Broadway Commons District Study

Broadway CommonsDistrict Study

Bridging Broadway + Community Design Center

Comm

unity Dialogues

Case StudiesU

rban Design

Implem

entation Recomm

endations

2011DRAFT

Table of Contents

Community Dialogue #1 : Block Walk

Precedent Executive Summary

Urban Environment and Connections

9

5

23

37

12

24

39

40

44

15

27

47

17

31

59

Introduction

Community Dialogue #2 : Visioning

Casinos

Focus Areas

Pendleton

Casino Fringe

Community Dialogue #3 : Implementation & Management

Entertainment Districts

Urban Environment and Connectivity

Pendleton Neighborhood Development Round Table

Business Improvement Districts

Urban Design Concept

1. Com

munity D

ialogues2. C

ase Studies3. U

rban Design

49

52

55

57

Fountain Square

Main Street

Central Parkway Corridor

Pendleton Corridor

Primary Implementation Recommendations 67

71

75

152

76

85

118

119

140

122

141

Secondary Implementation Recommendations

Appendix

Credits

Large Scale Maps

Small Scale Maps

Pendleton Neighborhood Development Plan

Pendleton Neighborhood Council

Guiding Principles from the City of Cincinnati

Community Dialogue

Media Coverage

4. Implem

entation Recom

mendations

5

On November 3, 2009, Ohio voters approved a constitutional amendment, known as Issue 3, to allow four casinos to be built in the state. As stated in that amendment, the site of the Cincinnati casino was determined to be Broadway Commons, an approximate 20-acre surface parking lot on the northern edge of the downtowns central business district.

Five communities are directly adjacent to the site, each with a very distinctive character and quality of life. Demographics, lifestyles, and the overall livability of each community is unique. None of the existing infrastructure, business inventory, public policy, or mindset of residents and workers, was prepared for a large-scale gaming establishment to be built in this location. This is a historical moment for the community of Cincinnati and the state of Ohio as both grapple to respond to the impact such mega-projects will have on their immediate surroundings.

One community response in 2010 was the creation of Bridging Broadway, a nonprofit, 501(c)3 organization whose mission is to maximize the new casinos positive effect on Greater Cincinnati. It is the only civic organization with the singular goal of promoting the Broadway Commons casino development as a catalyst for improving the quality of life for downtown Cincinnati, its businesses, and neighborhoods.

Bridging Broadway and the University of Cincinnatis Community Design Center partnered in June 2010 to conduct the Broadway Commons District Study, commissioned by the City of Cincinnatis Department of City Planning and Buildings. By combining the passion and community engagement of Bridging Broadway, with the creative student capital and expertise of the Community Design Center, the research was able to penetrate the market and uncover implementable stakeholder-driven recommendations. This was made largely possible by the public community dialogues, dynamic website, extensive local media coverage, complementary initiatives, and countless volunteer hours by Bridging Broadway Board members and fans.

The intention of the Broadway Commons District Study is to inspire constructive forward-planning and creative investment by local stakeholders, community members, elected officials, and the City of Cincinnati, to insure that the Horseshoe Casino Cincinnati is a positive asset to the region. It is the strong desire of the hundreds of individuals who have contributed in some part to the Broadway Commons District Study, that there is an action-oriented plan put in place to realize some of the design concepts and recommendations included here.

Introduction

Broadw

ay Com

mons

District Study

Comm

unity Dialogues

Case StudiesU

rban Design

Implem

entation Recomm

endations

Bridging B

roadway +

C

omm

unity Design C

enter

Community Dialogues

1

DRAFT

9

Community Dialogue

Bridging Broadway conducted three Community Dialogues to collect public input at salient points throughout the Study. These related to existing conditions, visioning and tools for implementation and management. The dynamic events were attended by over 200 participants, and publicized through local media outlets. Refer to the appendix for press excerpts and supporting material.

Community Dialogues

Block WalkOctober 23, 2010

Over 60 downtown enthusiasts attended the first Community Dialogue to assess the existing conditions of the Broadway Commons study area. Most of these participants either lived or worked in the urban core. Designed and facilitated by Project Manager and UC Professor of Architecture Michaele Pride, small groups followed designated paths and stopped at eight locations to assess the conditions and their experience of the space. They were also assigned an alter-ego and encouraged to rate their experience of each area from a different perspective. These included such demographic profiles as a: 65-Year-Old Middle-Income White Male from Cheviot, (Avid Gambler); 50-Year-Old Low-Income African American Male from Pendleton; 45-Year-Old Upper-Class White Female Mother of Three from West Chester; 11-Year-Old African American Male 6th Grader at Schiel Primary; 35-Year-Old Young Professional White Father of Young Children from Hyde Park. Using a worksheet, each participant then gave a rating that measured the attraction level on a scale of -5 to +5. This was defined as:

+5: Great! This is the kind of place I would be proud to own, happy to spend time in, and would want to protect. 0: Neutral: This place doesnt bother me, but it doesnt inspire me, either.-5: Undesirable: This place is very unattractive, scary/unsafe, and/or clearly in decline, and needs lots of attention.

Community Dialogue #1

* Appendix (page 122)

10

Following the block walk, these small groups returned to prioritize their individual findings working with maps, words and colored dots. Green dots indicated positive elements; red dots indicated negative hot spots; and yellow identified areas where there was significant disagreement about its contribution. These seven maps provided the District Study research team with qualitative data that led to the production of a synthetic summary. The information also was utilized by the Citys Casino Area Infrastructure Development Team (CAIDT) to identify and prioritize the streetscape improvements being considered in the area. The following are some of the most significant findings of the Block Walk:

Negative ratings related to:

Pendleton Street, from Dandridge to dead end Lack of connectivity to Liberty from Pendleton St. Drug activity along 12th and 13th Street in Pendleton Broadway at 12th & 13th vacant buildings, poor sidewalks Parking lot at 12th & Sycamore Sycamore and 9th Sycamore and 7th isolated, too much concrete Jail is unappealing and acts as barrier Bridge to Mt. Adams strewn with trash Not pedestrian friendly at freeway ingress/egress (Reedy, 7th, 8th) Vacancy along 13th between Vine and Clay

11

Community Dialogue

Conflicted ratings related to:

Positive ratings related to:

Use of SCPA site Gateway at Liberty & Reading Safety on 13th between Pendleton and Broadway Broadway & Reading Main & Reading

Pendleton Arts Center Pendleton & Reading Verdin Bell Center & Verdin Co. Cutter Playground Ziegler Park 8th Street design corridor, gateway opportunity at Broadway Central Parkway at Walnut & Vine 9th & Walnut beautiful and functional Development opportunity at Main & 14th Historic rehab opportunity on 12th between Jackson and Clay Potential green space at County parking lot, at Broadway & Reading

7TH

9TH

ELM

I-71

VINE

13TH

RACE

MA

IN

6TH

8TH

WALN

UT

IRA

CENTRAL

12TH

GILB

ERT

CLAY

SYCAMO

RE

LIBERTY

READIN

G

BROA

DW

AY

14TH

EGGLESTON

PLUM

DO

ERR

NEW

CULVERT

GO

ETZ

REPUBLIC

BOW

EN

ONEIDIA

VAN

MET

ER

SPRING

I-71

SBTO

I-471

SB

WEAVER

RAY

COURT

GREAR

REEDY

ELKINS

I-471 NB TO E LIBERTY ST

ROD

NEY

JAIL

GO

OSE

PARVIS

MO

NASTERY

PENDERY

LESLIE

ARTIST

GARFIELD

COLUMBIA

BOLIVAR

JACKSON

SENTIN

EL

15TH

BALDW

IN

CHARLES

BRITT

BAUM

PLEASAN

T

PEND

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LIBERTY HILL

BOO

TS

RICHMOND

WARE

HAM

BUN

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PRIOR

GANO BUTLER

WATTS

OREGON

DODT

5TH

4TH

GRANT

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AST

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EDDY

BRACKETT

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MAGNOLIA

WADE

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GANDOLFO

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MORAND CUTS

RUTH

LYON

S

MA

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YUKO

N

WILKYMACKY

LEVERING

ENON

DANDRIDGE

HART

COLEM

AN

THU

BER

HIR

AM

NO

RTH

SCHENK

CHEA

PSIDE

GO

SHEN

BLANCA

TROU

T

ROO

TS

MA

LLO

N

CITY STEPS

SHILLITO

PEALE

SHO

RT

CROW

CATL

IN

CUM

BER

MO

ORE

MELINDY

LLOYD

BOD

MAN

EMERSO

N

DEC

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PLOUGH

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I-471

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HIG

HLA

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CRIPPEN

WICHITA

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WID

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SALMON

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UNNAMED

FRANK

PRIVATE

LOCKPO

RT

HEN

DERSO

N

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14TH

CHEA

PSIDE

UNNA

MED

BALDW

IN

15TH

14TH

COURT

ELKINS

CENTRAL

CROW

BALDW

IN

DANDRIDGE

8TH

BUN

KER

HIGHWAY RAMP

HIG

HW

AYRAM

P

PANCO

AST

12TH

CROW

BRITT

GO

ETZ

BRITT

GANO

THU

BER

I-71 SB TO I-471 SB

SCHENK

COG

SWELL

. 0. 0.4Miles

hedges

0 0 1 0 2 0 3 0 40.05Miles

. . . .

restore laundry mat? neg: abandoned, smelly, sidewalks

too narrowpos: landscaped park, bell tower, rehabbed bldg

No connectivity

Keep Green? New Housing Opportunitues

car shop could be an asset

preserve old advert. signage

traffic hazards

devlt opp.

better connection to mt. adams

lots of available space; hwy noise

trash underbridge

beautiful! very functional

library, bus routes; but gathering space for homeless

potential green space

no crosswalk

Vacant retail, dilapidated bldgs

Commercial development

broad streets, good aesthetics,

Bad sidewalks

lg devt opportunity

Old SCPACu er Playg

round

Ziegler

Coee

Hamilton C.

Court House

Public

AronoCenter

Emporium

Library

Park

Verdin Bell

Pendleton

Art Center

drug dealing

drug dealingpark is nice but many

abandoned bldgs

sidewalks/lots in poor condition

parking lot=eyesore

unsafe sidewalks

vacancy

opportunity w/historic bldgs

lots of vacant buildings

narrow sidewalks

Cars Speeding

Cars

Spee

ding

jail acts as a barrier. unappealing.

thriving business, freeway access; gateway opp.

isolated, too much concrete; development opportunities

boulevard greenscape opportunities . .

design corridor

gateway opportunity

6

17

7

14

8

1

12

3

g

e

f

d

4 3

3

9

5

bc afg

BLOCK WALK 1 SYNTHESIS

16

7

15

11

17

1012

13

14

8

3

9

4

6

5

11

2

3

4

5

6

7

8

9

1011121314151617

2

12

VisioningJanuary 22, 2011

Attended by over 80 participants, Bridging Broadways second public session focused on visioning, to define and illustrate the future attributes of the area. The event was facilitated by Jeffrey Stec, Executive Director of Citizens for Civic Renewal, and 10 architects from the Cincinnati chapter of the American Institute of Architects. Participants were first updated with the research conducted thus far, and viewed data associated with existing conditions, demographics, housing, tenure, and district identifiers. Activities included group collages using words and images, and design exercises, using on maps to illustrate prioritized group visions. Significant results were the following:

THEMES DERIVED FROM PARTICIPANTS


Themes with the most consensus (in decending order of agreement): Safety Entertainment Green space Community Transportation Family Parking Diversity

Housing & Parks recommendations: Infill housing opportunities on north end of Pendleton St. Apartments or park at Sycamore and 12th Street vending & festival space at Reading & Broadway Green space at County parking lot on Broadway Green space at parking lots south of casino site Rehab of old SCPA

13

COLLAGE EXERCISEDESIGN EXERCISE

Community Dialogue

Parking and Pedestrian recommendations:

Use of SCPA site Gateway at Liberty & Reading Safety on 13th between Pendleton and Broadway Broadway & Reading Main & Reading

Commercial recommendations: Retail arts corridor along Pendleton Street Neighborhood retail along 12th & 13th, east of Pendleton St. Entertainment retail along Reading Festival market place on Verdin Bell parking lot Grocery at Sycamore & 12th Independent retail at parking lots south of casino site Office at Eggleston & 9th St.

Streetscape recommendations: Road diet on Liberty St. Roundabout at Liberty & Reading Promote residential character along 12th St. and 13th St. Alley improvements Traffic calming and pedestrian friendly along Reading Maintain Broadway between Eggleston and Reading More pedestrian friendly along Eggleston to waterfront Mural on side of jail

14

13TH

12TH

READIN

G

I-71

SB

9TH

LIBERTY

BROA

DW

AY

GILB

ERT

I-71

NB

8TH

SYCAMO

RE

COURT

REEDY

LIBERTY HILL

SPRING

ARTIST

BOLIVAR

E LI

BERT

Y ST

TO I-

471

SB

PEND

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BUN

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MILTON

VAN

MET

ER

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14TH

CORPORATION

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ELLIOTT

SCHU

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SB E

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HIR

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I-471

NB

EXW

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ALDEN

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HIG

HLA

ND

LEVERING

SWIFT

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NASTERY

DANDRIDGE

CUM

BER

CATL

IN

CHEA

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CITY STEPS

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CULVERT

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HAM

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MA

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DANDRIDGE

BUN

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BUN

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CHEA

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COURT

SPRING

MA

NSFIELD

0 200 400100Feet

DRAFT

C A S I N O S I T E

VISIONING MAP HOUSING, PARKS & PUBLIC SPACE PROGR AMMING

M A I N TA I NA F F O R D A B L E

H O U S I N G

I N F I L L H O U S I N GO P P O R T U N I T I E S

EXG .

EX I ST INGEX I ST ING

EX I ST ING

R E H A B

C O N C E R TV E N U E

K I D S & FA M I LYP R O G R A M M I N G

M A I N TA I N U P P E RI N C O M E H O U S I N G

A PA R T M E N T SO R PA R K

S T R E E TV E N D I N G

F E S T I V A L S

13TH

12TH

READIN

G

I-71

SB

9TH

LIBERTY

BROA

DW

AY

GILB

ERT

I-71

NB

8TH

SYCAMO

RE

COURT

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LIBERTY HILL

SPRING

ARTIST

BOLIVAR

E LI

BERT

Y ST

TO I-

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SB

PEND

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BUN

KER

MILTON

VAN

MET

ER

GREAR

14TH

CORPORATION

DODT

CENT

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ELLIOTT

SCHU

LTZ

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SB E

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TO I-

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SB E

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AMYO

UN

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NB

EXW

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DEC

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NB

EXW

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TY S

T

ALDEN

BEDINGER

HIG

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ND

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SWIFT

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NASTERY

DANDRIDGE

CUM

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CATL

IN

CHEA

PSIDE

CITY STEPS


CULVERT

RAY

WARE

HAM

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MA

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DANDRIDGE

BUN

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BUN

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CHEA

PSIDE

COURT

SPRING

MA

NSFIELD

0 200 400100Feet

DRAFT

P

P

P

P

P

P P

VISIONING MAP

C A S I N O S I T E

PARKING, PEDESTRIAN, BIKE, & TR ANSIT

S T RE E T

I M P R O V ELO T S

PA R K I N GD E C K

S H A R E DLO T S

B E LO WG R A D E

PA RK I N

G

M A I NTA I N

P R O M O TE

B I K E PAT H

S T R E E T C AR E X T E N S

I O N

P E D E S T R I A NC O N N E C T I O N

P E D E S T RI A N PAT H

W AY

M A I N TA I NP E D E S T R I A N

B R I D G E

P E D E S T R I A NC O N N E C T I O N T OP R O S P E C T H I L L

K I D & FA M I LYF R I E N D LY Z O N E

M U LT I - M O D A L H U B

13TH

12TH

READIN

G

I-71

SB

9TH

LIBERTY

BROA

DW

AY

GILB

ERT

I-71

NB

8TH

SYCAMO

RE

COURT

REEDY

LIBERTY HILL

SPRING

ARTIST

BOLIVAR

E LI

BERT

Y ST

TO I-

471

SB

PEND

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BUN

KER

MILTON

VAN

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GREAR

14TH

CORPORATION

DODT

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ELLIOTT

SCHU

LTZ

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CUM

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BUN

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CHEA

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COURT

SPRING

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0 200 400100Feet

DRAFT

C A S I N O S I T E

VISIONING MAP COMMERCIAL DE VELOPMENT

G R O C E R Y

O F F I C E

F E S T I V A LM A R K E T P L A C E

R E TA I L A R T SC O R R I D O O R N E I G H B O R H O O D

R E TA I L

I N D E P E N D E N TR E TA I L E R S

R E TA I LE N T E R TA I N M E N T

N E I G H B O R H O O D R E TA I L

E N T E R TA I N M E N T R E TA I L

A R T S R E TA I L

O F F I C E

13TH

12TH

READIN

G

I-71

SB

9TH

LIBERTY

BROA

DW

AY

GILB

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I-71

NB

8TH

SYCAMO

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COURT

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BOLIVAR

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TO I-

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SB

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BUN

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MILTON

VAN

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14TH

CORPORATION

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LTZ

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BUN

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CHEA

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COURT

SPRING

MA

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0 200 400100Feet

DRAFT

C A S I N O S I T E

K E E PV I E W S

VISIONING MAP STREESTSC APES & GATE WAYS

T O M A I N S T.

P ED E S

T R IA N

F R IE N D

LYB O U

L E VA R D

R OA D D I E T

BROA

DWAY

ROW

MORE PEDESTRIAN FR IENDLY

M U R A L

MAI

NTA

IN

T R A F FI C C A

L M

IDEN

TIT Y

R O U N D A B O U T

R E S I D E NT I A L C H A

R A C T E RA L L E Y I M

P R O V E M EN T S

R E S I D E NT I A L C H A

R A C T E R

ARTS

- R

ETAI

L C

HAR

ACTE

R

DESIGN SUMMARIES

15

Implementation & ManagementMarch 19, 2011

Nearly 100 Cincinnati residents and business owners attended the final Dialogue to learn about various strategies and tools for implemating and maintaining their visions for the Broadway Commons area. The event began with a presentation of research to date and the results of the previous visioning session. Stephen Samuelsthen moderated an esteemed panel of experts who shared best practices for projects relevant to the casino development. Participants utilized worksheets to identify personal priorities, take notes, and link what was heard with their ideas for how to implement and sustain their priorities. Panelists included:

Arlene Koth Kathy Schwab Margy Waller Maria Galloway Beth Robinson


Arlene Koth, COO of Downtown Cincinnati Inc. Kathy Schwab, Executive Director of Local Initiatives Support Corporation Margy Waller, Vice-President of ArtsWave Maria Galloway, Former President of Short North Business Association (Columbus OH) Beth Robinson, CEO of Uptown Consortium, Inc.

Following the 90 minute discussion which included a Q&A, an open-house setting provided participants with the opportunity to submit their recommendations at seven different stations, reflective of the seven guiding principles set forth by the City for the Broadway Commons casino areas future development. The most prevalent implementation recommendations included:

Special Improvement District Community Benefits Agreement Community Development Corporation Programming for art and public space Cross marketing with local businesses Form based codes Improved corridors with city and casino funding

16

Other ideas, less repeated, included:

Program to improve facades of local businesses (storefronts) Expand services of DCI Create a lunchtime destination Window galleries in unrented/ vacant storefronts Metro Bus Improvements Inclusionary zoning Work with Over the Rhine Community Housing Work with Cornerstone Redevelopment

17

Pendleton Neighborhood Development RoundtableJanuary 31st, 2011 / February 11, 2011 / March 24, 2011 / April 21, 2011

As a result of the engagement with the community, Bridging Broadway saw the need for a new level of collaboration between stakeholders of the Pendleton neighborhood. To encourage constructive dialogue and arrive at consensus in a limited amount of time, the primary landowners were brought together for a series of roundtable discussions. They were joined by the President of the Pendleton Neighborhood Council, and select members of the development community and city staff, including members of: Cincinnati Development Fund; City of Cincinnatis Community Development Dept.; City of Cincinnatis Economic Development Dept.; City of Cincinnatis Planning Dept.

As a result of these four lunch sessions conducted thus far, consensus has occurred on the following priorities:

A walkable and diverse residential neighborhood with a mix of affordable and market rate housing.

Low-interest developer loans provided by Caesars and/or QuickenLoans Caesars home buyer incentive program for new residents/employees City funding support for work-force housing development (ie CDBG) Focus on Pendleton and 13th Streets as connecting corridors and catalysts for positive neighborhood improvements Parking plan to accommodate housing and neighborhood amenities

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Residents and visitors are attracted to this neighborhood because of its historic urban character and vibrant public spaces.

Its arts & cultural amenities and businesses target neighborhood residents and visitors.

Top 3 Priorities for Pendleton 2011-12

City funded streetscape improvements that include artistic way-finding, lighting, signage, and street furniture Gateways along Reading Road at 13th, Pendleton and Broadway Thoughtful re-use of the former SCPA & a continuance of its adjoining Cutter Playfield as green-space Implementation of a Special Improvement District for Clean & Safe Program, physical improvements, marketing and programming

Small-scale neighborhood focused businesses at Pendleton & 13th Streets Regionally drawn commercial business development along Reading Road Major destinations are the Pendleton Arts Center & Bell Events Center, defining the art image of the community

Prioritize Pendleton residents in job training programs Maintain or improve green and gathering spaces, specifically the Cutter Playground (adjacent SCPA) and the Spring Street Playground (adjacent Verdin Event Center) Improve streetscaping, including entryways, lighting, signage, landscaping, sidewalks and curbs

Furthermore, the Pendleton Neighborhood Council, over the course of monthly neighborhood meetings, discussions both on the sidewalks and in formal public meetings, captured the wishes of the neighborhood residents, which coalesce with the existing Roundtable consensus. See the complete document in the appendix. These are summarized as follows:

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Others recommendations include:

Create a Special Improvement District for Clean & Safe Program, physical improvements, and event programming Bury the electricity wiring underground Execute a Community Benefits Agreement Public art and furniture to contribute to place-making Maintain diversity of housing options for broad range of socio-economic groups

* Appendix (page 119)

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Case Studies

Horseshoe Casino in Cincinnati is one of four casinos that have been authorized for construction in the State of Ohio. By building casinos the state hopes to generate substantial tax revenues to support such programs as workforce development, education, and reinvestment in the surrounding areas. The gaming license for Ohio requires the casino operator to pay an upfront license fee of $50 million to support state economic development and regional job training. In addition to the license fee, 33 percent of the gross casino revenue will be taxed. Of this percentage, 34% goes to all public school districts, 51% goes to all 88 countiesand 5% goes to the host city. 50% of Hamilton countys share also goes to Cincinnati, as the largest city. The Horseshoe Casino is estimated to attract 4 - 6 million visitors a year, improving hotel and restaurant occupancy and improving the marketability of Cincinnati as an exciting downtown destination.

To understand how to maximize the potential impact of the casino development, eighteen different case studies from across the country were observed. The precedent study looked at casino developments, entertainment districts, and special improvement districts to understand the different ways these projects contribute to urban revitalization and economic growth in the downtown area. Each case was chosen for its best practice(s) that Cincinnati could consider in its planning.

Precedents Executive Summary

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Detroit

Greektown CasinoPhysical Design & Neighborhood Revitalization

CasinosIn 2009 a study was published in the Journal of Real Estate Financing that compared the relationship between casino revenues and retail property values. The study illustrated that casinos can have a complementary effect on local businesses. The research was focused on the Detroit casinos and supported the authors hypothesis that these gaming establishments have the drawing power that can positively affect retail spending in surrounding businesses. The case study indicates that this is most likely due to the physical design of the casino and its connections to surrounding businesses. There is much debate about this relationship and economic impact. Other studies, in other areas, have shown conflicting findings.

In every case observed in this precedents study, the casino operators attempted to engagewith the community. Some casinos focused on physically connecting the casino to the surrounding neighborhood such as the Greektown Casino or Harrahs New Orleans. Others focused on community benefit aspects like MGM Grand Detroit and the Surgarhouse Casino in Philadelphia.

The Greektown Casino opened in 1998 and features a 30 story hotel and 100,000 square feet of gaming area. The casino was successfully able to insert itself into the fabric of the historical Greektown neighborhood. The owners of the casino are the landlords to many of the local restaurants and businesses in the neighborhood so they use the Casino as an anchor to drive traffic to their other investments.

Greektown has three design features that make it a unique tool for neighborhood revitalization. The parking is located at least one block away from the casino, the restaurants are outside of the gaming area, and the physical structure of the casino offers immediate access to the activity on the street. This encourages casino guests to venture into the surrounding historic neighborhood.

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New Orleans

Detroit

Harrahs New Orleans Casino

MGM Grand Detroit

Physical Design and Community Involvement

Community Outreach

Harrahs Casino in New Orleans is notable for its physical design and community involvement with the city. The design of the casino is respectful of the architectural traditions of New Orleans. Parking is hidden,pedestrian activity is encouraged, and the bulk of buildings are minimized. The buildings are slightly set back, with trees to soften the walls. The casino also helped to create a pedestrian plaza lined with restaurants and retail to connect the casino to nearby commercial streets. The result encourages more pedestrian activity and

The MGM Casino in Detroit is considered by some to be the first luxury casino built outside of Las Vegas. The project cost was over $765 million making it the largest construction project in Michigan at the time of construction in 2007. The site features upscale dining, a full-service spa, fitness facilities, and a Grand Ballroom for live entertainment. The design and function of the casino as a resort destination confines spending to the casino site but the owners and operatorsof the casino support the local community by working on community projects.

The casino is operated by Caesars Entertainment, which provides grant support to local organizations and projects for the well-being, development and growth of the New Orleans community. Harrahs Entertainment Reaching Out (H.E.R.O.) is an employee based volunteer program in which employees devote time, skills, and expertise by participating in charitable and civic events. The casino also makes payments to the Downtown Development District for additional improvements in the surrounding neighborhood. The Horseshoe Casino in Cincinnati is operated by Caesars entertainment and we would expect the same type of social commitment.

Working with a local non-profit, the Greening of Detroit, MGM Grand worked on a beau-tification project within the surrounding neighborhood. The site within walking distance to the casino was landscaped and a park was created to serve as a local community asset and a gateway to Detroits Central Business District. The park was financed with a $1 million contribution from the MGM Grand Casino.

Case Studies

consumer spending in the surrounding neighborhoods.

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Philadelphia

Sugar House CasinoCommunity Benefits Agreement

The SugarHouse Casino is located directly north of downtown Philadelphia at the site of an abandoned sugar refinery. Prior to the casino, the neighborhood was primarily working class but was experiencing moderate gentrification due to the influx of upscale art, entertainment, and dining establishments. The project stirred heated debate within the neighborhood making development approval a lengthy process. Some believed the casino would bring jobs and economic development, while others believed it would increase crime, addiction, and other social problems.

A Community Benefits Agreement was created between SugarHouse Casino, Fishtown Action (the pro casino advocacy group), and the New Kensington Community Development Corporation to create a special service district financed by casino contributions. The agreement outlines contributions to the community to ensure that residents share in the benefits of the casino development. The agreement gives community groups a voice in shaping the project tailored to their particular needs and gives them an opportunity to share in the benefits of the development. The SugarHouse community benefits agreement includes an annual contribution of $1 million to fund a special services district within the surrounding neighborhood. The agreement also outlines that casino representatives host neighborhood meetings, provide special training for problem gambling, provide vendor opportunities for local residents, provide sanitation and security services, and give the advocacy group responsibility for dispersing funds. To date the Casino has kept its word and has donated $675,000 within the first month of operations in September of 2010.

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Bayou PlaceHouston, TX

Entertainment DistrictsDestination developments and entertainment districts need to offer a combination of entertainment, dining and retail within pedestrian and multiuse environments. Research done by the Urban Land Institute shows that clusters of similar and complementary retailing activities tend to have greater drawing power than single use entertainment. This theory demonstrates the importance of exploding the program and expanding the casino sites non-gaming uses to the adjacent area.

In most cases entertainment districts are created through municipal efforts to revitalize blighted areas by redeveloping properties and renovating public places. City governments have a lot to gain from entertainment development and so they often employ a variety of different incentives such as cash contributions, financing aid, tax abatements, zoning variances, new or improved infrastructure, or new taxes for physical improvements within the area. The case studies below show how urban entertainment districts have helped to improve the marketability of a region.

The city helped pay for the redevelopment and granted the developer a long-term lease of the renovated building. Bayou Place has made a large impact on the continued growth of the downtown. By restoring the vacant structure and creating a downtown entertainment district, the city was able to bring back nightlife and weekend activity and maintain the vitality of its symphony, ballet, and opera.

The complex includes several anchor restaurants, bars, a game room, a movie multi-plex, a carousel, aquarium, and the Angelika Independent Film Theater. There is also an expansive rock and roll themed night club with pool tables, large patios, and a bar with swings above it.

Bayou Place entertainment complex occupies the shell of the former Albert Thomas Convention Center in downtown Houstons theater district. The convention center was abandoned in 1987 in favor of a new state of the art facility. The structure remained vacant for almost ten years before the city sent out requests for proposals for a developer to en-ter into a public/private partnership to transform the old convention center into an entertainment destination.

Case Studies

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4th Street Live!

Lower Downtown Denver

Louisville, KY

Denver, CO

area. In 1990, there simply was no market in downtown Louisville for entertainment, and we practically created that, says Ward Plauche, former co-owner of vacant property in the area. There was no high-rise Marriott. No convention center. Just a bunch of surface lots, and us. (Leo Weekly, 2009). Today more than 4.5 million visitors go to 4th Street Live! making it the largest attraction in Kentucky.

In the 1970s, newly constructed viaducts isolated the lower downtown region of Denver. The area was enclosed and marked by boarded up windows and depressed property values. Lower Downtown vacancy rates were nearly 50 percent. In the late 1980s the area was identified for preservation and investment and was rezoned as mixed-use to encourage commercial businesses to open within the previously industrial district. In 1989 property owners established a membership organization called LoDo District Inc. to focus on the needs of the Lower Downtown neighborhood. They have supported an assisted living center for low-income and disabled seniors, beautification projects such as river clean ups, homelessness efforts and a Community Cares Program that runs a food bank, the Childrens Playground and the Railroad Dogs dog park.

In downtown Louisville a failed enclosed mall was revitalized as an entertainment and retail complex. Packed with entertainment programming, 4th Street Live! has become a magnet for nighttime downtown activity. The complex features free parking, 9 nightclubs, 8 restaurants, food courts, and an outdoor concert area.

The new entertainment destination brings in over $3 million annually in tax revenue and has sparked more than $200 million in private investment throughout the downtown

Communal revitalization efforts were catalyzed when Coors Field Baseball Stadium was built in 1995. The stadium was iconic because it was embedded into a downtown neighborhood, similar to the most classic American stadiums like Wrigley Field in Chicago. The Coors Field Ballpark in Denver created the critical mass needed for a self-sustaining neighborhood. The 16th Street Mall Business Improvement District extended its free bus services to the area. Improved accessibility within the region and Coors Field led to the increased demand for commercial and residential units in the lower downtown vicinity and the area became a new urban renaissance. The head of the neighborhood association, Scott Campbell says that Lower Downtown was nearly a ghost town barely three years ago and now its getting new residents every day.

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Frenchmen Street

Short North

New Orleans, LA

Columbus, OH

New Orleans is known for its unique culture and entertainment. Residents in and around Frenchmen Street feared that tacky tourist bars would eventually consume the traditional neighborhood character that makes the area not only an exciting place to visit, but also a wonderful neighborhood to live. In order to address this issue, the local neighborhood improvement association created an arts and culture overlay district for Frenchmen Street. The overlay allows entertainment venues to operate within the residential neighborhood but strict guidelines are enforced to maintain a desired

The Short North neighborhood in Columbus, Ohio is located north of downtown and just south of Ohio State University. The District has beautifully restored turn-of-the-century architecture. It is a mile-long stretch of art galleries, unique shops and boutiques, bars, clubs, pubs, and pocket parks.

In the early 1980s, Short North was riddled with dilapidated buildings, crime, drugs and prostitution. Business owners saw promise in the area and began

community character and image. Live music is allowed within a 2 block section of the neighborhood, deejays and karaoke clubs were banned, and restaurants with live music are limited to three-piece acoustic ensembles and music curfew laws. Additionally, there are policies for sound mitigation and caps on liquor licenses.

The outcome helped establish an understanding of neighborhood values and created a positive relationship between businesses and residents. This example shows that zoning can be used to encourage and retain arts and culture, while protecting the residential character of a neighborhood.

renovating blocks. Within a few years a new image took shape. Local artists began show-casing artwork on the first Saturday of every month. New galleries and small retail shops opened creating a unique cluster of complementary businesses. The character of these events and venues led to the Short North as a new arts & culture destination.

In order to maintain momentum and continue neighborhood improvements, a Special Improvement District was created to keep the community safe and clean. Improvements included street arches, pocket parks, and landscaping to soften the urban environment and encourage shoppers to explore the entire district. Funding for the SID comes from a variety of sources. Most of the revenue comes from property assessments from local businesses with an additional contribution from city funding. The total income for operations is approximately $150,000 per year.

Case Studies

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LA Live Los Angeles, CA

L.A. Live is a sports and entertainment district that surrounds the Staples Center and Nokia Theatre in downtown Los Angeles. It is a large thirty five acre development that includes restaurants, hotels, luxury homes, and entertainment facilities. It was recognized from the onset that the nature of the project would have significant impacts on the surrounding community. As a result, a Community Benefits program was created by the developer to reduce potential harm that the new development would cause. The agreement provided new park and recreational facilities for the neighborhood, targeted employment opportunities for residents, provided permanent affordable housing, basic services, and addressed issues of traffic, parking and public safety.

The developer paid $50,000 for a community needs assessment, $1 million for the park and recreation facilities and$25,000 per year for the residential parking program. The agreement also calls for enhanced security in the neighborhood, a guarantee of 20% affordable housing units, interest free loans for qualified non-profit development corporations, and opportunities for citizens to participate in a Health Insurance Trust Fund.

The community benefits program exemplifies how entertainment destinations can be built to attract regional visitors and simultaneously confront the inevitable impacts to the surrounding neighborhoods. The LA Live community benefits agreement was completed in 2001 and is considered the first comprehensive community benefits agreement for a large scale development. The project received the Award for Excellence by the Urban Land Institute in 2010 and has set the trend for community benefit considerations.

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Coliseum Central Hampton, Virginia

The Coliseum Central BID was formed by property owners looking to address problems affecting business within the community. A Master Plan was created to demonstrate a need for a special service-taxing district. Under the arrangement, local property owners pay .07 cents per 100 dollars of assessed property value to fund the BID. This surtax is matched 1 to 1 by the city.

Security was a primary issue so the BID implemented two programs to combat crime. The Business Watch enlists merchants to actively participate in crime fighting with local police. CPTED (Crime Prevention through Environmental Design) focuses on changing the physical environment to reduce crime and the perception of crime. After creating the BID, serious crime decreased by 15%, perception of safety increased by 6%, and property values increased by 22%.

A marketing committee meets weekly to discuss billboards, business roundtable meetings, the newsletter, print media, and the website. The marketing committee is also responsible for promotional hotel videos and seasonal events such as the holiday music series and the Coliseum Central jazz music central.

Business Improvement DistrictsBusiness Improvement Districts (BIDs) are used to maintain cleaner and safer streets, decrease storefront vacancy rates, and address social welfare issues. They are an effective way to reverse decline and promote commercial development in urban areas. BIDs are proposed by a group of property owners in a geographically defined area to fund supplemental governmental services (e.g. cleaning and maintenance), non-governmental services (e.g. landscaping, marketing and promotion), and capital investments (e.g. sidewalk widening).

The municipality in which a BID is located collects the BIDs supplemental property tax assessments through its general taxation powers and distributes them to the BID. A board of directors composed of property owners, merchants, residents and public sector representatives is then given authority by the government to undertake projects and programs within the district. Four BIDS were examined for the district study and every bid has similar operational characteristics but with various methods of financing. Most BIDS are financed by an extra tax to property owners within the area but sometimes they are financed by the city, concessions from public events within the district, or a combination of the three. In every case, crime reduction and increased marketability were the main goals of the BID programming.

Case Studies

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34th Street Partnership

Center City

New York City, NY

Philadelphia

The 34th Street Partnership is a thirty-one block Business Improvement District in Manhattan. The project began as a clean and safe program to eliminate unsightly and unsafe conditions at Herald and Greeley Square Parks. Street Maintenance (graffiti, litter and crime, street and park improvements) began attracting more pedestrian traffic, new tenants, and merchants to the district.

The partnership does not receive any tax dollars or philanthropic donations. They receive funding from property assessments within the boundaries, and concession fees and revenue from events held at Herald and Greeley Square. The 34th Street BID Programs include; a sanitation team to keep the streets clean, security personnel to patrol the district and report signs of illegal activity to the NYPD, a horticulture department, and a newsletter to keep readers informed about operations, achievements, milestones, and media coverage.

The Center City Business Improvement District was created by the Central Philadelphia Development Corporation, after property owners and commercial tenants agreed to support the measure. Unlike the other BIDs, Center City is funded by the city to implement cleaning program, landscape maintenance, public safety, debt service, marketing and communications, strategic planning and research, and administration. Contracts for the BID are re-written every five years.

The reason the BID was supported for this area is because the area is a destination for over 80% of the tourists who visit the area, 40% of the jobs, 72% of commercial office space, 61% of its hotel rooms and 33% of the real estate taxes paid to the city. Because of these proportions the city found it beneficial to provide extra service to the area.

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Summary of Casino Revenues and Taxes Paid to the state and host cities

Case Studies

Revenue Million/

Year

Greektown Detroit, MI 2000 75,000$383

million$27.50 18% 9.90%

Harrah's NOLA New Orleans, LA 1999 115,000$650

million$367 21.50% 4%

Horseshoe Casino Cincinnati, OH 2012 354,000$400

million$550 33% 5%

15-40%

(performance based)*

SugarHouse Philadelphia, PA 2010 1,300,000$650

millionn/a 55% 4%

% to Host City

Hollywood Casino Lawrenceburg, IN 2004 270,000$336

million$350

25% + $1 per

admission

Name LocationOpen Date

Area (sq. ft)

Cost% of Gross Revenue

* < $25 million - 15%; $25 - 50 million - 20%; $50 - 75 million - 25%; $75 - 150 million - 30%; $150 - 600 million - 35%; Over $600 million - 40%

* 50% of county tax revenue from casino also allocated to Host City

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Guiding Principles

Urban Design

Avoidthecasinoislandeffect:To achieve the level of connectivity required to create a new downtown destination that positively enhances the surrounding area, it is necessary to avoid isolating the casino site. The streets surrounding the site must not act as barriers, and the casinos architectural design must face outward with non-gaming uses exposed to the exterior.

Createamulti-usedestination: The casino as a pure gaming destination has limited appeal. Restaurants and retail on the property expand its service capabilities, improve the experience with variety, and incentivize more consumer spending. This same rationale should be expanded beyond the casinos property by exploding the program. The casino fringe must be populated with complementary uses to create a destination far more advantageous to the city, residents, visitors and business owners.

Casino site & study area boundary

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Eliminatetheedges:Downtown Cincinnati is comprised of districts with distinct edges. When edge areas between districts are not well defined, pedestrians are not comfortable travelling from one district destination to another. It is the reason most visitors will not walk from Fountain Square to Vine Street, or from the Pendleton Arts Center to Main Street. These edge areas are indicated by a lack of lighting, vacancy, incompatible uses, and poor streetscape design. Once eliminated, the downtown fabric will become seamless and users can successfully transition from one defined experience to the next.

Closethegaps: As a result of the edges, gaps exist between downtown districts. These are the areas, devoid of evening activity, that need physical improvements and economic development. Improved walkability and a reduction in crime will be two significant results as these gaps are closed.

Encouragevisitormobility: Designs, programming and new development need to encourage connectivity with various modes of transportation. The casinos customers will include a broad range of ages and lifestyles. Solutions need to be oriented to the pedestrian, automobile, public transit, and bicyclists. The more these considerations are integrated into the urban design, the more mobility that can be facilitated.

WorkforceHousing: The casino expects to employ approximately 1,700 employees when in operation. The average salary is in the low $30,000s. Ideally, a significant percentage of these employees will be able to afford and live within walking distance to work, and thus directly add to the economic value of downtown.


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Focus Areas

Urban Design

The Pendleton neighborhood, directly adjacent to the casino site, is identified as the biggest opportunity and most critical challenge to this new development at Broadway Commons.

The Justice Zone is comprised of the jail and county buildings directly south and south-west of the casino. Because of their entrenched uses, reclaiming this property for new development is unlikely. These buildings and lots are a barrier when considering an entertainment destination that is successfully connected to popular destinations downtown. However, there are many examples around the world of civic buildings being successfully integrated into animated, public spaces. Placemaking elements related to landscaping, art, lighting, and programming can help achieve this coexistence of seemingly opposing uses.

The casino fringe is the area of property located around the perimeter of the casino site and the greatest opportunity to begin exploding the program and designing a seamless experience into the central business district and Over-the-Rhine. It is characterized as the casino, its non-gaming uses, and the complementary businesses that create a vibrant, entertainment destination.

Justice Zone

Casino Fringe

Pendleton

Main Street is an important consideration due to its close proximity to the Broadway Commons entertainment district, its life style, and its connection to Pendleton. It is also ripe for building renovation and new ground floor retail. It stands to benefit greatly from the estimated 4-6 million annual visitors of the Horseshoe Casino, and thus connectivity to Main Street is paramount.

Main Street

Justice Zone

Barrier

ProximityMain Street

BlendCasino Fringe

Biggest Challenge & Opportunity Pendleton

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Pendleton

PendletonHousing

The Pendleton residential neighbor-hood, directly adjacent to the casino site, is identified as the biggest opportunity and most critical challenge to this new development at Broad-way Commons. Upon closer examination, the following data is most salient.

The majority of single-family housing is located in the northern section of Pendleton

Focus Areas

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Pendleton

Pendleton

Vacancy

Building Conditions

Most of the vacancy exists in south Pendleton

Building conditions were assessed according to three categories. The building stockneeding the most improvements is in south Pendleton.

Urban Design

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PendletonCalls for Service (2010)

A four year crime trend was analyzed. As indicated by Calls for Service in 2010, the southern portion of Pendleton experiences a higher level of crime than other parts of the neighborhood. There are outliers to consider in other areas, however, crime closest to the casino site requires more attention.

PendletonVacancy and Underutilization

The best opportunity for major development in Pendleton exists in the western sector, which consists of the old SCPA school and several surface parking lots and buildings.

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Urban Design

PendletonPrimary Landowners

When the landowner-ship is assessed, it is determined that four entities control most of the multi-family and commercial properties. These are: City of Cincinnati, Verdin Company, Model Group, and Arnold S. Levine. This is very encouraging as neighborhood revital-ization can occur with a limited number of change-makers.

In conclusion, the Pendleton neighborhood is categorized as follows:

Pendleton West: most ideal for development Pendleton North: a mostly stable, intact single-family neighborhood Pendleton South: in need of the most attention

DevelopmentOpportunity

StableMajor

problem area

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Casino Fringe

Casino FringeFocus Areas

The casino fringe is the area of propertylocated around the perimeter of the casino site and the greatest opportunity to begin exploding the program and designing a seamless experience into the central businessdistrict and Over-the-Rhine.

Character

It is characterized as the casino, its non-gaming uses, and the complementary businesses that create a vibrant, entertainment destination.

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There are several surface parking lots that, when developed, could enhance the character and fabric of the entertainment district.

Casino Fringe

Casino Fringe

Uses

Vacancy and Underutilization

CriteriaofSynergisticUses:

Unique

Destination Factor

Curb appeal

Good maintenance

and operations Assembly

Regional draw

Safety and health

Proximity

ExistingOpportunityBusinesses:ExistingSynergisticBusinesses:

Broadway Printing

VLT Academy

TJ Homan Inc.

Law offices of Arnold S. Levine

Boost!

Pendleton Pilates

Pet Athletic Club

Urban Design

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Casino FringeInfill Development

The surface lot located south of the site is ideal for complementary commercial uses. As further illustrated in the urban design concept, this development could include a multi-level parking garage with first floor retail. The surface lot at Reading and Pendleton Street, currently servicing the Bell Event Center and Verdin Company, has the opportunity to be an attractant to pull visitors up Reading from the main casino entrance. This intersection should be a gateway to the neighborhood and the corridor leading to the Pendleton Arts Center. This lot could be developed with mixed-use, a hotel, or other unique styles of uses.

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Urban Design


Other factors included existing complementary uses, existing conditions (as reported during the first Community Dialogue), and development opportunities. It is important to note that though these corridors are studied only to a distance within a mile radius of the casino site, it is understood that their importance of linkage is extended to existing assets as far as The Banks, Washington Park, and Sawyer Point.

Connectivity Diagram

An analysis of the downtown Cincinnati urban environment highlights the relationship of existing districts (identity or otherwise) and their correlation to Broadway Commons. To identify primary corridors and pathways which encourage multi-modal travel to and from the casino, these pathways were considered because of directness and their ability to create seamless experiences.

Defined character Pedestrian friendly Sensory cues that encourage mobility Maximized for use and compatibility

Criteria of Successful Corridors

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Streetscape Improvement Areas

Streetscape Improvement Examples

The City Department of Transportaion and Engineering delineated the streets for prioritized improvements. These correspond with the studys recommended corridors.

STREET LIGHTING

PUBLIC ARTTRAFFIC CIRCLEGREENBUMP-OUT

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Urban Design

Fountain Square

The model character of the pathway to Fountain Square is composed of multiple uses that are ideal for window shopping and entertainment, and clustering that results in cohesive experiences. The existing districts allow this pathway to be drawn in such a fashion that it travels through the 8th Street Design District, Loft District, and Backstage District. The management energy already instilled in these areas will help to craft a positive pedestrian experience. Additionally, the corridor benefits from the existing uses.


CHARACTER EXAMPLES

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Uses : Restaurants and Bars

CriteriaofCompatibleUses:

Window shopping

Restaurants & bars

Diverse & unique

Arts & entertainment Contributing to

cluster

Uses: Others

Existing SynergisticBusinesses: On Broadway Al-Amir Cafe Marsh GBBN KZF Silverglades Arnolds Bar & Grill Elgin Antonelli College Plaza Artists Materials Ohio Book Store Aronoff Center

Corridor

Corridor

Existing OpportunityBusinesses: Check Smart

Cricket

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Infill Development

To accomplish the Citys goal of new work-force housing suitable for the casino employees, over 200 units could be created on the site at Seventh & Sycamore.

There are many infill development opportunities along the Fountain Square corridorthat call for new first-floor commercial with potential residential above.

Urban Design

Corridor

Corridor


Total Commercial

Total Residential 201-253 units

116,930 sq.ft

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Main Street Urban Environment and Connectivity

Main Street in Over the Rhine is very unique, and capable of creating flexible spaces that complement the downtown entertainment experience. The corridor is characterized by unique retail, art & entertainment and dynamic public spaces that encourage pedestrian activity from the casino to Main Street and beyond. Generally, the lifestyle of the Main Street customer is younger and more alternative than the Fountain Square and Backstage user. This distinction should be considered in the marketing and design of the connectivity factors.

CHARACTER EXAMPLES

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Urban Design


Existing OpportunityBusinesses:

Law offices of Arnold S. Levine

Knight Bonding & Insurance

Corridor

Corridor

Uses

Existing synergistic uses such as Joes Diner and Neons Unplugged are strong contributors to a night time entertain-ment experience. As illustrated in the urban design concept, existingbusinesses along short Reading could be reshaped in the future to capitalize upon the intense activity in and around the Horseshoe Casino.

The Main St. corridor is particularly compellingfor its development opportunities. Large surface lots are currentlynot benefiting the character of the area.

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3 units

103 units

71,770 sq. ft.

2,130 sq. ft. 4,040 sq. ft.

4,000 sq. ft.

1,420 sq. ft.

CommercialResidentialMixed UseStreetcar

Infill Development

Infill development opportunities are encouraged to eliminatethe gaps currently existing. The large surface lot at Sycamore and 12th Street can be developed as a mixed use project, and can provide over 100 units of work-force housing.

Corridor

Total Commercial 38,376 sq.ft

Total Mixed Use 131 units73,912 sq.ft

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Urban Design


Central Parkway is an important boulevard for both auto-oriented travel as well as pedestri-an. It is the seam between the CBD and OTR and should continue to mature as a right-of-way suitable for residential, unique businesses and public space. It is characterized by pedestrian friendly businesses set within a boulevard, auto-oriented setting. It is a major artery for locals and visitors. Infill development can occur on surface lots and vacant first floor retail space.


Uses

CriteriaofCompatibleUses:

Positive visitor

experience Well-suited with

surrounding uses Pedestrian friendly

Existing SynergisticBusinesses:

Coffee Emporium

Jim Brofft Salon

Segway


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Infill Development

Over 200 units of residential can occur. With the right mix, a percentage can be priced for the moderate income casino employee.

Infill development can occur on surface lots and vacant first floor retail space.

Vacancy and Underutilization Central Parkway Corridor


Total Commercial 12,451 sq.ft

Total Mixed Use 231 units36,659 sq.ft

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Urban Design

Pendleton Corridor

Pendleton Street is characterized as a historic, intimate neighborhood street dotted with unique, commercial uses that serve local residents. It is also a gateway to the regional attractions of the Pendleton Arts Center and Bell Event Center. Because of this dynamic, it must be suitable for activity related to both visitors and neighborhood residents. Access at Pendleton and Reading should be enhanced to attract casino visitors from its main entrance.


Uses

Criteriaof

CompatibleUses:

Local, small

businesses Respectful of historic

architecture Arts-related

Existing SynergisticBusinesses: Pendleton Arts Center Bell Events Center

Pendleton Corridor

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Infill Development

Buildings along Pendle-ton are also suitable for additional work-force housing and small busi-nesses that could benefit residents with such services as a caf, laundry, or small market.

Infill development should capitalize on the strong building wall along Reading with ground-floor commercial and residential above. Whatever occurs there, should face Readingand provide a gateway to enter the neighbor-hood.

Vacancy and Underutilization Pendleton Corridor

Pendleton Corridor

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1

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7

89

10

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The urban design concept presented here is the result of the research conducted, stakeholder feedback, and particularly, the visions illustrated during the second Community Dialogue. The elements, though specific in location and use, are intended to be evocative and flexible. They are one response to the guiding principles set forth in the District Study. There are many variations of these concepts that could be just as suitable or better. Additionally, phasing of development is key and impacts the conceptual designs of sites in relation to those that are in development.


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Primarily as a result of the engagement with the Pendleton neighborhood residents and landowners, it was determined that Pendleton Street and 13th Street should serve as primary arteries. Thus, streetscape improvements should occur with elements such as lighting, landscaping, furniture and paving.

A neighborhood gateway should be installed at Pendleton and Reading to highlight this access point to the neighborhoods assets. It should complement the new design of Reading, and help attract visitors from the main casino entrance at Reading and Broadway.

An inspiring regional gateway at Reading and Liberty will serve to welcome downtown residents, employees and visitors. When the casino is completed, the existing bell tower will not be adequate due to its scale. There appears to be available property around this intersection to design a grand gateway with the bell tower as the focal point. Unique lighting, landscaping, wall elements, and signage could all be implemented to achieve this.

Great Streets and Gateways Urban Design Concept

Boulevards currently exist around the Broadway Commons area, as Liberty, Central Parkway, Eggleston and Gilbert. To achieve a consistent and connected street experience at this scale, our recommendation is to improve Reading Road to this level. Its width should allow for a landscaped, tree-lined median. A strong benefit of this design would be improved walkability, since seven lanes of traffic are difficult to cross as a pedestrian. An attractive boulevard can also slow traffic and orient drivers to the pedestrian and commercial activity occurring around them.

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Pendleton West Development Urban Design Concept

The study has shown that west Pendleton (between Broadway & Sycamore) is ideal for redevelopment and can be a catalyst for other improvements in the area. The vacant SCPA building with its attached green space will be a change-maker once redeveloped as residential, mixed-use, or perhaps a new school. The surface lots across the street could be new housing, designed as townhouses to complement the neighborhood fabric and provide new styles of housing choices. The large surface lot at Sycamore and 12th can be a large-scale project with residential on top floors and commercial at street level. Community members participating in visioning session #2 requested a small scale grocery at this location.

Urban Design

School or residential

Primary arteries

Townhouses

Pedestrian plaza

Apartments over first floor retail - Grocery

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Capturingcriticalmass

Critical Mass Urban Design Concept

A small surface lot at Broadway and 9th Street would be an ideal location for a pocket park. By developing this as a green public space, it serves as the kind of visual cue necessary to mobilize visitors to and from the proposed plaza on the southern tip of the casino site.

The surface lot behind the County Corrections building also could be redeveloped to overcome the barrier of these county buildings. To improve connectivity to the CBD and complement the entertainment uses in and around the casino fringe, this site is ideal for infill retail development.

A landscaped green connector between the County Corrections building and the jail also can help with connectivity and improving the view from the casinos plaza.

The jail directly faces the casino plaza. To further improve visitors southern view and overcome negative impacts of this opposing relationship of uses, a landscaped and/ or art-driven screen can be installed. Currently, a mural on the side of the jail is being proposed.

Infill retail development

Green connector

Landscape/art screen

Primary arteriesPocket park

Pedestrian plaza

Festival/ market place

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To capitalize upon the activity expected to occur around the grand entrance of the Horseshoe Casino and on its outdoor southern plaza, short Reading should be redesigned into a pedestrian plaza with a night-time entertainment focus. By blending the entertainment experience across the street and down this short stretch of Reading, pedestrians will be encouraged to cross Reading and move toward Over-the-Rhine and the Main Street district. This street was selected for its proximity as well as the existing commercial building stock on the north side which is ideal for cafes, bars and small retail uses. Additionally, the plaza can serve as a paved, childrens playground during the day for the VLT Academy to the south, and then an adult playground at night for the Broadway Commons Entertainment District.

It has been suggested previously that there are many potential uses for the parking lot located at Pendleton and Reading. Its importance as a gateway and destination has also been described. To illustrate these principles, one future use might be the creation of a festival marketplace, similar to Faneuil Hall in Boston. Filled with small spaces for unique retail, it is a community gathering space and strong draw for regional visitors anxious to engage with something new and distinctive of Cincinnati.

READING RD. AND CENTRAL PKWY.

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Case StudiesU

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Implementation Recommendations

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Primary Implementation Recommendations

Community Benefits Agreement

ImplementationRecommendation

This could occur potentially during the negotiations related to the Reading Road improve-ments and the proposed allocation of TIF funds needed to subsidize the construction.

Research has shown that a CBA can be a powerful tool to insure mega-projects, like the Horseshoe Casino, act in the highest accord as good neighbors. By forming a written agreement, annual payments are guaranteed to be directed to the impact area. As a result of the community engagement conducted by Bridging Broadway, the most salient benefits desired by the community include:

Streetscape improvements

Creation of a Special Improvement District

Financing for redevelopment in Pendleton

Housing assistance

Business retention and attraction

Clean & Safe programs

Neighborhood parking permit program

Employment / Job Training / Job Fair

Programming of public space

Public art

Cross-promotions with local businesses

Multi-purpose family center

Security lighting, cameras, patrols

Youth Programs

Support of community pools

On-site marketing for local tourism

It is our recommendation that to implement and sustain the range of benefits sought by residents, stakeholders and city representatives, a Community Benefits Agreement (CBA) be executed between the casino developers/operatorsand a non-profit entity comprised of community stakeholders. This legally binding contract will most likely need to be leveraged via a development agreement between the City and casino developers.

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It is our further recommendation that the City contract with a legal expert in the field of Community Benefit Agreements to assist with the negotiation of this contract, and that the agreement be binding between the casino operators/developers and a separate non-profit entity comprised of local stakeholders. This helps to avoid potential diversions that can arise from changing political landscapes at the city level.

In cases such as the Los Angeles Sports and Entertainment District, negotiations for a broad coalition of labor and community-based organizations, called the Figueroa Corridor Coalition for Economic Justice, were led by Strategic Actions for a Just Economy, LAANE, and Coalition L.A. In the case of the Sugarhouse Casino, the Special Services District was formed out of a group called Fishtown Action (FACT), a pro-casino group from Fishtown and other surroundingneighborhoods. FACT is deeply rooted in the Fishtown community. It should also be noted that the Sugarhouse casino owner signed the CBA nearly a year before the doors were opened. These initial funds ($175,000) helped to establish the SSD. Subsequent payments ($500,000+) are awarded annually to the Penn Treaty SSD which then awards community groups with money via a grant program.

Broadway Commons Special Improvement District

The Broadway Commons SID would be funded by the commercial businesses located within its boundary area. By state statute, seventy-five percent of the cost is based upon assessed value of the property, and twenty-five percent according to front footage. According to Bridging Broadways community engagement throughout the District Study, a significant portion of private landowners in the area are in favor of a SID. However, agreement by the Horseshoe Casino, based upon its significant front footage, would also need to be attained in order to create the SID. Bridging Broadway has yet to acquire an indication as to whether the casino would be willing to participate. Next steps should include meeting with more of the commercial property owners in the proposed SID boundary to determine their interest in the program, and a feasibility study to determine potential revenue and forecasted costs.

To enhance safety and cleanliness of the Broadway Commons entertainment district, and maximize visitor experience through marketing and programming, it is our recommendation that a SID be created according to the boundaries in the attached illustration. Within this boundary area, services would be provided similar to those currently being supplied by Downtown CincinnatiInc. (DCI). Due to the areas proximity to DCIs current service area, we recommend investigation into a collaborative relationship in which DCI could contract and/or share some of its services and infrastructure. By doing so, efficiency and reduced overhead may be achieved.

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SERVICE AREA

SPECIAL IMPROVEMENT DISTRICT

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Pendleton Neighborhood Service Area

Shared Programming Areas - Corridors

The Pendleton Neighborhood Council wishes to benefit from the services provided by a Special Improvement District. While this could be attained by expanding the SID boundary area and collecting assessments from residents as well as commercial building owners, it is our recommendation that Pendleton receive these services without being included in the assigned SID boundary area. This is based on three criteria:

1. The proposed SID enhances and promotes the new Broadway Commons entertainment district. The nature of this district is significantly different than the residential character of Pendleton.2. The businesses that can fund the SID are located within the District. By not including the residential component of the neighborhood, residents would not have to financially contribute.3. Pendletons most pressing need is for the benefits of a SIDs Clean & Safe program. These services could be easily expanded into the neighborhood, and with adequate funding, do not need to be subsidized with residential assessments.

The connectivity between the Horseshoe Casino / Entertainment District and the other cultural assets downtown is integral. We recommend five primary corridors to invest in with measures relating to design, development, programming, and art. These corridors extend as far as to the waterfront on the southwest, Washington Park in OTR, and the Pendleton Arts Center. These locales in particular are located in areas serviced by such organizations as DCI, OTR Chamber of Commerce, and 3CDC. At times, they also cross through smaller zones managed, in part, by entities such as the 8th Street Design District, Backstage District, Pendleton Neighborhood Council, and Merchants on Main. To effectively and cohesively achieve the pedestrian and multi-modal activity that connects these destinations, large-scale planning and stakeholder collaboration must take place.

A prime example of this is the proposal recently submitted by ArtsWave for the National Endowment of the Arts Our Town grant. In partnership with Bridging Broadway, the City of Cincinnati, SORTA, 3CDC, and many other downtown organizations, this program would

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infuse a section of the 12th Street corridor with a wide range of art components during the 2012 Fringe Festival and World Choir Games. Should the $400,000 grant be provided, this pilot program will demonstrate the collaborative success of such a program which the city can then implement throughout other pertinent pathways downtown. By connecting the citys cultural assets, visitors can safely experience a seamless urban environment. Not unlike the economic development rationale of a permanent streetcar line, these pedestrian corridors can support new business activity and real estate development. In addition to individual projects such as the NEA Our Town grant, it is our recommendation that the City and regional transportation organizations collaborate on a downtown infrastructure design plan that responds to the principles of Complete Streets and incorporates transformative place-making components such as public art, creative way finding, and dynamic use of public space. Through such an initiative between agencies such as SORTA, ODOT, and the Citys Transportation and Economic Development departments, investments in the public right-of-ways can yield user experiences far beyond the basic. Better walkability, as well as improved auto orientation, can occur from the artistic design of such things as streetlights, signage, sidewalks, street paving, and bus/streetcar shelters. Our recommendation is to identify two or three of the proposed corridors in which to concentrate investment in street designs rather than a more dispersed pattern of improvements.


Allocation of Citys Casino Revenue

As mandated by the amendment to the state constitution, Article XV Section 6 of the Ohio Constitution, the Host City receives 5% of the 33% gross revenue state tax collected from the casino, with an additional 50% of the countys share. Current projections estimate the amount to the local Cincinnati coffers at $12 million to $17 million. It is our recommendation that a binding City resolution be passed in which a portion of this revenue is allocated to the impact area in and around the Broadway Commons Entertainment District, and to the corridors identified in this Study. If the SID is implemented, the amount can be used as a supplement to further strengthen the capabilities of the managing organization and its programs. Should the CBA and/or SID fail to be realized, the amount allocated from the Host Citys projected casino revenue should equate, at a minimum, to an amount equivalent to the cost of services provided by the desired SID. Thus, the City would be financially contributing to the health and vitality of the area thereby guaranteeing some of the benefits sought by the residents and businesses directly impacted by the casino. Additionally, by providing funding for the corridors, downtowns public realm and overarching experience would improve for residents and visitors.

Secondary Implementation Recommendation

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Casino Overlay DistrictAs Frenchmen Street in New Orleans illustrates, an Arts & Culture Overlay District can be a powerful policy to manage an entertainment district while protecting the residential character surrounding it. As described in the ordinance,

The purpose of the Arts & Cultural Overlay District is to sustain estab-lished and to promote new arts and cultural uses including a limited number of small-scale (up to 4,000 square feet) live entertainment venues in neighborhood business or mixed use areas that are compatible with the character of nearby residential neighborhoods. The Arts & Cultural Overlay District seeks to maintain and reinforce small-scale uses, a balance of daytime and night-time uses, and a ratio of approximately twenty (20) percent cocktail lounges and eighty (80) percent other uses.

Some of the particularly interesting policies of the frenchmen street zoning, that coincide with the design and programming recommendations included in this Study, include:

All establishments providing live entertainment shall be subject to a closed doors/ windows policy during any performance. A cocktail lounge may provide live entertainment, including a permanent area for dancing, but shall not provide live adult entertainment, music played solely by a disc jockey, or karaoke. A licensed standard restaurant may provide non-amplified live entertainment, limited to a soloist or combos (up to three (3) members). No performance shall continue after 11 :00 p.m., Sunday thru Thursday, or 1 :00a.m., Friday and Saturday. Live entertainment [in Theater] shall be limited to theatrical productions.

By designing an overlay district such as this, which could be as specific as a Casino Overlay District, the character can be shaped to complement downtowns other entertainment districts rather than cannibalizing them. Additional Community Dialogues could aid in determining the Overlays provisions.

DD

CC-P

RM-1.2CN-P

OGRM

Broadway Commons District Study

Documents

community of cincinnati

community response

community dialogues2

creation of bridging

broadway board members

public community dialogues

cincinnati casino

greater cincinnati