 310-acre Minto Island parcel is undeveloped and prone to flooding. L • redevelop the Boise downtown site;and The panel also was asked to consider potential • seek open space and/or parks in the redevelop- reuses of the Boise property and recommend a re- development program that would enhance the ment. economic vitality of downtown Salem.Additional Similarly,Boise Cascade established goals of questions included the following: its own: • What is the highest and best use of Boise's • gain operational efficiencies by relocating to a riverfront properties? replacement facility;and • What are the challenges and opportunities in- • create land value so that moving is either rev- volved in redeveloping the downtown properties? enue neutral or profitable. • What assets or strengths could the redevelop- ment capitalize on? As a way of exploring opportunities for a partner- ship and settling seemingly divergent priorities, • What redevelopment scenarios would create the SEDCOR entered the process and sponsored a greatest overall value for Boise Cascade,the ULI Advisory Services panel to analyze the situ- city,and the region? ation and make recommendations. • Which potential uses of the properties would ULI was asked to assemble a team of profession- have the strongest market appeal? als with experience in a variety of urban redevel- • Can the extant industrial building complex be opment projects to meet in Salem for five days to reused in the redevelopment? address several interrelated questions and to rec- . What is the best way to address park,flood- ommend ways to keep Boise Cascade's packaging plain,Willamette Greenway,and other envi- and distribution operations and their associated ronmental issues relating to Minto Island and jobs in the city. the river? Salem,Oregon,June 25-30,2006 9 The downtown Boise Cascade parcel is occu- pied by a complex of large industrial buildings, ranging from historic former mill buildings to i+ vacant former brownfield parcels. • What are the most appropriate development strategies for this sort of project? • What are the most appropriate roles for the city,Boise Cascade,SEDCOR,and other key players in the redevelopment? This report offers several suggestions from the panel for the next steps in redevelopment of the Boise Cascade downtown plant in Salem. 10 An Advisory Services Panel Report Overview and Summary of Recommendations fter an intense week of interviews,presen- munity leadership and will create a strong plat- tations,and site tours,the panel was able form for future revitalization initiatives. to frame several issues pertaining to the study area and formulate recommenda- Third,the panel was struck by Salem's potential tions.The panel has devised a strategy to create to continue to thrive economically.The city's ef- land value for Boise Cascade to facilitate a move forts at building strategic partnerships have ex- while devising a feasible redevelopment strategy panded industrial employment opportunities for for the downtown properties.The recommenda- the community at the new Mill Creek Industrial tions set forth are summarized below and de- Park.The education sector in Salem is growing: scribed in more detail later in this report. both Willamette University and the local com- munity college are in the process of making A Posifve Climate substantial capital improvements. Likewise, Salem Hospital is investing in larger and more It is worth noting that the climate for redevelop- efficient facilities.Arguably the most significant ing the Boise properties is very promising.A few factors contributing to this positive climate merit variable is Salem's high quality of life,which will highlighting. undoubtedly attract new employers and new residents who want to live and work in a vibrant First,it is the panel's impression that Boise has community. shown admirable leadership on addressing the en- vironmental issues related to its riverfront prop- Obstacles and ®ppoilunities erties.Some work remains,but it is unlikely to af- fect redevelopment efforts. However,obstacles loom over any potential rede- Second,the panel was impressed by the vitality of velopment scenarios.Downtown traffic circulation downtown Salem,attributable to the revitaliza- is inefficient and requires drastic reengineering, tion efforts of the city's previous and current lead- and parking is not optimally managed.The retail ership.Salem is fortunate to already have a mall sector fails to attract a broad base of customers and other retail merchants in its downtown,as and,as a result,is struggling.Though the viability well as the new Phoenix Grand Hotel and the new of residential development in the downtown is un- Salem Conference Center.The previous relocation proven,the market is promising.Funding for sig- of other Boise operations and the subsequent ere- nificant capital improvements within the city is ation of Riverfront Park have had a catalytic im- tight,resulting in fierce competition for scarce pact on the downtown. dollars among worthy projects. Efforts to promote pedestrian orientation,encour- Despite these issues,the opportunity to redevelop age downtown residential development,and assist Boise's riverfront properties is compelling.The with facade improvements are continuing,and panel analyzed redevelopment opportunities from downtown Salem has a distinctive stock of pre- several perspectives: served historic buildings that have tremendous potential.Plus,commuter train service between • Economic development:an employer needs as- Portland and Salem appears to be in the works, sistance relocating to a more efficient plant though progress is slow.These positive character- within the community so that more than 100 istics are the result of strong and effective com- high-quality jobs are retained. Salem,Oregon,June 25-30,2006 11 Salem has worked to w. ,. . encourage the relocation" of industry away from the I waterfront,and to reclaim these parcels as a regional amenity. Many have been redeveloped as parks. • Market:redevelopment is an opportunity only if given parcel of land is how its legal use,or zon- there is sufficient market support to cover the ing,is defined.If a parcel of land can be legally potentially high costs of removing unwanted or developed with mixed uses—residential,retail, obsolete buildings,the expense of any residual and office space,for example—it has a very dif- environmental cleanup,plus the hard and soft ferent value than if it can only be used for indus- costs of development. trial purposes. • Catalytic potential:current circumstances pre- In Salem's market today,land that is zoned for a sent a much-needed opportunity for catalytic mix of residential,retail,and office uses has a development that would contribute significantly value four to six times that of land that can only to the economic vitality of the downtown and be used for industrial development.This fact is the broader community. fundamental to the first recommendation for en- The city and Boise can capture all the above op- hancing and formalizing the partnership between portunities if they expand their existing relation- Boise and the city. ship to a formal partnership;they must continue Zoning Change to cooperate for mutual benefit.The panel's analy- The panel recommends that Boise and the city de- sis of the site's market economics and catalytic po- tential demonstrate that the redevelopment of the velop an agreement under which the city initiates Boise waterfront site presents a highly compelling changes to the zoning on the downtown riverfront opportunity for aclassicwin-win outcome. parcel from industrial to mixed use—essentially residential,retail,and office space.Such a zoning First Steps change should involve stakeholder participation, but should also be done quickly—optimally within A brief discussion of the real estate economics of six months—to create immediate land value for determining land value is in order.One of the most the Boise riverfront properties.The rezoning important variables in determining the value of a should also include two adjacent city-owned 12 An Advisory Services Panel Report The site presently houses packaging and distribu- tion operations for Boise Cascade.Giant rolls of paper manufactured else- where are converted into packaged products ready for sale. parcels in order to create additional value for both Salem's city limits,thereby allowing the commu- Boise and the city. nity to retain jobs. It is important to note that this change in zoning In addition,Boise should donate the Minto Island under the auspices of an agreement between the parcel to the city,since redevelopment options for city and Boise is a critical first step.Timely action the island are constrained by their location in the is necessary for Boise to have certainty about the floodway.Salem should begin a formal community site's land value creation in order for the envi- visioning and planning process for Minto Island- sioned remaining obligations to be fulfilled. a process that should involve all appropriate stakeholders and result in a consensus on recre- The rezoning will eliminate uncertainty about pos- ational and habitat preservation uses on the par- sible reuses of the Boise riverfront properties.In cel.Salem also should fund construction of a general,land value increases as uncertainties pedestrian bridge to the north end of the island, about development decrease;elimination of enti- creating an essential link between Minto-Brown tlement risk for potential developers of the prop- Island Park and the downtown. erties makes the land more valuable.In addition, city requirements about view corridors,pedes- Rezoning of the Boise downtown parcel does not trian access,and performance standards should mean that the site will immediately be developed. be enumerated early in the process so that the re- However,it does mean that the legally allowed development does not become mired in such de- use of the property has changed,creating a mater- tails later. ial increase in its"paper value."The eventual pur- chase price will depend on market dynamics at the After Rezoning time when a developer becomes interested in ac- The rezoning action,with its resulting value cre- quiring the property.It is estimated that Boise ation,should be matched by reciprocal action by will need a year to 18 months to relocate its opera- Boise.The company should commit to relocating tions before redevelopment of the downtown par- its packaging and distribution operations within cel can begin.The market demand for a mixed-use Salem,Oregon,June 25-30,2006 13 In Salem's market today, i land zoned for a mix of residential, retail,and ' office uses has a value that is four to six times higher than that of land zoned for industrial use. development on the site is unproven but promis- panel believes are worth considering,but it is only ing,and is likely to strengthen. one interpretation of how the opportunities can be Redevelopment captured.For instance,one idea involves leverag- ing the considerable value of one of the existing When the redevelopment process formally begins, buildings as a low-cost parking garage in a way the city and Boise should explore ways of obtain- that enhances the development potential of the ing the highest-quality development possible on site.The plan is intended to give the city and the site through continuing their formal partner- Boise a sense of the magnitude of the opportuni- ship.The two parties should jointly select the ties the site possesses. developers through a transparent request-for- qualifications process.Financial assistance,if Finally,it is worth reemphasizing the panel's im- justified,should be made available in order to pression that the city/Boise partnership presents achieve the best possible redevelopment plan, a unique opportunity for creating mutual benefit. which would include both high-quality design Both parties have shown visionary leadership in and programming. working together thus far.It clearly is in the in- terest of both parties for the partnership to con- Most important,the redevelopment of the Boise tinue to flourish.With careful communication,co- downtown parcel is a major opportunity for en- operation,and collaboration,Boise and the city hancing downtown vitality.To envision how this can create a project for the site that serves both contribution might occur,the panel made a consid- business and community needs. erable effort to create a suggested development plan for the site.This plan is consistent with the proposed rezoning and incorporates ideas the 14 An Advisory Services Panel Report Market Potential estled in the Willamette Valley,Salem has beyond that of it being a sleepy town where there developed through the years building on a is little to do,particularly for young people.The strong base of agriculture,industry,and community has been somewhat resistant to change state government.The city grew up along and has struggled to reconcile the respective in- the river,used to move logs and other products terests of longtime residents,businesses,and and to power industry.After turning over the newcomers to the economy. riverfront to industry and the railroad,Salem lost its connection to the river.Now,as Salem shifts As the world economy continues to change quickly, away from basic manufacturing and moves further with greater and greater emphasis being placed into the knowledge-based economy,re-creation of on knowledge-based industry,traditional ways that connection offers Salem a great opportunity of doing business are also changing.The need to to enhance the quality of life of all its residents. compete in that world and capitalize on new op- portunities will force Salem to change as well. Salem is a small city of about 147,000,but one that When attraction and retention of well-educated is growing at a steady pace.Many of its assets pro- workers becomes a critical factor in a community's vide a base for a diversified and growing economy economy,an area's quality of life and amenities —the state capital and government,Willamette become even more important. University,Salem Hospital,links via Interstate 5 to West Coast markets,and remarkable natural Salem already is a great place to raise a family, resources and recreational opportunities.Down- but it will need to develop places and opportu- town Salem is reclaiming its historic buildings and nities for a more diverse population ranging developing a unique character attractive to locals from young entrepreneurs and employees of Among downtown Salem's and visitors alike.All these factors contribute to a knowledge-based companies to older couples greatest assets are its developing market—one that can begin to move and retirees.Enhancement of the city's image scale and walkability. up the scale economically. Development Issues Some issues have defined and influenced Salem's development in recent years.Currently,Salem's median household income is 5 percent below that of the state and 16 percent below that of the Port- land metropolitan area.That tends to define and limit the city's real estate market,but it masks the fact that in 1999,Marion County,where Salem is located,had more than 17,000 households with in- comes of$75,000 or more. The city's reputation in the rest of the state is that of being a fairly low-key place.Salem is not recog- nized in the way that one might expect for the state's second-largest city and the state capital. Many Oregonians have little impression of Salem 15 Salem,Oregon,June 25-30,2006 t The panel believes that Salem's high quality of life will attract new employers and new resi- dents who want to live and work in a vibrant , community. i and visibility in the Pacific Northwest will be im- downtown attract the residential base it needs portant to Salem's long-term economic vitality. to thrive into the next decade.What happens on the Boise Cascade site can help put Salem on the The downtown is Salem's center and soul:it com- map,raising its visibility and enhancing its image municates what is special and distinctive about in the region.Shifting a former industrial water- this community.In the past five years,the down- front to one that is oriented and accessible to town has reemerged as a vital place with new shops and things to do.However,it lacks a resi- pedestrians has transformed Portland and Van- dential base to activate the shops,restaurants, couver,British Columbia,and many smaller cities and streets beyond the 8-to-5,five-day workweek. around the country. The downtown needs many more residents to cre- ate a round-the-clock environment that will sup- Challenges to Redevelopment port restaurants and attract other area residents Redevelopment of the 13-acre downtown Boise and visitors to be part of downtown's energy. Cascade site will need to overcome several Reconnecting downtown to the river offers the op- challenges—physical,economic,and process portunity to capitalize on one of the city's greatest related. assets—its natural setting and environment.The Physical Challenges community's embrace of Riverfront Park and the many joggers,dog walkers,and bicyclists who use The site needs better links to the downtown,Wil- Minto Island every day demonstrate the commu- lamette University,and Salem Hospital.It also nity's hunger for access to the river and other needs better immediate pedestrian and automo- natural environments. bile access that addresses the railroad crossing and the downtown street system. Linking downtown to Minto Island will enhance the value of the Boise Cascade site east of the Many of the site's best assets—its relationship river by providing new amenities for potential to the Willamette River and Slough,Pringle residents.The visceral appeal of water can help Creek as it runs through the site,and the historic 16 An Advisory Services Panel Report The downtown Boise Cas- cade site is bisected along a north-south axis by the Portland &West- ern railroad tracks. structures—are hidden and not celebrated as they wonder whether there are enough buyers willing should be.Environmental and historic matters to pay the higher prices required by the cost of need to be resolved before the buildings and land development,making it hard for developers to can be reused,and the location of the Minto Island finance new projects. property in the floodway results in frequent flood- ing and prevents development of structures there. The size of the Boise Cascade project means that development will need to be phased and may take Economic Challenges five to ten years or longer.Over a period that The United States is experiencing a period of long,markets can change significantly,so the proj- rapidly increasing construction costs.The spike ect's design and mix of uses needs to remain flexi- in demand created by the rebuilding following ble.The housing market is hot now,but rising in- Hurricane Katrina and the growing demand from terest rates could dampen demand in the future at China is driving up materials costs and challeng- a time when office demand is on the upswing.be- ing the ability of developers to respond with new velopers need to be able to adapt and respond to residential and commercial space at prices that those changes in demand. residents and businesses can afford.The fact that process-Related Challenges area household incomes are lower than those of more affluent metropolitan areas dampens market The development process in Salem creates sig- support for retail space and constrains the prices nificant challenges for developers contemplating of new housing,limiting the area's ability to at- multimillion-dollar projects.Development can be tract new housing types such as condominiums a risky endeavor.Economic changes beyond local and lofts. control can undermine a project overnight despite the efforts of the best developers.In addition to Downtown and riverfront condominiums are a rel- the impact of building-material costs,fluctuations atively new product in the Salem market,meaning in the business cycle can change a development that lenders have no track record that might re- project from a financial bonanza to a massive fi- assure them regarding market demand.They nancial disaster.The wrenching upheavals in the Salem,Oregon,June 25-30,2006 17 Salem's downtown con- tains a well-preserved but largely underused stock of distinctive historic mercantile buildings. � t ,a real estate industry and the widespread bankrupt- nity.The chances for successful redevelopment of cies of the late 1980s and early 1990s underscore the Boise Cascade properties would be greatly im- the risks associated with real estate development. proved by a more decisive,timely,predictable, and responsive public decision-making and ap- Key to the success of individual developments is proval process. hitting the market at the right time with products that people want to buy and lease.Long and un- Local Markets predictable delays in securing development ap- provals add substantial risk to any development, The opportunities for redevelopment of the Boise and developers and investors considering major Cascade site will depend on the nature and strength investments weigh those risks in deciding whether of demand in the local market for a variety of uses. to commit to a project.Entitlement of a property The nature of the site on the downtown riverfront through a prompt zoning and development process suggests that it would be best suited for a mix of is critical to reducing the risks of development and residential,retail,office,hotel,and parking uses. attracting private investment.Enactment of the panel's recommendation for early rezoning will Housing create value for Boise and help it fund its move The Salem housing market has traditionally em- off the riverfront. phasized single-family homes,which represent 59 percent of the overall stock,and multifamily Several people interviewed by the panel described rental apartments,which account for 28 percent. Salem's traditional way of doing business as one The city is blessed with a solid housing stock and that seeks consensus from all constituencies.As a many attractive,historic neighborhoods.Salem's result,the decision making can stretch out dra- housing market is somewhat more transient than matically through a process that becomes"paraly- one would expect from a city of its size;it is af- sis by analysis,"as one person put it.That process fected by the biennial legislative schedule,the and reputation will cause many of the best and state penitentiary that attracts families and indi- most experienced developers to bypass a commu- viduals wanting to be near their jailed relatives, 18 An Advisory Services Panel Report and by the college student population.Fifty-seven trigger significant new demand from contractors percent of Salem's households own their home and opening local project offices. 43 percent rent. Downtown commands an important segment of the Compared with the astronomically high cost of regional office market,but increasing construction housing in Portland,Seattle,and California,the in suburban locations has eroded downtown's Salem market is much more affordable.Single- dominance.The somewhat constrained supply of family homes sell for$150,000 to$500,000,with downtown parking may limit future development. most priced from$200,000 to$400,000.The city has almost no condominiums,though two major Full-service office rents in today's market range downtown condominium projects are proposed or from$1.50 to$2.10 per square foot per month,or underway.Though rare,riverfront condominiums $18 to$25 per square foot per year,including jani- are attracting buyer interest at higher prices— torial services,taxes,and utilities.Given current $200,000 to$600,000—representing a significant construction costs,those rent levels do not justify increase in price per square foot to$250 to$350, new construction on a speculative basis.The office compared with roughly$200 for higher-quality development activity is limited now to build-to- single-family homes. suit facilities for specific tenant/owners. The economics for rental housing make multifam- Retail ily rental development more difficult to justify. The panel's impression is that the downtown's re- Current market rents for newer,high-quality tail base has improved significantly in recent years, units range from$1 to$1.50 per square foot per with vacancies declining from 27 percent five years month.Almost all the new affordable rental units ago to about 7 percent today.New stores include have received public subsidies to reduce the de- a variety of local specialty shops unique to Salem, velopment costs. with a growing artist community also providing unique shopping opportunities.Benefiting down- With shifting demographics,some new markets town is the presence of Nordstrom,Mervyn's,and are emerging for Salem.The aging of the baby JCPenney department stories in the Salem Center boom generation has created a large number of —an unusual amenity for a city of Salem's size. empty-nester households—parents whose chil- However,downtown has no waterfront restau- dren no longer live with them.For people seek- rants or shops that take advantage of the river's ing a lower-maintenance housing alternative,con- appeal,and there are no downtown grocery store dominiums would be very attractive.It also can to serve downtown employees and the residents be assumed that some professionals associated Salem hopes to attract. with Willamette University,Salem Hospital,and the state government would prefer condominium Rents remain relatively low,ranging from$1.25 living.Salem is beginning to attract retired indi- to$2.50 per square foot per month.Because many viduals and couples seeking a high-quality envi- of the downtown retailers are new businesses, ronment.Also emerging is demand from ethnic they do not have the credit history a developer homebuyers,particularly in the Latino community. could use to secure financing for new retail space. Also,there appears to be little capacity among Office local retailers to pay high rents.Downtown and Salem's office market consists of 8 million square the region have a very limited supply of zoned feet of space,with 6 million square feet of that sites in good locations available for new retail owned by the state.Historically,local office mar- development. ket demand has shifted in direct response to changes in state government:when the state de- Hotel cides to occupy space only in buildings it owns,the The new Salem Conference Center has been open private office market sees major increases in va- for over one year and is generating new demand cancies.Also,increased state spending on road for downtown hotel rooms,helping to support the and bridge construction and other programs can new Phoenix Grand Hotel.Over time,the confer- Salem,Oregon,June 25-30,2006 19 The market viability of k downtown housing is unproven, but promising. A few new projects are underway. ence center will become better established and Riverfront Park overflow parking can interfere attract a higher level of bookings.Riverfront ameni- with shopper parking at times. ties and activities also will help attract more visi- tors to the region,and,in the longer term,suffi- Site program cient demand may develop to support a second hotel.That hotel should be sited near the confer- Full redevelopment of the Boise Cascade site will ence center and rverfront amenities. require a mix of uses,because no single use could absorb the full development capacity of the site. Parking More important,a mix of uses is critical to creat- Downtown currently has a system of free customer ing for downtown Salem an active people place parking on the street,with employees encouraged that will support the higher prices and rents to park in public garages,paying$56 per month needed to fund the improvements.The panel rec- for a parking pass.The parking system is sup- ommends a program that combines condominiums, ported by taxes on downtown businesses,but is office space,retail space,restaurants,a hotel,and significantly underfunded and unable to support support parking. required maintenance improvements to the garages. Development of the site will take five to ten years As a result,the city is reviewing downtown park- or longer,so it will need to be broken into smaller, ing policies and financing mechanisms. more manageable phases sized to respond to the market.Developers will seek to build space in Some downtown garages are reported to be ap- one-or two-year phases,so as to minimize the proaching capacity,so parking supply limitations carrying cost of building and holding larger may constrain future office development.Few of- amounts of space long in advance of receiving fice buildings have dedicated on-site parking.The sales or lease revenue.Developers also will need Salem Conference Center has only 88 dedicated to have the flexibility to change their products spaces,and its expanding level of activity will cre- and mix of uses as the market changes over the Iate additional pressure on the parking system. development period. 20 An Advisory Services Panel Report One of the existing build- ings is suitable for con- version to loft units. Condominium Housing housing types and the households attracted to Downtown condominiums are an untested market them will help sustain the development into the in Salem.Developers and lenders have little expe- future,giving it the opportunity to respond to dif- rience to demonstrate either the extent of demand ferent markets at different times. at different price levels or the pace of sales that could be achieved.The Salmon Run development Basing its view on the evidence provided by the sold out quickly at high prices,but it had only few downtown condominium developments to four units;the Rivers Condominiums project, date,the panel believes that the Boise Cascade which broke ground in early July 2006,has al- property could support high-end units priced at ready received reservations for 15 of its 26 $275 to$350 per square foot,and units for middle- units.The Meridian development,proposed to income households priced at$225 to$275 per break ground in fall 2006 on the river south of the square foot.Inclusion of on-site parking will be Boise Cascade property,has also found good mar- important:the panel recommends that at least ket demand for its 89 condominium units. one space be provided per unit and that the aver- Long-term plans to extend commuter rail from age be about 1.5 spaces per unit. Portland to Eugene,running through Salem on The project design should strive to include a vari- the existing riverfront railroad tracks,could sig- ety of housing types,including loft units in the ex- nificantly increase the demand for condominium fisting mill buildings,conventional flats,and possi- living for people employed in Portland who would bly two-level townhouse units.Units should be enjoy riverfront living but cannot afford Port- oriented to take advantage of views of the river, land prices. Pringle Creek,and the Civic Center.Phasing of The development would be well served by offer- the project should provide housing in increments ing a mix of housing types and prices in order to to meet the potential pace of market demand,pos- attract a range of buyers and renters to the site sibly in sections as small as 25 to 30 units.There and accelerate the pace of sales.Diversity among is no way to predict accurately the ultimate pace Salem,Oregon,June 25-30,2006 21 of sales,but it could range from 50 to 75 units headquarters office.The existing mill buildings per year. offer the opportunity for introduction of dramatic Retail office space in a creative-space layout that takes advantage of high ceilings and large windows.Other The Boise Cascade site offers an opportunity to potential users could be a consortium of area uni- build retail space with a direct link to the river, versities and colleges.Live/work units could ap- Riverfront Park,and the regional network of peal to entrepreneurs,artists,and others with parks and trails—an opportunity with great appeal home-based businesses.Overall,the market could for certain types of retailers that can build on the potentially support 75,000 to 125,000 square feet. views and the ambience created by an active gath- ering place.The retail component of the project Hotel should complement and not duplicate existing down- As the Salem Conference Center becomes better town retail space.However,the panel believes established and the market develops,demand that the addition of well-designed retail space in a could arise for a new riverfront hotel with 150 pedestrian environment could boost the overall to 200 rooms. demand for downtown shopping.With good pedes- trian linkages and marketing,the new retail space Parking on the Boise Cascade site could attract new shop- One of the key advantages of the Boise Cascade pers to downtown Salem. site is its ability to provide parking for all its po- tential uses on site.However,the project econom- The best market would be for restaurants.Well- ics demand that the nonretail parking facilities designed spaces that take advantage of riverfront generate revenues to support their costs and views could attract 5,000 to 20,000 square feet of maintenance. restaurant and specialty food outlets.The mix should include restaurants with multiple price Value Implications points and serving a variety of markets,including casual dining and not just special-occasion,high- Without a significant amount of additional market end dining. and site information and a more refined design for construction on the site,it was not possible for the The panel's interviews revealed a longing fora panel to accurately estimate the value of the Boise downtown grocery store that could support both Cascade site.But the panel was able to make a few new residents and existing employees.A specialty observations at this stage regarding land value. grocery store emphasizing prepared foods could Land value relates to what can be built on a piece succeed in a space of 30,000 to 50,000 square feet; of land,what it costs to build the project,how much adjacent on-site parking will be critical to that the project will sell for,how quickly the project success. can be sold,and the development risks involved. Additional retail space of perhaps 1,000 to 5,000 Permitted Uses square feet at the Boise site could be occupied by Different land uses support different land costs service providers,such as a dry cleaner.Down- town Salem could benefit from additional daycare according to development density and the ability facilities,particularly one that could take advan- of the market to pay rent or to buy property.In tage of the Riverfront Park amenities;this facility the Salem market at this time,the highest land could occupy 3,000 to 5,000 square feet.A health value is generated by residential use at higher club of 15,000 to 25,000 square feet could serve densities.Industrial land use typically supports residents and downtown employees. the lowest land prices,and office uses support higher values because of their higher densities Office and rents.Well-located retail land with good visi- With the downtown office market now restricted bility and access can command some of the highest to build-to-suit facilities for owner-occupied space, values for national tenants.Smaller retail spaces the site has the potential to attract a bank or a at lower rents support lower land prices. Y2 An Advisory Services Panel Report Land prices,therefore,depend on what zoning Information from numerous interviews indicated and the market will allow to be built on the site. that Salem is a community with a reputation for a Land zoned for industrial use has a much lower difficult development approval process—one in value than land entitled for residential and com- which the developer cannot predict whether ap- mercial use.The city can help raise the value of propriate zoning will be applied to a property or the Boise Cascade land by zoning it for mixed use. when that approval might be received.This leads Development Risks to less willingness on the part of developers to pay a high price for land,because they need the Developers and investors buy land at a price that lower land price in order to obtain the rate of re- allows them to improve it,build the best product, turn required to justify the higher costs of a and sell it at a price that generates a return high lengthy approval process and the risk of mis- enough to justify the risks they take.The value of timing the market. raw land is much lower than the value of land for which there is an approved plan—on which a de- By promptly rezoning the property for mixed veloper could begin construction tomorrow. use and developing ahead of time a specified list of required public improvements needed for de- The impact of uncertainty regarding zoning and velopment of the property under the new zoning, development approval can be substantial.Ex- the city could help create value on the Boise pressed in terms of required return,a developer Cascade site. would need a return topping 25 percent to pursue a project on raw land that has no zoning or devel- opment rights.For a site meeting all the legal re- quirements needed to proceed and receive a build- ing permit,a return as low 10 to 15 percent might be high enough. Salem,Oregon,June 25-30,2006 23 Planning and Design city is a living system.Each of its compo- eluded in the development plans.This parcel-by- nents affects and is affected by the rest of parcel approach provides the opportunity for the city.Some effects are immediate and phased development as market conditions allow, obvious;others are gradual and more sub- and for flexibility regarding the specific uses to be tle.If the Boise Cascade downtown site is to flour- accommodated on each parcel.Additionally,the ish and support the community's goals,planning property owner may elect to sell ownership inter- and design for the properties must consider the ests to multiple developers,guided by the specific wider context of the downtown. entitlements attached to each of the parcels. Downtown Site Considerations The downtown site is bordered by Riverfront Park and the Commercial/Front Street state high- The Boise Cascade site and the structures on it way,and is bisected by the Portland&Western encompass a broad range of conditions—from short-line railroad.Both the state highway and historic former mill buildings to vacant former the railroad create special considerations relative brownfield parcels.Consequently,the panel,in to public safety and noise,and care has been taken crafting a master plan for the site,adopted a cam- to consider these factors in evaluating the devel- puslike approach,dividing the property into five opment potential for each site.In addition,the site The missing piece of the smaller parcels according to their specific attrib- is bisected by Pringle Creek,which currently city's waterfront reclama- utes and their potential for new commercial and flows beneath the center of the existing building tion and redevelopment public uses. complex. efforts is the Boise Cas- cade site.These proper- Each of these distinct parcels offers a range of ties are considered the opportunities for development under the overall Community Considerations linchpin in Salem's river- master plan;more intensive development could The panel discovered during the interviews that front redevelopment. be considered if additional public benefits are in- community groups widely believe that the creek conditions should be modified to allow public ac- cess along Pringle Creek to Riverfront Park on the Willamette River side of the property.The panel agrees with this objective and recommends that any scenario for development of this prop- erty provide for opening of the creekbed to the river to allow public access and provide a view corridor to the river,from Civic Center Park and Commercial Street. The community also expressed a desire for im- proved access to and use of the area adjacent to Riverfront Park,as well as access north and south across the site for pedestrians and bicyclists.The panel concurs with these community requests and with the interest in pursuing the construction of the long-planned pedestrian bridge to Minto Is- land from a point near the Eco Earth Globe in 24 An Advisory Services Panel Reporl Riverfront Park.Each of these issues will be discussed in greater detail in the relevant par- cel section. U Parcel One: Civic Center West Sneer This parcel is located at the southern end of the site on the south side of Bellevue Street South- east.The portion of the parcel bounded by Belle- /'f south ~ �`• \�,/ �� vue r the Portland&Western railroad tracks,and %/ state � / h^,` an unnamed road that runs north-south from Oak Street x \ .r Street Southeast to Bellevue Street Southeast is ``�., //' l� e owned by Boise Cascade.The panel understands 1 'Sq tae that Salem owns the bulk of the remainder of the tel Conference block,with the exception of two properties at the n Center northeast and southwest corners of the block. <00, The panel recommends that the city d Boise Proposed _r p y an Proposed Cqmmuter Rail Pringle combine their properties to create a larger devel- Pedestrian t` station creek sneer Bridge f opment opportunity.This larger parcel could ac- J 7 r commodate future city needs for municipal office av utn center and parking space,as well as the existing use of /3' rehouse/ c,vi city vehicle parking,and still provide space for ad- ; Factory ' ditional development opportunities up to the cur- 0 , rent height limit.The panel proposes that devel- `�' opment on the site include ground-floor retail and service uses along Commercial Street,with a mix wee of office and residential uses above on-site park- f (/I Salem ing.The panel expects the parking requirements :�"civic Center y Civic Center / r West for these uses to be met on site. Parcel TWo: South Warehouse and j Paper Factory rFuture � / Development This parcel consists of five separate areas bounded by Bellevue on the south,Commercial on the east, Pringle Creek on the north,and an additional and surface parking.To the north is the historic Site plan of the study property across the Portland&Western rail lines wood-and-concrete Paper Factory building con- area. that is partially made up of palisades above the sisting of three large floor plates with wood beams Willamette Slough.Current site improvements in- supporting wood floors and 20-foot-high ceilings. elude the concrete South Warehouse,constructed The building rises from the very edge of the in the early 1960s and consisting of three floor creekbed and is supported by a foundation of open plates of 90,000 square feet each.The concrete concrete footings that allow high water to flow floors are supported by concrete-and-steel columns under the building during periods of heavy runoff. spaced about 25 feet apart,and the top floor is enclosed by steel columns supporting aglue- Adjacent to the Paper Factory is an open area oc- laminated wood roof system. cupied by Portland General Electric transformers that serve the Boise facilities.The final component Adjacent to this building on the south is a vacant of the parcel contains three large tank towers,two property currently used for truck loading access of which are faced with terra-cotta tile.A signifi- Salem,Oregon,June 25-30,2006 25 The South Warehouse represents a significant asset due to its potential for conversion to provide parking.The panel sug- gests that the parking be c surrounded by new resi- dential lofts. P Redevelopment proposal for existing Boise Cas- cade buildings. F ' cant grade differential of about 30 feet separates the area along the Portland&Western railbed y. from the adjacent Willamette Slough. The panel believes that the South Warehouse rep- ettrork park Expansion resents a significant asset because of its potential for conversion to provide parking.A previous study - _- of the building by Lion Unlimited of Salem for a Riverfront Park Prmgie Creek hotel/conference center indicates that in its current Expansion configuration,it has a capacity for 250 vehicles per level—a total of 750 spaces.At current construc- tion costs of$15,000 to$25,000 per space for new parking structures,the building could provide a % significant savings for any future development on t 27 i! the site.In addition,the warehouse elevations offer appealing views across Civic Center Park , f and Willamette Slough to Minto Island. r � Given the development potential offered by the wu�street I South Warehouse building and the vacant area J \ along Bellevue and atop the slough bluff,the panel "4 recommends that the parcel be adapted for use as ' parking surrounded by new residential lofts.The panel believes that about 90 residential units could be created by using the area along Bellevue for 30 townhouse-style units,and that an additional 30 units per level could be located on two new park- 26 An Advisory Services Panel Report r The Old Mill Building, built in the late 1880s and featuring the dramatic wood-truss ceiling shown here, is an excellent can didate for adaptive use. ing decks placed atop the existing structure.Units parking levels with 500 spaces could be created also could be located along Commercial Street and behind the new residential units,making a total serve as live/work entrepreneur units. of 625 parking spaces available on Parcel Two. The existing concrete walls could selectively be The final element in this parcel is adaptive use of carved away to create window openings without the Paper Factory building.The panel suggests a affecting the structural integrity of the warehouse. mix of retail and service uses on the Commercial The new units atop the building should be config- Street frontage,restaurant uses along the Pringle ured in a U shape,and would feature spectacular Creek side of the building,and creative office or views across Minto Island to the Willamette River live/work units in the remaining space on the two and beyond. upper levels.The top floor has a dramatic bow- The panel suggests that the entire bluff-top area truss wood ceiling,providing an opportunity to across the railroad tracks from the warehouse be create Class A creative-style offices.With the used as a continuation of the walking and biking plentiful parking available in the adjacent South trail system that begins in Riverfront Park.It Warehouse,a uniquely appealing corporate open- hopes that a pedestrian bridge across Pringle Creek office location could be created. could be built to provide an all-season connection for walkers and cyclists. Parcel Three: Old Mill Building Another promising element of this adaptive use The third parcel is composed of three buildings proposal is the opportunity to address the often- built during various periods: mentioned desire for a gourmet food market.The first level of the South Warehouse along Com- • the concrete-and-glass-block industrial struc- mercial Street could accommodate both a 40,000- ture built in the 1920s above Pringle Creek,for- square-foot gourmet grocer,such as Roth's, merly the machine room building,which has Trader Joe's,or Whole Foods,and public parking two levels of steel-truss spans supporting for 125 cars.Ramps providing access to the upper wooden floor decks; Salem,Oregon,June 25-30,2006 27 Section of redevelopment South Warehouse Paper Factory Old MMI proposal for existing Boise buildings. Bellevue Street Walking Trail �' Trade Street Gourmet Market - Pringle � Creek Key Residential Parking Live/Work and Creative Office Restaurants and Retail • the historic two-level Old Mill Building;and • the adjacent three-story beater room building, Transit-oriented development plan for the site. located along the Portland&Western railroad tracks. I � The Old Mill Building,assumed to be the first building on the site,was constructed in the late 1800s and features a dramatic wood-truss ceiling i SWte Sheet on the upper floor,with clerestory windows now tblocked by wooden panels.The enormous former + 0 window openings,now blocked with concrete- block and aluminum-siding infill sections,could Future � provide dramatic views across the Willamette Transit- r • oriented Slough to the river and beyond in an adaptive-use Development b development. J (10 � er qua a try e � The advisory panel recommends that the entire Hotel former machine room building,which spans Pringle Proopp osed' Conference ark Center Creek,be removed,with the exception of a portion Expansion. • of the steel truss system,which can be reused to k provide pedestrian access above Pringle Creek to Proposed Pr osed reek D �ce Sty Pedestrian Park,Expansion a tr ht„r eej the South Warehouse parking. Bridge q. Also suggested for removal is the southern por- outn ?' tion of the beater room building to create an ex- Warehouse/ Paper ceptional view corridor to the Willamette Slough lF; ` Factory and Minto Island from Commercial Street and the Civic Center campus. i��` a eyue The final element in this parcel is adaptive use of J the Old Mill Building.The panel suggests a mix / iv Salem. of retail and service uses on the building's Com- Ci'c Ce r mercial Street frontage,restaurant uses along its Pringle Creek and north Trade Street sides,and creative office or live/work units in the remaining space on the two upper levels.The top floor's dra- matic wood-truss ceiling also provides an oppor- tunity for creation of new Class A creative-style 28 An Advisory Services Panel Report Pringle Creek flows under the center of the existing building complex.The panel believes that any redevelopment scenario should open the creek for public access and create a view corridor from Civic Center Park and Commer- cial Street. offices,spectacular residential lofts,or,as mar- connect the proposed station to the Commercial ket conditions allow,a boutique hotel with a and Front Street intersection,with the Old Mill restaurant. Building offering the potential for development of With the plentiful parking that would be available shops and small cafes that spill out onto the plaza in the adjacent South Warehouse,the historic Old in good weather.At the railroad tracks,an ele- Mill Building offers flexibility for a variety of uses vated pedestrian bridge could connect the station that can take advantage of the views and conve- to a northbound station platform and to River- nient location near downtown. front Park beyond. The Fry Building itself could be considered for Parcel Four: Station Square renovation to provide additional loft units,or de- The triangular parcel on the north side of the molished as appropriate for the development of Boise property,currently home to the multistory the proposed rail station.The panel believes it can concrete Fry Warehouse,is proposed by the be assumed that the transit agency responsible for panel as the site of a future commuter rail sta- the commuter rail developments would pay fair tion.Over the long term,this location has the market value for the site. potential to provide an easy access point for pas- sengers from Eugene,Portland,and points in be- Parcel Five: South State Street tween to reach Salem's employment centers at The panel believes one of the most exciting oppor- Salem Hospital,Willamette University,down- tunities for both commercial and public space de- town,and the state Capitol. velopment may be presented by the Boise truck The existing curb cuts could be used to provide ac- parking lot.The site is bordered by Riverfront cess to a driveway for passenger drop-off,shuttle Park on the north and west,by the Portland& bus service connecting to other downtown points, Western railroad tracks on the east,and by and taxi services.A linear pedestrian plaza could Pringle Creek on the south.A portion of the site Salem,Oregon,June 25-30,2006 29 Proposed State Street extension. U �\ State Street Proposed State Street t Extention lit ,4f fTl I �1 1 Ferry street e 1 t Hotel Conference # Center e Street � e P a ,. \ ngle Creek tU F I oFF F U I U� �J along the Pringle Creek edge is fill composed of The panel suggests that perhaps the most effec- construction debris. tive way to activate Riverfront Park and to pro- vide economic stimulus to downtown Salem is to The community stakeholders interviewed by the extend the central commercial spine along State panel expressed interest in the site's potential for Street into Riverfront Park. expansion of Riverfront Park,and concerns about areas of the park that are currently underused As conceived by the panel,the new South State and the much-debated question of whether or not Street extension would begin at the intersection of State and Front streets,with an enhanced sig- to build a bridge to Minto Island.In formulating its plan,the panel has attempted to balance two nal and public safety system provided at that busy spot.The extension would continue across city- factors—the sensitivity of the site due to its loca- owned land past the carousel through the existing tion along the park and the need for commercial public parking lot and the Boise site to terminate development to ensure the economic viability of at a roundabout in a new Great Lawn at Pringle the project.The panel proposes creation of a down- Creek.Twin pedestrian pathways would extend town community gathering place to serve as a across the lawn to pedestrian bridges,one cross- symbol of the community. ing Pringle Creek parallel to the Portland&West- 30 An Advisory Services Panel Report ern railroad tracks,and the other passing around retail district.Parking for 250 cars would provided the Eco Earth Globe to the long-proposed bridge underground,with an additional 60 spaces pro- to Minto Island. vided inside each residential building. Along the new South State extension would be The new South State extension itself could provide twin four-story structures lined with 18,000 vehicular access to the Great Lawn during less- square feet of small shops,restaurants,and entre- busy periods,and,when closed to traffic,used as a preneurial business spaces,with 50 residences new home for the Salem Farmers Market.Each of located on the upper floors of each building.The the new residential units,averaging 1,200 square retail space could offer perhaps two or three sig- feet,would offer city,park,or water views,and nature waterview restaurants with outdoor seat- have the amenities of downtown Salem and three ing during nice weather,with the remainder de- exceptional city parks right at their doorstep. voted to small owner-operated businesses sized so as not to compete with the established downtown Salem,Oregon,June 25-30,2006 31 Development Strategies he purpose of the panel is to help the city highest and best use.If the city were to immedi- and Boise Cascade define a vision for rede- ately rezone the properties,it would remove en- velopment of the company's plant property. certainty associated with the zoning process and Development of the site will confer a great increase their value—value that would facilitate public benefit while also providing the incidental relocation of Boise plant operations to another lo- benefit of creating value that will facilitate reloca- cation within the city limits. tion of Boise's operations to a new site in Salem. The panel has identified three ways to achieve a The Boise downtown properties have been used greater public benefit and help keep jobs in Salem: for industrial production and distribution for more than 100 years,but the plant is inefficient and • The city should change the zoning to allow uses nearing functional obsolescence for the following that will facilitate redevelopment of the Boise reasons: downtown properties. • It has multistory buildings. • The city should contribute property it already owns to a joint venture between itself and Boise • The building layout is inefficient for current dis- to develop discrete hases of the redevelop- tribution uses. p p ment site. • Truck access through the city and around the • Boise should make a gift to the city of the Minto site is difficult. Island property,an underperforming asset for . It is too far away from an interstate highway. Boise,on the condition that the city redevelop the island property in a manner that will en- As plant operations have become less competitive, hance the value of the downtown properties the character of the city's riverfront has changed that Boise will continue to own. over past 30 years from industrial uses to recre- ational and public open-space uses.The Boise Of the three recommended actions,changing the downtown properties stand out as the last indus- zoning would create the greatest value for Boise. trial site on a fundamentally changed riverfront. In addition,the panel recommends that the city These developments are consistent with a national and Boise continue to evaluate additional financial trend of industry moving out of downtown water- ` assistance that will improve the economics of re- front locations to sites along the interstate high- developing the company's downtown properties way system. . and facilitate relocation of plant operations to an- All these circumstances contribute to the unreal- other site in Salem.Finally,the panel recommends ized value in the Boise downtown properties— that the city and Boise establish deadlines for value that can be realized through a new zoning milestone events along the path of redeveloping designation. the downtown properties. The Valve of Entitlement Create Value at the Site what is an"entitlement,"and how would an enti- tlement change create value for Boise?The Fed- The full value of the Boise downtown properties is eral Communications Commission(FCC)issuing a not presently realized because the current indus- license to a broadcaster provides a useful analogy. trial zoning classification does not allow their The FCC authorization to broadcast to the public 32 An Advisory Services Panel Report Salem should change the zoning on the downtown riverfront parcel from industrial to mixed use in order to create immediate land value at the site. creates value that did not previously exist.If it with the zoning process increases the value of were not for the FCC authorization,the broad- property. caster could not engage in the profitable business The panel recommends that the city and Boise im- of broadcasting.The same principle—government mediately start discussions concerning the specific authorization of an activity to create value— components of the entitlement change.The panel applies in the zoning context. set as a realistic goal that within six months Boise Salem has the power to regulate through its zon- and the city would complete their discussions con- ing ordinance the use of all land within the city cerning the specifics of the entitlement change and that the city would enact necessary amend- limits,in accordance with Oregon's state enabling ments to the zoning ordinance. legislation.The current zoning of the Boise down- town properties is industrial,which,given changes Strategies fcir :glance on the riverfront over the past 30 years,is the The panel appreciates the competing interests least valuable use of the property.The value of that will underlie the discussions between the city property is determined in large part by its zoning and Boise concerning;the specific nature of the en- classification:property zoned for mixed use—resi- titlement change.The redevelopment will likely dential,retail,office,and parking—is more valu- proceed in phases over a period that could extend able than property zoned for industrial purposes. from five to ten years,or longer if the market changes.It is therefore understandable that Boise When changed circumstances mean that a prop- will seek an entitlement change that provides flex- erty cannot be put to its highest,best,and most ibility to adapt to changing conditions.The city,on profitable use,its owner may apply to the city for the other hand,will seek to ensure that the vision a change in zoning classification.The process of articulated and endorsed by the community is ac- seeking a change in zoning classification is expen- tually carried out. sive and time consuming,and the result can be un- The panel proposes two strategies for striking an predictable.Removal of the uncertainly associated appropriate balance between these two,equally Salem,Oregon,June 25-30,2006 33 compelling objectives.The first,most effective —to prepare a development proposal may actu- strategy is to identify the elements of the entitle- ally discourage the most qualified developers ment change that define the community vision for from seeking to work on the project.Instead,the redevelopment of the Boise properties.The city focus should be entirely on the qualifications of should focus on the core,essential elements of the the developer. redevelopment plan;peripheral elements should be left to the developer and the market.The sec- After a qualified developer is approved by the city and strategy is for the city and Boise to collabo- and Boise Cascade,the developer then should be rate on selection of a development team. free to develop and implement a development plan based on the core principles specified in the enti- Ensuring the Vision tlement change.However,apart from standard As part of the land use changes,the panel recom- design review by city staff,the details of imple- mends that the comprehensive plan classification mentation of the redevelopment should not be of the Boise properties be changed from indus- subject to further city review. trial to a new zoning classification created for the property—river-oriented mixed use.To ensure These controls would strike an appropriate bal- that the community's vision of the redevelopment ance between ensuring adherence to the core prin- is realized,the new zone should define the core ciples and providing the developer with the flexi- elements of the redevelopment plan for the Boise bility needed to react to changing conditions. downtown properties.The standards for the new This process would enable the developer to evalu- zone,discussed in greater detail in the Planning ate the economics of redeveloping the Boise down- and Design section of this report,should address, town properties around the core principles of the for example,the following core elements of the re- development plan: entitlement change and to prepare financial analy- ses required by investors,lenders,and insurers. • defined view corridors; In the short term,Boise would be able to maxi- mize the value of its downtown properties—value • designated public open-space areas; that will facilitate relocation of operations to a • the opening and extension of public access to new location in the city—and the developer would Pringle Creek; be in a better position to raise capital to redevelop the property. • defined density of the redevelopment; The entitlement change also would enable evalua- • specific phases of the redevelopment;and tion of the economics of the distinct phases in which the project is expected to be divided,leav- ing the developer better positioned to finance a Choosing a Developer series of independently developable components The panel also recommends that in exchange for of the overall redevelopment plan.The benefit of enhancing the Boise property by constructing the Phased financing is that incremental redevelop- pedestrian bridge linking the site to Minto Island, ment is more likely to commence in the near term the city be given a role in determining the qualifi- than is an all-or-nothing,high-risk,large-scale re- cations of the site developer.The city and Boise development plan. Cascade should develop an agreement specifying objective criteria for evaluating the qualifications Leverage City and Boise Assets of a developer—e.g.,relevant experience and fi- nancial resources required. Another strategy for promoting redevelopment of the Boise downtown properties is to make other Developer candidates should not be required to property already owned by the city available to present specific development proposals.Requiring the development team to improve the economics that developers spend the time and incur the of the redevelopment plan.As mentioned in the expense—often hundreds of thousands of dollars Planning and Design section of this report,the 34 An Advisory Services Panel Report Boise should donate the q Minto Island parcel to the city since redevelopment options for the island are t ih constrained by flood risk. city owns two parcels with significant value to the exceeding what they would achieve acting inde- redevelopment. pendently. At the southern end of the redevelopment site, Transfer Minto Island to the City the city and Boise each own portions of the parcel south of Bellevue adjacent to the railroad tracks. Because it is located in a floodway,Minto Island is Because the two portions combined would have a effectively off-limits for any development.As a greater development potential than either portion consequence,long-term use of the Boise-owned alone,the city and Boise should combine these property on the island is limited to passive rec- properties through a joint venture. reational uses,such as jogging,hiking,bird The city also owns land at the northern end of the watching,and similar activities.The Minto Island redevelopment site.The panel recommends that property appears to have no viable use as income- the city work with the developer to extend State producing property—at least not in the short Street to the south to provide access to a new term.Transfer of this nonperforming asset to the Great Lawn and a signature mixed-use develop- city would create value in that Boise would be re- ment connecting the downtown to Riverfront lieved of the obligation to pay property taxes, Park.This vision cannot be realized without the maintain the property,and insure the property. city dedicating a new road,the South State Street More fundamentally,making a connection be- Extension,across the city-owned land north of the tween the redeveloped Boise downtown proper- current Boise truck parking area. ties and an urban part:on the island would en- A coordinated development strategy for the rede- hance the value of the properties.The extension velopment site—through which the city and Boise of and connection of a new Great Lawn to the is- participate in a joint venture at the southern end land would bring a unique urban park within a and the city dedicates a road at the northern end footbridge's reach of the Boise downtown proper- -would produce gains for both the city and Boise ties.Boise would only realize this value if the Salem,Oregon,June 25-30,2006 35 city funds and constructs the pedestrian bridge to relieved through a program in which a devel- the island. oper,in exchange for the right to develop on Conditions for Transfer wetlands elsewhere within the growth bound- ary,could purchase wetlands enhancement The panel recommends that Boise transfer title to credits from a bank of credits created by en- its property on the island to the city—not just to hancing wetlands on the island. relieve itself of the burden of owning a nonper- forming asset,but also to enhance the value of its • Enhancement of natural resources to offset downtown properties.The panel recommends that damages at other sites.This concept is similar to certain conditions be satisfied before title to the that of wetlands banking.A party that damages island property is conveyed to the city.These a natural resource owned by Oregon or the should include the following: United States can be required to reimburse the state or country for the value of the damaged • The city,in coordination with Boise,should de- resource.The best-known example of this is velop a specific plan defining the manner in Exxon having to pay the United States and which the island property will be used for pas- sive recreational purposes.For example,the Alaska the value of the wildlife killed as a result of the Exxon Valdez oil spill.In lieu of paying plan should identify the specific location of run- money for the value of the damaged resources, ping and bike paths. the responsible party can enter into an agree- • Boise Cascade should consult with the Oregon ment with the trustees of the resource—the Department of Environmental Quality(DEQ) state DEQ or the U.S.secretary of the interior concerning whether a change from an industrial —to enhance another natural resource else- use to passive recreational use would affect the where.Enhancing natural resources on the no-further-action(NFA)letter issued by the Minto Island property—for example,creating a DEQ in 2000 declaring that no additional action nesting ground for bald eagles—would create a was needed for environmental remediation at marketable credit that could be sold to a party the island property. needing one. • Boise,or one of its affiliates,should indemnify • Construction of a golf course.The possibility of the city against claims relating to existing con- locating a golf course on the island has been con- ditions on the island property. sidered.Also,one panel member thought a park on the island could be integrated with the down- Alternative Uses for the Property town to create an ideal venue for a marathon or The panel was impressed by the creativity of and another showcase road race. enthusiasm expressed by the city,DEQ,and Boise staff for proposed enhancements of the island prop- As exciting as these concepts are,there is a con- erty that,if implemented,could create significant sensus among the panel members that potential value from a nonperforming asset.Among the al- gains from implementation of any of these ideas ternative uses of the island property discussed are or others will not be realized in the near term. the following: There is also a consensus that redevelopment of the Boise downtown properties and relocation of • Establishment of a wetlands bank.A wetlands the company's operations to a more efficient loca- bank works on the principle that the right to im- tion in the city should not be delayed in order to pair wetlands within the Willamette Valley wa- explore promising,albeit long-term,alternative tershed can be"acquired"by paying to create uses for the island property. new wetlands elsewhere within the watershed. Bankable acres of created wetlands have signifi- The panel expressed no opinion on the likelihood cant market value.As development advances that income would be derived from the island within the Salem urban growth boundary,de- property in the short term.The panel believes velopment pressure on wetlands within that that Boise,rather than the city,is in the best posi- boundary will increase.That pressure could be tion to pursue these opportunities for the island 36 An Advisory Services Panel Report Archaeological and envi- ronmental matters will need to be fully resolved before the Boise Cascade buildings and land can be redeveloped. property.Therefore,it recommended that Boise • seeking state and federal assistance and finan- be given two years to pursue these options and cial incentives to advance the redevelopment or determine a value of the island property for tax defray some of the cost of Boise's relocation to a purposes before giving it to the city as a gift.The new facility within Salem;and obligation of Boise to make a gift of the property . providing relocation assistance. to the city should also be conditioned on the city committing to fund construction of the pedestrian Clarify Environmental Conditions bridge since some of increase in the value of the Boise downtown properties derived from the The panel would like to acknowledge the leader- zoning change is contingent on existence of the ship Boise Cascade has shown in addressing envi- bridge. ronmental conditions and positioning the down- town properties and the Minto Island property for Leverage Other Resources redevelopment.Boise has pursued an aggressive strategy in pursuing an NFA letter from the DEQ The panel expressed no opinion as to whether,in for both its downtown properties and the island addition to the value created by the proposals out- property. lined here,additional public resources should be According to available information,it does not ap- committed to improve the economics of the rede- pear that environmental conditions will impede velopment plan.However,the panel does recom- redevelopment as conceived by the panel of either mend that the city and Boise begin a dialogue on the downtown properties or the island property. this subject should it become apparent that public Specific issues regarding the downtown proper- resources may be necessary to implement the re- ties will have to be addressed by Boise to the sat- development plan.The discussion of public/private isfaction of the developer,lenders,insurers,and partnerships might include the evaluation of the others.As noted,the panel recommends that the following options: applicability of the NFA letter for the island prop- Salem,Oregon,June 25-30,2006 37 NONNONNOWNIM erty be clarified regarding passive recreational,as • obtainment of clarification from the DEQ re- opposed to industrial,uses. garding future passive recreational use of the In addition,an investigation of the possible pres- island property; ence of archaeological or historic artifacts on the • development of specific design/performance cri- site should be completed before redevelopment. teria and core principles to govern entitlement changes; Establish Deadlines for Milestone • transfer of title to the island property to the Events city; The panel recommends that Salem and Boise Cas- . creation of a joint strategy for development of cade develop specific deadlines for achieving mile- adjacent downtown city-owned and Boise- stone events in the redevelopment of the down- owned property; town and island properties.These events should include the following: • hiring of appropriate professional support to guide the city and Boise through the redevelop- • development of a plan for the passive recre- ment process; ational use of the Minto Island property; • engagement of stakeholders in the redevelop- • obtainment of a binding commitment from the ment process;and city to fund construction of a pedestrian bridge from Riverfront Park near the proposed new • evaluation of the potential for archaeological or Great Lawn(at the northern end of the redevel- historical resource discoveries. opment site)to the island; 38 An Advisory Services Panel Report Implementation he ULI panel has established a thoughtful Salem processing and distribution facility to a and innovative development plan for the new location where it can operate more effi- Boise Cascade properties in downtown ciently and economically;and Salem.Implementation of this plan will re- . to determine the most economical disposition quire a series of careful steps.ULI recently pub- arrangement for the 310 acres it owns on Minto lished a report titled Ten Principles of Successful Island. Public/Private Partnerships,developed in con- junction with the ULI Public/Private Partnership For Salem: Council and a blue-ribbon committee of U.S.may- . to retain the 100-plus Boise jobs and the related ors and private developers.Copies of this report tax base within the city limits; were provided to stakeholders for their reference during preparation for development of the Boise • to ensure that there is high-quality redevelop- downtown properties. ment of the Boise Cascade industrial facility, and promote the vitality of downtown and the To implement the proposed development plan, new and adaptive-use development taking place the panel recommends that the city and Boise there;and take the following steps,which are based on the tenets in the Ten Principles report. • to accept from Boise a donation of the open- space land on Minto Island and integrate it into Understand Your Partners and the park system. Key Players Build Trust as a Core Value The management of Boise Cascade and city offi- To accomplish these goals,both participants must cials,including both staff and elected officials, first build trust as a core value.This should occur should establish a working group to manage the as each party proceeds in good faith to recognize development process.A key person from each or- the other's risks and goals. ganization with authority to make decisions should be designated as the prime contact person,and each organization must have a complete under- Be Clear on the RISKS and Rewards for standing of the other's decision-making process. All Parties The working group should be staffed by appropri- Boise Cascade owns industrial property in down- ate support personnel from each organization. town Salem that it would like to sell for the best price possible,but it currently does not have the Create a Shared Vision entitlements necessary to achieve maximum The first agenda item for this group should be to value.The earlier it receives the needed entitle- establish and agree on the goals or visions for the ments for reuse of the property,the greater its re- process.The panel understands the goals of the turn will be and the faster it will be able to sell the project.It would like to make its business opera- tion more efficient and economical,but needs new For Boise Cascade: capital and/or public assistance to accomplish this. If it does not sell its properties and resolve the • to maximize the value of its downtown proper- outstanding issues associated with the ownership ties to provide a funding source for moving its quickly,the relocation may be jeopardized. Salem,Oregon,June 25-30,2006 39 With careful communica- tion,cooperation,and collaboration, Boise and - the city can create a proj- ect for the site that serves both business and com- munity needs. If Salem cannot provide incentives for Boise Cas- Salem would agree to do the following: cade to remain in the city,it could lose the associ- atedjobs and tax base and will not be able to ex- ' fund and complete in eight or nine months a re- pand its park system.By creating entitlements for zoning plan for recreational use and habitat the Commercial Street parcels,the city will add preservation on Minto Island and commit to value to the site,but cannot ensure that ahigh- funding construction of a pedestrian bridge quality development will be placed there.If the across the Willamette Slough to the island;and city acts too quickly and without public support,it . initiate rezoning of the Boise downtown proper- risks loss of broad resident support for the public ties to a mixed-use zone that is similar to down- process. town zoning. Establish a Clear, Rational Decision- This zoning should include the following: Making Process • stipulation that all needed parking for develop- Within 60 days,the parties should develop and ment on the property will be provided on site; sign a memorandum of understanding.This docu- . stipulations regarding all public easements for ment essentially would be an agreement to agree, pedestrian movement and view corridors,in- and should include a timetable for the develop- cluding daylighting of Pringle Creek from Com- ment process,identify the specific tasks each mercial Street to Willamette Slough;and party needs to perform,and establish a process for information sharing and dispute resolution. • stipulations regarding design criteria,infra- structure requirements,possible adaptive use of certain historic structures,and performance The memorandum of understanding would reason- standards for developing the property in phases. ably include the following broad parameters for action by each party. Boise Cascade would agree to do the following: 40 An Advisory Services Panel Report The city would like to see the 100 jobs at the Boise Cascade site retained within the city limits after its redevelopment. • relocate its current processing and distribution Immediate Actions facility to a new location within Salem; In order to carry out the memorandum of under- standing,the city and Boise should take a number • provide as-built drawings of the Boise down- of steps immediately. town properties; Salem should do the following: • market its downtown properties for redevelop- ment and select one or more buyers in collabo- • undertake a rezoning plan for the Boise down- town properties;this plan should define devel- ationwith Salem;the strategy for identifying a opment parcels,identify historic buildings for and selecting the developer/buyer be es- adaptive use(four buildings merit further eval- tablished collaboratively with Salem and can in- uation),identify transportation and utility is- clude a variety of techniques,including direct sues affecting the site,and establish a daylight negotiation or a request-for-qualifications corridor above Pringle Creek and other possible process; pedestrian corridors; • obtain DEQ clearance for recreational use of • complete rezoning of the Boise downtown prop- Minto Island and pay reasonable costs of envi- erties and Minto Island;and ronmental mitigation necessary to receive this • create a new urban renewal district to include clearance;Boise would retain liability for re- all the Boise downtown properties and certain maining contamination on the island,if any;and nearby city-owned properties.The district con- trols should include flexibility on heights,densi- • dismantle and remove the electrical substation ties,parking requirements,open-space defini- and transformers on the industrial property. tions,and other development matters,and should remain in effect for 15 to 20 years.The stability The city and Boise Cascade should agree to a ne- provided by the district regulations should give gotiated dispute resolution process within the the developer or developers confidence that all next six months. necessary entitlements will remain in place, Salem,Oregon,June 25-30,2006 41 If the Boise Cascade site is to flourish and support the community's goals, planning and design must consider the broader con- text of the downtown. ohm that development can be financed,and that city at least every other week to review progress on review will be timely and reasonable. all committed project work. As part of the requirements of that district,Salem Salem should establish two advisory task forces— should retain the right to approve the selection of appointed by the mayor and staffed by the city— the developer based on the developer's demonstrated consisting of representatives from the business ability to design,finance,build,and market proj- community and independent citizens groups.One ects of similar size,complexity,and quality.An ad- group would review the work of the park planning ditional criterion should be the developer's will- effort on Minto Island and the other would review ingness to develop the project in accordance with the planning work underway on the Boise down- design standards identified in the rezoning plan. town properties. Boise Cascade should do the following: Make Sure All Parties Follow Up • agree to donate all land on Minto Island to the city once the company receives environmental The memorandum of understanding should in- clearance for recreational use of the land;and elude provisions to unwind all agreements in case the good-faith efforts of the parties fail.If either • submit a detailed plan for relocating the com- party fails to perform,Boise should have no oblig- pany's processing and warehouse activities ation to relocate within Salem,and the city should within Salem. have no obligation to retain the mixed-use zoning for Boise industrial properties or the responsibil- omunlcate Early and Often ity to accept the Boise Minto-Brown Park land. The project working group should be responsible Manage Public Infrastructure for implementing strategies to achieve goals and objectives articulated in the memorandum of un- Many development issues will be beyond the con- derstanding between Boise and the city,meeting trol of either party.In this project,two issues will 42 An Advisory Services Panel Reporl The success of Riverfront Park demonstrates the community's hunger for increased access to the Willamette River and other natural environ- ments. have an important effect on parcel configuration, In response,the city should include in its rezoning waterfront configuration,and safety. plan consideration for placing the utility lines un- derground and the use of the franchise fee,tax in- crement collected from the urban renewal district, freight service on the western edge of the prop- and/or a privilege tax for businesses within the erty that will continue after Boise's industrial use district to fund some of these costs.Total receipts ends.The panel understands that the state agency could be in excess of$4 million in 2006. responsible for extending commuter rail service is currently considering using this rail right-of-way Today,Salem and Boise Cascade have an opportu- to provide service between Portland and Eugene. nity to create a public/private partnership to Should this service be established,it will have a achieve major goals benefiting both parties.The substantial impact on the site uses. city has the opportunity to dramatically expand its park and open-space facilities,revitalize its The project working group needs to establish downtown core,and expand its riverfront,while communication with the commuter rail agency and at the same time,one of the area's major employ- maintain communications regarding the status of ers can relocate within the city and improve its ef- feasibility studies,environmental impacts of the ficiency and opportunities for growth. different route alternatives,and the possibility of a state-funded transit stop. However,this win-win situation can only be real- ized if both organizations create a shared vision, Major high-tension electrical lines that run above work together in good faith,involve the commu- ground along the rail right-of-way are visually in- nity,and establish a specific time line to complete compatible with Riverfront Park and will detract the complex project tasks. from the redevelopment of the industrial build- ings.Also,railway accidents pose a safety hazard for the area adjacent to the rail. Salem,Oregon,June 25-30,2006 43 Conclusion uring its short stay in Salem,the panel was The redevelopment of the Boise Cascade down- impressed by the city's many assets.Salem town properties is a tremendous and compelling is blessed with a beautiful location along opportunity to create a legacy project for the city. the Willamette River,has wonderful Leaders should demand that development is of a scenery,and boasts an impressive amount of open high quality befitting such a beautiful and historic space.Downtown Salem is a vibrant place rich city.The pride of city leaders is fully justified. with opportunities for improvement.The preser- Working together,they can accomplish great vation and renovation of many of the downtown's things—as can be seen in the city's accomplish- architecturally interesting buildings has created a ments so far. tremendous community asset.Finally,the city's leadership—both civic and business—is impres- This history and the passion of the community sive and admirable.The city has assets that are leaders led the panel to feel confident that the the envy of many other cities.These assets should Boise Cascade downtown properties will be re- not be taken for granted. developed to meet the city's established high standards. The panel also commends Salem for its coopera- tive spirit,which has resulted in great accomplish- The public/private collaboration should aim high ments,among them the previous relocation of in its efforts,demand high quality,and plan big in some of Boise's other operations and the creation the spirit of legendary Chicago architect Daniel of Riverfront Park.Improvements,including com- Burnham.As he said,"Make no little plans,they muter rail to Portland,are ongoing,and the city have no magic to stir men's blood and probably possesses tremendous potential to capture such will themselves not be realized.Make big plans, opportunities. aim high in hope,and work,remembering that a noble logical diagram,once recorded,will not die." Both Boise Cascade and the city are justified in taking pride in their work on the riverfront prop- erties to date.Future generations will undoubt- edly benefit from the forward-thinking and thoughtful leadership the company and the city are providing.The partnership should continue to forge ahead with its spirit of cooperation.Most im- portant,it must not fall victim to pessimism or provincialism. 44 An Advisory Services Panel Report About the Panel Charlie A. Long courses on economic development and organiza- tional change internationally. Panel Chair I Berkeley,California Long has a bachelor of arts degree in economics from Brown University and a master's degree in Long,president of Charles A.Long Properties, public policy from the University of California at has 31 years of diverse experience in local govern- Berkeley.He served in the U.S.Army as an in- ment and development with an emphasis on eco- fantry platoon sergeant. nomic development,finance,and public/private partnerships.He is currently working on develop- Charles J. Berling ment projects in California as part of Center Square Partners,specializing in mixed-use infill projects. Denver,Colorado Since 1996,he has worked as a consultant to pub- Berling is the director of real estate for All Terrain lic and private clients on development and man- Property Funds and owns and manages Berling agement,and now focuses on development proj- Equities LLC,a real estate development,consult- ects in California and Nevada.For eight years,he ing,and real estate services company.Previously, was city manager of Fairfield,California,a city he was responsible for developing more than 17 with a national reputation for being innovative million square feet of commercial real estate worth and well managed. $2 billion in major markets throughout the United States while working as a senior executive with Long has held interim positions for several cities, Homart Development Co.,Glacier Park Co.,and including,most recently,interim town manager BetaWest Properties. of Mammoth Lakes,California.His work has in- volved diverse assignments,including writing re- Included in his project list are more than 20 major development plans,working on development proj- ventures from New England to Hawaii,including ects,conducting pro-forma analysis,conducting AM Place,Honolulu;Hills Plaza,San Francisco; strategic planning,representing public agencies in LaSalle Plaza,Minneapolis;Phoenix Plaza.,Phoenix; negotiations,marketing development opportuni- the original Scanticon Hotel and Conference Cen- ties,assisting with organizational development, ter,Denver;Securities Center,Atlanta;Xerox conducting capital and financial planning,imple- Centre at Las Colinas,Dallas;Williamsburg Office menting budget reform,analyzing base reuse,and Park,Louisville,Kentucky;and Corporate Centre promoting alternative energy development.He North,Indianapolis.Real estate products he has developed and acquired include central business has overseen over$600 million of public financing district office and mixed use,suburban office and in his career. industrial,neighborhood retail,single-and multi- Long is a full member of the Urban Land Insti- family residential,hotels,and a major conference tute,a member of the Public/Private Partnership center,and he has had several land entitlement as- Council,and a faculty member for ULI's Real signments.Before his development career,Berling Estate Development Process II course.He has managed a family-owned general construction worked on five advisory panels focusing on devel- company in Indianapolis. opment strategies and implementation.He has He is a graduate of Princeton University,and a taught at the School of Public Administration at member of the Urban Land Institute and the Golden Gate University and has conducted University of Colorado Real Estate Council. Salem,Oregon,June 25-30,2006 45 Jack Illes with responsibility for solid waste facility develop- ment,environmental litigation,and government Del Mar,California affairs in New York,New England,and eastern Illes is the managing partner of Urban Labs,an Canada. urban design and architecture firm specializing Jeep received a bachelor of arts degree from North- in mixed-use,retail,hospitality,and residential ern Illinois University and a juris doctor degree projects. from Loyola University of Chicago in 1982. Urban Labs'current projects include new hospi- tality developments in the Midwest for Harrah's Anish Kumar Entertainment,and mixed-use redevelopments in Philadelphia,Pennsylvania Tempe,Arizona,for DMB Associates,in San Diego for JMI Realty/Lennar,in Los Angeles for Bond Kumar heads the urban design studio of Hillier Capital,and at Kewalo Basin in Honolulu for Alex- Architecture,one of the nation's largest design ander&Baldwin.In coastal San Diego,Urban Labs and planning firms with a staff of 300 in four re- is working on smaller-scale urban infill residential gional offices.Based in Philadelphia,Kumar's stu- projects. dio operates in the public arena,serving a wide Before forming Urban Labs,Illes was vice presi- range of clients and interdisciplinary constituen- dent,strategic design,for TrizecHahn Develop- cies who represent communities,municipalities, ment,coordinating the strategic planning and con- government agencies,property owners,universi- ceptual design for all its retail developments in ties,and entrepreneurs.From downtown revital- North America,as well as projects in eastern Eu- ization plans to redeveloping former industrial rope and Asia.Illes played key design and devel- sites,and from planning new transit patterns in opment roles in the creation of large-scale mixed- established communities to large-scale land plan- use projects in Boston,Denver,Mexico City,Toronto, ning,his team fosters public/private partnerships New York City,San Diego,and Los Angeles. that make towns and cities more livable,economi- cally viable,and ecologically sustainable. A native of La Jolla,California,Illes attended the University of Southern California and has a bach- As a registered architect and member of the elor of science degree in public administration/urban American Institute of Certified Planners,Anish land management.He is active in the Urban Land has 18 years of experience.He is on the faculty of Institute and the International Council of Shop- Drexel University's Department of Architecture, ping Centers,as well as a variety of land use and where he has been teaching courses in urban de- historic preservation organizations.He recently sign since 1996.He has been published in profes- received the Jose Cota Award for Leadership from sional journals and frequently speaks at profes- the San Diego Police Historical Association. sional conferences. A graduate of the University of Pennsylvania and Jeffery ® Jeep of the School of Architecture at Ahmedabad,India, Hillside,Illinois Anish lives in Philadelphia's Center City District, where he has served on the board of the residents Jeep has been with Jeep and Blazer LLC since association,and is currently a member of the Cen- 2000.From 1982 to 1985,he was an assistant tral Philadelphia Development Corporation. state's attorney in Lake County,Illinois,where he was instrumental in establishing the Lake County Anfla son Solid Waste Agency. Jeep joined the law department of Waste Manage- Silver Springs,Maryland ment Inc.(WMI)in 1985,where he worked for ten Morrison manages the Bay Area Economics(BAE) years.Previously,he was the region environmen- Silver Spring office,directing assignments for the Ital counsel in WMI's Boston office for six years eastern United States.She has almost 30 years of I 46 An Advisory Services Panel Reporl economic and development consulting experience, ing as the Pitkin County,Colorado,manager early specializing in market and financial feasibility in his career.Before joining JPMorgan,he was analysis,strategic economic development,and employed by Prudential and was responsible for urban revitalization. redevelopment of the Prudential Center-Boston. Ochs is a commissioner for the Bridgeport,Con- Morrison directed an analysis of the supply and necticut,Housing Authority. demand for industrial and office land in Baltimore as the basis for new zoning strategies for the city's He holds a bachelor of science degree in engineer- waterfront and other neighborhoods,and managed ing from the University of Wisconsin and a master BAE's evaluation of redevelopment and revitaliza- of business administration degree from the Univer- tion opportunities in ten major arterial corridors sity of Colorado.He is a member of the Urban Land and inner-city neighborhoods in south Atlanta for Institute and the Pension Real Estate Association. the Atlanta Development Authority. She has an extensive background in feasibility G. Craig Schelter analysis and development planning for bioscience Philadelphia,Pennsylvania and research and development parks,including as- signments for the Oregon Health Sciences Uni- Schelter founded the consulting firm Schelter and versity,Colorado Bioscience Park Aurora,the Associates in April 2002,combining 34 years of ex- University of Wisconsin at Madison,and the Vir- perience in the fields of city planning and urban ginia Biotechnology Research Park.She is also ex- development.His practice provides counsel and pert in structuring and negotiating public/private support to organizations that promote job creation partnerships for major urban projects.She served and seek to balance growth with environmental, for 15 years as real estate adviser to the Penn- design,and community sensitivity.His current sylvania Avenue Development Corporation in client list includes quasi-public development cor- Washington,D.C.,facilitating$1.4 billion of pri- porations,including the Philadelphia Industrial vate investment in commercial and residential Development Corporation(PIDC),Penn's Land- development projects. ing Corporation,Schuylkill River Development Council,and the Mann Music Center.Schelter has Her work in mixed-use and transit-oriented de- focused on the development management process, velopment includes multiple projects at Metro including strategic and master planning,project stations in the Washington,D.C.,area.She is permitting,legislative authorization,capital bud- � working now with the Maryland Department of geting,consultant selection,developer negotia- � Transportation in negotiating the redevelopment tion,and dispute resolution. of the Baltimore State Center for a mix of office, retail,and residential space. From 1983 to 2002,Schelter held several positions Morrison has a master of public policy degree at PIDC,a private nonprofit corporation and from the University of Michigan. Philadelphia's economic development agency,in- cluding chief executive officer,focusing on the planning of the Pennsylvania Convention Center, George Ochs development of the Byberry West industrial park New York,New York and the central Delaware Waterfront,and the cre- ation of a venture capital fund.As executive vice Ochs,vice president of JPMorgan Asset Manage- president,he oversaw management of major de- ment,is responsible for portfolio management, velopments in Philadelphia. client services,and business development.He has worked at JPMorgan Real Estate since 1995. Schelter served for 15 years at the Philadelphia City Planning Commission,ultimately as the exec- Ochs has an extensive background in development utive director from 1981 to 1983.He guided the and management of high-quality institutional real commission's efforts in the Center City District, estate.He also has public sector experience,serv- handling capital budget,urban design,zoning,con- Salem,Oregon,June 25-30,2006 47 vention center,and waterfront planning.As exec- She is a founder and was the first president of utive director,he was also a member of the mayor's New England Women in Real Estate,was the development cabinet.He is a member of the board first woman president of the Boston Chapter of of the Foundation for Architecture and the Preser- the National Association of Industrial and Office vation Alliance for Greater Philadelphia. Parks,and the first woman president of the Boston Chapter of the Building Owners and Man- Schelter holds a bachelor of arts degree in art his- agers Association. tory from Williams College and a master's degree in architecture from Harvard University. Warner served 15 years as a trustee for the Soci- ety for the Preservation of New England Antiqui- anne P. Warner ties(SPNEA),now known as Historic New Eng- land and was a director of Historic Boston,a Pawtucket,Rhode Island preservation revolving fund,and a trustee for the Warner,president of Ranne P.Warner and Com- Boston Foundation for Architecture.She and her pany Inc.and Centros Properties USA,has been architect husband wrote,published by McGraw- active in real estate for nearly 30 years at the local, Hill. national,and international levels in all aspects of Warner received her master's degree with dis- real estate development,including consulting, tinction from the Harvard University Graduate strategic planning,construction,finance,and School of Business Administration,where she property management. was awarded the James Thomas Chirurg Fellow- In 2001,she formed Blackstone Exchange LLC to ship,and holds an undergraduate degree in ad- develop Riverfront Lofts,an 110,000-square-foot. vertising from the University of Missouri School historic mill on the Blackstone River in Pawtucket, of Journalism. Rhode Island,into 59 artist live/work condominium lofts—a project that has served as a catalyst for the revitalization of this historic mill community. In 1980,Warner founded Centros Properties USA in partnership with two English developers,and built the firm's portfolio from nothing to$100 mil- lion in value invested in over 500,000 square feet of top-quality commercial real estate. 48 An Advisory Services Panel Reporl ULI—the Urban Land Institute 1025 Thomas Jefferson Street, N.W. Suite 500 West Washington, D.C. 20007-5201 AN ADVISORY SERVICES PANEL REPORT �Rochester New York v_ +r, z N , w 4 t 1" m a I I I Rochester New Yorl( Strategies for Re-Creating the Urban Core June 10-15,2005 An Advisory Services Panel Report ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 About ULI—the Urban Land Inst LI—the Urban Land Institute is a non- resented include developers,builders,property profit research and education organiza- owners,investors,architects,public officials, tion that promotes responsible leadership planners,real estate brokers,appraisers,attor- in the use of land in order to enhance neys,engineers,financiers,academics,students, the total environment. and librarians.ULI relies heavily on the expe- rience of its members.It is through member in- The Institute maintains a membership represent- volvement and information resources that ULI ing a broad spectrum of interests and sponsors a has been able to set standards of excellence in- wide variety of educational programs and forums development practice.The Institute has long been to encourage an open exchange of ideas and shar- recognized as one of America's most respected ing of experience.ULI initiates research that an- and widely quoted sources of objective informa- ticipates emerging land use trends and issues and tion on urban planning,growth,and development. proposes creative solutions based on that research; provides advisory services;and publishes a wide This Advisory Services panel report is intended variety of materials to disseminate information on to further the objectives of the Institute and to land use and development. make authoritative information generally avail- able to those seeking knowledge in the field of Established in 1936,the Institute today has more urban land use. than 28,000 members and associates from 80 coun- tries,representing the entire spectrum of the land Richard M.Rosan use and development disciplines.Professionals rep- President ©2005 by ULI—the Urban Land Institute 1025 Thomas Jefferson Street,N.W. Suite 500 West Washington,D.C.20007-5201 All rights reserved.Reproduction or use of the whole or any part of the contents without written permission of the copy- right holder is prohibited. ULI Catalog Number:ASR090 Cover photo by Zane Segal,Zane Segal Projects,Inc. 2 An Advisory Services Panel Report About ULI Advisory Services he goal of ULI's Advisory Services Program ipants in ULI's five-day panel assignments are is to bring the finest expertise in the real able to make accurate assessments of a sponsor's estate field to bear on complex land use plan- issues and to provide recommendations in a com- ning and development projects,programs, pressed amount of time. and policies.Since 1947,this program has assem- bled well over 400 ULI-member teams to help A major strength of the program is ULI's unique sponsors find creative,practical solutions for ability to draw on the knowledge and expertise of issues such as downtown redevelopment,land its members,including land developers and own- management strategies,evaluation of develop- ers,public officials,academicians,representatives ment potential,growth management,community of financial institutions,and others.In fulfillment revitalization,brownfields redevelopment,military base reuse,provision of low-cost and affordable of the mission of the Urban Land Institute,this housing,and asset management strategies,among Advisory Services panel report is intended to pro- other matters.A wide variety of public,private, vide objective advice that will promote the re- and nonprofit organizations have contracted for sponsible use of land to enhance the environment. ULI's Advisory Services. Each panel team is composed of highly qualified professionals who volunteer their time to ULI. They are chosen for their knowledge of the panel Rachelle L.Levitt topic and screened to ensure their objectivity. Executive Vice President,Policy and Practice ULI panel teams are interdisciplinary and typi- Mary Beth Corrigan cally include several developers,a landscape Vice President,Advisory Services and Policy Programs architect,a planner,a market analyst,a finance expert,and others with the niche expertise Nicholas Gabel needed to address a given project.ULI teams Associate,Advisory Services provide a holistic look at development problems. Carmen McCormick Each panel is chaired by a respected ULI mem- Panel Coordinator,Advisory Services ber with previous panel experience. Yvonne Stanton The agenda for a five-day panel assignment is in- Administrative Assistant tensive.It includes an in-depth briefing day com- posed of a tour of the site and meetings with spon- Nancy H.Stewart sor representatives;a day of hour-long interviews Director,Book Program of typically 50 to 75 key community representa- Laura Glassman tives;and two days of formulating recommenda- Publications Professionals LLC tions.Many long nights of discussion precede the Manuscript Editor panel's conclusions.On the final day on site,the panel makes an oral presentation of its findings Betsy VanBuskirk and conclusions to the sponsor.A written report Art Director is prepared and published. Martha Loomis Because the sponsoring entities are responsible Desktop Publishing Specialist/Graphics for significant preparation before the panel's visit, Kim Rusch including sending extensive briefing materials to Graphics each member and arranging for the panel to meet with key local community members and stake- Craig Chapman holders in the project under consideration,partic- Director,Publishing Operations Rochester,New York,June 10-15,2005 3 C he ULI Advisory Services panel process is more than 120 people interviewed during the a massive undertaking that requires assis- week. tance and input from a wide cross section of the community.The panel would like to This effort would not have been possible without thank the following individuals and organizations sponsors whose financial contribution brought the for their help before,during,and after the panel panel to Rochester.Supporting sponsors include visit.The work of the panel is not possible without Bausch&Lomb;Buckingham Properties;Christa countless hours of work by others spent preparing Construction;the city of Rochester;Conifer Re- briefing materials,arranging tours,and partici- alty;Costanza Enterprises;Home Leasing,Inc.; pating during the week's events. Jasco Tools,Inc.;JPMorgan Chase;LeCesse Con- struction;LeChase Construction Services;Mon- In particular,the panel would like to thank our roe County;Pembroke Companies;Pike Com- sponsors,the Rochester Downtown Development pany;RG&E;Rochester Democrat&Chronicle; Corporation,especially President Heidi Zimmer- Rochester Downtown Development Corporation; Meyer,Chairman Dave Beinetti,Sean Phelan,and SWBR Architects/Engineers;and Wilmorite,Inc. Karen Hite.Members of the city and county gov- ernment have aided this project in several ways, This panel was funded in part by a grant from the including Rochester Mayor William A.Johnson, U.S.Department of Housing and Urban Develop- Jr.,Rochester City Council President Lois Geiss, ment to investigate barriers to and incentives for Rochester Planning Director Larry Stid,Monroe land assembly for infill redevelopment. County Executive Maggie Brooks,and Monroe County Legislature President Wayne Zyra. The panel members appreciate the gracious hospi- tality that was offered to them by members of the community.They extend special thanks to the 4 An Advisory Services Panel Report ULI Panel and Project Staff 6 Foreword 7 Overview and Summary of Recommendations 11 Market Overview M Development Strategies 18 Planning and Design 27 Implementation 32 Conclusion 41 About the Panel 42 Rochester,New York,June 10-15,2005 5 ULI Panel and Project Staff Panel Chair Zane Segal Alex J.Rose Project Director Zane Segal Projects,Inc. Vice President-Development Houston,Texas Continental Development Corporation El Segundo,California Edward Shriver,Jr.,AIA Principal Strada Pittsburgh,Pennsylvania Ray Brown President David C.Slater Ray Brown Consulting Consultant Memphis,Tennessee Reston,Virginia Allen K.Folks v`l project Director Principal EDAW,Inc. Alexander Bond Sacramento,California Associate Donna Lewis Policy and Practice Planning Director Mercer County-Planning Division Trenton,New Jersey Jason Bell Christopher B.LoPiano Panel Coordinator Senior Vice President Advisory Services Bank of America Community Development Washington,D.C. 6 An Advisory Services Panel Report ike countless other urban areas in America, CANADA — —••--•—••----••--•—••--+ Rochester has experienced most of the nega- tive effects of suburbanization.The most dramatic effect has been disinvestment in VERMONT the downtown core.As one of the nation's earliest centers of manufacturing,trade,and technology, Lek,o„a„o Rochester has historically been one of the nation's NEW YORK NA NEW ME key focal points of innovation and creativity.Un- Niagara FauS *Rochester Utica •5yracu5e fortunately,as has been seen in many other Rust- •buffalo Schenectady. Tray belt cities,the urban core's heritage is rarely an Lake Erie Albany* insurance policy against the physical,economic, MASSacxuserrs and social forces of suburbanization.Housing and Binghamton. jobs move to less expensive,less congested areas PENNSYLVANIA CONNECTICUT surrounding the core.They take with them retail spending,dining dollars,and even more jobs. NEW Businesses leave the core.Storefronts go dark. JERSEY ewY Private investment declines and disappears.Pub- D lic spending on infrastructure declines and the physical environment decays,as governments at all levels spend a greater share of their resources NIAGARA ORLEANS 6ON90 on low-density suburban infrastructure.Urban LONRGE fleeter cores become uncomfortable places to spend time, Niagara Fall _, - - n,N, GENEGEE - - ( uffal �- V�anan with few familiar faces and even fewer things to B ' - - 01N ON r ONTARO"Gen r; do.The very vibrancy and diversity that formed I ' - the foundation for the core's regional strength and Lake Erie ERIE �WVGMMG f) r_ LYA S engine for growth have moved elsewhere. 1 J. ,_ 5 IL In order to reverse this trend—across the country c„ANTAUMA I 'ATTARAUGUS A11—NY 51E16EN as well as in Rochester—projects such as sports I stadiums,performance halls,cultural facilities, and casinos have often been promised and,in many cases,executed as the needed catalyst to revive a failing inner city.As part of a visionary master plan,large projects can help produce the desired results.Although these mega-projects can have a positive effect,by themselves they have not proven able to re-create the energy of a lively, successful city. The good news is that many proven solutions and experiences exist to draw upon for downtown cores Distinctive architecture is seeking to re-create themselves.Downtown Roch- found throughout doNm- ester's revival is,in fact,more of a re-creation than town Rochester. Rochester,New York,June 10-15,2005 7 i face,and an older one as well—groups of people who make lifestyle choices for the excitement and activity of the urban core.Entertainment,culture, and education are also increasingly diverse in down- town.Symphonies resound side by side with cutting-edge nightclub music.Museums lie across from the latest coffeehouse and cyber cafe.The coffeehouse doubles as a gathering spot,school library,and dining venue.Historic buildings,long abandoned and ignored by the market as func- tionally obsolete,are high on investors'and de- velopers'target list for conversion to new uses as housing,retail,dining,entertainment,and cul- tural locations. The new wave of activity downtown also attracts a very diverse population of visitors and residents to the urban core.Where business and government were the heart and soul of urban cores in the past, the diversity of people and the level of activity now make the urban cores the attractive places that they are becoming—not only for people to live, work,and play,but also for the public and private sectors to make very significant investments. The panel acknowledges the tremendous effort the Rochester community has made in focusing its en- ergy and attention on the needs of its downtown Sever,,, irwumivai proj- it is revitalization.Although many elements in area.One only need look at the East End corridor, ects have already been a reawakening downtown will seem familiar— the St.Paul Quarter,or the High Falls entertain- built or proposed in government,cultural,entertainment,and even ment district to see the level of commitment the downtown Rochester. residential uses—many of these same elements city has accorded to a re-created downtown.The will look very different from in the past. panel found much evidence that Rochester has fo- cused its attention and efforts on and successfully Generally,the jobs in large corporate headquarters attracted some key elements necessary for urban are disappearing,but they have been replaced by core re-creation.That success not only is a major a growing service sector economy,which is often building block for the re-creation of downtown dominated by smaller,more nimble entrepreneur- Rochester but also has helped cement Rochester's ial firms and initiatives.Nationwide,manufactur- position as the regional center for this portion of ing jobs have been downsized or taken off shore. upstate New York.In this respect,Rochester is Indeed,Rochester is fortunate to retain a sizable ahead of many other cities,which are just now number of jobs with companies such as Bausch& identifying those critical elements and trying to Lomb,Kodak,and Xerox.These jobs are valued, figure out how to start their emergence. but no longer the stable,lifelong careers they once offered.Although the city should continue to em- brace the traditional economic base,the time has come for downtown Rochester to secure its share The ULI Advisory Services panel was charged of new small business opportunities. with two separate tasks.The first task focused on People are already moving back to downtown identifying future uses of four superblocks at the Rochester.These urban pioneers have a younger center of downtown.At the heart of the urban t3 An Advisory Services Panel Report s . Pndrewy 6we� oo �►°�° C) °. R ; �UySranyEerZOn ; W ° o f45t4 nu 1 � e e W � 1 o Ms\r gtraet to n ,U 0 Key: s 5t.Joseph's Place < ' 5[Wey'6 Block � ■ m Midtown ■ Renaissance Square ME ammm Men WMEM ytreeti �roa\ \ Top:The panel's study U area is broken down into four distinct sites. Left: The panel focused on an oarea that is not part of the D O downtown revitalization. 0 rAreWy54re O � syA�nUe o ytreec�� ❑ o� o c �o Broad Street 1 Study Area o 4 --�Downtown Inner Loap N Rochester,New York,June 10-15,2005 9 core lies the area around the intersection of Main begins with crafting a vision for downtown and Street and Clinton Avenue.Whereas Rochester progresses with a series of action plans to achieve has seen substantial development interest down- that vision. town,vibrancy has bypassed this area.These blocks hold the former Sibley's department store, The panel's assignment is influenced by a planned the Midtown Mall,and two large blocks surround- project adjacent to the study area known as Re- ing St.Josesph's Church.These blocks are the lit- naissance Square.Slated for the northwest corner eral hole in the doughnut for a rejuvenated down- of Main Street and Clinton Avenue,the project town.Adjacent to the study area parcels is the will be a multiuse facility comprising upward of planned Renaissance Square—a multipurpose 1 million square feet of performing arts,commu- transit station,performing arts center,and educa- nity college,and transit station space.Renais- tional facility.Attracting new development inter- sance Square will replace a superblock of under- est in these parcels is made more difficult by the performing or vacant office buildings,storefronts, current reality of the economy in upstate New and a parking garage.At an estimated cost of$230 York,which has little to no population growth million,it represents a substantial investment by paired with little to no job growth. the city,state,and federal governments that will be closely monitored and highly publicized.The Successful reuse of the four principal study blocks panel believes the project is a valuable stimulus cannot take place without a systemic change in to downtown redevelopment but makes several downtown.Therefore,the second task involved recommendations about the design and function crafting a revitalization strategy for all of down- of Renaissance Square in this report. town Rochester—identified as the area inside the Rochester inner loop highway.This second task 10 An Advisory Services Panel Report verview and Summary of Recommendations his section briefly outlines the panel's vision by connecting the district between the Genesee and recommendations for the study area and River and the Eastman School of Music along Main downtown Rochester as a whole.The topics Street with cultural and arts uses.Existing cultural covered here are discussed in greater detail sites anchor this cultural corridor at both ends.This later in the report. cultural axis should have art galleries,artisan sup- ply stores,performing arts venues,public perfor- OwntOwil VISior mance space,and year-round festivals. The panel has a bold vision for downtown Roches- Ln_. _A� .;- ter that builds upon the successful resurgence the area is already experiencing.The panel believes The panel believes that the Sibley Building is an that Rochester should build upon its existing architectural gem that has very high potential for strengths of housing and office space.The panel redevelopment as loft-style housing.The floor developed three overarching strategies for down- plates,atriums,large windows,and unique brick- town Rochester.The first is to re-create down- work all lend themselves to residential conversion. town as a neighborhood.The panel feels that a The Sibley Building could accommodate several strong latent demand exists for housing through- hundred residential units,depending on the size out downtown.Rochester has already seen the and floor plans decided upon.Because of the build- beginnings of a residential renaissance downtown. ing's sheer size and the nascent but evolving mar- Continuing this trend will bring more people ket for downtown housing,retrofit should be ac- downtown and help support other industries in complished in phases.The first phase should the urban core,particularly retail and dining include converting the building's first floor to re- venues.Furthermore,Rochester's large inven- tail use.Residential conversion can be accom- tory of architecturally significant,historic build- plished floor by floor as market absorption dic- ings is ideal for residential retrofit.The panel also tates.The panel believes that the tower should be believes that new downtown residents will re- converted to housing first,followed by the depart- energize its streets.Bringing pedestrians back to ment store space.Existing uses in the Sibley downtown will help sustain new retail in the urban Building,including higher education and office core and eliminate the perception of danger. space,should be relocated to more appropriate buildings elsewhere in downtown. The second strategy is to re-create downtown as a center of commerce.The panel proposes selectively demolishing obsolete office buildings,retaining Class A office tenants,recruiting neighborhood The panel believes that the Midtown Mall and most retail,and fostering the growth of specialty shop- of the associated office space has come to the end ping and nightlife establishments.Rochester of its functional life.The unsightly complex con- should continue to embrace its existing large of- tributes to a glut of office space that can be elimi- fice and industrial employers but should recognize nated.Therefore,the panel recommends that the increasing importance of small,entrepreneur- most of the Midtown Plaza be demolished,except ial firms. for the underground parking garage and the Eu- clid Building.The Midtown Office Tower should be The third strategy is to promote downtown as a stripped to its structural components and a deci- center of arts and culture.This goal is accomplished sion should be made in two or three years whether Rochester,New York,June 1G-15,2005 proposes the establishment of two public/private partnerships to lead downtown redevelopment. ww , � The first,known as the Rochester Center City ? Authority(RCCA),will take the lead role in as- `'' sembling land,attracting new development,and securing funding.The second public/private part- nership will alter the current role of the existing Rochester Downtown Development Corporation (RDDC),recasting it in a traditional Business Improvement District(BID)role.The downtown BID will be responsible for marketing,special events programming,and a new safe-streets initiative. The panel feels that numerous financing and in- centive tools are at Rochester's disposal for re- development efforts.The panel recommends that The panel tours the study to reskin it for Class A office use.The rest of the the Rochester Center City Authority establish a area during its visit to Midtown site should become a mixed-use center tax increment financing(TIF)district that en- Rochester. that includes a public plaza/park,a medium-sized compasses the entire downtown but focuses its performing arts theater,and residential-over- financial resources on the three study areas al- retail buildings.A new street will segment the ready described.Numerous other programs are block and restore the natural street grid.The panel available to pay for,or otherwise make downtown estimates 350 to 450 units of housing could be built a more attractive location for,development.These on the Midtown blocks. ancillary local,state,and federal programs can be applied to specific projects as warranted by circumstances. The facade of St.Joseph's Church should be re- The panel also recommends a renewed commit- tained as a community symbol.The panel believes ment to pedestrianism in downtown through in- that St.Joseph's Place,located on several blocks frastructure changes,downtown programming, north of the Sibley Building,is ideal for a mid-rise and a safe-streets initiative.Pedestrians should be urban village.The panel recommends the city as- returned to the street by removing unnecessary semble the various parcels of land in this block sections of the skyway system,moving retail out- doors to street level,and reducing noise and pol- apartments and condominiums.Approximately and select a developer to build four-to five-story lution.Furthermore,the panel suggests a com- prehensive study be undertaken to analyze how 550 to 650 units of housing,built at 1510 dwelling parking and bus transit can be altered to further units per acre,could be realized in St.Joseph's the city's redevelopment goals. Place.The panel also feels that some limited retail, including a grocery store,is warranted on these blocks. The panel recognizes that its proposed vision for downtown will require agency leadership and fund- ing.To help consolidate the process,the panel 12 An Advisory Services Panel Report A °. oaf . ;f his section provides an overview of employ- area has experienced a dramatic shift from a ment,population,and income trends within manufacturing-based economy to one providing the broad market area.An overview of fore- research and services.Manufacturing jobs have de- casted real estate,economic,and population clined since 1990 by an annual average of 3,250 in trends is an important determinant in the re- the Rochester Metropolitan Statistical Area.How- creation of downtown.The panel feels that Roch- ever,total employment increased by more than ester has certain superior underlying conditions 1,000 jobs per year,showing that the regional for downtown development.These factors should economy is shifting away from manufacturing. be capitalized upon to re-create the urban core. According to the New York Bureau of Labor Sta- tistics,growth has been especially strong in the The panel feels that downtown Rochester should education,health,and professional services indus- be reimagined and reborn as the cultural,educa- tries.The addition of nearly 45,000 jobs in those tional,and entertainment heart of the region.In sectors has more than compensated for the re- order to do so,a range of creative,high-tech,and structuring of Bausch&Lomb,Eastman Kodak, entrepreneurial people need to have great reasons Valeo,ViaHealth,and Xerox that,during the past for wanting to live and work downtown,and every- 15 years,has resulted in the loss of more than one else needs to have equally strong reasons for 41,200 jobs.In 2005,Monroe County's unemploy- wanting to visit there. ment rate is 5 percent compared with 6.8 percent Downtown Rochester is well positioned to attract in the state. the"creative class."The creative class is composed Firms such as Lifetime Healthcare,Paychex,and of knowledge-producing workers who can choose Unity Health System have grown in recent years. where to live and work,on a global as well as a Institutions such the University of Rochester, local basis.A city needs to be rich in lifestyle ameni- Rochester Institute of Technology,and Monroe ties as well as interesting work opportunities to Community College have supplied highly trained attract and retain this group that has come to be employees and provided collaborative research in symbolic of success in downtown reinvention. support of the region's new economy. Because Rochester has a large stock of historic During the past 30 years the quality of business buildings and a wide offering of cultural and en- locations and availability of greenfields—open tertainment venues,it has every opportunity to land at the periphery—have resulted in suburban continue to enlarge and benefit from this entre- competition for businesses.Jobs have been dis- preneurial group.As is well documented,job persed around the region as the urban core's share growth in the United States now comes primarily of the total has declined in recent years.Suburban from entrepreneurs and small companies,not cor- business park locations will continue to provide porate America,so cities need to be attractive to stiff competition for central area sites because of the creative class as a linchpin in their long-term their free parking,landscaping,and housing that economic development efforts. has traditionally appealed to middle-and high- level workers. Employment Trends From 1990 to 2004,metropolitan Rochester's pop- Rochester has historically been a world leader in ulation increased by a relatively stagnant rate of image technology.Although the city continues to 3.7 percent,or 39,600 people.Over two-thirds of be a major market for imagery,the metropolitan this growth occurred in Monroe County.At the Rochester,New York,June 10-15,2005 13 same time,the city of Rochester was losing nearly naissance Square.Sibley Center will then become 18,000 people.Clearly,suburban Monroe County a candidate for conversion to other uses. —and not Rochester itself—attracted most of the residential development during this 14-year period. As the inventory of obsolete and nontraditional office buildings(those having all or any of uncon- Beyond attracting the lion's share of residential ventional floor plates,poor layout,low rents,or development,outlying areas of the region attract off-center locations)is reduced;some Class A wealthier individuals.Rochester's median average buildings deteriorate;and demand for good-qual- annual household income was more than$37,400 in ity buildings continues,the need for a new build- 2003,nearly one-third lower than the regionwide ing will develop.The newest Class A building in income of$49,800. the downtown inventory,Bausch&Lomb,is al- ready 10 years old.The panel feels that increasing downtown housing will support office growth to provide professional services and to accommodate Ten Class A office buildings inside the inner loop those employees choosing a short commute.The beltway contain 2.35 million net leasable square panel estimates growth will develop slowly at feet.Their cumulative estimated occupancy rate 30,000 to 40,000 square feet per year to 2010 and was 90 percent in 2004.Average annual absorption accelerate to 60,000 to 80,000 square feet annually of these buildings has been nearly 70,000 square from then to 2015.Nearly all of this growth will be feet,part of it attributable to transfers from near- for Class A space.However,at the present time by less-competitive buildings.Class A space is an oversupply of office space exists in downtown, characterized by relatively new construction, particularly in lower-class buildings. high-quality common areas,on-site security,and quality building materials. Lower-class office space comprises 4.76 million square feet of space, 48 percent of the total inventory.Class B and C The second-most-prevalent cliche in real estate, office space had a 33 percent vacancy rate.Exist- "Retail follows rooftops,"is very applicable to ing Class B and C buildings are largely obsolete Rochester.Shops,restaurants,and cafes,along because of modern technological requirements, with entertainment and sports venues,are much such as telecommunication and power systems. more viable when an expanding,involved com- Generally,these buildings occupy sites better munity of residents is nearby.As more retail es- suited to other uses.The panel recognizes that tablishments come online,more residents are at- upgrading to Class A office may be a viable use tracted.The panel feels that Rochester should for older office buildings. strive for an upward cycle of residential and re- Midtown Plaza,which lies within the panel's tail growth. study area,includes five office buildings(Euclid, Experience across the country and in the Roch- McCurdy,Tower,Seneca,and B.Forman)totaling ester area proves the negative effect of large more than 753,000 square feet.They are considered suburban retail malls on downtown department Class B because they are more than 30 years old, do not have contemporary infrastructure,and stores and on other retailers.The 1962 construc- generally offer fewer amenities than Class A tion of Midtown Plaza was partially a defensive buildings.Their poor condition and often obsolete mechanism to keep department stores downtown floor plates indicate they have outlived their use- in the face of suburban competition.The three fulness as office space. large Rochester-area suburban malls are Greece Ridge,The Marketplace,and Eastview.Their an- Across Main Street to the north of Midtown Plaza chors are Bon-Ton,Sears,JCPenney,Kaufmann's, is Sibley Center,a 977,000-square-foot office and Galyan's,Lord&Taylor,and Target,none of classroom building that formerly was a regional which are present in downtown Rochester. retail emporium. Its occupancy is expected to reach a low of 12 percent by 2009 when Monroe Although downtown has more than 100,000 square Community College relocates to the planned Re- feet of occupied retail space,over 200,000 square 14 An Advisory Services Panel Report feet of vacant former street-level retail space is Coffee shops and restau still available.Much of the active inventory is ac- rants are common in the cessed from Main Street,but it is hidden from the East End neighborhood, street.This obstacle is especially the case in Mid- but are rare in the rest of town Plaza,which requires a walk of about 200 '� downtown. feet to reach the center of the retail court.Few pedestrian wayfinding signs help potential cus- tomers locate their retail destinations.Main Street should once again become the center city's princi- pal shopping street.To become a bustling retail area,Main Street needs more retail square foot- age that opens directly onto sidewalks. Several examples of successful retail districts exist within downtown.Within walking distance The Midtown Mall g home to a declining of the study area are the neighborhood entertain- number of retailers. ment retail centers of East End and High Falls. Primarily attracting younger patrons,these dis- tricts feature restaurants,nightclubs,and bars. The East End is convenient to the Eastman School of Music while High Falls is convenient to Eastman Kodak headquarters and the Frontier Field baseball stadium. Demolition of Midtown Plaza would require relo- cation of its nearly 50 retailers that serve nearby residents,employees,and visitors.Existing retail- ers have made a commitment to downtown and of this space should keep pace with growth of the play an important role in delivering needed goods customer base. to downtown residents.Rehabilitated retail space should be made available at street level to accom- modate the transfer of existing Midtown Plaza re- tail tenants in a timely fashion.They will be able Rochester is the second-leading convention city to continue serving customers in street-level space in the state.Its 250,000-square-foot Riverside while potentially increasing their revenues. Convention Center is conveniently located on Continued construction of downtown housing Main Street,overlooking the Genesee River.The units will be the primary driver of retail sales facility has 100,000 square feet of flat floor exhibit growth during the next several years.Accompa- space and hosts 385,000 people per year at 420 nying this residential growth should be the addi- events,an impressively high rate of use. tion of retailers not already present in the inven- Because of this demand,expansion of the con- tory.They may include a specialized grocery store, vention center is being considered to the south electronics stores,jewelers,home furnishings toward East Broad Street.Roughly 100,000 to stores,ethnic restaurants,a part-time farmers 110,000 square feet of new space would be allo- market,and professional services. cated to administrative support,exhibit,and ballroom functions.This expansion would ac- The panel estimates that growth of residential-, commodate larger and more frequent functions employee-,and visitor-based retail sales will not after 2008. only increase productivity of existing retailers but also increase demand for an additional 90,000 to Three major hotels located within three blocks 110,000 square feet by 2015.Timing of the supply of the Convention Center provide approximately Rochester,New York,June 10-15,2005 15 Four institutions of higher learning are repre- sented in the downtown area.The main campus of ( the Eastman School of Music is located there.It is a world-famous 900-student institution with pro- grams ranging from children's introductory music WO classes to doctoral degrees.In addition to class- rooms and faculty offices,the campus includes the Eastman Theatre,Sibley Music Library,and stu- dent housing. ........ Although the 14,000-student Monroe Community •®'°" College(MCC)main campus is located in the southern suburbs of Rochester,a 1,700-student branch is located in the Sibley Building.MCC will become an integral part of Renaissance Square upon its completion,occupying 212,000 square feet of classrooms and offices.Adjacent to Renaissance Square,potential exists for a 400-bed student resi- dence facility to be constructed.Furthermore,a .. hospitality training program and a small student- run restaurant are planned for the new campus. The State University y of New York(SUNY)at Brockport has two small facilities downtown,east _0t:r; of the river:a Brockport branch and a Rochester '`Y skills and employment center.Four blocks west of the river is the Hochstein School of Music.None of JJ these institutions has announced expansion plans. Institutions of higher learning in downtown can act as strong catalysts for economic development. Student-oriented housing should be in demand near these campuses.Retail establishments that cater to younger people will find the area desirable. =- - 1,150 rooms,meeting space,food service,and rec- tion Center and several reation facilities.The Clarion Riverside,Crowne hotels are located near Plaza,and Hyatt Regency host mostly corporate As the demographics of America change,housing the Genesee River. preferences change as well.The percentage of visitors and various small meetings with about households with one or more children living in the one-sixth of their business devoted to leisure visi- same home with both of their natural parents is tors.Because these properties were built from 13 continuing to decline.Many nontraditional house- to 37 years ago,the quality of their physical plants holds,such as divorced parents,gay and lesbian varies and periodic updating is required.Hyatt singles or couples,students,and empty nesters renovations are programmed this year.The Clar- are all candidates to move into nontraditional, ion Riverside and Crown Plaza hotels should be non-single-family homes in urban areas. evaluated to ensure they retain their competitive Appropriate housing for this growing proportion edge to maintain Rochester's advantageous con- of households includes rental and ownership mid- vention market. rise and high-rise apartments and condominiums, 16 An Advisory Services Panel Regorl lofts,live/work spaces,and attached townhomes. The Sibley Building is The depth of the for-sale market has not been home to post-secondary tested in Rochester,but most likely a range of education venues like for-sale product at a variety of price points would Monroe Community Col- prove a good complement to a similar range of lege and SUNY Brockport. rental multifamily housing.Creating home owner- ship,whether loft or luxury condominium,new or rehabilitated,is an important element for creating long-term stability in the area. Throughout the country,the return to downtowns and the areas around them is fueled by three dis- tinct,yet compatible,demographics.The largest group is composed of young professionals,both singles and couples without children or with pre- school-age children.A second group,growing in number and significant in terms of financial strength,is called empty nesters.These people are approaching retirement and their children are now grown and living away from home,thus giv- ing them the opportunity to downsize or change their lifestyle to a lower-maintenance,"lock and leave"product such as a townhouse,condominium, or apartment.The third is an amorphous group tied together by their lack of children.Members of this group include young singles,gay singles A 2005 housing survey by the Rochester Down- and couples,and divorced or childless adults. town Development Corporation reveals that of All three groups appreciate cultural offerings,fine 2,181 rental units located downtown,60 percent cuisine,and entertainment nightlife.They have are market rate.Of the market-rate units,60 per- also responded to living and workspaces with lofty cent are one-or two-bedroom units.The market- ceilings,large windows,wooden floors,and visible rate inventory has a low 5 percent vacancy rate piping—all attributes of historic structures con- and includes 161 loft-style units. verted from former office and industrial buildings. To its great benefit,Rochester has a multitude of Since 2000,only 69 rental and 9 owner units have wonderful historic buildings,and the results of ini- been built.So much unmet demand has been iden- tial renovations of these properties have been both tified that 177 rental and 37 owner units are under visually stunning and commercially successful. construction.Another 96 rental and 20 owner units Particularly important in Rochester,because of are proposed.If downtown can maintain or en- the presence of several college-level institutions in hance the housing trend,the demand for house- and around downtown,is the potential for student hold-based retail and professional services will housing.Although not as financially capable as the increase in turn. young professionals or empty nesters,college stu- dents add a colorful and important component to a Downtown's goal should be new construction and re-created downtown.Particular rental properties rehabilitation of 5,000 to 7,000 mixed-income rental are designed for this demographic,and the panel and owner units.Their absorption will increase sees an opportunity for the gradual development the 24-hour vibrancy of downtown while substan- of several hundred units of student housing in the tially increasing the neighborhood's attractiveness downtown area. to retailers. Rochester,New York,June 10-15,2005 17 Development Strategies uccessfal downtowns share certain charac- centrally located celebration spaces for commu- teristics that make them exceptionally nity gathering,festivals,concerts,art shows, user-friendly.These characteristics differ- and other events that bring residents together entiate downtown from the suburbs,mak- to interact with each other in common purpose. ing downtown an attractive place to live,work, and play.The panel suggests that all of Rochester's • Vitality.Good downtowns are busy downtowns. redevelopment efforts should enhance the follow- People crowd the sidewalks,cars flow,and signs ing characteristics: of life are evident from the beginning of the workday until the early hours of the morning. • Meaning.Successful downtowns express and The streets and sidewalks are the center of communicate the ideals and values of the resi- civic and public life,where people serendipi- dents of their cities.They generate loyalty,civic tously meet to do business or just to chat.A pride,and enjoyment.They motivate,encour- good downtown has plenty of nightlife for all age,and inspire residents to believe in their people in diverse restaurants and nightclubs. city,and by extension,in themselves. • Uniqueness.Good downtowns offer a variety of • Walkability.Good downtowns invite walking pleasant experiences that can be found in no between destinations,or merely strolling for other place.They celebrate the unique physical pleasure.In such downtowns,pedestrians take and cultural characteristics of their inhabitants, precedence over vehicles at intersections.Street expressed in art and architecture,as well as trees and awnings provide shade and shelter in unique shops,galleries,arts and cultural from the elements.Prominent signage allows easy wayfinding.Short blocks and continuous, venues,and restaurants.Civic buildings and occupied storefronts offer visual entertainment public gathering places require important sites and interest. to reinforce community identity and the culture of democracy.They deserve distinctive form, • Diversity.Successful downtowns contain variety because their role is different from that of other and diversity of building types,scales,uses,ar- buildings and places that constitute the fabric of chitectural styles,restaurants,and housing the city.The development and redevelopment of choices.They make the most of their historic a good downtown respects historical patterns, + structures,adapting them to new uses as needs precedents,and boundaries,including street, change.Diversity also includes a variety of building,and open space patterns and scale. human groups.The integration of ethnic back- Successful downtowns adapt with time,accom- grounds,races,income levels,and ages helps modating new demands for space and the na- make the downtown experience different from ture of society. that of the dull,homogenous suburbs. • Safety.The success of downtowns depends in • Greenery.An attractive downtown features large measure on how safe and secure residents, abundant street trees,planters,and colorful visitors,and daytime workers perceive them- and landscaped plazas of various sizes that in- flowers along its sidewalks.It offers both parks selves to be.The design of streets and buildings must reinforce safe environments,but not at vite pedestrians to rest,read,and linger,and the expense of accessibility and openness.For serve as relief from and counterpoint to the example,obtrusive safety features like fences, street and sidewalk paving.It features large gates,and physical barriers should be avoided. 18 An Advisory Services Panel Report Significant Strengths i The greater Rochester region has numerous strengths,including a highly educated workforce * � and a firm foundation in innovative technologies. Downtown Rochester is no different.The panel observed several major advantages for the urban core—strengths that many cities of similar size would love to claim for their downtown.The city and its citizens need to recognize these strengths in order to build upon them in re-creating down- town Rochester as it enters the 21st century. Some of the strengths observed include the following: • A substantial base of daytime employment still exists downtown.Substantial numbers of down- town workers could be attracted to live down- • Downtown has wide sidewalks for pedes- Downtown Rochester has town or spend off-work hours there. trian use. plentiful garage and sur- face parking. • Several housing developments are under con- struction in and around downtown.The demo- Significant Challenges graphic characteristics of the target buyers are Challenges are apparent to the panel as well. similar to those reflected in national trends—in- Rochester is far from alone in dealing with the dicating favorable demographic trends in the loss of vitality in its downtown.Much of the Rochester market. panel's advice is rooted in the successful strate- • Downtown has ample parking resources. gies that other cities have employed as well as the strategies that have failed.The forces that have • Strong sales prices and absorption have been drained downtowns of their commerce and life— reported for recent condominium development suburbanization,building obsolescence,well- in downtown,although of a limited scale. intentioned but misguided planning—are not • The downtown area is home to numerous well unique to Rochester.By building upon Rochester's regarded and popular arts and cultural institu- strengths,these challenges can be overcome.With tions,including the Eastman School of Music the appropriate public sector support and private and Theatre,the GeVa Theater,and the Strong sector investment,these challenges can be re- Museum.These venues attract visitors locally created into real estate development opportuni- and regionally. ties.Some of the challenges observed by the panel • Downtown has little traffic congestion. include the following: • Several entertainment districts have estab- • Downtown Rochester has a weak office market lished themselves over the past decade and with high vacancy rates—particularly in Class draw many patrons to downtown.Districts such B buildings—that continues to deteriorate,cre- as the East End,High Falls,and the St.Paul ating near-and mid-term excess capacity,hold- Quarter demonstrate that the right amenities ing down rents,and reducing asset valuations. will attract activity and development interest. . Most older downtowns were developed for re- • Downtown Rochester has a rich collection of gional retail uses but no longer can function as beautiful late 19th-and early 20th-century ar- such.The resulting vacant and underused space chitecture that is not only a noble heritage,but also fails to serve the needs of downtown em- also a very valuable real estate asset. ployees and residents. Rochester,New York,June 10-15,2005 19 • Many vacant or underused buildings through- out downtown contribute to the image of decline. • The street patterns are difficult to navigate,es- pecially for visitors not familiar with downtown. • Buses dominate Main Street at certain hours of the day,creating an unpleasant atmosphere and blocking visibility of first-floor retail. • The pervasive perception of unsafe streets in downtown inhibits suburban residents from pa- tronizing downtown businesses and institutions. Vacant Historic Commercial Buildings Throughout downtown Rochester,the panel observed many attractive,historic structures. Sadly,several of these former commercial build- ings lie vacant or underused.Some of these build- ings could be renovated for office use,but others should be converted to residential use.Commer- cial buildings with especially fine architecture and high ceiling heights that can accommodate true lofts are ideal candidates for residential con- version.Buildings with larger floor plates could accommodate first-floor retail use.To the extent that the market can bear,residential conver- sions should be condominiums,which will provide a strong ownership foundation for the new com- munity and maximize real estate tax revenue for the city. Office As previously noted,the office market downtown is weak,with high vacancies—particularly among Class B properties—and little new demand.The • The Midtown Mall design turns its back on excess capacity in the downtown market is a drag Rochester has a large the street sapping vital activity from Main p y g stock of architecturally Street. on rents and occupancy in all downtown office significant buildings. buildings.To shore up the office market,excess • Retail that has survived downtown is generally capacity must be reduced.This reduction can be characterized as low end.This type of retail is achieved with two methods:demolition and con- not attractive to the potential new residents of version.The panel recommends the following: downtown or prospective office users.However, • As previously noted,the Midtown property the panel notes the importance of these retail- should be demolished,eliminating most of its of- ers to current downtown residents and advo- fice space,with the exception of the Midtown cates the relocation of most existing retail uses Tower(pending a market study in two years) elsewhere in downtown. and the Euclid Building. 20 An Advisory Services Panel Report • The numerous historic commercial buildings throughout downtown should be converted to residential use,such as the Sibley Building. This strategy reduces the supply of office space while increasing the number of residents. The redevelopment plan for the Midtown blocks - should incorporate the Euclid Building site.The building should be retained because it is relatively new,because an access tunnel to underground loading docks runs underneath,and because a sub- stantial renovation investment was recently made by the building's major tenant. Retail space must be reoriented to face the street, bringing better visibility to the businesses and more life to the streetscape.This strategy will be accomplished primarily through the demolition of the indoor Midtown Mall and the relocation of the majority of its tenants to other street-facing loca- tions along Main Street and Clinton Avenue.Some of these tenants could be relocated to the retail space on the first floor of the Sibley Building or s ip other adjacent locations.The ultimate location of the Midtown Mall retail tenants will depend upon retailer preferences,rental rates,and landlord merchandising plans.Retail space is proposed for the following locations: • The first floor of the Sibley block is ideal for re- tail use.First-floor space should be reconfig- ured to create a variety of retail spaces along Main Street and Clinton Avenue. • The new public space on the Midtown block - should be wrapped with retail.These shops will Arts and Culture Top: Marginal retail estab- face Main Street across the public space. lishments line downtown Eastern Main Street between the river and the streets.Above:The East • Where appropriate,develop first-floor,neigh- inner loop should be branded as the art and cul- End of downtown has borhood-serving retail in converted residential tural district of Rochester.Rather than aggregate multiple cultural and buildings. all of the arts and culture venues in one area, artistic venues. • Sufficient space should be programmed to ac- these uses should be stretched along Main Street, commodate restaurant uses that will support creating a reason for pedestrians to walk along the performing arts venues. Main Street.Restaurant development should be encouraged along Main Street to support the arts • The city should reserve sufficient space for a venues and to contribute to the activity on the small grocery store and pharmacy. street.Some specific strategies are as follows: Rochester,New York,June 10-15,2005 21 e • Develop a 2,800-seat Broadway venue and a sible space—also known as crime prevention smaller 300-to 500-seat venue at Renaissance through environmental design—builds safety Square at Main Street and Clinton Avenue. measures into the urban form.See-through win- • A concert hall/theater with approximately dows,appropriate lighting,and open space lead to 1,000 seats should be part of the Midtown greater visibility and safety. redevelopment. Strategy Two: Re-Create Downtown as a Center of Commerce • Program a future arts venue on the parcel owned Downtown Rochester must work to retain its by the Cultural District Corporation on the existing office population and to attract new ten- northeast corner of Main and Chestnut streets. ants to downtown by offering amenities such as • Reconnect Main Street to Broad Street through the following: the Midtown block,making a connection to the • Inexpensive,convenient parking; Strong Museum. • A variety of restaurants; Re-Creation Strategy . A safe,congenial,convenient,and entertaining The panel believes that downtown Rochester con- atmosphere; tains many of the elements that can allow it to reach its full potential as a successful and vital • Public parks,squares,and plazas that encour- center city.However,the panel finds that to meet age interaction. the challenges the city faces in the new century, The panel recommends the selective demolition of Rochester must foster and strengthen those ele- older,obsolete buildings that are not viable candi- ments.In fact,Rochester must decide to focus its dates for conversion to new uses.Coupled with efforts to re-create itself as one of America's best conversion of eligible buildings to residential uses, small cities.The panel believes that downtown such demolition will substantially reduce excess Rochester can re-create itself through three major strategies,which are outlined here. office capacity to manageable levels.This action will foster higher rents and also stimulate more demand for Class A space. Downtown Rochester should take full advantage Changing tastes and living patterns demand that of every opportunity both to construct new hous- downtown Rochester re-create its retail identity ing and to convert existing vacant or underused from regional center to a mix of street-level,side- buildings to a variety of residential product types Falk-oriented convenience and daily needs retail and price levels.If downtown Rochester increases and service businesses such as a grocery,phar- , the number of downtown residents,numerous macy,and dry cleaners.Restaurants,nightclubs, benefits will follow.Retail uses will be attracted and unique shops that can be found in no other lo- to the larger customer base.More people means cation in the region will enhance downtown's liv- more street activity and vitality.Streets contain- ability and attract visitors.Although such street- ing buildings populated by residents on upper level retail space should be planned into each new floors are inherently safer because of the presence and adaptive reuse project,Rochesterians must of"eyes on the street." be patient and understand that it will fill over Increasing the presence and visibility of additional time as the population grows. community-oriented police officers on foot,on Strategy Three: Promote Downtown as a Center horseback,or on bicycles often increases real and of Arts and Culture perceived safety more than any other factor.How- Downtown Rochester retains a substantial num- ever,downtown may take other steps,such as re- ber of artistic,cultural,and educational venues. quiring that the design of every new or conversion The city should build upon these existing project include defensible space principles.Defen- strengths by: 22 An Advisory Services Panel Report • Establishing the Downtown Arts District along The Midtown office tower Main Street between the Eastman School of is mostly vacant but pre- Music and the river; sents substantial prob- lems with demolition. • Aggressively promoting the existing arts insti- tutions and their events,tying them together with downtown promotional events such as street music festivals; • Adding additional performing and visual arts venues in the Downtown Arts District,includ- ing a new performing arts complex at the inter- section of Main Street and Clinton Avenue; • Recruiting small galleries,art supplies stores, and other arts-related retail uses to locate on j Main Street or in the Downtown Arts District. Study Area Redevelopment This section describes the panel's vision for new uses for the four sites located within the study area.The process of redevelopment is complex and should be coordinated by a dedicated public agency,which is discussed in the Implementation possibly surface.The bold redevelopment being section of this report. recommended by the panel might spark demand for Class A office space in two to five years. tli:iwu The panel recommends that most of the Midtown Therefore,the panel recommends a plan of as- block,with the exception of the Midtown Tower bestos remediation,followed by an extensive mar- and the Euclid Building,be demolished and re- ket study to determine whether the tower should placed with a mixed-use urban village.The Mid- be reused or demolished.Whether the Midtown town Tower presents the most difficult challenge Tower is eventually torn down or reused,abating on this site.This office building is almost com- the asbestos,stripping the skin of the building, pletely vacant,has substantial asbestos contami- and removing obsolete building systems will have nation,and is approaching the end of its useful life to take place. because of obsolete floor plates and poor telecom- ' munications hookups.Currently,little demand ex- ists for Class B office space,and very costly rede- blocks are acquired,the tasks of asbestos abate- velopment would be required to upgrade the ment and skin removal begin immediately,be- Midtown Tower to a Class A building.Current cause they will be required for any redevelopment Class A rents do not justify this level of invest- strategies for the tower.Acquisition of the site,in- ment.Furthermore,the abatement and demolition cluding financing,will take at least two years,and costs for the Midtown Tower are very high and the abatement and exterior skin demolition will are not justified by current or anticipated land likely take nine months or more.Three years from costs.The panel believes that the decision to de- now,the best use of the tower could be much molish a building of this volume and replace it clearer.The Class A office market could rebound with a much lower-density structure should not be or demand for high-rise housing may be evident. made on the basis of information currently avail- If the market for reuse of the building skeleton is able to the panel and to the city.As the city re- not evident in three years,the rest of the building creates downtown,new market forces could very should be torn down.This procedure will cost Rochester,New York,June 10-15,2005 23 f the site should be developed as a mid-rise urban village,with residential uses above retail.Retail should wrap the park/plaza area and be visible from Main Street or Clinton Avenue.Midtown's underground 1,800-space parking garage should be retained.It is a valuable resource for future land uses on the site. After demolition,a significant portion of the Mid- town site is recommended for mixed use with a strong component of residential.Other uses to be Above: The Sibley Build mixed with housing on the Midtown site are pub- it suitable able fo help make' he open space,a medium-sized performing arts csuitable for residential venue,and new street-level retail.This mixed-use conversion. Right:The approach could also be described as creating an first floor of the Sibley "urban village."Four-to five-story structures, Building has excellent street-level amenities. some with first-floor retail,will appeal to young professionals as well as empty nesters who want to take advantage of the myriad performing arts venues within easy walking distance,but who pre- fer a more conventional floor plan than will be of- fered at the Sibley Building.Some of the units above the retail will look out over the public park. The units on the south side of the site will be clus- tered around courtyards,providing privacy and quiet amid the urban bustle.The site could accom- modate approximately 350 to 450 units,with a mix of rental and condominium ownership at a variety of price points. The Sibley Building provides an outstanding op- portunity to develop a critical mass of loft hous- ing in the center of downtown.Loft units have proven to be a high-demand product throughout the northeast and are particularly popular among r the 25-to 40-year-old demographic that has shown roughly the same as immediate demolition but al- a preference for downtown living in Rochester lows for flexibility in future use. and throughout the country.Although loft and The Midtown block will accommodate a variety of other apartment units in converted commercial land uses after redevelopment.At the corner of buildings are relatively new products downtown, their sales and leasing have been brisk,proving Main Street and Clinton Avenue,a large park or market acceptance of the product.The lack of a plaza should be constructed.This park could be sufficient sales history makes it impossible to ac- used for outdoor performances,festivals,and curately project ultimate demand for this product, other community gatherings.The panel also en- but the experience of other cities portends well for dorses a 1,000-seat concert hall on the site.Estab- the conversion of historic commercial buildings lishing a mid-sized performance hall would help with high ceilings,exposed brick,and a stripped- free up space in Renaissance Square as well as down industrial look.The residents attracted to spread out foot and vehicular traffic.The rest of this type of housing have a lifestyle that will sup- 24 An Advisory Services Panel Report Casino The panel is aware that a casino complex has been proposed for the Sibley and Midtown sites.In the experience of the panel,with rare exception,casi- nos detract from,rather than add life to a downtown.Under current New York state law,only a Native American-owned casino would be allowed in downtown Rochester,which would require transferring the proposed casino port renewed vigor downtown because they are site into tribal ownership,effectively creating a sovereign nation at the heart likely to patronize entertainment and arts venues. of downtown. The conversion of the Sibley Building to resi- By intention,casinos are one-stop destinations,aiming to capture as much dences should begin with the tower portion of the consumer spending from each patron as possible.They are deliberately de- building.The tower configuration lends itself to a signed to capture and hold customers,providing every amenity with the in- residential conversion with its double-loaded cor- tent of making it unnecessary for a customer to leave the building at any ridors and appropriate depth from the exterior time.As a result,customers typically do not interact with the surrounding window wall to the corridor wall.The high ceil- city or engage in commerce with any other merchants.In fact,casinos may ings,expansive windows,and historic look of the have a detrimental effect on the existing surrounding businesses.In the case building should be strong selling points.The con- of Rochester,a casino would undoubtedly attempt to counterprogram con- version of this building will support other recent certs and other events that would negatively affect the new performing residential developments nearby by creating a arts center. residential feeling along the north side of Main Street east of Clinton Avenue.This redevelop- Architecturally,successful casinos turn inward,presenting blank walls to ment will be the largest residential project yet the street.Internally,casinos have a very controlled circulation pattern that within downtown and,if successful,will prove seeks to keep patrons inside.Pedestrians needed for a vibrant retail street the market,encouraging other developers. instead stay indoors.Casinos can also create substantial vehicular traffic con- gestion and can act as a magnet for other undesirable activities. When the tower portion is near completion,the department store floor plates above the first floor From a financial perspective,the panel believes that,in an era when cities be converted to residential as well.This and states all over the country are experiencing shrinking resources and in- should should sion is technically more challenging because creasing budget struggles,Rochester can ill afford to permanently remove of the floor configuration,but the panel projects a such prime,large parcels of land from the property-tax rolls.Furthermore, stronger housing market downtown by 2009.If experience shows that no guarantee exists that casino revenues will be economic conditions remain favorable,the market shared with the local community or government.For this and other reasons, will bear the higher development costs that are in- the panel agrees with the community's commitment not to give up sovereign herent in the residential conversion of the depart- ownership of some of the most important real estate in Rochester. ment store floors.The panel is aware of the suc- The panel believes that a casino would be an inappropriate use for the most cessful conversion of department stores in other important intersection of downtown Rochester and would be antithetical cities—such as the Atrium in Baltimore(a former to the goals of re-creating downtown as a vibrant,active center of commerce, Hecht's)that used an atrium similar to the one in a public meeting place,a thriving neighborhood,and a center for arts and the Sibley Building.The atrium enabled double- culture. loaded corridors with some units facing inward onto the atrium and others facing out toward the street. redevelopment authority,or a taking by the city— The first floor of the Sibley Building should be a measure of last resort. converted to first-floor retail with residential loft Renaissan ire units on all the floors above.Both the tower and the old department store sections of the Sibley The panel feels that the planned Renaissance Building should become loft-style residential.The Square is a valuable component for downtown re- ground floor of should be converted to retail. development.However,the panel envisions sev- eral changes to the planned structure that will At the present time,the Sibley Building is owned help further the city's redevelopment goals.First, and operated by a private sector entity that is ex- the panel endorses the planned 2,800-seat Broad- ploring other reuse options,including a casino. way theater venue at the corner of Main Street The panel believes that the city must entice and and Clinton Avenue.Furthermore,the addition of engage this property owner with viable alterna- a college center on the block is also desirable.The tives.Those alternatives could include financial in- college center could include programs from SUNY centives for rehabilitation,voluntary sale to a city Brockport in addition to the planned space for Rochester,New York,June 10-15,2005 25 Monroe Community College.Because of the large tures will help provide additional needed housing physical size of the block,the panel suggests in- downtown.With townhomes instead of mid-rise stalling a midblock road named Stone Street.The buildings,the neighborhood will transition smoothly original Stone Street was demolished in the 1960s. toward Grove Place.This market-rate housing The panel also endorses the idea of building a new could be a mix of rental and condominium,with transit center at Renaissance Square,although certain buildings targeted to students.The site the transfer station should be above ground. could accommodate 550 to 650 units. St. Joseph's Pla-ry St.Joseph's Place comprises three blocks north of OlaSlll the Sibley Building and Renaissance Square.The As stated earlier in this report,the re-creation of major landmark on these blocks is the remains of downtown is critically dependent upon accelerat- St.Joseph's Church,which was largely destroyed ing the development of new housing.The study in a fire some years ago.The panel envisions a area presents a number of opportunities for hous- large urban village,with rental units,condomini- ing development.The panel believes that housing ums,some retail,and green space.Any redevelop- must be at the center of any redevelopment sce- ment effort will require demolishing most of the nario in downtown Rochester. buildings and surface parking lots on these blocks. However,the panel feels that St.Joseph's vesti- City financial support should be targeted to en- bule should be retained as a park and neighbor- sure a mixed-income community within neighbor- hood icon.This area may also have strong poten- hoods or specific development projects.This aim tial for student housing. can be accomplished by income restriction or new construction targeted to lower-income consumers The panel recommends reconfiguring the blocks such as students.The resulting diversity pro- north of Renaissance Square and the Sibley Build- motes strong,sustainable communities.Long- ing and south of Andrews Street.A more straight- term sustainability and diversity are attractive to forward street grid will provide a new urbanist buyers and renters who prefer an urban lifestyle. framework for medium-density development of attached housing and neighborhood retail.These two-,three-,and four-story townhouse-like struc- 26 An Advisory Services Panel Reporl Planning and Design he Interstate490/inner loop beltway gener- barring pedestrian and even visual access along ally defines downtown Rochester.The Gene- Main Street.These conditions present a lack of see River bisects the urban core.Previous pedestrian scale and comfort,making this area of development has generally turned its back Main Street uninviting and unattractive.The lack to,or altogether ignored,the river.Development of sufficient public spaces further undermines during the 1960s and 1970s further isolated people Main Street's ability to act as downtown's civic with internal shopping malls,lack of public spaces and ceremonial boulevard.A confusing street and parks,and the skyway system,all of which act grid,especially north of Main Street,the maze of to keep people off the streets,diffuse the density skywalks,and potentially unnecessary one-way of pedestrians and shoppers,and generally add to traffic flows make navigating the area difficult for a sense of isolation.Recent efforts such as the visitors and suburbanites coming into downtown. East End and St.Paul Quarter—although suc- cessful—are scattered and lack cohesion.Main The study area has some substantial architectural Street,the central axis of the core,has lost its re- and design strengths.The Sibley Building has tail focus and been reduced to nothing more than a strong architectural character,and the large floor place to pass through or loiter. plates are very valuable to today's retail and resi- dential developers.Both the tower portion and There is good news,however.Rochester has a the shorter department store floor plates work strong architectural and historic building stock— well for residential and retail layouts.Ample park- particularly of late-19th-and early-20th-century ing—including 1,800 spaces underground—and buildings—that provides the bones for future re- loading facilities further increase the versatility building.Work in the East End,St.Paul Quarter, and value of the building.Main Street runs di- and other areas shows positive and successful rectly through the heart of both the study area growth patterns in housing and retail develop- and the downtown generally,and the Midtown ment.Work by the community on the Rochester block is positioned at the crossroads of many of 2010 Center City Master Plan and design guide- the area's key streets.Together,Main Street and lines demonstrates a strong desire to create a the Midtown block provide organizing elements vibrant and inviting urban center,and recent for citywide development efforts. city/county collaboration shows recognition that a strong Rochester is critical to the future flleclairninq the Public omaiu of the region. With the Renaissance Center anchoring the west :7 Crossroads end of the study area,reclamation of Main Street and the Midtown block are the next important Within the study area,three very large develop- steps.Main Street must reintroduce itself as the ment sites dominate the landscape:the Sibley primary civic street for the city.Upgrades to the Building,Midtown Plaza,and the Renaissance street in accordance with the Center City Master Square block.These sites currently present large Plan should be done from the river to the East- blank building walls along Main Street,with little man School of Music to identify this role.Part of retail activity and no visual interest to pedestri- this upgrade should reintroduce on-street parking ans.Heavy use of Main Street as the central along Main Street and the adjacent cross streets, transfer point for the regional bus routes creates a with free parking after 5 p.m.and low short-term further"iron curtain"of buses at certain times, rates during business hours to make parking con- Rochester, New York,June 10-15,2005 27 The Renaissance Square site should break up the Pleasant Street superblock with an above- ground bus transfer area and an extension of Stone Street. L d Bus Transfer Zone Key: m a o _Retained Buildings � Public Buildings a Housing College Theater _Retail Main 5treet venient and encourage its use.Main Street then The panel recommends several design elements starts to become the central organizing element, for consideration as Renaissance Square proceeds, beginning to connect isolated district develop- including the following: ments into a coherent whole. • Seek an at-grade(or street-level)solution for The Midtown block becomes central in adding to the bus transfer center.It could provide acon- the numerous cultural amenities in the downtown. tinuous storefront on both Clinton Avenue and A second 1,000-person theater can be added to this block as well as public space for the city's out- St.Paul Street,keeping people on the streets door living room.In short,the Midtown block can where they generate activity and engage in become central to all of the public and quasi-public commerce.An at-grade transfer center would amenities in the immediate region. also avoid creating a very expensive under- Renaissance Square Opportunity ground space that will be viewed as unfriendly, The Renaissance Square project is in the early de- unsafe,and undesirable,while retaining the sign stages and provides a number of positive ad- flexibility to respond to future transit develop- ditions to the urban environment.It adds another ments more easily and cost-effectively. cultural destination to a downtown that already . Reintroduce Stone Street on the north-south contains a wide variety of cultural venues,includ- axis of the project in order to break down the ing the Eastman Theatre,Strong Museum,Fron- tier Field,and the Blue Cross Arena.The project mass and scale of this block,particularly along also establishes on Main Street a major campus Main Street.Breaking up the block will improve for Monroe Community College,expanding and pedestrians'sense of security and well-being.It strengthening an ongoing commitment to educa- will also ensure that future development is built tion as a core function of the downtown. on a pedestrian scale. 28 An Advisory Services Panel Report enai55ance Sibley 5auare N,a�n StYeet The panel's vision for the Midtown site includes public space, a theater, and residential uses. � Theater Key: _Residential over Retail 5 Residential Retained Office Buildings CIV Pedestrian Street 5�ree� ®Town Square/Public Space NeW IN Broad Street • Rethink the one-way couplets of Clinton Av- amenities.To meet this requirement,the panel enue and St.Paul Street/South Avenue in order proposes the demolition of the Midtown Plaza,as to create better bus-turning movements,reduce well as the B.Forman,McCurdy,and Seneca pedestrian/bus conflicts around Renaissance buildings.In their place,the panel recommends Square,and simplify overall traffic flow.Al- the creation of a signature civic space and a though the level of service at the intersections mixed-use development,both to front on Main may be decreased somewhat,the panel does not Street.This park should be similar in character believe the traffic volumes warrant one-way and pedestrian orientation to Courthouse Square conditions. in Akron,Ohio,or Bryant Park in New York City, and be designed to build on Rochester's historic • Resist the placement of internal food-service ties as the Flower City.The park will provide a functions in the college program,unless they nev�town square—a public space for meeting and are incorporated into the Main Street frontage. • Have separate performing arts and college en- trances front on Main Street,with the perform- rils33r, ing arts component and its primary entrance placed on the corner of Main and Clinton. Midtown Plaza Opportunity Midtown Plaza has outlived its useful life.This An important under- centerpiece of Rochester's 1960s'revitalization ef- ground service tunnel forts now needs to move aside to facilitate a new complicates the demoli- urban re-creation.The panel proposes that the tion and redevelopment Midtown site should support Rochester's cultural of Midtown Plaza. Rochester, New York,June 10-15,2005 29 talking,relaxing and people watching,seeing a tial and office space in the city evolve,with either new piece of public art,or catching an outdoor additional rehabilitation for reuse as office or resi- performance. dential/hotel,or full demolition an option.If the Across Clinton Street on the open portion of building is demolished,additional mixed-income the Chase site,the panel proposes development housing could infill the site. of a Winter Garden to provide year-round public Last,a link through the Midtown block should be space for the community.This space would be developed to reach out toward the Strong Mu- programmed for similar functions as the out- seum and Manhattan Park,to initiate a connection door site across the street.The panel would also between this valuable regional resource and the like the Clock of Nations from Midtown Plaza arts and cultural events of Main Street. refurbished and relocated here as a link to Rochester's past. Sibley Opportunity Breaking down the Midtown block with smaller- The Sibley Building is a major piece of Rochester's scale streets and pedestrian ways is also impor- history.This glorious structure must be retained tant.A new street should be carved from Clinton and given new purpose.Because the panel be- Avenue to East Avenue.Combined with adequate lieves housing will drive downtown Rochester's sidewalks,this configuration supports mixed-use re-creation and the Sibley Building represents an development of retail and housing as well as a excellent physical opportunity for residential con- 1,000-seat theater space.The panel recommends version,the panel proposes that this building be keeping the underground parking garage and ser- adapted to a mixed housing/retail use,with retail vice tunnel operational,although maintenance and on the entire ground floor and residential units modifications will be required to accommodate developed above. this new development. The first-floor retail space might be used to ac- The panel recommends that the Euclid Building commodate relocation of some current Midtown be retained,with some modifications to make it a Plaza tenants onto the street.It could also provide freestanding building.Furthermore,the Midtown spaces for food and entertainment shops to sup- Tower should be abated of environmental hazards port the performing arts center patrons,for ten- and prepared for reskinning or eventual demoli- ants new to the downtown market,and to incu- tion.The final disposition of this building will be bate new local retail enterprises that could then determined based on how the markets for residen- migrate into the larger retail marketplace. Department Store Block Tower Block i Key- ReSidential Ll LIE Retail Ke5ldential O Atrium ® ® R—H The Sibley Building ® R__H `T_H Ccmmon Area Function ill n �— should include first-floor retail with residential uses Retau on the floors above, ..... .. ...... f1t 30 An Advisory Services Panel Reporl Schiller Park/ / Franklin Square P IN 10 k P � 3s .. Residential Commercial/Retail ��J�„ Park/Open Space a O p © ® 5t.Joseph's essoo� � - y Parking � Garage w.. Old 5ibleys Renais 3ance 5qu am St. Joseph's Place Other Opportunities within the St.Joseph's Place is an Inner Loop ideal site for a mid-rise The area north of the Sibley Building and Renais- urban village. sance Square should be developed as an urban vil- Several general downtown issues need to be ad- lage.The panel recommends that this develop- dressed.The design guidelines developed as part ment be primarily residential townhouses and of the Center City Master Plan provide an excel- attached housing products with a density of 15 to lent starting point for creating the kind of urban 40 dwelling units per acre.It should include a gro- environment envisioned by the panel.These guide- eery store and associated neighborhood retail uses lines should be reviewed in light of the panel's rec- as appropriate and possible. ommendations to ensure that they will adequately This project should incorporate and preserve the address mixed housing products and street retail. historic St.Joseph's Church vestibule and steeple Public art is an important element of any urban as a community icon.The Warner Building lends environment.In a city building its future around itself well to a conversion to incubator space with arts,education,and cultural activities,public art live/work units because of its high ceilings and is a key component.Building a program around large windows.A neighborhood park will also be visual as well as performing arts would increase needed within the district,and possibly an ele- the excitement of the public realm,activate the mentary school in the future.Reorganization and retail areas,and tie into the region's rich history. simplification of the local street grids should be Large-scale photographic murals,sculpture,and studied to improve circulation and reduce or elimi- environmental art pieces could all enliven the core nate odd and orphan parcels,allowing additional of the city. housing units to be created. Rochester,New York,June 10-15,2005 31 Implementation he panel has articulated a clear vision for the from the state of New York.The board of the au- study area and downtown as a whole.Real- thority should have members appointed by the izing this vision is the next step in the pro- city and county,but a majority should be drawn cess.The panel feels a number of issues need from the private sector.The agency would possess to be addressed if successful development is to government powers delegated to it.The authority progress.Rochester needs to create and empower should be specifically enabled to two agencies to direct the re-creation process.One agency will be responsible for coordinating the • Buy,or condemn where necessary,to assemble land acquisition,government programs,and sub- land parcels for redevelopment; sidies for redevelopment.The second agency will . Solicit proposals and award development rights; be responsible for a series of enhancements to the public realm that will help further redevelopment • Grant payment in lieu of taxes and other tax goals and raise quality of life downtown.The sec- incentives; and agency will also assume responsibility for marketing and promotion of downtown. • Provide management oversight of TIF districts; • Make low-interest development loans; • Build and operate city-owned parking as a park- Rochester is fortunate to have business and non- ing authority; profit leaders who have taken a strong interest in the economic situation of downtown.Rochester is • Impose impact fees; equally fortunate to have public sector leaders . Act as developer of last resort. motivated to change the state of affairs.Partner- ships that bridge both sectors are critical to the The panel recognizes that the decision to create re-creation effort,but currently no single entity the RCCA can be politically difficult.It requires is in a position to lead this complex process.The elected officials to give some of their powers over panel believes that the city and county must joint- to a board of appointed officials.However,use of ly initiate formation of a new single-purpose de- the authority vehicle minimizes many of the politi- velopment authority that combines the strength cal roadblocks in the redevelopment process by and purview of both the public and private sec- putting more power in the hands of private sector tors.This proposed entity,dubbed the Rochester leaders—the same leaders upon whom the com- Center City Authority,will partner with the pri- munity must rely to take the financial risks nee- vate sector to facilitate the re-creation of down- essary to achieve redevelopment.Several cities town.The authority will also be responsible for around the country,including Memphis,Tennes- purchasing the land and preparing and packaging see;Norfolk,Virginia;and Washington,D.C.,have it for development.Its activities would,at first, experienced excellent results from similar public/ focus on the redevelopment of Midtown Plaza,the private agencies. Sibley Building,St.Joseph's Place,and Renais- sance Square,if needed. Business Improvement District As a quasi-governmental agency,the authority The Rochester Downtown Development Corpora- should be chartered by the city of Rochester and tion has played and continues to serve a valuable Monroe County.Special approval may be required role in the economic revitalization of downtown 32 An Advisory Services Panel Report Rochester.It has provided a reliable platform for •.•m m ;;� =a ;;, €€;.E_:,.: °m °wst The Renaissance Square . . 5 ;w ;r T ,: +y .y ::r4 IN_ ; :F ;,;: ' .;!" r: =v :<;.:r� project is planned for this downtown stakeholders to come together and ad- `�:, ��� -�� :�. �, :: P 1 vocate for the center city.In that way,the RDDC 1 _,. block at the corner of currently functions as more of a Business Im- Main Street and Clinton prevenient District than it does a development Avenue.Tax increment corporation.The panel believes that the RDDC $ =`:r financing could help pay should adopt a different name and assume even for redevelopment more roles typical of a BID.These new roles in- clude the following: • Cooperate with the RCCA and facilitate retail relocation from Midtown Plaza; • Create and manage new festivals and coordi- ever,the total dollar value may be somewhat lim- nate existing festivals; ited because of fiscal constraints on local govern- ments.The panel has reviewed the programs avail- able in the city of Rochester and Monroe County • Implement safe-streets initiatives; and believes the following programs are consis- tent with executing the strategies recommended • Perform business and cultural ombudsman by the panel. functions. •Tax Increment Financing.Tax increment financing Financing is a very powerful financing tool provided under New York state law that allows bonds to be is- Many of the panel's recommendations require a sued and repaid with the increase in property significant amount of public and private money. tax revenue.A local body,such as a redevelop- The private development community is easily dis- ment authority or a municipality,creates TIF suaded from pursuing center-city projects because districts.Bonds are issued to pay for needed land of lack of experience,insufficient financial returns, acquisition,demolition,new construction,and pub- complicated land acquisition,and other issues.Pub- lic infrastructure.These improvements cause an lic sector assistance can ameliorate or eliminate increase in property tax receipts from property these hurdles.The panel believes that the private within the district.The city captures a portion of sector will invest in downtown when the public the higher tax(the"tax increment"),which goes sector streamlines the development process and to repay the TIF bonds. contributes funding to ensure reasonable returns. As downtown becomes more successful—and de- A TIF district is one of the most powerful tools for velopers gain experience—the necessity of public effecting redevelopment.Funds realized from the financing will likely diminish. bond sale could be used to acquire land,demolish buildings,or construct new structures on the Re- Public financing for projects can come from a va- naissance Square,Sibley,Midtown,or St.Joseph's riety of sources.Direct cash subsidy is only one sites.Because the acquisition,selective demoli- source.In fact,cash subsidy is one of the rarest tion,and reuse of the study area properties will forms of development subsidy.Low-cost loans,tax cause a substantial increase in property value,the incentives,and acquisition assistance are far more panel recommends creating a TIF district encom- common.The Rochester Center City Authority passing the entire inner loop to benefit the rede- will need to assemble a package of assistance tools velopment of all the sites discussed in this report. for prospective developers of large projects. Conversion Urban Exemption Program.A Conver- Al erugrams sion Urban Exemption(CUE)program assists The most readily available programs for the city developers in converting vacant office space to of Rochester come from local governments.How- residential housing units and commercial uses.It Rochester,New York,June 10-15,2005 33 Eminent Domain/Condemnation.The power of emi- nent domain is authorized by the U.S.Constitu- tion;it allows local governments to take private property for public benefit,including for economic development purposes.The U.S.Supreme Court issued an opinion in June 2005 clearing the use of eminent domain for economic development pur- n{S r poses.Eminent domain is a valuable tool during negotiations to purchase property from the pri- vate sector,particularly from holdout owners.It is generally regarded as a method of last resort for land acquisition.Use of eminent domain is contro- versial,litigious,and often politically unpopular. In the panel's opinion,the redevelopment of Mid- town Plaza and the Sibley Building will result in substantial public benefit by creating new housing opportunities,jobs,and public facilities.Thus,em- inent domain could be used for land acquisition if absolutely necessary.With the numerous parcels St.Joseph's Place sits forgives 100 percent of the property taxes attrib- and owners in St.Joseph's Place,eminent domain north and east of the uted to improvements to the structure for the could also be a tool to assemble land at that site. namesake historic church. first 8 years.The amount of exempted property Industrial Revenue Bonds.Authorized through Public;involvement will be tax decreases during the 9th through 12th years. Monroe County,Industrial Revenue Bonds can be required to assemble and used by private developers to raise capital.Simi- acquire the diverse par- A CUE program can be authorized by the city of lar in structure to commercial or industrial securi- cels composing the St. Rochester.It would be a valuable program for the Joseph's site. retrofit of the Sibley Building from office space to ties,the bonds require repayment from the devel- residentialunits.However,the city should analyze oper.However,the bonds have favorable terms because they carry tax-exempt status. any potential effect on the area's TIF district be- fore proceeding with a CUE tax exemption. These bonds could be used by developers to per- Dedicated Fees or Taxes.Dedicated user fees could form work on any of the properties discussed in support a redevelopment agency and its pro- this report.The redevelopment agency must work to inform developers of this program and give grams.The panel recommends imposition of a them assistance in applying. small fee on any or all of the following:performing arts tickets,convention center use,downtown ho- State Programs tels,downtown alcoholic beverages.Evening The state of New York has additional fiscal pro- parking fees could also be earmarked for certain grams that the panel believes are applicable to projects.Fees on tickets could help cover the op- downtown Rochester's re-creation.However,ac- erating cost of the performing arts center compo- cessing these funds can be difficult and time con- nent of Renaissance Square. suming.Increasingly,local leaders will need to A user fee is best justified for building and operat- present a unified front on redevelopment policy in order to secure state funding. ing Renaissance Square and other performing arts venues.Because a ticket surcharge would be a Incentive Tax Credit Program.The Incentive Tax user fee paid by patrons of the performing arts,it Credit(ITC)program offers a 20 percent tax should be politically viable.Taxes or fees on alco- credit to property owners who undertake the cer- hol,hotels,or the convention center could be ear- tified major rehabilitation of an income-producing marked for other projects. property.Owners can choose to reduce their tax li- 34 An Advisory Services Panel Report ability or can sell the tax credits to produce equity This program is particularly valuable to assemble for the project.Projects require state approval the parcels in St.Joseph's Place.That area con- and certification. tains many parcels with multiple owners and could be assembled and repackaged to a developer at The ITC program should be taken advantage of low cost.The panel suggests that the redevelop- when rehabilitating the Sibley property,because ment agency use a different name for the district, the building requires major rehabilitation and will given the negative connotations of"urban re- produce residential rental income.This program's newal"programs in past decades. ability to raise upfront capital will make it attrac- tive to developers. NYSERDA Incentives.The New York State Energy Research and Development Authority program Empire Zone Incentives.The state legislature provides cash incentives for new construction of needs to ensure that the target area lies within an multifamily dwellings of five units or more.These Empire Zone.Flexible zone boundaries were cre- resources are available for all project phases from ated during the last legislative session,so any predevelopment through startup of operations. areas of downtown not currently holding Empire Nonprofit organizations,private developers,mu- Zone status can be included without a lengthy leg- nicipalities,redevelopment agencies,and BIDs islative approval.Rochester may consider reduc- are eligible. ing the number and size of Empire Zones city- These funds would be of particular use for the con- wide,to ensure that the downtown Empire Zone struction of new housing at Midtown Plaza.How- has maximum competitive advantage over out- ever,the panel understands that competition for lying areas.Among other tools,the three follow- funding from this program is fairly intense. ing important incentives exist for businesses occu- pying space in an Empire Zone: The federal government has several programs • Certified employers can receive a tax credit for that are applicable for downtown redevelopment creating new jobs within an Empire Zone. in Rochester.As with state programs,local con- • Property tax abatements reduce the taxable sensus and aggressive pursuit are important in se- value of owned buildings within an Empire curing funds and incentive approvals.The panel Zone. notes the following programs for their potential use in downtown Rochester's re-creation efforts. • Up to 8 percent of sales taxes paid on building Section 108 Loan Guarantees.The U.S.Depart- materials can be refunded to the purchaser or ment of Housing and Urban Development(HUD) developer. guarantees notes issued by units of local govern- Urban Renewal Districts.These districts are au- ment to finance economic revitalization and de- thorized by the state legislature but initiated and velopment activities.The bonds issued are backed administered by the city of Rochester.After ap- by the promise of future Community Develop- proval by the state,the city stimulates the rede- ment Block Grant(CDBG)money from HUD. velopment of the district by tying together a Funds can be used for a wide variety of projects, group of parcels into a district for the purpose including expansion of businesses and acquisi- of resale on the private market.Typically,this tion of land. process begins with the acquisition of parcels, Section 108 loans can raise upfront capital and followed by demolition,developer selection,and have broad uses.However,they require dedicat- negotiation of a resale agreement.Parcels may ing future CDBG funds to current projects,thus be resold below market value.Furthermore,the reducing monies available in the future.Section assembly and resale process may proceed even 108 loans could be used for acquisition,demolition, if a taking by eminent domain is being litigated or construction on any of the sites discussed in in court. this report.The panel endorses the idea of using Rochester,New York,June 10-15,2005 35 Section 108 loans but urges caution because of the come produced from commercial space qualify for future implications of giving up CDBG funds. this program.The program provides for rapid de- preciation of the property(thus reducing or elimi- American Heritage Rivers Initiative.This U.S.De- nating taxes),a capital gains tax exclusion,and partment of Transportation program supports corporate income tax credit for jobs created by local communities'efforts to revitalize and main- businesses. tain riverfront areas.Local communities can apply for assistance through their state and metropoli- Several pieces of the panel's vision include mixed- tan planning organizations.Eligible projects in- use components,including the urban village on the clude those that would improve economic or envi- current Midtown site,the Sibley Building,and ronmental viability of riverfront neighborhoods. portions of St.Joseph's Place.Incentives from the Given the proximity of these sites to the Genesee Renewal Communities program could also be ap- River,Rochester could make an application to this plied to the retrofit of the Midtown Tower after program. abatement and stripping are complete.Develop- ers who would reskin and outfit the bones of the This small program does not directly apply to the tower for Class A office space would welcome downtown-focused vision and strategies articu- such incentives.The city and its redevelopment lated by the panel.However,if any redevelop- agencies must make potential developers aware of ment plan included waterfront parks,trails,or this program and target the incentives to the core stormwater upgrades,the city could be eligible of downtown. for funds under this program. Federal Historic Preservation Tax Incentives.Ad- LEED-Certified Tax Credits.A Leadership in En- ministered by the Department of the Interior's ergy and Environmental Design(LEED)-certified National Park Service,federal historic preserva- building meets a series of certification tests for en- tion tax incentives offer two programs to make vironmental friendliness and sustainability.Devel- the rehabilitation of historic structures more feasi- opers whose projects qualify for LEED certifica- ble and attractive.The first program offers 20 tion can apply tax credits toward their total profit percent tax credits for rehabilitation of any build- on the project.Unlike historic or affordable hous- ing listed on the National Register of Historic ing tax credits,LEED tax credits cannot be sold Places or lying within a designated historic dis- to raise equity. trict.The rehabilitation plan must be approved by the state historic preservation office and subse- LEED tax credits could be explored for construc- quently certified by the U.S.Department of the tion of new housing and facilities at Renaissance Interior.To capture the full tax credit,the owner Square.The panel strongly encourages the city must operate the rehabilitated building for five to set goals of"green"building.The Rochester years. Center City Authority should make developers aware of this program and provide application The second program offers a 10 percent tax credit assistance. for rehabilitation of any building built before 1936. This tax credit is available for buildings that are HUD Renewal Communities Program.Rochester not listed on the historic register.Both tax credits was identified in 2002 as one of 40 Renewal Com- are powerful tools for downtown Rochester's re- munities by the U.S.Department of Housing and creation.The RCCA should assist developers in Urban Development.Until 2012,this powerful applying for these tax credits. program provides up to$12 million per year in tax breaks and other incentives for business develop- ment.The panel understands that the program is not being fully used by the city.The program is The panel believes that"quality of life"and public applicable only to projects that include(or are en- perception issues must be addressed as soon as tirely)commercial or industrial components.How- possible.Downtown Rochester must become a dy- ever,mixed-use projects with 20 percent of in- namic,interesting,and,above all,pleasurable 36 An Advisory Services Panel Report place to be.Enhancing quality of life will make downtown an attractive place for new housing units and office relocation. Public Safety The panel has heard repeatedly that crime is an issue in downtown.Yet,statistically,violent crime in downtown is minimal.The panel believes that _. the perception of crime is almost as important as the reality of crime.Therefore,the panel recom- mends that panhandling,vagrancy,and other threatening behaviors be removed from the down- : :. town as a whole,not just shifted from one neigh- I borhood to another.Appropriate social service agencies—both public and private—should be brought in to help solve this problem. The police department and social service agencies Co munity Vision This preserved adver- may require additional resources to accomplish The city is experiencing the beginnings of a resi- tising mural reminds this goal.However,the panel believes that ade- dential renaissance,largely led by young people Rochesterians of the rich quate,engaged,highly visible,and helpful police moving into the city.The panel strongly believes history of downtown. should be considered part of the city's infrastruc- that young people and empty nesters are prime ture.The preferred method of policing in the candidates for a significant residential resurgence. downtown is on horseback,on bicycle,or on foot, In an effort to retain these new"downtowners," which gives police the ability to interact with the the city should listen carefully to their wants and people on the street.Car patrols separate the po- needs and anticipate their future needs.These lice from the community and are less effective in people have a choice about where they live.They areas of high pedestrianism. have chosen downtown. The panel heard concerns about racial and genera- The panel was impressed with the performance- tional conflicts—real or perceived.The panel be- based zoning ordinance and regulations.However, lieves that programs to bridge these gaps are key the panel believes that codes and ordinances to a vibrant,comfortable downtown.Partners in should be critically reviewed to ensure that they this effort may be found in the church and educa- are conducive to the desired uses and contribute tional communities.Festivals and civic events that to the life of the street as well as to the visual attract families across the racial and ethnic spec- quality of the environment.The codes are de- trum are particularly useful. signed to produce development that has superb r architecture,but they do little to encourage desir- ableiuses.The city may want to explore adding The panel believes that the city needs to market additional components to the code to stimulate itself to its own residents.A campaign to"take a job-producing businesses that engage the street. vacation in your hometown"sponsored by the local media and widely advertised would expand Urban form can also be a unifying influence. the support base for future development,en- "Green infrastructure"in the form of parks,linear lighten people to what is in their own backyard, parks,public plazas,and playgrounds creates op- and generate home-grown excitement about portunities for people of different ages,races,and Rochester.Regular contact with existing resi- economic means to come together.An organized dents and businesses will ensure that the city re- green network also presents physical fitness op- tains its residential and commercial base while un- portunities.The"healthy communities"movement dertaking efforts to attract more residents and seeks to facilitate physical activity through urban businesses. design.Linked open spaces,lively streets,and Rochester, New York,June 10-15,2005 37 mixed-use development discourage auto depen- spaces in addition to the facilities already located dence,thus encouraging walkable communities, downtown.Other recommendations increase park- and the best part is—people may not even realize ing demand during evening hours—during times that they are exercising! when existing facilities sit nearly vacant. One of downtown Rochester's strengths is the prevalence of garage parking facilities.Nine city- The city has direct control over the public realm. owned garages and four private facilities provide Several alterations to the public realm can play 12,899 spaces within the inner loop.Surface park- an important role in making downtown an attrac- ing lots accommodate several thousand more cars. tive,special place to be.Making the public realm Daily parking rates range from$1.50 for a surface more attractive can create a marked shift in the space to$6.35 for a garage space. behavior and preferences of downtown visitors and residents. The panel notes a strong resistance to walking at street level in downtown Rochester.Walking sev- The panel encourages the city to undertake a eral blocks is an inevitable trait of center city life. study of parking pricing to ensure that the city's Rochester's downtown needs more street activity, parking policies are supporting its downtown re- a universal trait of successful downtowns.People development goals through efficient pricing.The must be encouraged to park once and walk to their panel has heard complaints from a variety of destination.Future downtown residents must sources about the parking situation in downtown. enjoy walking from home to their destination.The However,observations and analysis of Rochester's panel believes that as safety concerns are allevi- parking supply suggest the city has ample parking ated,street-level retail returns,and more resi- for the-existing uses downtown.The panel feels dents arrive,Rochesterians will become more and that visitors to downtown have an unreasonable more comfortable with returning to downtown expectation for their parking experience while streets. visiting the city center,particularly with respect The panel has heard several references to in- to proximity to the destination and the cost of clement winter weather in Rochester impeding parking.Parking consumes massive amounts of downtown's pedestrians.Rochester's winters can valuable space.The city must recoup its expenses be harsh,but Rochester's mild summers provide for constructing parking garages and therefore some of the finest weather in the country for out- must charge for parking.One of the traits of sub- door activity.The panel believes that if downtown urban areas is the prevalence of free parking di- provides rewarding destinations and amenities, rectly adjacent to the traveler's destination.An people will bundle up and walk downtown during urban downtown cannot be expected to provide all seasons of the year. the same type of parking as the suburbs.If the city is vibrant and provides a unique experience, Wayfinding systems need to be updated and clari- the comparison is meaningless.Indeed,a down- fled to make navigation through center city more town with free surface parking lots would cease obvious.Part of visitors'comfort level is deter- to function as the urban core because land uses mined by how well they feel they can get around would be so separated.The panel does not recom- in a strange or unfamiliar place.The general sense mend constructing additional parking facilities at of comfort and security will be improved by sim- this time but encourages the retention of the plifying pedestrian and vehicular wayfinding sys- rather extensive garage network. tems.As an example,improved signage for park- ing structures could significantly increase visitors' The downtown parking supply can easily accom- ability to find alternate parking sites. modate the demand created by the panel's pro- posed development scenario.New or rehabilitated Downtown Rochester has an extensive network of housing will likely provide dedicated parking skyways and pedestrian bridges.Unfortunately, 38 An Advisory Services Panel Report the skyway system is confusing to use,removes Because the Skyway sys- people from the street,and is inaccessible during j � . f tem removes people from off-peak hours.The panel believes that the sky- W the street,the panel rec- way system detracts from the vitality of down- ommends it be largely town.Therefore,the panel recommends putting dismantled. more people on street level by demolishing most of the skyway system.Rochester could use more covered walkways and building awnings to shield pedestrians from winter weather. 8o" lran%it y41 E The Rochester-Genessee Regional Transit System w i ' operates 40 bus routes throughout the greater *` "'." Rochester region.Most of these routes operate on a pulse system—where low-frequency buses stop at the central transfer point near the corner of Main Street and Clinton Avenue,allowing riders to transfer lines.The bus transfer point will be moved to the Renaissance Square site in the com- ing years.The current system causes substantial problems for the downtown core. The mass discharge of patrons presents both a hardship and an opportunity for the city.Ample foot traffic could create opportunities for transit riders to patronize downtown retail establish- A wall of buses lines ments.At the same time,the sheer number of people can overwhelm a small space.The panels Main Street several endorses the idea of a new transfer station at Re- naissance Square.However,the panel feels that the transfer station should not be placed under- ground,as early plans have called for.Instead,the transfer point should be located at grade to allow patrons to engage the street. Because of synchronized schedules,many buses arrive and depart at the same time from the trans- fer point.This system creates a parade of noisy, distracting buses moving and waiting along Main Street.The panel suggests altering the routing of buses to use other thoroughfares,reducing the number of buses that travel along Main Street. meantime,the panel suggests a phased replace- The panel also suggests exploring altering the bus ment of the old diesel buses with clean-burning system schedule to lessen the convergence of and quieter compressed natural gas buses. buses at the same location at the same time. Festivals and Decoration Buses waiting for transfer passengers create a The panel believes that festivals should not be rel- noisy eyesore along important streets targeted for egated to the few months of nice weather.Festi- redevelopment.These buses will be moved to side vals large and small should be brought to the streets after Renaissance Square is complete, heart of downtown.The plaza at Main Street and which will largely alleviate the situation.In the Clinton Avenue should be programmed as often as Rochester,New York,June 10-15,2005 39 possible.The rich resource of the Eastman School winter/holiday festival.In the old days of down- of Music should be tapped.The Rochester Public town retail,the purpose of such a festival was to Market should have a downtown satellite location get people into the stores.Now the purpose is to once a week.Noontime street activity will bring get people into the downtown—eventually the the office workers to the street.The street needs purpose will be to get the people into the stores to be supplemented with food and other vendors again.Holiday decorations extend beyond the to create a festive atmosphere. winter holidays.Programming and decorations for other national holidays can create a festive, Holiday festivities and programming are equally vibrant feel in downtown all year long. important.Many Rochesterians expressed fond memories of being downtown for the holidays.The city and businesses should join together to have a 40 An Advisory Services Panel Report Conclusion eople and activity are the key to re-creat- Steps to Revitalization."One of the key points ing downtown Rochester.Whether to visit that Brookings made was that people have been or live,people are coming to downtown reattracted to urban core areas in growing num- Rochester because of what is already bers because those areas retain something that there—a strong base of entertainment,cultural, their suburban counterparts can never have— and educational offerings and impressive historic "walkable urbanity."The study makes the point architecture.They are looking for excitement,ac- that people will walk the streets if and because tivity,and people to interact with.The panel "they have an interesting and safe streetscape and hopes the city can build on its already strong base people to watch along the way—a mix of sights to create additional attractive places and neigh- and sounds that can make a pedestrian forget that borhoods for people to live in. he is unintentionally getting enjoyable exercise. Depending on the time of day,the day of the week, The bold moves needed to re-create downtown or the season of the year,the experience of walk- Rochester require acoordinated effort from the ing downtown will be entirely different,even if public and private sectors.The public and the pri- vate sectors must work together to execute im- study goes on to point out that this activity and portant action plan items to achieve the commu- variety beget even more activity and variety—an nity's vision for downtown Rochester.The entire upward spiral that is very much self-perpetuating. community must work together to execute impor- tant action plan items to achieve the community's The panel believes that the key to downtown re- vision for downtown.Bold does not mean foolish, development is to set the upward spiral in motion. nor does it mean achieving consensus.Leaders in People and business want a unique,cultural desti- the community must listen to a diverse set of nation to call their own.The foundation is already stakeholders and formulate action items that are in place.The opportunities are there.Public and in the best interest of the community.Routine private leadership are willing and capable of tak- moves are also important.The day-to-day nuts ing on the challenge.The panel has laid out a vi- and bolts of effective,responsive city management sion and pointed the path to success.Now is the is what will bring everything together.The panel time for local leadership to commit to the vision hopes that the formation of a public/private rede- and achieve the goal of re-creating downtown velopment agency and a full-service BID will help Rochester. solidify leadership in Rochester. In March 2005,the Brookings Institution released a study titled"Turning around Downtown:Twelve Rochester, New York,June 10-15,2005 41 i About the Panel Alex J. Rose chaired and served on numerous ULI Advisory Services panel assignments focusing on downtown Panel Chair and transit corridor redevelopment and revitaliza- El Segundo,California tion and office development issues and has partici- Alex J.Rose serves as director of development for pated in several ULI office sector workshops. Continental Development Corporation in El Se- Rose has been a member of numerous other com- gundo,California.He is responsible for managing all development and construction activities for the munity,industry,legal,UCLA,and USC affiliated suburban office/research and development(R&D) groups,including the Los Angeles Conservancy; park developer,whose holdings cover 3.5 million Leadership Manhattan Beach;and the Steering square feet in Southern California's South Bay Committee of New Schools Better Neighbor- market and in the city of San Francisco.Rose hoods,a broad-based private and public citizen's oversees acquisitions and new project develop- advisory board that is researching and developing ment;planning and execution of all tenant im- standards and methodologies for the development provement,core and shell renovation,and new of more than 100 new community-asset public construction work;major facilities maintenance schools in the Los Angeles metropolitan area. and upgrades;project budgeting and cost controls; internal project management;and architect,engi- RaV Brow neer,and contractor management. Memphis,Tennessee Over the past nine years,Rose has overseen the development and acquisition of nearly 1 million Ray Brown offers architectural and urban design square feet of Class A office space,as well as the services as a consultant to Memphis,Tennessee, physical transformation of more than 1 million architectural firms for individual projects.As square feet of single-tenant R&D facilities into needed,he provides creativity,skills,experience, multitenant office space,restaurants,retail,and knowledge,and ideas in fields of specific exper- entertainment uses.Before assuming the devel- tise,such as architectural and urban design,proj- opment and construction responsibilities,Rose ect direction,and project development.He seeks served as director of property management.He projects that have the potential to improve the also has extensive experience in title insurance quality of life for disadvantaged residents by and is a licensed California attorney,with experi- transforming at-risk urban neighborhoods into ence in general civil and bankruptcy litigation more livable communities. practices. Rose received his MBA from the University of Brown directed the design and construction of Southern California(USC),his JD from South- AutoZone Park in Memphis,America's finest western University School of Law,and his BA in minor league baseball park,and a crown jewel in political science from UCLA.He is a trustee of the Memphis's downtown renaissance.As vice presi- Urban Land Institute,chair of ULI's Commercial dent for development of the Memphis Center City and Retail Development Council,a vice chair of Commission,Brown set the framework for the ULI's national Program and District Council downtown urban design plan,facilitated new de- Committees,and a member of ULI's Los Angeles velopment,recruited new businesses,and admin- District Council Executive Committee.Rose has istered design standards. 42 An Advisory Services Panel Report For 26 years,Raymond Brown Architect special- portation concepts,most notably through the cre- ized in providing municipal and private clients ation of a Transportation Development District with architectural and urban design projects,fo- and through development of an Access Manage- cused on downtown redevelopment and planning. ment Plan.A strong redevelopment effort is fo- Brown taught architectural design at the Univer- cused both on the city of Trenton and the first- sity of Cincinnati and was downtown planner for generation suburbs. the city of Dayton,Ohio. Lewis serves on the Transportation Research He is a member of the Memphis Habitat for Hu- Board Access Management Committee,the Cen- manity"Green Hat"construction committee. tral Jersey Transportation Forum Steering Com- Brown holds a BS in architecture from the Uni- mittee,and the Delaware Valley Regional Plan- versity of Cincinnati. ning Commission. Lewis holds bachelor's degrees in political science and English from the College of New Jersey and Sacramento,California a master's of city and regional planning from Rut- Allen K.Folks,a licensed landscape architect and gers University.She is a New Jersey—licensed planner,directs the design studio at EDAW,Inc., Professional Planner and a member of the Ameri- in San Francisco.He has prepared master plans can Institute of Certified Planners.She is an ad- and directed the implementation of a wide range junct professor at the College of New Jersey. of projects in the western United States and in- ternationally.His waterfront planning experience iChrOopher B. LuPimi includes large mixed-use projects in several Bay Area cities and the resolution of issues related to Washington,D.C. the California Environmental Quality Act.Folks Christopher LoPiano is senior vice president, also was very active in the design and preparation community development banking,for the Bank of of several key waterfront military base reuse America Community Development Corporation plans,including those for Mare Island Naval Ship- (CDC)Mid-Atlantic Region.In this capacity,he is yard and Alameda Naval Air Station. responsible for Bank of America CDC develop- Folks'current responsibilities include the prepa- ment efforts in Maryland,Virginia,and Washing- ration of specific plans for new developments in ton,D.C.He also manages the Bank of America the cities of Napa and Half Moon Bay,California;a CDC office in Washington,D.C. specific plan that addresses urban infill in the city Before joining Bank of America in January 1994, of Walnut Creek,California;design of Microsoft's LoPiano served as deputy director of the Marshall new South Campus in the city of Mount View,Cal- Heights Community Development Corporation,a ifornia;and the master plan for a new develop- nationally recognized community development ment in Cairo,Egypt. corporation in Washington,D.C.,that focuses pri- marily on rental and for-sale affordable housing and retail and industrial development. Trenton,New Jersey LoPiano serves on the District of Columbia Local Donna Lewis is the planning director for Mercer Advisory Committee of LISC(Local Initiatives County,New Jersey's capital county.She has Support Corporation).He serves on the board and served Mercer County for 16 years.The Planning is past president of the Neighborhood Design Division is responsible for growth management Center,based in Baltimore.Working with design and redevelopment,open space and farmland professionals who donate their time,this group preservation,and transportation planning.Mercer provides free design services to neighborhood and County is a leader in applying cutting-edge trans- nonprofit organizations in Maryland. Rochester, New York,June 10-15,2005 43 Zane Segal Edward Shriver, Jr., A Houston, Texas Pittsburgh,Pennsylvania Zane Segal is a project director,marketing con- Ed Shriver has been planning and managing ar- sultant,and real estate broker with Zane Segal chitectural and strategic planning projects for Projects,Inc.Specializing in mixed-use,residen- corporate,developer,and institutional clients tial,retail,historic,hospitality,urban,and resort throughout the United States for more than 25 properties,Segal has 27 years of experience in years.He believes planning is an effort to see op- real estate venture management,development, portunities in problems,to collect the facts and construction,brokerage,and marketing on a understand the issues facing an organization,in range of property types,including land,lofts, order to create not just solutions but value. townhomes,custom homes,low-and mid-rise Shriver's work has focused on developing and im- condominiums,hotels,retail centers,office build- plementing corporate and development strategies ings,subdivisions,and sports facilities,as well through architecture and urban design.Recent as mixed-use projects incorporating several prop- development projects include retail and urban erty types. mixed-use developments such as Kravco's Fifth He received a BS from the Massachusetts Insti- and Forbes project and Continental Real Estates tute of Technology and an MFA from the Uni- North Shore District,both in Pittsburgh,Penn- versity of Southern California,and has studied sylvania,and Millcraft Industries Crossroads graduate-level architecture at the University project in downtown Washington,Pennsylvania, of Houston. all of which involved integrating retail,enter- tainment,and public markets/public spaces with Segal is vice chair for advisory services of the housing or office functions or both.His corpo- Urban Land Institute's Houston District Council, rate work includes strategic facilities planning is previous vice chair for membership,has served for both corporate offices and critical infrastruc- on six ULI Advisory Services panels across the ture facilities such as distribution centers and country,and has chaired ULI Houston's first two data centers.His principal areas of interest are Technical Advisory Program panels.He is a mem- in strategic facilities planning and retail-oriented ber of a city of Houston Planning Commission mixed-use developments. committee studying urbanization of the suburbs, Shriver has worked for major corporate and de- is on an advisory committee overseeing a regional velopment clients such as May Department Stores visioning project,and serves on the boards of the Company,Continental Real Estate,Millcraft In- Citizens Environmental Coalition and Blueprint dustries,Kravco Company,Integra/National City Houston. Bank, IBM Transarc Labs,and Weirton Steel Previous community activities include becoming Corporation.He has also worked for numerous the first president of the Houston Association for institutional clients such as Carnegie-Mellon Uni- Film&Television,founding executive director of versity,the University of Pittsburgh,and the the Museum District Business Alliance,member Pennsylvania Turnpike Commission. of the Regional Planning Committee of the Greater Shriver received his BA in architecture from Houston Partnership,presenter on urban design Carnegie-Mellon University. to Imagine Houston,and president of Sparacino Company Dancers. David C. Slater Segal has often spoken,written for publication, Reston,Virginia and been quoted by the media concerning real estate,development,urban design,and the arts. David C.Slater has been with Hammer,Siler, He is an avid traveler,photographer,writer,and George Associates since 1972.He has been re- runner. sponsible for a range of economic development, 44 An Advisory Services Panel Reporl I development management,housing program, tional Economic Development Council.He is the and real estate market studies.Prior to 1972 he author of the"green book"on management of worked for the Knoxville,Tennessee;Atlanta, local planning published by the International Georgia;and Baltimore,Maryland metropolitan City/County Management Association. planning agencies as well as the American Plan- ning Association.He taught real estate economics Slater holds a master's of regional planning degree at the University of Virginia Graduate School from the University of North Carolina at Chapel from 1981 to 2002. Hill,a BS in city planning from Michigan State University,and an AS in pre-engineering from St. Slater has presented papers at more than 30 con- Clair County(Michigan)Community College. ferences of the American Planning Association, National Association of Installation Developers, American Society for Public Administration, Maryland Association of Counties,and Interna- it Rochester, New York,June 10-15,2005 45 I f ULI—the Urban Land Institute 1025 Thomas Jefferson Street, N.W. Suite 500 West Washington, D.C. 20007-5201 ATTENDANCE SHEET DATE: Yb d/0 7 TIME MEETING: -S-C /"q/ M C e—, I,N 6 = ni e e / i,o �- LOCATION: fil • / - e- Note: Pursuant to Government Code Section 54953 .3 the signing, registering or completion of this document is voluntary, and all individuals may attend the meeting regardless of whether they sign, register or complete this document. 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