HomeMy Public PortalAbout2011 - Revitalization of Old Town 2nd Ad Hoc CommitteeREPORT OF THE SECOND
AD HOC COMMITTEE ON REVITALIZATION
OF OLD TOWN
SUBMITTED TO THE
JEFFERSON CITY COUNCIL
ON
JANUARY 3, 2011
AD HOC COMMITTEE MEMBERS
Ron Medin, Chair
Jim Crabtree, Vice Chair
Brad Bates
Mike Berendzen
Donna Deetz
Dave Griffith
Charles Lansford
Jude Markway
Dr. Bryan Pope
Steve Rasmussen
Eric Struemph
REPORT OF THE SECOND
AD HOC COMMITTEE ON REVITALIZATION
OF OLD TOWN
Introduction
The second Ad Hoc Committee on Revitalization of Old Town' was created by
Resolution 2010-019 adopted by unanimous vote of the City Council on July 19, 2010. Mayor
John Landwehr's appointments of its members were approved by the City Council on August 16,
2010. The purpose of the second Ad Hoc Committee was "to explore, gather input from
constituent interests, identify, and recommend actions to the City Council that local government
might undertake to effectively encourage commercial development in the Old Town sector of our
community". It was directed to report its finding and make recommendations to the Mayor and
the City Council at the first council meeting of 2011.
The task undertaken by the second Ad Hoc Committee on Revitalization of Old Town is a
matter of great consequence. Old Town is an incalculable asset with its distinctive architecture
and historic, established neighborhoods harboring the seats of local and state governments, the
former Missouri State Penitentiary complex, the new federal courthouse, Lincoln University,
several business districts including downtown and the Southside, and some of Jefferson City's
largest and most stable employers. But Old Town is also a potential liability. Streets and
sidewalks need to be maintained, police cars need to patrol, and fire trucks need to respond to
fires in Old Town — notwithstanding the fact that the property taxes contributed to the public
coffers by the average residential property in Old Town are nearly half of that paid elsewhere in
Jefferson City. The renewed vitality and prosperity of the older established commercial and
residential neighborhoods of Old Town are vital to the future of our entire community. Old
Town's neighborhoods can be assets or liabilities tomorrow depending upon what is done today.
While the second Ad Hoc Committee on Revitalization of Old Town was charged with
addressing the commercial revitalization of Old Town, it did so with the understanding that
commercial and residential revitalization are inextricably interwoven. Residential areas need ready
access to retail and commercial venues. Commercial and retail establishments, in turn, need a
residential community around them — people who do more than drive into Old Town at 7:30 in
the morning and then drive back home to a neighboring community at 4:30 in the afternoon. The
The Old Town area was officially designated by a vote of the City Council in the spring of 2007 and is roughly
described as the area within lines running from Dix Road on the west to Stadium Boulevard on the south to
Moreau Drive on the east and then back to the Missouri River on the north.
2 The individuals appointed to serve on the second Ad Hoc Committee were Brad Bates (businessman); Mike
Berendzen (architect and former chair of Planning and Zoning Commission); Jim Crabtree, vice chairman (
member of Board of Directors of Old Town Revitalization Company); Donna Deetz (Old Town property owner
and developer); Dave Griffith (5`h Ward Councilman); Charlie Lansford (interim director of Department of
Community Development); Jude Markway (contractor and representative of Home Builders Association); Ron
Medin, chairman (5`h Ward Councilman); Bryan Pope (3`d Ward Councilman); Steve Rasmussen (City
Administrator), and Eric Struemph (4`h Ward Councilman).
single most important thing required to revitalize the residential and commercial neighborhoods of
Old Town is also the most difficult — those neighborhoods must be filled with people who own
their own homes and businesses. The relatively simple, albeit expensive, tasks of providing
essential services like street improvements, police and fire protection, and code enforcement must
always be provided, but public services only support a community — they don't build it. Old
Town is at risk unless and/or until it is filled with people who care about their homes, their
businesses and their neighborhoods.
Revitalization of Old Town is not an emotional response to some nostalgic memory of the
past glories of our established neighborhoods. It is a dollars and cents calculation. Do we want
deteriorating neighborhoods draining public coffers or do we want revitalized neighborhoods
attracting residents, tourists and businesses? Without attention the property values of our older
neighborhoods will decline even as they require more and more attention. Investing in Old Town
will pay off for years to come as property values increase and the revitalized neighborhoods
increasingly contribute to our tax base and attract tourists and customers to our community. That
is the backdrop against which the second Ad Hoc Committee on Revitalization of Old Town
pursued its work.
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The Work of the Committee
The Ad Hoc Committee met every two weeks from late August to early December of
2010. Much of its time was devoted to information gathering. Developers, property owners and
other interested parties were invited to share their experiences in commercial redevelopment in
Old Town and to suggest how further redevelopment might be better facilitated and encouraged .3
Input was not limited to the private sector. Ralph Rognstad, director of planning for the City of
Springfield, Missouri, joined the committee by conference call and outlined the approach and
experience of his community in promoting revitalization in older, established neighborhoods.
Also, several members of city staff (in addition to committee members Administrator Steve
Rasmussen and Community Development Interim Director Charlie Lansford) attended meetings
and were invaluable sources of information and insights.4 The Ad Hoc Committee met in several
venues outside of City Hall as part of its information -gathering, including O'Donoghue's Steaks
and Seafoods, Brews Coffee House in the old Warwick Village, 124 E Dunklin Street in the
Southside redevelopment project, and 206 E High Street (the old Exchange Bank building).
Committee members returned to City Hall for two final meetings to discuss the information
gathered over the prior eight weeks and to arrive at a consensus on recommendations to be
submitted to the City Council.
Recommendations
It should be noted at the outset that the second Ad Hoc Committee on Revitalization had
a narrower focus than its predecessor, specifically focusing on commercial revitalization within
Old Town. The report of the first Ad Hoc Committee issued in 2008 concluded that the Jefferson
City Area Chamber of Commerce should be primarily responsible for such commercial
revitalization. This report does not alter that conclusion, but it does suggest action items which —
though essential for the success of commercial revitalization efforts - are beyond the immediate
control of the Chamber of Commerce. While they should not supplant the Chamber's leadership
role, the cooperation of local governments and other agencies acting in concert with the Chamber
is essential to commercial renaissance in Old Town. Accordingly, the following recommendations
are categorized by the entities or groups which could be responsible for initiating them.
3 Those accepting the invitation to visit with the Ad Hoc Committee included Michael
p g Berry, Cindy Blosser,
Debbie Brown, Sam Bushman, Carrie Carroll, Ron Dawson, Juanita Donehue, Phil Freeman, Ryan Freeman,
Darrell Hubble, Connie Hubble, Larry Kolb, Beth McGeorge, Mark Mehmert, Steve Rollins, Hank Stratman, and
Jim Wisch
4 Assistant City Administrator Melva Fast served as staff liaison to the committee and coordinated meetings and
testimony in additional to providing her expertise. City planner Janice McMillan, senior code enforcement officer
Ron Davenport, and Matt Morasch, deputy director of Community Development, each contributed greatly to the
committee's knowledge base.
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City Council
1. Incentives for Condominium Lofts in Old Town.
While at first blush incentives for residential living might appear to fall outside of the
purview of commercial revitalization, reversing the decades -old trend of allowing the upper levels
of commercial buildings to sit vacant is a key to greater vibrancy in the downtown area and other
areas of Old Town. The Ad Hoc Committee heard the familiar litany that longtime owners of the
buildings have no real incentive to utilize the upper floors even though those spaces are readily
filled when they become available.5 The structure of the incentives is something for the City
Council to decide, but the Ad Hoc Committee suggests that one approach might be providing
incentives based upon condominized commercial buildings where ownership of the upper living
spaces could be separated from ownership of the retail space at the street level. Such an approach
would provide building owners with an immediate return on upper floor space that would
otherwise sit vacant, and could be further encouraged with the following incentives:
a. Expand the existing down payment incentive program currently available to
purchasers of vacant property in Old Town to include those purchasing upper levels of
commercial buildings in Old Town. The new condominium owners — like the new
homeowners under the existing program — would receive up to $5,000 in down
payment assistance for purchasing space previously vacant and if the space is used for
residential living there for five years.
b. Expand the existing tax reimbursement program currently available to purchasers
of vacant property in Old Town to include those purchasing upper levels of
commercial buildings in Old Town. The new condominium owners — like the new
homeowners under the existing program — would receive reimbursement for their real
estate taxes for five years following their purchase of previously vacant space if the
space is used for residential living for five years.
The two programs described above already have funding with annual limits on the number of
participants. Expanding them to include purchasers of condominium lofts in Old Town would not
require increased funding in the near term because the funds already appropriated are not fully
utilized by the existing programs.
2. Planning and Design Commission
A number of witnesses appearing before the Ad Hoc Committee expressed concern with
an indifferent reception at City Hall when developers, sophisticated or otherwise, approach city
' Among others, see testimony of Sam Bushman on September 17, 2010, Ron Dawson on October 1, 2010, and
Carrie Carroll On October 15, 2010.
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staff with proposals for projects within Old Town.b There is any number of circumstances that
might give rise to that perception. The Ad Hoc Committee did not determine whether the
perception is reality, but notes with approval that City Administrator Steve Rasmussen has already
initiated measures in response to it.7 Hopefully, those measures will allow most issues to be
amicably resolved to the mutual satisfaction of both developers and city staff.
Nonetheless, the Ad Hoc Committee believes there should be an appeals panel available for
those situations where the parties are unable to resolve their differences. It is anticipated that the
appeals process would rarely be invoked, but having the apparatus in place would both encourage
conciliation early in the process and, if that does not occur, serve as a neutral forum short of a
hearing before the City Council. The Ad Hoc Committee recommends the creation of a Planning
and Design Commission as an appeals body to promptly hear disputes between developers and
staff regarding non -zoning matters. The precise composition and operation of the appeals
tribunal is left to the City Council, but the Ad Hoc Committee suggests two possible alternatives:
• Option A. Members would be appointed from the professions of architecture, engineering,
building/construction inspection, etc. The members would be appointed by the Mayor with
the concurrence of the City Council, and the Commission Chairman would serve an
ombudsman between City departments and development community.$ Decisions of the
Commission would be appealable to the City Council.
• Option B. The Commission would be comprised of specific city department heads (i.e.,
deputy directors from Community Development) from the fields of building/code
enforcement, public works and planning. Decisions would be appealable first to the City
Administrator and ultimately to the City Council.
3. Call Before You Start.
Various representatives of city staff suggested that among the reasons that would-be
developers become disenchanted and/or frustrated is that they begin the development/adaptive re-
use process before being totally acquainted with the challenges posed by their particular project.
As a result the unsophisticated developer loses both time and money correcting course after
getting off on the wrong foot. To encourage developers within Old Town to consult with city
staff before committing to a project, the Ad Hoc Committee recommends a one-time tax
abatement of the developer's city real estate tax bill for the year immediately following completion
of the project. The tax abatement would be available only to those working within Old Town
who: (a) consult with a pre -approved expert about the feasibility of the project and cooperatively
review the "Developer Checklist (see p.12); and (b) meet with city staff regarding the proposal
6 Among others, see testimony of Phil Freeman on September 3, 2010, Connie Hubble and Debbie Brown on
September 17, 2010, and Hank Stratman on October 1, 2010.
7 Mr. Rasmussen's actions are described in the Staff recommendations of this report.
8 Among others, Michael Berry expressed support for the ombudsman concept in his testimony on September 3,
2010.
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before redevelopment begins; and (c) do not qualify for the facade improvement program. The
one-time tax abatement would not be available until the tax year following completion of the
proposed project.
4. Adaptive Re -use Incentive
Currently there are "adaptive re -use" projects within Old Town that add greatly to
revitalization efforts but fall outside the parameters of existing incentive -based programs.
Adaptive re -use is a process where buildings that have outlived their original purposes are adapted
for new uses while retaining their historic features. For example, an old factory may become an
apartment building or a rundown church may find new life as a restaurant. The Ad Hoc
Committee recommends that an incentive program be developed to encourage adaptive re -use by
providing two years of tax abatement for qualifying projects. The requirements for the two-year
tax abatement on an adaptive re -use project might include:
* qualifying for and completing the Call Before You Start program;
* investing at least $10,000 in the adaptive re -use project;
* ineligible for any other city incentive program (other than the Call Before You
Start incentive);
compliance with all city code requirements;
* occupied at completion and throughout the tax abatement period; and
* all back taxes and city liens against the adaptive -reuse project are paid.
Tax Increment Financing (TIF) Within Old Town
A possible source of funding of parking and other mandated public accommodations
associated with projects in Old Town could be Tax Increment Financing (TIF). While TIF does
require an overall redevelopment plan and a determination of blight, the TIF statute is flexible
enough to provide for the phasing in of multiple redevelopment projects. TIF does not alter the
current revenue stream to taxing entities, since only the proceeds from the increment are used to
fund public improvements. Additionally, the Old Town area meets the TIF "but for" condition in
that redevelopment is unlikely to take place without such an incentive. Juanita Donehue, a
pioneer in the revitalization of Old Town, told the Ad Hoc Committee that TIF was absolutely
essential to the success of her restaurant project.9 To mitigate the redevelopment barrier posed by
infrastructure inadequacies, the Ad Hoc Committee recommends the City Council encourage
developers to establish TIF districts in Old Town to fund public infrastructure improvements and
direct city staff to assist in those efforts.
6. Land Assemblage
As the Ad Hoc Committee conducted its public input meetings, it became apparent that
properties are not islands unto themselves. Neighboring properties in poor condition often
discourage the rehabilitation of buildings by otherwise willing property owners. This scenario was
9 See Juanita Donehue's testimony on September 17, 2010.
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recently successfully overcome by developers Larry Kolb and Steve Rollins who bought an entire
block of Southside properties before beginning their redevelopment. In their testimony before the
Ad Hoc committee, both men emphasized the importance of assembling blocks of properties as a
precursor to renovation projects.' 0
While the Southside project was fortunate to have both willing buyers and willing sellers,
that is not always the case. In some instances, the intervention of local governments and other
entities might be necessary to acquire and/or combine adjacent properties to achieve the necessary
economy of scale that will facilitate revitalization goals. Vacant, under-utilized buildings and
blighted properties might become available through foreclosure or estate consolidation. Although
each situation is unique, the City of Jefferson should work cooperatively with other parties to
combine properties for consolidated redevelopment.
As a last resort, the Ad Hoc Committee believes the City Council should explore whether
the eminent domain capacity of the Land Clearance for Redevelopment Authority (which is
currently combined with the Jefferson City Housing Authority's functions) should be restructured
to make the eminent domain process clearer, more practical and more accessible.' The Ad Hoc
Committee is mindful that private property rights are well -ingrained in the fabric of our law and
culture, and agrees that the power of eminent domain should be used sparingly but it should
nonetheless be considered for use in narrowly -prescribed circumstances.
7. Open Beverage Container Districts
The work of the Second Ad Hoc Committee on the Revitalization of Old Town took place
in tandem with (and at times overlapped) the community strategic planning process undertaken by
the Jefferson City Area Chamber of Commerce. The Ad Hoc committee notes that among the
more readily attainable objectives identified by Chamber focus groups was the creation of one or
more "festival" districts within Old Town. A key feature of such a festival district would be to
allow open containers of alcohol on the public streets within the district in connection with
whatever entertainment is being offered. It would permit/encourage the movement of attendees
throughout the various venues within the festival district and might boost attendance at special
events already occurring with Old Town such as the annual Salute to America and Thursday
Night Live! in the downtown area. 12
Such a proposal is not without its concerns including crowd control and public safety, but
the Ad Hoc Committee believes City Council should consider the pros and cons of an open
beverage container district ordinance, beginning with one or more hearings before the City
Council's public safety committee.
10 See the testimony of Larry Kolb and Steve Rollins on October 15, 2010.
11 Mark Mehmert of the Jefferson City Area Chamber of Commerce was supportive of this concept at the meeting
on December 3, 2010.
12 Festival districts might also be centered in the near Eastside in the vicinity of Prison Brews and The Mission or
in the Millbottom area which is currently the subject of a Greening of America grant.
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8. Abandoned Building Redemption
Three years ago the first Ad Hoc Committee on Revitalization of Old Town noted that a
"disturbing trend within Old Town has been the willingness of some commercial property owners
to allow their buildings to sit idle as they wait for the rising tide of economic development to
improve their property values. This has a number of negative results including increased oversight
by police, fire and code enforcement and a general `dragging down' of the neighborhoods where
these properties sit vacant". It was suggested at the time that registration of vacant buildings
might be desirable.
The second Ad Hoc Committee on Revitalization of Old Town would like to underscore
that recommendation — vacant properties within Old Town should be registered. Springfield City
Planner Ralph Rognstad cited his community's vacant property registration program as one of the
tools that has helped revitalize Springfield's urban core. The details of such registration should be
left to the City Council but the model offered by the first Ad Hoc Committee still seems workable:
a. A building owner would be required to register if the property sits vacant for more
than six months.
b. Registration would include completion of a vacant building form, a plan to
maintain the building's exterior, and registration fee.
c. Registration would be renewed semi-annually for as long as the building remained
vacant.
Registration would not only discourage vacant buildings and recoup some of the city's
administrative expenses in dealing with them, it would also provide a registry of potentially
available properties to anyone interested in investing in Old Town.
9. Parking in Old Town
Several witnesses appearing before the Ad Hoc Committee identified current parking
requirements as an obstacle to redevelopment of Old Town. 13 Projects otherwise viable are
sidetracked because parking requirements developed for projects in newly developed areas of
town are ill-suited for the confines of older, established neighborhoods. The Ad Hoc Committee
recommends that parking requirements for in -fill development be relaxed and that the City should
be alert for opportunities to create off-street parking for nearby businesses within Old Town.
Further recommendations on the parking issue appear under the Staff section of this report.
13 Amon other, see the testimony of Phil Freeman and Michael
Among y Berry on September 3, 2010; Juanita Donehue,
Debbie Brown, and Sam Bushman on September 17, 2010; and Ron Dawson on October 1, 2010.
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10. The Southside Redevelopment Plan 14
In July of 2009 the Southside Redevelopment Plan was finalized by the Arcturis consulting
group. After an extensive study of the existing conditions on the Southside, the plan outlined
recommendations for future redevelopment options with a particular emphasis on funding from
state and federal resources. The three partners for the project — the City of Jefferson, the
Jefferson City Area Chamber of Commerce and the Housing Authority — have yet to formally
adopt the Southside Redevelopment Plan and it should not be overlooked as the revitalization of
Old Town is pursued. The Ad Hoc Committee believes that the Southside Development Plan
should be reviewed and evaluated in light of the evolving reality within Old Town so that there is
a shared philosophy and vision for that crucial area of our community. That review should
ultimately include, among others, the Old Town Revitalization Company, the strategic planning
process under taken the Jefferson City Area Chamber of Commerce, and the Housing Authority,
but might begin with the City Council's Administration Committee working together with the
Planning & Zoning Commission.
Old Town Revitalization Company
Mentoriniz Program
Renovations of existing buildings draw a greater number of "unsophisticated developers"
than new construction. Perhaps it appears less challenging to renovate an existing building than
to start from scratch. In fact, the opposite is often true. These unsophisticated developers would
benefit from the experience of others who understand and appreciate the considerable challenges
inherent in renovation. 15 The Ad Hoc Committee recommends that the Old Town Revitalization
Company create a mentoring program in which experienced developers would be paired with
newcomers to advise them about both the promise and the perils of building renovation.
2. Involvement of Cole County Government and Jefferson City Public Schools
The Old Town Revitalization Company was created by action of the City Council, but any
local economic development effort necessarily requires interaction and cooperation with Cole
County government and the Jefferson City School District. Along with the City of Jefferson, they
are stakeholders who benefit as property values and their tax bases increase with the commercial
revitalization of Old Town. Spurring revitalization through economic incentives and
governmental policies should not fall solely upon the City of Jefferson. The Jefferson City School
District, for example, could greatly advance an influx of investment into Old Town by examining
its elementary school district lines to reduce the high concentrations of low-income students in
14 A subcommittee comprised of Jim Crabtree, Mike Berendzen, and Janice McMillan contributed heavily to this
portion of the Ad Hoc Committee's report.
15 Among others, see the testimony of Connie Hubble on September 17, 2010, and Hank Stratman on October 1,
2010, about the challenges facing "unsophisticated" developers.
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elementary schools within Old Town and by considering the placement of new and enhanced
facilities within Old Town. 16
The Ad Hoc Committee suggests that the Old Town Revitalization Company is uniquely
suited to be at the crossroads where the interests of the City of Jefferson, Cole County
government, and the Jefferson City School District intersect. It encourages the Old Town
Revitalization Company to solicit the support of both Cole County government and the Jefferson
City School District and to recruit their representatives to its board of directors.
3. Institutions of Higher Learning in Old Town
The importance of Lincoln University to Old Town cannot be overstated. Not only does
Lincoln University's history and impressive buildings serve as a bulwark against the deteriorating
urbanscape found in some areas of Old Town, but it also revitalizes our community with each new
incoming class of students. Moreover, Lincoln University's status as a black land grant institution
and its important research for Department of Defense presents many opportunities for an influx of
federal dollars into Old Town and the greater Jefferson City community. The Ad Hoc Committee
notes with approval that there is currently a representative of Lincoln University on the board of
directors for Old Town Revitalization Company. Such involvement should be encouraged and
strengthened.
There are other colleges and universities with a presence in Jefferson City, but not
currently within Old Town. Satellite and extended campus opportunities within Old Town
should be explored for Columbia College, University of Missouri, William Woods University,
State Fair College and Linn State Technical College." While such opportunities might not match
the impact of Lincoln University, the daily presence of college students within Old Town would
help spur economic activity in the area.
4. Involvement of Jefferson City Area Chamber of Commerce
As noted at the outset, the first Ad Hoc Committee on Revitalization of Old Town
recommended that commercial revitalization of Old Town be coordinated through the Jefferson
City Area Chamber of Commerce. The Chamber has followed through on that recommendation
by offering a meeting place for Old Town Revitalization Company and having its representatives
in attendance at those meetings. In the nearly three years since the report of the first Ad Hoc
Committee on Revitalization of Old Town, the importance of a revitalized Old Town to the
economic well-being of the entire community has become increasingly apparent. The on-going
strategic planning process conducted by the Chamber of Commerce is the most recent and far-
reaching acknowledgement of that reality.
16 Among others, see the comments of committee member Brad Bates on October 15, 2010.
17 The strategic planning process undertaken by the Jefferson City Area Chamber of Commerce has identified the
current St. Mary's Hospital campus as a possible site for satellite university programs when the hospital is moved
to a new facility.
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Revitalization of Old Town should move to the front of the Chamber of Commerce's agenda.
That should be reflected in funding by the Chamber of Commerce in support of revitalizing Old
Town (including the activities of Old Town Revitalization Company) as part of its continuing role
as the economic development arm of Jefferson City and Cole County governments.
5. Award Program
The Historic City of Jefferson City has had considerable success drawing attention to
noteworthy renovation projects with its periodic "Golden Hammer Awards". Most of the
projects recognized have been residential. Old Town Revitalization Company, in cooperation
with the Chamber of Commerce, should develop an award program to recognize good examples
of design, execution and maintenance in areas of rehabilitation, renovation, adaptive reuse and
infill/new construction in the commercial sector.
6. Participation of City Staff in Old Town Revitalization Company
The Old Town Revitalization Company's regular interaction with city government is
usually limited to a city staff person acting as secretary for the non-profit corporation and a
councilperson serving as liaison between it and the City Council. City staff and representatives of
Old Town Revitalization Company typically find themselves on opposite sides of the table even
when working towards common goals. That isn't all bad. Part of the legitimacy and effectiveness
of the Old Town Revitalization Company is rooted in its independence from city government.
However, as the community comes together in the promotion of Old Town it seems advisable that
both city government and Old Town Revitalization Company have the opportunity to interact on
a regular basis so that the right hand knows what the left hand is doing (and vice versa).
Accordingly, the Ad Hoc Committee asks the Old Town Revitalization Company to consider
amending its by-laws to add selected members of the city staff as advisory directors.
City Staff
City Ombudsman/Problem Solver
A comment heard repeatedly from those working with city staff on revitalization projects in
Old Town is that they heard different things at different times from different staff people. The Ad
Hoc Committee was considering how best to address this concern when City Administrator Steve
Rasmussen advanced the following framework to ensure expeditious resolution of complex
redevelopment issues:
"Deputy directors or professional engineers in the Department of Community Development
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will be charged with specific duty of serving as ombudsman' a and problem solvers for both the
novice and experienced developers with difficult or multi -faceted redevelopment projects in Old
Town. Specifically, the Advocate will serve as coordinator for the City's review of
redevelopment projects, bringing appropriate staff=, whether from planning, public works, building
codes, fire department, etc. to make sure all aspects of a redevelopment are anticipated, and
worked though to a successful conclusion. The Director of the Department of Community
development will still serve as sounding board for the Advocates and for developers. The
Director will ensure that all department resources have been exhausted prior to referring a project
on to the City Administrator or other appeals body."
The Ad Hoc Committee commends City Administrator Steve Rasmussen for his initiative in
this area and sees no reason to add to it at this juncture. The suggested framework, however,
does not obviate the need for the Planning and Design Commission discussed above and, in fact,
anticipates such an appeals process.
2. Developer Checklist
City Administrator Steve Rasmussen presented the committee with pamphlets currently
available to the public from the Department of Community Development addressing a wide
variety of issues confronting developers in Old Town and elsewhere. While these pamphlets
appear to be very useful for discrete topics, there is no single document providing an overview of
the development process. The Ad Hoc Committee recommends that the Department of
Community Development prepare a comprehensive guide to the development process in older,
established neighborhoods of Jefferson City which should include, among other things, a checklist
of items common to all projects that need to be done by the developer in consultation with city
staff' 9 Copies of this comprehensive guide should be distributed through the Jefferson City Area
Chamber of Commerce.
3. Just Say Yes
Witnesses before the committee expressed frustration with some staff persons who
appeared all too ready to say they couldn't do the project in the way it had been presented, but
offered no alternatives or solutions to the problems raised .20 The Ad Hoc Committee believes
that that staff members need to buy into the idea that they are as much responsible for
"community building" as they are for enforcing codes and regulations. While "just say yes" is an
oversimplification (and ultimately an undesirable outcome), staff persons need to work
18 Among others, see the testimony of Michael Berry on September 3, 2010, and Hank Stratman on October 1,
2010, in support of the ombudsman concept.
19 Among others, see the testimony of Debbie Brown, Connie Hubble and committee member Donna Deetz on
September 17, 2010, in support of developer checklist.
20 Among others, see the see the testimony of Debbie Brown, Connie Hubble and committee member Donna
Deetz on September 17, 2010, and Hank Stratman on October 1, 2010.
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cooperatively with developers to find reasonable solutions to the conflicts that inevitably arise in
the development process. Personnel evaluations of staff persons should include criteria measuring
their ability to work and cooperate with developers and other members of the general public.
4. Re -Evaluation of Downtown Parking Assignments
Developer Ron Dawson questioned whether the current assignment of downtown parking
in public facilities takes into account the revitalization of Old Town.'' For example, does it serve
the interest of a revitalized downtown to have parking spaces in the Jefferson Street garage rented
by lobbyists who only use them four months of the year? Would it not be better to have those
spots available to those who might live and work in the downtown area on a full time basis if they
had ready access to parking. The Ad Hoc Committee recommends that downtown parking
assignments be re-evaluated to determine how the available parking might be better utilized to
encourage living and working in the downtown area.
5. Loan Program
Currently the City of Jefferson receives Community Development Block Grant funding
from the federal government which is passed on as grants to qualifying projects within the
community. Springfield Planner Ralph Rognstad described another approach — a revolving loan
program in which CGBG funds are loaned rather than given to deserving projects. As the loans
are repaid they are pooled with additional CDBG funds to finance additional projects. In that way,
the same funds can be used many times over. While Jefferson City does not receive the same level
of CDBG funding as Springfield, the Ad Hoc Committee recommends that a loan program
involving at least some of those federal funds be explored further. For example, it might be
productive to incentivize, through a favorable loan program or gap financing, specific retail
businesses (like a small grocery store) that would add to the livability of Old Town.
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Conclusion
The second Ad Hoc Committee on Revitalization of Old Town would be remiss if it did
not acknowledge the work of so many people throughout our community since "Old Town" was
officially designated as a unique sector of Jefferson City in the spring of 2007. Much has been
accomplished. The foregoing recommendations are offered not to replace, but to build upon, the
foundation that has been laid. The Old Town Revitalization Company needs to continue growing
and working to revitalize Old Town. Existing progratns to attract both businesses and residents to
Old Town need to continue to be funded. Code enforcement to improve both the safety and the
appeal of Old Town needs to continue as a priority.22 Funding and tools for commercial and
residential development available from state and federal govenunents23 should continue to be
pursued and used locally.
The word is out on Old Town.'` ` The ranks of those committed to its revitalization have
grown .25 As demonstrated by the on-going strategic planning process undertaken by the Jefferson
City Area Chamber of Commerce, the need for a revitalized Old Town is more widely recognized
each day. The future of Jefferson City rests to a large degree in the area where it all began — in
Old Town.
21 Michael Berry expressed a similar concern in his testimony on September 3, 2010.
22 The city's Community Development Department initiated the so-called "NICE" program several years ago
where inspectors visit neighborhoods and warn residents of violations before they rise to the level of complaints.
23 Federal incentives include Historic Tax Credits and Brownfield Assessment Grants and Loans. State incentives
currently available are Tax Increment Financing (TIF), Community Improvement Districts (CID), Neighborhood
Improvement Districts (NID), Missouri Historic Tax Credits and Chapter 99 Tax Abatement.
24 While the term "Old Town" has become familiar to local government and those involved in the development,
public education needs to continue. Improved communications and media coverage is critical to the long term
community "re -building" and the revitalization of Old Town. Two "no -cost" examples come to mind, the
Jefferson City Area Chamber of Commerce has a monthly newsletter that should consistently include a section on
Old Town; the City of Jefferson has a semi-annual report to citizens that should always include an article on Old
Town.
25 As more groups and individuals become involved in the Old Town revitalization efforts, coordinated
calendars and cooperation among business associations, the arts community and the Convention and Visitors
Bureau should be encouraged. Currently the Jefferson City Arts Committee, the Convention and Visitors Bureau
the business community are creating community calendars. Perhaps a composite calendar from all of these sources
could highlight events and venues within Old Town to create a synergy of activity within Old Town.
14
Ad Hoc Committee on Old Town Meeting Minutes
Tuesday - August 24, 2010
Members Present: Ron Medin-Chr, Jim Crabtree, Dave Griffith, Mike
Berendzen, Eric Struemph, Donna Deetz, Brad Bates, Bryan Pope, Steve
Rasmussen, Jude Markway(arrived late)
Staff Present: Melva Fast, Charles Lansford, Janice McMillan, Matt Morasch
Guests: Ben Yarnell -News Tribune
The meeting was called to order at 7:35 a.m.; roll call was taken- a quorum
was present.
By unanimous consent: Ron Medin was selected Chairman; Jim Crabtree was
selected Vice -Chairman.
Chairman Medin reviewed the Final Report prepared by the Ad Hoc Committee
on Revitalization of Old Town in 2008. Many of the foundational and residential
investment priorities have been accomplished. However, the commercial
investment/ revitalization priorities have not been fully addressed. The purpose
of this committee will be to foster and encourage commercial investment and
revitalization in Old Town.
Future meetings will be conducted informally by inviting individuals who are
involved in or experienced with various aspects of commercial redevelopment.
It was also suggested to get input from city staff and outside communities.
Meeting will be twice monthly -the first and third Fridays at 7 a.m. at City Hall.
Following that schedule the next meeting will be September 3.
Meeting adjourned at 7:55 a.m.
Ad Hoc Committee on Old Town Meeting Minutes
Friday - September 17, 2010
At O'Donohue's Restaurant
Members Present: Ron Medin-Chr, Jim Crabtree, Dave Griffith, Jude Markway,
Mike Berendzen, Eric Struemph, Donna Deetz, Brad Bates, Steve Rasmussen;
Staff Present: Melva Fast, Ron Davenport, Janice McMillan;
Guests: Juanita Donehue, Debra Brown, Connie Hubble, Sam Bushmann, Mark
Mehmert
The meeting was called to order at 7:35 a.m.; roll call was taken- a quorum
was present. Minutes from the September 3 meeting were approved.
Juanita Donehue presented her experience in the redevelopment of her
property at 900 E High. She noted the negativity that surrounded her efforts -
especially the TIF. Future needs for Old Town are incentives for businesses to
rehab older properties and financing to locate here; long range planning for
parking with supportive code enforcement.
Debra Brown agreed that parking is an issue; everyone needs to be creative in
solving the problem. She cited getting different answers from various city
staff; need different guidelines for old and new development, recommended
that there be something in writing -guidelines or a checklist. Her recent project
at Warwick village has been much smoother -more time taken by city staff to
go through the process and assist her.
In response to the parking dilemma, the notion of shared parking was cited as a
creative response. Blackwell's Garage was cited as an example of possible
shared space. Public works recently completed a parking study in the area.
That study will be distributed to the Committee at the next meeting.
Connie Hubble noted that she had used historic preservation tax credits and
was pleased with the result. Currently the Hubbles are trying to purchase 628
E High and have been discouraged. Don't know how to determine feasibility of
project balanced against the cost for architectural assistance, new developers
need good advice and proactive city staff to be successful.
Eric Struemph asked if an "Old Town Specialist" was needed, and
recommended that a Council Work Session be dedicated to discuss Old Town
problems. Steve Rasmussen identified Ron Davenport as the Old Town
Specialist for developers to contact. He also stated that the city was offering a
free analysis/feasibility study to all prospective developers. It was noted that
the public was not aware of these services. Perhaps the Committee should look
at other cities to see successful models of how developers and staff work
together on the difficult projects. It was noted that positivity is required.
Sam Bushmann stated that the downtown had the same problems; parking is
perceived to be too limited. Second and third floors are vacant and property
owners will not fix them up even though there is a desire by younger folks to
living in loft apartments in the downtown area; need a downtown manager and
events to connect the various neighborhoods and produce a unique and
interesting venue and atmosphere.
The next meeting is at Warwick Village- Brews Coffee House on October 1;
meeting adjourned at 8:40 a.m.
Ad Hoc Committee on Old Town Meeting Minutes
Friday - October 1, 2010
At Brews Coffee House
Members Present: Ron Medin-Chr, Jim Crabtree, Dave Griffith, Donna Deetz,
Mike Berendzen, Eric Struemph, Brad Bates;
Staff Present: Melva Fast, Ron Davenport, Janice McMillan;
Guests: Debra Brown, Darryl Et Connie Hubble, Sam Bushmann, Mark Mehmert,
Ron Dawson, Hank Et Linda Stratman
The meeting was called to order at 7:35 a.m.; roll call was taken- a quorum
was present. Minutes from the September 17 meeting were approved.
Hank Stratman presented his experiences in the redevelopment of his property
Warwick Village at 1507 E. McCarty St. He noted the two most significant
challenges were parking and zoning compliance-- the requirements are not
suited for Old Town redevelopment. Stratman noted that he spent significant
money for engineering and design -beyond what was necessary -issues were too
black and white Then as a follow-up, inspectors do not measure and check for
exact compliance with the specific plans that were required. A
recommendation is that there is a need for an advocate at city hall for
"rookies" who do not know all of the rules and do not have experience. They
need someone to talk to. State and federal funds were too difficult; also
recommended a source for advice about funding.
Ron Dawson advised that he (his property) is the parking solution for the 800-
900 blocks of E. High redevelopers. Since he has a large lot, several other
businesses claim his parking and it is never used. His experience on the 100
block of E. High is that owners and tenants of High Street properties are not
given assistance or preference for their parking needs; the state always gets it.
(Example is Lot #1- when legislature is not in session, half of that lot remains
empty;) re -assign parking and give preference to owners/tenants. On the 300
block of E. High property owners lost significant parking for the county jail.
Dawson suggested that upper floors are good for residential and the
commercial/ retail development will follow. it was cited that code compliance
is not required in older buildings until ownership changes; many property
owners are not in compliance with building codes, but they are allowed to
continue to operate while developers must comply to their economic
disadvantage. Facade improvement program is helpful and could also be
advantageous for loft development - the same way.
Dawson further recommended giving an advantage to developers who come to
Old Town; reduce sales tax, give tax abatement or "penalize" green field
development outside of Old Town by assessing an extra assessment. He stated
that the prison redevelopment has been slower than expected and his tenants
at 800 block of E. High experience "petty" vandalism, skateboarding on private
property etc and police seem slow to respond. This increases the negative
perception of operating a business in Old Town.
Connie Hubble agreed that "old" property owners were not required to comply
with codes but if you had recently upgraded your property there was consistent
City oversight and code requirements brought to your attention.
Chairman Medin suggested that after the next meeting, the committee would
begin to look at recommendations for actions to assist the Old Town
Redevelopment efforts. Eric Struemph requested a map that shows the public
school elementary school boundaries.
The next meeting is October 15 at 124 E. Dunklin Street; meeting adjourned at
8:00 a.m.
Minutes
Ad Hoc Committee on Old Town
October 15, 2010
At 124 East Dunklin Street
Committee Members Present: Ron Medin (Chairman), Brian Pope, Dave Griffith, Eric
Struemph, Jim Crabtree, Dave Griffith, Donna Deetz, Mike Berendzen
Staff Present: Ron Davenport, Janice McMillan
Guests: Larry Kolb, Steve Rollins, Jim Wisch, Sam Bushmann, Mark Mehmert, Carrie
Carroll.
Chairman Medin called the meeting to order at 7:00 a.m., at 124 East Dunklin Street.
Everyone introduced themselves. A quorum was present. Minutes from the October 1
meeting were approved.
Ron Medin asked Larry Kolb, Steve Rollins, and Jim Wisch about redeveloping in Old Town,
in particular the 100 block of East Dunklin Street. He said the committee was interested in
their candid testimony regarding the machinery of city government, external factors, and
processes, as well as their suggestions on how to make things work better.
Larry Kolb remarked that all-in-all everything went pretty well. He described the
deterioration of the block, and how they wanted to include the entire block in their
redevelopment plans to address its deficiencies and turn it around. He said it is easier to
address issues block by block rather than one building at time.
Steve Rollins said the project presented many unknowns, and the renovation grew from
what it was originally envisioned to be. Originally they talked about doing a facelift, but it
turned into a total gut job. It is difficult to know two years in advance of construction
what problems will be encountered. He said Ron Davenport and the building inspectors
(building, electrical, plumbing) took a common sense approach with the project. The
owners wanted to have a top quality job and comply with the codes. He felt the building
inspectors helped them achieve those goats.
Jim Wisch said that Ron Davenport and his inspectors were very good about offering
options for the building renovations. He said their experience with the outside renovations
were difficult. Larry Kolb concurred that dealing with code compliance was easier on the
building interiors.
Ron Medin asked if there was sufficient flexibility built into the code or was it something
just done for this project? Ron Davenport said the code does offer some flexibility for the
code official. He felt the intent of the code could be achieved while offering some
flexibility, however the code official has responsibility to ensure the project provides
safety for the public. He said the building official has some flexibility to find common
ground with the project manager.
Jim Wisch said this project forced them to deal with the regulatory requirements of various
agencies. The experience with sidewalks in front of the buildings was offered as an
Minutes October 15, 2010
Ad Hoc Committee on the Redevelopment of Old Town page 2
example. Jim Wisch explained that the interpretation of Americans with Disabilities Act
(ADA) rules by engineering staff appeared to conflict with the requirements of the State
Historic Preservation Office and National Park Service, so much so that they could not do
what city engineers suggested if they wanted to keep their eligibility for historic tax
credits. In addition to addressing ADA requirements, they wanted an area for sidewalk
dining. In the end they paid $40,000 more for their sidewalk survey and plan, which was
an extra, unanticipated cost. Since the project had previously been approved for Tax
Increment Financing (TIF), they had already estimated their fixed costs; they couldn't go
back and include the additional costs in the TIF.
Steve Rollins said their first sidewalk plan showed a 3 -foot sidewalk; city engineers replied
it needed to be 4 feet, then 5, 6 or 7 feet. He said they made a scale model of the
sidewalk and streetscape to show how it would all work and eventually settled on a width
of six feet. He said that after this was agreed to on-site, the city's plan reviewers
hesitated to approve the plan.
Jim Wisch said another problem arose when they discovered a manhole in the middle of
the Texas T building. After smoke testing, they finally located the extent of the
stormwater network under the building. Unfortunately, they had not anticipated this
either, and there was no funding to take care of this additional expense. The developers
questioned what prior process at the city would have allowed construction of a building on
top of the storm sewer.
Ron Medin asked if there was a need to codify flexibility for redevelopment projects. Ron
Davenport said there are mechanisms in the building code that permit flexibility, however
he can't speak for other departments' procedures.
Steve Rollins said another of their frustrations was regarding signage. What seemed like a
simple thing took a long time to be resolved. The National Park Service would not allow
certain sign types to be placed on the building since they could not document they had
been there in the 1920s. Signs posts were seen as an acceptable solution, but the posts
would be on right-of-way. The length of time to get the issue resolved was a concern. He
felt they needed a common sense solution to the problem.
Ron Medin asked if there was a way to mesh the need for signage, historic restrictions and
city code. Janice responded that these particular signs posed a concern about private use
of public right-of-way, which was eventually resolved through a permissive use of right-of-
way permit. She said while the Law Department would weigh in on sign code changes, it
was her opinion that special signage needs could be addressed through overlay districts.
Larry Kolb said that redevelopment is very tough the first time, and that people need to
educate themselves. Carrie Carroll agreed that it required a lot of paperwork to get
through the historic tax credit process, and she appreciated Jim Winch's expertise.
Minutes October 15, 2010
Ad Hoc Committee on the Redevelopment of Old Town Page 3
Ron Medin remarked that the committee had discussed the "unsophisticated developer"
who could be helped by having a caseworker at City Hall assist them with their projects.
He asked the three guest developers for their reaction to creating such an ombudsman and
the possibility of having a review board to mediate adverse decisions by staff. The guest
developers responded positively to that idea.
Jim Wisch remarked that for developers "time is money" and he felt that staff sometimes
does not understand that. He referenced his differences with city engineers on keeping
sidewalks open during the downtown facade renovations. Jim Crabtree said that what he
is hearing from the guest developers is that city staff may not expect or offer consistent
solutions. Larry Kolb said that staff is sometimes in a box to enforce the code. He agreed
that it would help to have a single point of contact to advise people, especially with
financing of redevelopment. Jim Wisch said they have a lot of tools in the toolbox, but
coordination is lacking. He mentioned a presentation he had made to several organizations
recently, including the city manager's association, and a state historic preservation group.
Donna Deetz agreed it would help to have something in writing, a list of things to consider
when embarking on redevelopment projects.
Mark Mehmert asked what made this project successful; what helped to remove barriers,
and how can redevelopment be incentivized? Brian Pope suggested part of what made this
project successful was its scale and that the developers were willing to make significant
investments. Steve Rollins said the fact there were motivated sellers, motivated buyers
and the interest of all the neighbors made it work. Brian Pope asked if there were no
state tax credits, what would it take to have a successful project such as this? It was
mentioned that RSMO Chapter 99 benefits would help (such as in the old urban renewal
areas). The need for grocery stores in neighborhoods was cited as important to draw
residential redevelopment. The developers agreed that having a larger project area
contributed to their success, citing the positive impact of Central Dairy's renovation of the
storefront on the north side of the street.
When asked about other development opportunities in the area, Larry Kolb said the
Blattner building would be a great site for loft apartments if a partnership could be put
together to finance it. They would certainly have a need for architectural fees and parking
for tenants, such as the city -owned parking lot located across the street.
Eric Struemph asked if parking was an issue for them. Steve Rollins said they got creative
about parking, and there is a concern for the future if uses come in that demand more
parking. Jim Wisch suggested the city explore changes that would bring the southside area
more in line with downtown parking requirements.
With discussion ending, the meeting adjourned at 8:05 a.m.
Minutes
Ad Hoc Committee on the Redevelopment of Old Town Page 2
Discussion about what was necessary to improve the downtown and influence property
owners to rehab their properties included: peer pressure among owners, vibrant lower
level business development, encourage owner -occupied living to reduce vacancy, educate
lending institutions, use of Chapter 99 for ten year tax freeze.
Brad Bates presented information about the socio-economic disparity among the
elementary schools. He stated that parity among these schools was necessary to make the
Old Town more attractive to potential buyers and property owners. Families will avoid
those school areas that are low performing/ tower income and perceived as less safe. It
was agreed that balancing the elementary school areas was critical by adjusting school
boundaries and integrating all economic strata.
The next meeting will be at City Hall and the Committee will begin to categorize the
problems/issues presented over the past two months. Meeting adjourned at 8:00 a.m.
Cindy Blosser gave a tour of the building -204 E High Street and discussed the potential.
Members also went next door to the Beth McGeorge loft apartment to see a complete
owner -occupied living space.
Minutes
Ad Hoc Committee on Old Town
November 19, 2010
7 a.m. - City Hall
Committee Members: Ron Medin (Chairman), Bryan Pope, Brad Bates, Jim Crabtree, Jude
Markway, Donna Deetz, Mike Berendzen, Steve Rasmussen
Staff: Ron Davenport, Janice McMillan, Melva Fast
Guests: Mark Mehmert
Chairman Medin called the meeting to order at 7:05 a.m. A quorum was present. Minutes
from the October 29 meeting were approved.
Chairman Medin opened the meeting with comments about the conference call with Ralph
Rognstad the day before. A review board, a loan program, a vacancy program and the
college presence in downtown was discussed.
The draft list of Ad Hoc Committee Recommendations was reviewed and discussed item by
item; (discussion notes are in italics after each recommendation):
Construction Appeals Panel — made up of elected officials, staff and public
appointees to promptly review decisions of code inspectors and other community
development staff -discussed the need to clarify and have equal membership
among the constituency; use this panel as a "last resort" after the issue had
worked through all levels of staff,- later after issue is resolved than could be
addressed as an ordinance if necessary; could be codified as a Redevelopment
Authority)
2. Developer Resource Officer — designated staff person(s) assigned to assist
developers in their interactions with city departments (cited as a good idea if
combined with other recommendations such as #12, #8 & #6, for example;
chamber role was discussed)
3. Revisions to Parking Code — revise off-street parking requirements within the
densely developed areas of Old Town possibly considering developing small city -
owned parking infill -(good idea for staff to develop pocket parking or reduce the
parking requirements in older neighborhoods if possible, don't adhere to the
modern parking code standards always which tends to require parking for
maximum utilization)
4. Downtown Parking Assignments — examine whether current parking lot
locations and designations optimize city resources for revitalization of Old
Town(staff is currently looking at this specifically in, the Jefferson St parking
facility)
5. Loft Incentives Program — provide tax abatements to building owners in Old
Town to promote residential living in upper levels (look at parking and
standardized condominium documents to assist owners in dividing ownership of
Minutes
Ad Hoc Committee on the Redevelopment of Old Town Page 2
larger mixed use buildings in the older commercial areas)
6. Developer Checklist — a single source publication outlining the development
process as it interfaces with city government (good idea to be incorporated with
the developer rehab officer and chamber effort)
7. Just Say "Yes" — an initiative within city government encouraging staff persons to
work cooperatively with developers to find reasonable solutions to the inevitable
conflicts between developer needs and the public interest (basically customer
service approach for staff interaction with redevelopers)
8. Call Before You Develop — a public relations campaign encouraging developers
to consult with City Hall before embarking on redevelopment or construction
projects in Old Town and elsewhere (part of the effort to improve the
communication between redevelopers, especially novices, and city staff,- ties in
with #6)
9. Dialogue with Jefferson City Schools — explore how the school district might
encourage by revitalization of Old Town through participation in tax abatements
and school policies regarding concentrations of low -come students in elementary
schools and encourage a positive perception of the schools serving the Old Town
Area (endorse an effort by the school district to improve public education and re-
draw elementary school lines in a more uniform manner -school officials need to
hear this message from this Ad Hoc Committee, City Council and Old Town
Revitalization Company; currently the school district is undertaking a new public
school strategic plan and reviewing the entire public school system)
10. Dialogue with Cole County government - explore how the school district might
encourage by revitalization of Old Town through participation in tax abatements /
incentive programs (continued communication from City Council and Old Town
Revitalization Company supported; cooperative capital improvement projects are
one way to garner support.)
11. Code Enforcement — develop an enforcement process that is firm yet reasonable
and fair. Develop a communication process that impartially administers the
enforcement program (geared to existing property owners; necessary to continue
to improve Old Town)
12. Mentoring Program — match -up experienced and non -experienced rehab
property owners within the Old Town Area. (Good idea to assist inexperienced
redevelopers in gaining knowledge and confidence in their project before
beginning any work; identify volunteers that would include architects, engineers
and experienced developers)
Minutes
Ad Hoc Committee on the Redevelopment of Old Town
Page 3
13. Available Properties — promote redevelopment opportunities through a web
based data base of available properties within the Old Town Area. (Old Town
Revitalization looking at a website; discussed the realtors participation and
hesitancy about offering a site for listing of properties to include "for sale by
owner", needs to be looked at closely to gain broad acceptance and cooperation.)
14. Modify Commercial Facade Program - make it available for mix -use application.
Currently, a building that was originally a residence in 1900 but that has been in
commercial use for over 80 years and is zoned commercial does not qualify for
commercial facade program because it was initially a residence. (Discussion
about including commercial mixed-use incentive and/or a `do-it-yourselfer"
incentive into the existing program; after discussion it was agreed that such
incentives were necessary but probably needs to be separate from existing
fagade improvement program so new legislation may be implemented.)
15. Encourage Cooperation of Utility Companies - make upgrades and renovations
easier for developers. Replacing "their" lead water pipes --those that connect the
street meter to the main --for the water company and allowing connections before
the building is ready for move in so that contractors have water to use for work;
Allow overhead lines to be installed below ground, etc. (discussion about MO
American Work exemption from paying for upgrades of their lines from the meter
to the main recognized the long term PSC allowance not likely to be changed; Old
Town Revitalization representatives have met with the local utility companies to
encourage cooperation with redevelop to replace and underground lines. Ameren
has a Power On initiative but does not support individuals during redevelopment
unless that project has priority with Ameren)
16. Work with local business, redevelopment associations to promote
development. The Eastside Association is good example where the residential
committee is putting together neighborhood workdays for cleaning up residences
with painting, landscaping, etc. as a group effort. (The cooperation of various
neighborhood and business groups has been initiated within the past 3 months
and seems to have interest in meeting quarterly and devising a community
calendar; Donna Deetz is spearheading this effort.)
17. Public Relations Campaign - a coordinated public relations campaign to let folks
know what is available, what can be done, and how. Have a direct mail campaign,
a door to door campaign, church announcements, etc. (This effort is being led by
the Old Town Revitalization Company.)
At the end of the meeting the following additional items were brought forward to
Minutes
Ad Hoc Committee on the Redevelopment of Old Town Page 4
the Committee: - "Board up" fees, similar to Springfield's program;
-Zoning overlay district that would include design
standards -Janice McMillan, Mike Berendzen, Jim Crabtree
were asked to meet and come up with a recommendation;
-Assemblage of parcels for a larger redevelopment;
-Presence of Lincoln University and Linn Tech in the
downtown to bring vibrancy;
-Security, dialogue with the police department to enhance
the image of safety in the older neighborhoods.
Chairman Medin announced that the next meeting would be December 3 at City Hall and
that a draft report would be distributed prior to the meeting. Members should review and
bring their comments to the next meeting.
Meeting adjourned at 8:40 a.m.
Minutes
Ad Hoc Committee on Old Town
December 3, 2010
7 a.m. - City Hall
Committee Members: Ron Medin (Chairman), Brad Bates, Jim Crabtree, Jude Markway,
Donna Deetz, Mike Berendzen, Councilman Bryan Pope, Councilman Eric Struemph,
Councilman Dave Griffith
Staff: Ron Davenport, Janice McMillan, Melva Fast
Guests: Mark Mehmert
Chairman Medin called the meeting to order at 7:05 a.m. A quorum was present.
Minutes from the November 19 meeting were approved.
Chairman Medin asked for comments about the Recommendations on Planning and
Zoning Matters prepared by the subcommittee consisting of Mike Berendzen, Jim
Crabtree and Janice McMillan. A sheet with 5 recommendations was distributed;
see attached. Recommendation 1, to establish a Planning and Design Committee as
an appeals body, had two options. Option A would be an independent commission of
professionals; Option B would be a commission comprised of city staff department
heads. After considerable discussion, it was decided to include Option A in the final
report. It was felt that Option B would occur anyway and that there would be
broader community support if an independent board was created.
Recommendations 2 Et 4 which recommends the Old Town Revitalization Company
pursue neighborhood plans for "unplanned" areas and establish an awards program
were adopted by the Committee. The Planning Et Zoning Commission and City Council
should adopt the Southside Plan prepared by Arcturis, pursue a strategic plan for the
central business district (Recommendation 2) and create an overlay district for Old
Town (Recommendation 4). Jim Crabtree volunteered to assist Chairman Ron Medin
with the final wording for incorporation into the Final Report.
The Draft Report was reviewed and some comments were made to fine tune it.
Additions to the report include: some incentive or program for adaptive re -use. Melva
Fast will incorporate some ideas into the report. Code Enforcement should be cited in
the report -continue and encourage. Lincoln University and other institutions of higher
learning should be added to the report.
Existing state and federal programs that are available should be cited -TIF, CID, NID,
Chapter 99, Historic Tax Credits. The idea/issue of a Festival District was discussed.
Recommendations on Planning and Zoning Matters
for the Old Town Area
(by Mike Berendzen, Jim Crabtree, Janice McMillan)
1. Establish a Planning and Design Commission as an appeals body for non -zoning matters and
adopt a formal appeals procedure (state statute prescribes zoning matters are appealed to the
Board of Adjustment).
• Option A. Members should be appointed from the professions of architecture,
engineering, building/construction inspection, etc. The Commission would be appointed
by the Mayor, and the Chairman would serve an ombudsman between City departments
and development community. Decisions of the Commission would be appealable to the
City Council. Professional liability insurance requirement issue?
• Option B. The Commission would be comprised of specific City department heads (i.e.,
deputy directors from Community Development) from the fields of building/code
enforcement, public works and planning. Decisions would be appealable to the City
Administrator — then Council committee (Administration or Public Works) — then City
Council.
2. Pursue neighborhood plans for "unplanned" areas... weave applicable solutions from the
Chamber's Strategic Plan into area plans. Pursue rezoning of areas, and other solutions, as
recommended by the subarea and neighborhood plans.
• Adopt the plan for the Southside prepared by Arcturis... by the Old Town Corporation,
Planning & Zoning Commission and City Council.
• Pursue a strategic plan for the central business district to help create a vision for
sustainable improvements, including types of commercial uses, residential
conversions/areas for residential development; historic preservation, design standards,
parking solutions, activities, marketing.
3. Create overlay districts and subdistricts, as applicable, within Old Town to address specific
issues, unique challenges and provide opportunities for solutions in areas of parking, design
standards, historic preservation.
4. Establish an award program within the Old Town Corporation to recognize and uplift good
examples of design, execution and maintenance in areas of rehabilitation, renovation, adaptive
reuse, and infill/new construction.
5. Perfect the communication and cooperation between the Old Town Corporation and City
departments to capitalize on professional expertise and create a framework for active problem -
solving, thus leading to a shared vision for Old Town.
• Appoint deputy directors within the Department of Community Development as advisors
to the Old Town Corporation.
INAL REP(, RT
AD HOC COMMITTEE- O
REVITALIZATION OF OLD TOWN
APRIL 2008
Sky Vic-ty of "Old Town "
,Jefferson City, 310
PRIORITIES AND RECOMMENDATIONS
FROM THE
AD HOC COMMITTEE ON REVITALIZATION
OF OLD TOWN
Foundational Priorities (page 4)
1. Old Town Revitalization Action Center
2. Old Town Development Corporation
3. Target Areas of Old Town for City and Financial Resources
Residential Investment Priorities (page 7)
4. Down Payment Assistance for Residential Purchases in Targeted Areas of Old Town
5. Bank Loans for Residential Purchases in Targeted Areas of Old Town
6. Financial Assistance for Conversion from Multi -Unit to Low Density Rentals
7. Incentives for Neighborhood Improvement Districts
Commercial Investment Priorities (page 10)
8. Incentives for Community Improvement Districts
9. Bank Loans for Commercial Development
10. Tax Increment Financing Districts
Other Recommendations (page 12)
11. Mixed-use Rezoning
12. Vacancy Registration for Properties in C-2 Zoning
13. New Job Creation Incentive
14. Building Codes Specific to Old Town
REPORT OF THE
AD HOC COMMITTEE ON REVITALIZATION
OF OLD TOWN
Introduction
The Ad Hoc Committee on Revitalization of Old Town' was created by vote of the City
Council on December 3, 2007, and its membersZ were appointed by Mayor John Landwehr on
December 17, 2007. The Ad Hoc Committee was charged with investigating ways that the City of
Jefferson might foster investment and revitalization in the Old Town area of Jefferson City, and to
report its findings to the meeting of the City Council on April 7, 2008.
Investment and revitalization contemplates more than the restoration of aging buildings
and infrastructure. The Ad Hoc Committee's overarching objective was to identify initiatives that
together might serve as an economic stimulus package for Old Town and, ultimately, the entire
City of Jefferson. Support of "attractive redevelopment in central neighborhoods" is one of the
seven objectives identified by Market Street Services, Inc. in its Economic Development Strategic
Plan submitted to the Jefferson City Area Chamber of Commerce on October 17, 2006. At the
same time, the Ad Hoc Committee recognized that the City of Jefferson has limited resources and
sought to leverage those resources by focusing on mechanisms that could either be coupled with
existing programs or offered in partnership with other funding sources.
The Ad Hoc Committee met ten times in its three months of existence with most members
The Old Town area was officially designated by a vote of the City Council in the spring of 2007 and is roughly
described as the area within lines running from Dix Road on the west to Stadium Boulevard on the south to
Moreau Drive on the east and then back to the Missouri River on the north.
2 The individuals appointed to serve on the Ad Hoc Committee were Brian Crane, Phil Freeman, Cindy Layton,
Ron Medin, Mark Mehmert, Alan Mudd, Bob Robuck, and Jim Wisch. City Administrator Steve Rasmussen,
Assistant City Administrator Melva Fast, and Finance Director Steve Schlueter have also been active participants
in the Ad Hoc Committee's work.
3 The mission statement adopted by the Ad Hoc Committee at its organizational meeting states: "The Ad Hoc
Committee on Revitalization of Old Town shall explore, gather input from constituent interests, identify and
recommend financial incentives that the City of Jefferson, alone or in combination with other funding sources,
might provide to initiate, sustain and augment investment and revitalization in the Old Town sector of our
community."
in attendance at each meeting. Even though the Ad Hoc Committee included a banker, a realtor, a
representative of the Jefferson City Chamber of Commerce, a commercial developer, a
representative of a local neighborhood associations, and three council persons, it first sought to
broaden the input it received by spending a little over two months meeting with people who had
either invested in the Old Town area or had special expertise in spurring economic activity.4 The
information -gathering culminated in a public hearing on February 28, 2008, in which over twenty
residents participated.5 The Ad Hoc Committee then met four times in March to discuss what it
had heard and to arrive at a consensus of recommended actions in response to its findings.
This report identifies ten priorities for revitalization of Old Town and provides both the
Ad Hoc Committee's rationale for the identified priorities as well as an explanation of how the
initiatives might interact to promote revitalization in Old Town. In addition, the Ad Hoc
Committee submits four recommendations for further study and consideration. These
recommendations involve items not strictly within the scope of the Ad Hoc Committee's mission
statement but the Ad Hoc Committee nonetheless believes they could encourage investment in
Old Town and merit further exploration.
4 Those accepting the invitation to visit with the Ad Hoc Committee included Judge Jon Beetem, Randy Schen,
Darryl Hubble, Juanita Donehue, Ron Dawson, Reggie Walker, and Mark Mathers.
Foundational Priorities
The revitalization of Old Town breaks down into two distinct challenges - promoting
residential investment and spurring commercial redevelopment. These challenges intersect at
some points where they can be commonly addressed, but generally require separate responses.
However, any sustained efforts in revitalizing Old Town first requires a foundation that can
support revitalization independent of the transitory interests of elected officials or the piecemeal
efforts of city staff already consumed in a host of equally pressing matters. Both residential
revitalization and commercial development in Old Town will be advanced by the creation of two
entities which are the Ad Hoc Committee's top two priorities.
#I OLD TOWN REVITALIZATION ACTION CENTER
Nearly everyone who appeared before the Ad Hoc Committee lamented the lack of a
clearinghouse where those interested in investing in or rehabilitating structures could go for
guidance concerning potential sites and available financial assistance. The Ad Hoc Committee
strongly recommends the creation of such a clearinghouse that would not only provide
information but also serve as a counselor and guide through the matrix of available resources.'
The precise organizational outline of the Old Town Revitalization Action Center must
necessarily be left to others, but it should initially be headquartered at the Jefferson City Area
Chamber of Commerce. A single point of entry for interested persons is desirable — even though
some might be interested in commercial development while others might be inquiring about
residential opportunities (or both commercial and residential opportunities). It should be as
simple as possible to contact the Old Town Revitalization Action Center; maintaining separate
portals to access residential and commercial assistance would needlessly complicate the process.
However, it is anticipated that after the initial contact at the Jefferson City Area Chamber of
Commerce the inquiries involving residential revitalization would be forwarded to the City of
Jefferson while Chamber personnel would handle inquiries related to commercial revitalization.
With the possible exception of some reallocation of staff resources and incidental
overhead expenses at both the Jefferson City Area Chamber of Commerce and the City of
Jefferson, the Old Town Revitalization Action Center would not require the appropriation of any
additional funds for its operations.'
5 Articles by reporter Michelle Brooks appearing in March 1, 2008, edition of the News Tribune that summarize
the public meeting are included in Addendum #1.
6 Lists of financial resources presently available to qualifying projects appear on Addendum #2.
7 A project that neatly coincides with this priority is already underway. The City of Jefferson is already working
on a historic preservation manual funded by a state grant that will list available funding sources and programs.
4
#2 OLD TOWN DEVELOPMENT CORPORATION
The informal restructuring of resources at the Jefferson City Area Chamber of Commerce
and the City of Jefferson City to create the Old Town Revitalization Center is not sufficient to
meet the need for sustained revitalization efforts in Old Town. A non-profit corporation should
be created with the sole focus of promoting commercial and residential revitalization in Old
Town.8
The Old Town Development Corporation could be the vehicle for carrying forward
revitalization on several fronts. Among them:
a. Serving as a conduit for state and federal funding for Old Town projects.
b. Serving as a repository for the commercial historic fagade easements that would
make property owners eligible for federal tax deductions (20 U.S.C. Section 170
h) if they restore their buildings to their original facades.9
C. Serving as an umbrella organization to help guide and coordinate the activities of a
variety of business and neighborhood groups already at work within Old Town.
d. As a tax-exempt organization, the Old Town Development Corporation could
independently raise funds to support revitalization efforts in Old Town and could
accept donations of real estate.
e. As it became more financially established, the Old Town Development
Corporation could purchase, develop and sell properties to advance revitalization
in Old Town.
f. At some point the Old Town Development Corporation would assume the
operations of and be responsible for the Old Town Revitalization Action Center.
Most immediately, a board of directors appointed by the Mayor with the approval of the
City Council for an Old Town Development Corporation would bring the City of Jefferson's
imprimatur to revitalization efforts in Old Town. The directors' first task would be
recommending target areas of Old Town where the City of Jefferson's resources would be best be
focused (to be discussed more fully below as Priority #3).
Like the previous priority, creation of the Old Town Development Corporation would not
require any additional outlay of city funds. Although it would initially require the administrative
support of city staff, it would be an independent entity committed to the revitalization of Old
Town.
° Concurrently with the Ad Hoc Committee's work, a consultant working with the Southside Business League
separately concluded that a redevelopment corporation is a necessary tool for Old Town.
9 The tax deductions come from the federal government but the "easement" assuring that the original fagade will
be maintained after it is restored necessarily must be given to a local organization that can monitor the property
owner's observance of the easement. Presently, no local organization fulfills that role in Jefferson City.
5
#3 TARGET AREAS OF OLD TOWN FOR CITY AND FINANCIAL RESOURCES
The Old Town area of Jefferson City is large and the resources available for its
revitalization are limited. Rather than spreading the available resources so thinly that results are
not readily discernible, the Ad Hoc Committee believes that targeting areas and/or properties
within Old Town for focused support will breed the kind of success that will lead to further
successes beyond the targeted areas throughout the rest of Old Town and the City of Jefferson.
The third foundational priority essential to laying the groundwork for Old Town's revitalization
efforts is the designation of a handful of designated target areas that would be the focal points of
financial incentives and support from the City of Jefferson.
The target areas would be designated by the board of directors of the Old Town
Redevelopment Corporation. Criteria should include not only the needs of a particular area but
also the extent to which a neighborhood engages in "self-help" by undertaking its own
revitalization with established plans independent of governmental assistance.
Like the first two foundational priorities for revitalization of Old Town, the designation of
target areas would not require any outlay of city funds. However, designation as targeted areas
would have financial consequences for the areas so designated. A target area would be given
some deference when city officials divide up the available resources for public infrastructure
improvements and code enforcement. A target area would also be eligible for a number of
financial incentives hereinafter described.
0
Residential Investment Priorities
The prototypical residential investor that the Ad Hoc Committee hopes to attract to Old
Town is a young person with a stable income who is probably unable to afford a comparable
home in other areas of town.10 The following programs, alone or in combination with other
incentives, would allow homebuyers in a designated target area to purchase houses of a size and
quality that they could not otherwise afford. In return, Old Town would gain homeowners
interested in improving and preserving their homes who would stabilize the area and improve
property values throughout Old Town. The ultimate returns on the proposed investments would
be an improved tax base for the City of Jefferson and reduced city expenditures for police, fire,
and code enforcement in the former "problem areas" of Old Town.
#4 DOWNPAYMENT ASSISTANCE FOR RESIDENTIAL PURCHASES
IN TARGETED AREAS OF OLD TOWN
This initiative would provide down payment assistance to homebuyers making purchases
in a targeted area of Old Town. A qualifying homebuyer must purchase a house in a target area
built before 1951, must live in the home for five years after purchase, and must bring the house
into compliance with the city codes. The homeowner's obligations would be secured by a
mortgage held by the City of Jefferson that would be forgiven incrementally each year until it was
completely forgiven after five years. This initiative would be capped with a given number of
homeowners receiving down payment assistance per year and would automatically expire after
three years unless extended by the City Council.
#5 BANK LOANS FOR RESIDENTIAL PURCHASES
IN TARGETED AREAS OF OLD TOWN
A would-be homeowner qualifying for down payment assistance from the City of Jefferson
would automatically be considered for a bank loan with more favorable terms than are otherwise
available. The loan would be made by a participating lender chosen by the borrower. The degree
to which local banks participate as well as terms which they would offer to borrowers would be
10 There is no requirement that the persons purchasing house in Old Town be young or that it be their first home
purchase. The prototype merely reflects the Ad Hoc Committee's expectation of who would likely be interested.
left to the marketplace, but in each case a bank loan under this initiative would be linked to the
down payment assistance program. A potential homebuyer that did not qualify for down payment
assistance from the City of Jefferson would not be eligible for a bank loan under this program.
Because the loan program would be linked to the down payment assistance initiative, it also
would be limited to a give number of homeowners each year and would automatically expire after
three years unless extended by the City Council.
#6 FINANCIAL ASSISTANCE FOR CONVERSION
FROM MULTI -UNIT RENTALS TO LOW DENSITY RENTALS
It has become almost an article of faith among policymakers that the goal for Old Town
should be owner -occupied housing and that most problems of code enforcement and substandard
housing can be laid at the doorsteps of landlords trying to squeeze profits out of structures never
intended to be multi -unit rentals. At least one person" appearing before the Ad Hoc Committee
challenged those assumptions and suggested that rental housing will inevitably be part of mix of
residential living in Old Town. The Ad Hoc Committee, too, believes it is unrealistic to expect
that rental housing will completely disappear from Old Town. Nor is it desirable. Responsible
landlords and responsible tenants add to the efforts to revitalize Old Town.
However, it should be a priority to encourage landlords to reduce the number of tenants
living in what were originally built as single-family homes. Financial assistance should be made
available to landlords in targeted areas who will commit to reducing the number of rental units in
houses ill-equipped to accommodate such occupancy rates.
#7 INCENTIVES FOR NEIGHBORHOOD IMPROVEMENT DISTRICTS
Old Town developer Ron Dawson suggested to the Ad Hoc Committee that public
funds applied to target areas be directed primarily to public improvements rather than to
improvement of private properties. Mr. Dawson reasoned that the increased market values
achieved by improving a private property might be realized by a single owner who might quickly
sell the property — taking the profit and city's investment out of Old Town. In contrast, public
improvements like sidewalks or street lighting also improve neighborhoods but remain even after
turnover in private ownership of property.
Mr. Dawson's suggestion should be taken a step further by encouraging mechanisms for
self-help already available to neighborhoods. Rather than arbitrarily funding public improvements
in selected areas, the City of Jefferson should reward those areas demonstrating a commitment to
contributing funds for own their public improvements. Two programs already authorized by state
statutes are available to neighborhoods wishing to engage in self-help — Neighborhood
Improvement Districts in residential neighborhoods and Community Improvement Districts for
commercial areas (to be discussed more fully below). Both of these special benefit districts allow
11 Judge Jon Beetem
8
neighbors to assess or tax themselves for common improvements and services within their
districts.
This self-help should be encouraged with an incentive offered by the City of Jefferson in
which city property taxes collected within an area which has created a Neighborhood
Improvement District would be earmarked for public improvements in that same area for a given
number of years following creation of the Neighborhood Improvement District. The City of
Jefferson would match the money spent by the Neighborhood Improvement District dollar for
dollar but only to the extent of the city property taxes collected within the district. The
Neighborhood Improvement District could not sit on the money indefinitely; after a prescribed
number of years the earmarked property taxes collected within the Neighborhood Improvement
District would no longer be restricted and would be available for use by the City of Jefferson in its
sole discretion.
Commercial Investment Priorities
Commercial development which might seem out of place in outlying residential
neighborhoods is desirable in most areas of Old Town. Part of the appeal of Old Town for
would-be residents is the ready access to shopping, entertainment, schools and churches within
walking distance. It is a symbiotic relationship — retail establishments require nearby residents for
regular patronage while residents require establishments to patronize. Consequently, the Ad Hoc
Committee suggests the following priorities to foster commercial development.
#8 INCENTIVES FOR COMMUNITY IMPROVEMENT DISTRICTS
A mechanism similar to that discussed immediately above for Neighborhood Improvement
Districts should also be available to encourage the creation of Community Improvement Districts
for commercial neighborhoods. Like Neighborhood Improvement Districts, the mechanism
permitting creation of Community Improvement Districts already exists. In fact, one area has
already has already formed a Community Improvement District 12 and its members are taxing
themselves to pay for public improvements in their area. The Ad Hoc Committee was told at its
public meeting on February 28, 2008, that another group of property owners situated along
Capitol Avenue is also interested in the concept. 13
Incentives to create Community Improvement Districts would again take the form of
earmarked tax dollars being applied on a matching funds basis to public improvements within a
target area for a limited number of years following creation of the Community Improvement
District. This approach allows a "leveraging" of public funds far beyond what they might
otherwise achieve if merely appropriated to fully fund public improvements within the target
areas.
#9 LOAN PROGRAM FOR COMMERCIAL DEVELOPMENT
For many years the State of Missouri has promoted economic development in targeted
areas with a program administered by the State Treasurer's office in which state funds deposited
with a participating bank earn a reduced rate of interest and, in turn, the bank lends money at a
reduced rate of interest to a borrower engaged in the activity the State of Missouri wants to
encourage. The deposit made by the State of Missouri is equal to the amount of the loan. Put
another way, the state deposit earning a reducing rate of interest "buys down" the interest rate on
the loan to the borrower. There is no guarantee of the loan by the State of Missouri. No state
12 Southside Munichburg Community Improvement District
13 Comments of Steve Veile of the newly -formed Capitol Avenue Landmark League.
10
funds are at risk. The state cost is the reduction of interest it would have otherwise received for a
deposit accruing interest at market rates.
The model of the state program can be adopted and modified by the City of Jefferson to
spur commercial development in Old Town. Rather than a direct outlay of city funds to
commercial developers, the City of Jefferson could leverage some of its available resources to
encourage local banks to make loans for commercial development within Old Town on more
favorable terms than would otherwise be available for such commercial projects. The City of
Jefferson's only involvement would be to make a deposit in the amount of the loan which would
accrue interest at something less than the market rate. The city money would be deposited with
the participating lender for five years or for the term of the loan, whichever is shorter. The City
of Jefferson's expenditure on the program would be limited to the difference between the lower
interest rate its deposits accrue in exchange for the more favorable bank loans and the interest rate
those deposits would have otherwise earned. The number of loans and consequently the number
of low interest deposits should be capped so that the reduced interest income for the City of
Jefferson would not exceed a given amount in any fiscal year.
#10 TAX INCREMENT FINANCING DISTRICTS
Tax increment financing (TIF) can be controversial and has not been readily accepted by
the local community. But TIF has its place and Old Town might just be it. TIF is a tool to use
future gains in taxes to finance the current improvements that will generate those gains. When a
public project is carried out, there is an increase in the value of surrounding real estate and often
further investment and development by the private sector. The increased site value and investment
create more taxable property, which increases tax revenues. The increased tax revenues are the
"tax increment" that is dedicated to finance the debt issued to pay the initial public project.
Old Town appears to be just the sort of venue for which TIF is intended and could allow
funding for public projects that would not otherwise occur. It should be noted that while TIF
districts are often based on property tax revenues, it is also possible to use increased sales tax
revenues to repay TIF financing or to apply both increased property tax and sales tax revenues to
repayment. Presently, TIF authority resides with the Housing Authority of Jefferson which has
used it sparingly. This is an under-utilized tool that could play a significant role in the
revitalization of Old Town.
11
Other Recommendations
Inevitably the discussions of how best to stimulate economic development in Old Town
led to subjects not strictly within the purview of the Ad Hoc Committee's mission statement.
While the Ad Hoc Committee does not believe it has authority to identify the following items as
priorities, it nonetheless considers them to be potentially valuable tools and worthy of further
consideration.
#11 MIXED USED REZONING
Development over nearly two centuries in Old Town has been a haphazard affair with
commercial, residential, entertainment, and public properties all existing within a stone's throw of
one another. That is not necessarily undesirable and might even be viewed as among the potential
attractions of Old Town. Still, current zoning ordinances are ill-suited to assuring that property
owners in mixed-use areas can co -exist and prosper together.
City planning officials should re-evaluate all areas within Old Town currently zoned C-2 to
determine whether they might better be served with a new zoning category called "Mixed Use
Zoning". Mixed Use Zoning would strive to accommodate residential, commercial and
entertainment components. It would allow for the preservation of historic buildings, new
construction compatible with existing buildings, and on -street and shared off-street parking where
possible. Further conversion of older homes into multi -unit rentals would be discouraged by
minimum living space standards and by requirements for off-street parking.
#12 VACANCY REGISTRATION
A disturbing trend within Old Town has been the willingness of some commercial property
owners to allow their buildings to sit idle as they wait for the rising tide of economic development
to improve their property values. This has a number of negative results including increased
oversight by police, fire and code enforcement and a general "dragging down" of the
neighborhoods where these properties sit vacant.
Don Trabue appeared before the public meeting on February 28, 2008, and described
another community's "use it or lose it" approach towards vacant properties where property
owners were given the option of either improving their properties or risking condemnation. The
Ad Hoc Committee would not suggest a similar approach, but believes a requirement that vacant
properties within C-2 zoned areas of Old Town be registered should be studied further.
An owner of a building might be required to register if the property sits vacant for more
than six months. Registration could include completion of a vacant building form, a plan to
maintain the building's exterior, and registration fee. The registration would be renewed annually
12
for as long as the building remained vacant. Registration would not only discourage vacant
buildings and recoup some of the city's administrative expenses in dealing with them, it would
also provide a registry of potentially available properties to anyone interested in investing in Old
Town that could be maintained at the Old Town Revitalization Action Center.
#13 NEW JOB CREATION INCENTIVE
The Jefferson City Area Chamber of Commerce is not an agency of the City of Jefferson
and has its own priorities and obligations to its membership. However, the local chamber receives
financial support from city and county governments to foster economic development. Moreover,
a key objective of the Economic Development Strategic Plan prepared by Market Street Services,
Inc. for the Jefferson City Area Chamber of Commerce was to "foster greater entrepreneurial
spirit". In furtherance of that objective, the Ad Hoc Committee encourages the Jefferson City
Area Chamber of Commerce to consider incentives it might provide to businesses creating new
jobs and retail opportunities within the Old Town.
#14 BUILDING CODES SPECIFIC TO OLD TOWN
Renovation of older structures built before the advent of modern building codes can be
complicated by strict adherence to such standards. The Ad Hoc Committee is informed that strict
compliance may be waived on a case by case basis by code enforcement, but suggests that a less
arbitrary and more comprehensive approach might be achieved by an alternative building code
within Old Town. Uniform codes applicable to older structures have promulgated by nationally -
recognized authorities. While the Ad Hoc Committee does not propose anything that would
undermine the safety and soundness of structures in Old Town, the possibility that those goals
might be achieved with less expense by property owners is worthy of further investigation.
13
Conclusion
Revitalization of Old Town is a serious matter and is a key to the economic prosperity of
the entire community. As noted in the Economic Development Strategic Plan by Market Street
Services, Inc. dated October 17, 2006, "[a] downtown area is the heart and soul of a community —
it can embody the overall characteristics of a city..... A thriving downtown requires a public and
private commitment to developing a dynamic area for residents, visitors and businesses." The Ad
Hoc Committee appreciated the importance of the task to which it was assigned and spent many
hours working to arrive at the priorities and recommendations discussed in this report.
At the same time, the Ad Hoc Committee is mindful that its work is advisory only. It has
no authority or responsibility for setting policy, enacting legislation, or appropriating public funds.
These findings and recommendations provide a framework for addressing issues long neglected so
that Old Town might reclaim its place as a vital and vibrant center of our community. It is now
incumbent upon the City of Jefferson to act. This report should be referred to the City Council's
Administration Committee for further study and implementation of the priorities identified herein.
14
ADDENDUM #1
Entrepreneurs look for guidance
with Old Town efforts
By Michelle Brooks
mbrooks@newstribune.com
At the south end of Old
Munichburg, a typical,
German -built brick building
stood vacant for nearly 30
years.
Then, young entrepreneur
Gloria Baker came along with
the dream of opening her own
business.
She had the client base and the
Jefferson Street building wasn't
contributing to the tax rolls.
i ne 1 nerapeutic I ouch Wellness Center on Jefferson Street
is a historic building that has just been renovated and put to
But problems arose when she a new use. (Stephen Brooks/News Tribune photo)
sought funding for the project,
when city codes based on
modern construction hampered the rehabilitation of the older structure, and
when access to her newly -opened business was blocked by construction
crews repairing the Jefferson Street bridge.
Her business is open. But with these setbacks, Baker is concerned whether
she will remain in business, much less complete the building's rehabilitation.
"I think I've done a great service and added economic development," Baker
told the city's ad hoc committee on Old Town revitalization Thursday. "But I
didn't know where to go (for help)."
Baker's story is not isolated. Others would like to pursue their dream to
renovate an older building but don't know where to begin.
That is the dilemma the Old
Town revitalization committee
hopes to address. Baker and others shared their stories as part of the
committee's public hearing Thursday.
Committee wants to promote
revitalization in the area
By Michelle Brooks
mbrooks@newstribune.com
More than 20 property owners within the Old Town boundaries
attended a public forum hosted Thursday by the city's Ad Hoc
Committee on Old Town Revitalization.
The committee is charged with investigating and making recommendations
to the City Council about pursuits that would promote investment and
revitalization of the Old Town area, from Dix Road to Stadium Boulevard to
Moreau Drive and back to the Missouri River.
Those who spoke said they appreciated the city taking an interest in the
older neighborhoods and the problems they face.
The recurrent theme seemed to be infrastructure improvements.
From East Capitol Avenue to Ash Street to Old Munichburg, sidewalks, curbs,
gutters and lighting seem to be essential to provide a sense of safety and
pride.
Once that is improved, those who spoke agreed that property owners
probably would take a greater interest in their own properties.
The recently -formed Capitol Avenue Landmark League believes the
extension of the downtown's historic lighting and sidewalk improvements will
be essential to maintaining and improving their historic area.
That group is interested in learning more about forming a community
development district to place an additional tax on properties in the area for
the purpose of funding those improvements, said member Steve Veile.
"East Capitol - most people can agree - is a pretty historic area," Veile said.
"We'd like to see that maintained."
A companion issue to the infrastructure improvement would be increased
code enforcement.
Other troubles include low-income housing, apathetic landlords or renters,
high vacancy rates, a perception of crime, fear of assessed valuation
exceeding the investment.
Suggestions for the committee's consideration included:
* Targeting specific neighborhoods for infrastructure improvements.
* Offering specific help to those wanting to open small businesses in the
older neighborhoods.
* Market the older neighborhoods to potential homeowners in their 20s and
30s.
* Develop an incentive program for city staff to renovate and live in the
older neighborhoods.
* Make better use of the city ordinances for neighborhood overlay districts
and historic conservation districts.
* Better public education about the development progress in the east side
and on the Missouri State Penitentiary site.
* Establish an aggressive plan for property owners to either fix, sell or
demolish deteriorating properties.
* Modify city codes for repairs and renovations to older homes to alleviate
unnecessary expenses in retrofitting modern standards.
* Maximize use of Channel )CTV channel 3.
* Explore funding streams available through the Housing and Urban
Development for cultural institutions.
* Enlist the help of community service organizations like the Boy Scouts to
volunteer to help paint deteriorating front porches.
* Encourage the conversion of multi -family dwellings back to single family.
The committee is charged with investigating and making recommendations
to the City Council pursuits that would promote investment and revitalization
of the Old Town area, roughly Dix Road to Stadium to Moreau and back to
the Missouri River.
Baker's plight added validity to the committee's purpose, said
committeeman Alan Mudd.
"We need to know this kind of information, what's keeping people for doing
the work," Mudd said. "We applaud what you've done. Hopefully, we can
come up with things that could help you and others."
Chairman Ron Medin noted a top consideration for the committee has been a
clearinghouse of information, one location where potential developers of
older properties may go to find out what resources are available.
The city recently received a State Historic Preservation grant, allowing it to
create a how-to manual for historic rehabilitation with local success stories
and contact information for tax credits, other funding streams and materials.
"The problem is each problem is unique," said committeeman Mark
Mehmert. `There's no one -size -fits -all solutions."
ADDENDUM #2
EXISTING FINANCIAL RESOURCES AVAILABLE
TO QUALIFYING PROJECTS
Commercial Projects
- 20% Federal program for certified historic structures
- 10% Federal program non -certified, pre -1936 structures;
- 25% State program for certified historic structures;
- $10,000 Federal & State disabled access credits;
- Facade easement for charitable contribution;
- Tax Reimbursement Program for Commercial facades
w/$25,000 low interest loans from banks;
Free parking for downtown residents.
Residential Projects
- 20% Federal program for certified historic structures
- 10% Federal program non -certified, pre -1936 structures;
- 25% State program for certified historic structures;
- $5,000 Code Deficiency Program-LNH;
- Five-year Tax Reimbursement Program for vacant/rentals
converted to owner -occupied;
- UMB Low Interest Loans; _
- Free parking for downtown residents.
- Neighborhood Preservation Tax Credits
- Facade Program encourages upper floor
- Overlay districts
Neighborhood Watch/Community Action Team