AN ADVISORY SERVICES PANEL REPORT Avenida Guadalupe San ... · Advisory Services panel report is intended to pro- ... (AGA) board member Theresa De La Haya, AGA Executive Director

A N A D V I S O R Y S E R V I C E S P A N E L R E P O R T

Avenida GuadalupeSan Antonio, Texas

Urban LandInstitute$

Avenida GuadalupeSan Antonio, TexasA Redevelopment Plan

February 6–11, 2005An Advisory Services Panel Report

ULI–the Urban Land Institute1025 Thomas Jefferson Street, N.W.Suite 500 WestWashington, D.C. 20007-5201

An Advisory Services Panel Report2

ULI–the Urban Land Institute is a non-profit research and education organiza-tion that promotes responsible leadership in the use of land in order to enhance

the total environment.

The Institute maintains a membership represent-ing a broad spectrum of interests and sponsors awide variety of educational programs and forumsto encourage an open exchange of ideas and shar-ing of experience. ULI initiates research that an-ticipates emerging land use trends and issues andproposes creative solutions based on that research;provides advisory services; and publishes a widevariety of materials to disseminate information onland use and development.

Established in 1936, the Institute today has morethan 26,000 members and associates from 80 coun-tries, representing the entire spectrum of the landuse and development disciplines. Professionals rep-

resented include developers, builders, propertyowners, investors, architects, public officials,planners, real estate brokers, appraisers, attor-neys, engineers, financiers, academics, students,and librarians. ULI relies heavily on the expe-rience of its members. It is through member in-volvement and information resources that ULIhas been able to set standards of excellence indevelopment practice. The Institute has long beenrecognized as one of America’s most respectedand widely quoted sources of objective informa-tion on urban planning, growth, and development.

This Advisory Services panel report is intendedto further the objectives of the Institute and tomake authoritative information generally avail-able to those seeking knowledge in the field ofurban land use.

Richard M. RosanPresident

About ULI–the Urban Land Institute

©2005 by ULI–the Urban Land Institute1025 Thomas Jefferson Street, N.W. Suite 500 WestWashington, D.C. 20007-5201

All rights reserved. Reproduction or use of the whole or anypart of the contents without written permission of the copy-right holder is prohibited.

ULI Catalog Number: ASSO89

Cover and text photos by Carol M. Highsmith

San Antonio, Texas, February 6–11, 2005 3

The goal of ULI’s Advisory Services Programis to bring the finest expertise in the realestate field to bear on complex land use plan-ning and development projects, programs,

and policies. Since 1947, this program has assem-bled well over 400 ULI-member teams to helpsponsors find creative, practical solutions forissues such as downtown redevelopment, landmanagement strategies, evaluation of develop-ment potential, growth management, communityrevitalization, brownfields redevelopment, militarybase reuse, provision of low-cost and affordablehousing, and asset management strategies, amongother matters. A wide variety of public, private,and nonprofit organizations have contracted forULI’s Advisory Services.

Each panel team is composed of highly qualifiedprofessionals who volunteer their time to ULI.They are chosen for their knowledge of the paneltopic and screened to ensure their objectivity.ULI panel teams are interdisciplinary and typi-cally include several developers, a landscapearchitect, a planner, a market analyst, a financeexpert, and others with the niche expertiseneeded to address a given project. ULI teamsprovide a holistic look at development problems.Each panel is chaired by a respected ULI mem-ber with previous panel experience.

The agenda for a five-day panel assignment is in-tensive. It includes an in-depth briefing day com-posed of a tour of the site and meetings with spon-sor representatives; a day of hour-long interviewsof typically 50 to 75 key community representa-tives; and two days of formulating recommenda-tions. Many long nights of discussion precede thepanel’s conclusions. On the final day on site, thepanel makes an oral presentation of its findingsand conclusions to the sponsor. A written reportis prepared and published.

Because the sponsoring entities are responsiblefor significant preparation before the panel’s visit,including sending extensive briefing materials toeach member and arranging for the panel to meetwith key local community members and stake-holders in the project under consideration, partic-

ipants in ULI’s five-day panel assignments areable to make accurate assessments of a sponsor’sissues and to provide recommendations in a com-pressed amount of time.

A major strength of the program is ULI’s uniqueability to draw on the knowledge and expertise ofits members, including land developers and own-ers, public officials, academicians, representativesof financial institutions, and others. In fulfillmentof the mission of the Urban Land Institute, thisAdvisory Services panel report is intended to pro-vide objective advice that will promote the re-sponsible use of land to enhance the environment.

ULI Program StaffRachelle L. LevittExecutive Vice President, Policy and Practice

Mary Beth CorriganVice President, Advisory Services and Policy Programs

Nancy Zivitz SussmanSenior Associate, Advisory Services

Nicholas GabelAssociate, Advisory Services

Jason BellPanel Coordinator, Advisory Services

Yvonne StantonAdministrative Assistant

Nancy H. StewartDirector, Book Program

Laura Glassman/Publications ProfessionalsManuscript Editor

Betsy VanBuskirkArt Director

Martha LoomisDesktop Publishing Specialist/Graphics

Kim RuschGraphics

Diann Stanley-AustinDirector, Publishing Operations

About ULI Advisory Services


The ULI panel would like to extend its spe-cial thanks to San Antonio Mayor EdwardD. Garza for supporting the proposal tobring a ULI Advisory Services panel to the

city of San Antonio to focus on the redevelopmentof Avenida Guadalupe. The panel also recognizesDistrict 5 Councilwoman Patti Radle, who spear-headed this effort for her community and was par-ticularly generous with her time, as were mem-bers of her council office staff (Santiago Garcia,Lourdes Rodriguez, Cecilia Rodriguez, JenniferCantu), and former Mayor Henry Cisneros. Thepanel also thanks Rolando Bono, interim city man-ager, and Jelynne LeBlanc Burley, assistant citymanager, both of whom met with the panel toshare their views. Burley served as a liaison be-tween the planning department staff, headed byEmil Moncivias as director, and Neighborhood andUrban Design Manager Nina Nixon-Méndez, andthe city council. Considerable time was spent withDavid Garza, director of the Neighborhood ActionDepartment, and the panel thanks him for his timeand input, along with that of his staff. ULI appre-ciates the city of San Antonio’s confidence in theAdvisory Services Program, which has sponsoredseveral other panel studies for the city.

ULI’s primary Planning Department contacts—Christine Viña, special projects coordinator, andAndrew Holubeck, planner II—were responsiblefor preparing the panel application and briefingmaterials, organizing the study area tour, schedul-ing interviews with key stakeholders, and arrang-ing for the presentation. These components of theprocess all serve to assist the panel in addressingthe issues and functioning efficiently within a lim-ited time period. The panel gained significant in-sights from the briefing materials and the exten-sive bus and walking tour along AvenidaGuadalupe and its surroundings.

Special thanks go to the many community repre-sentatives, including Dr. Jesse Zapata, Universityof Texas at San Antonio vice provost for the down-town campus; Avenida Guadalupe Association(AGA) board member Theresa De La Haya, AGAExecutive Director Roger Carrillo, and AGA staffmembers Manuel Leal and Carlos Aguirre; SylviaZamarripa and Fr. Martin Elsner of the SocialJustice Committee of Our Lady of GuadalupeCatholic Church; Graciela Sanchez of MujerArtes/Esperanza Peace and Justice Center; staff of theof the Guadalupe Cultural Arts Center and the-ater, including Maricela Espinoza-Garcia and PedroRamirez; the University Center for CommunityHealth; and Victor Azios of the Annie E. CaseyFoundation.

In addition, the panel would like to thank theneighborhood residents and business owners;local housing providers and developers; arts, cul-tural, and preservation organization representa-tives; numerous community development orga-nizations; representatives from the San AntonioIndependent School District; and planners fromVIA Metropolitan Transit.

In all, the panel had the opportunity to interviewmore than 70 area stakeholders, all of whom pro-vided useful information. These interviewees in-cluded representatives from many of the organiza-tions mentioned above. Their individual perspectiveswere crucial to the panel process. These stake-holders serve as a major asset for advancing andmaintaining the interests of this community.

Acknowledgments


ULI Panel and Project Staff 6

Foreword: The Panel’s Assignment 7

Overview and Summary of Recommendations 10

Market Potential 12

Planning and Design 17

Development Strategies 26

Implementation 33

Conclusion 41

About the Panel 43

Contents


Panel ChairRichard J. DishnicaPresident, The Dishnica Company, LLCPoint Richmond, California

Panel MembersGuillermo AguilarPresident, Aguilar & AssociatesDana Point, California

Cesar Garcia-PonsSenior Associate, EDAW, Inc.Miami Beach, Florida

Anish KumarAssociate Principal, Hillier ArchitecturePhiladelphia, Pennsylvania

Mary MillerDeputy Director, Downtown Norfolk CouncilNorfolk, Virginia

Sue SouthonPrincipal, Strategic Planning ServicesDetroit, Michigan

Nathan WatsonPresident, Watson DevelopmentsNew Orleans, Louisiana

Walter Winius, Jr.Managing Director, Integra Winius Realty Ana-lystsPhoenix, Arizona

ULI Project DirectorNancy Zivitz SussmanSenior Associate, Advisory Services

ULI On-Site CoordinatorJason BellPanel Coordinator, Advisory Services

ULI Panel and Project Staff


Avenida Guadalupe is the main east-westcorridor serving the study area and con-necting the neighborhood to downtownSan Antonio. This neighborhood was in-

cluded in the original 36-square-mile area definingthe city of San Antonio in the charter of 1837. Ithas long been the heart of the Hispanic commu-nity and contains the institutions that reflect therich cultural heritage of its population. The neigh-borhood was a popular place of settlement, par-ticularly for Mexican immigrants, when politicalturmoil during the Mexican Revolution led to in-creased migration and the availability of afford-able housing could accommodate the majority ofimmigrants. In spite of generally poor living con-ditions, the area became the cultural center of thecommunity in the 1920s, when life centered aroundOur Lady of Guadalupe Parish Church and School.By the mid-1940s, with the development of restau-rants and theaters, the area became well known asthe civic and cultural center of the Hispanic com-munity. The first federally funded public housingproject in the country, the Alazan Apache, wasbuilt in the area during that time.

Existing ConditionsAlthough conditions have improved in the AvenidaGuadalupe area, it continues to be confronted bya host of social, physical, and economic challenges.Many commercial buildings along the corridor aredeteriorated, and pockets of substandard housingexist throughout the area. Crime and vandalismare major concerns.

In 1979, the Avenida Guadalupe Association (AGA)was incorporated to bring community memberstogether in an effort to revitalize the neighbor-hood and encourage economic growth while pro-tecting the distinctive quality of the neighborhoodand the personality of the Avenida Guadalupe. Asthe local community development organization,AGA has been successful in securing private and

Foreword: The Panel’s Assignment

public grants, resulting in an impressive array ofstudies and building projects.

Today, the corridor consists primarily of smallneighborhood uses and some single-family homes.Near the eastern edge of the corridor at the inter-section with South Brazos Street is a cluster ofcommunity, cultural, and office uses in newly con-structed and rehabilitated buildings. A small busi-

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ness incubator program, an office building, acommunity plaza, a theater, and a cultural artscenter are concentrated there, where the vitalityof the neighborhood can be experienced. Thesebuildings and their uses resulted from the effortsof AGA.

At the western edge of the corridor is South Zar-zamora Street, the major north-south commercialcorridor for the Avenida Guadalupe neighborhood.Just north of the intersection is the UniversityCenter for Community Health—Texas DiabetesInstitute. This new complex provides space fordiabetes research as well as for education andtreatment. The facility epitomizes economic de-velopment and serves as a major economic enginein this part of the city. The approximately 300 em-ployees and annual clinic visitors provide demandfor improved services in the area. The intersectionof South Zarzamora Street and Avenida Guadalupe,a short distance to the south, is anchored by fast-food restaurants, a meat market, and a gas sta-tion. Over time, this area has potential to evolveinto an upgraded commercial district.

Between these two nodes of development—theUniversity Center for Community Health andthe Guadalupe cultural arts/community facilitiesarea—lies an area of small neighborhood restau-rants and shops interspersed with single-familyhomes. Many of the buildings are in need of repair,and some of the current uses, such as auto repairshops and bars, are inappropriate for this corridor.Apparently, residents want to return to the com-munity but hesitate because of the lack of basicservices and market-rate housing. Although someof the small businesses are certainly struggling,others have remained for generations, indicatinga strong sense of pride in the community.

In 1998, AGA, in partnership with the Division ofArchitecture and Urban Design of the Universityof Texas at San Antonio (UTSA), created the 2020Master Plan for the Avenida Guadalupe area. Theplan included a number of potential developmentinitiatives. UTSA, located just east of the studyarea, provides the other major economic genera-tor and anchor in this part of the city. With theUniversity Center for Community Health, thesetwo area facilities enjoy a regional draw. UTSA

has the potential to grow and further influence fu-ture development in the study area.

The AssignmentThe city of San Antonio, under the direction ofMayor Ed Garza and the city council, asked theULI Advisory Services panel to help develop acorridor plan for Avenida Guadalupe. Develop-ment strategies were to reflect the desires ofneighborhood residents, offering revitalizationwithout displacement. Analysis of various marketsegments would be undertaken to determine mar-ket potential of the area, with particular emphasison building upon the area’s special characteristics.The panel was asked to recommend improvementsnecessary to promote development while safe-guarding the historic fabric of the Hispanic com-munity. Financing and incentives to encouragegrowth and fund investment were to be identifiedwithin the context of a redevelopment strategy.The panel was also asked to consider how connec-tions to the downtown area might be improved.

A broader question is whether planning and eco-nomic development can begin to address the so-cial issues in the area. Given that the population isprimarily unskilled, job opportunities are limited.Economic development is needed to provide newjob opportunities for the population. Many resi-dents travel downtown to work in the hospitalityindustry or north to the suburbs to provide do-mestic help. Crime, teenage pregnancy, drugs,diabetes—issues that generally accompany poverty—must be taken into consideration because theseills negatively affect the perception of the area,thereby limiting private development interest.

Community stakeholders hope to revitalize theneighborhood while exhibiting sensitivity for itscultural heritage. Although code enforcement isavailable as a strategy, the bigger question iswhether to renovate or demolish. That questionleads to the issue of relocation. The panel recog-nized the importance of these issues—particularlybecause many Mexican Americans claim longtimeroots in the Westside.

In an effort to attract private sector investmentand market-rate housing, relying on the preva-lent, existing cultural arts and Hispanic heritage


to draw interest in the area is a reasonable strat-egy. Providing “move-up” quality housing, so thatmore residents will remain in the community aftertheir income levels begin to rise, was presented asa priority that will help spur economic develop-ment activity. The community would like to see anincrease in the supply of quality housing products.The potential of land assemblage for larger devel-opment opportunities should help increase privatedevelopment interest. New development must re-store the historic pattern that has been lost inmany sections of the community.

Specific problems were identified by the sponsorand noted as priorities for the panel to address.Infrastructure development is needed to improvethe streetscape and address issues of drainageand flooding. Circulation problems caused byone-way streets, together with the effect of a highconcentration of public housing, need to be reme-died. Even new housing “turns its back” on thecorridor, developed instead behind walls and fenc-ing and thus providing no benefit to the street-scape. These factors affect the dynamic of theneighborhood.

Stakeholders recognize the need to provide agreater diversity of housing in the area and en-courage more small business development. Inaddition, the community believes a need existsfor more recreational facilities. Improved ser-vices and facilities, as well as upgraded housingconditions and business opportunities, will helpaddress the issue of a transient population. Resi-dents whose incomes rise tend to leave the area.Many stakeholders consider housing to be the is-sue that will turn the area around, but some fearincreased housing prices may lead to displace-ment. Other stakeholders consider commercialrevitalization as a more viable solution.

The panel was asked to consider the preceding is-sues. In formulating its recommendations for revi-talization, the panel reviewed the briefing materi-als, toured the study area, interviewed more than70 stakeholders, and had conversations with manymore members of the community. This report pre-sents the panel’s findings.

This beautiful mosaic is the work of local artist Jesse Trevino and serves as an iconfor the neighborhood.


those who would like to either relocate or returnto the neighborhood.

The panel prepared planning concepts that inten-sify commercial activity at two nodes on both endsof the study area along Avenida Guadalupe: one atthe intersection of South Zarzamora Street andthe other at South Brazos Street. The panel rec-ommends linking these two nodes along the corri-dor and designates this area as a ConservationDistrict. The focus should be on providing a mix ofhousing with the potential for neighborhood com-mercial uses at various other intersections; devel-opment will evolve as market demand increases.New infill housing within the blocks should be com-patible with the existing scale and style of currentbuildings. Mixed-income housing, with some sin-gle-family detached and some shotgun styled, withor without an expansion, can provide additionalhousing along the corridor and begin to fill in someof vacant parcels along the frontage of AvenidaGuadalupe. Small businesses providing conve-nience goods and services for the neighborhoodshould accompany new housing development.

Proposed development strategies show how to in-tensify development at the commercial nodes andhow to improve the existing housing stock in thehost environment—the area north to DurangoStreet and bordered by the Apache and Alazancreeks. Illustrations of various types of new resi-dential housing are included that can serve the di-verse needs of the community including clean,safe, and affordable housing.

The key implementation strategy proposed bythe panel to facilitate these changes is the estab-lishment of a new organizational entity—the Ave-nida Guadalupe Community Action Committee(AGCAC). This entity is modeled on the previousULI Advisory Services panel proposal for theEastside. This panel not only concurs with thepotential effectiveness of the community actioncommittee but also believes it will simplify the

Avenida Guadalupe is a neighborhood in tran-sition. In fact, it is a neighborhood that hasalways been in transition. When the firstworkers located here in housing built by

the lumber company, known as “shotgun houses,”the physical conditions were very different. Flood-ing occurred regularly. If a homeowner missed ahouse payment, that family was displaced. No dis-cretion was allowed in dealing with individualsituations, resulting in virtually no support forhomeowners.

Nevertheless, workers and their families sur-vived. Many of these primarily immigrant andfirst-generation Mexican-American families be-gan to thrive; however, as their economic situa-tions improved, they moved out of the neighbor-hood. As these families moved out, new familiesmoved in. Many were new immigrants comingacross the border from Mexico. In this way, thearea’s Hispanic fabric was born, giving the Ave-nida Guadalupe neighborhood its history and itssense of pride. Many of the former residents ofthe neighborhood have fond memories of grow-ing up here, and some long to return.

To facilitate revitalization of the area in light of itshistory of continuous transition, the city asked theULI Advisory Services panel to evaluate the cur-rent situation and give an unbiased, independentreview of the development potential of this com-munity. The panel identified the area’s assets andliabilities and formulated recommendations to helpthe community establish a vision for the future.

Formulation of these strengths and weaknesses isdesigned to identify and build upon the strengths.The panel’s goal is to provide ideas that will en-able the stakeholders of this area to move forwardin harmony as a community. This type of commit-ment by the community’s stakeholders can facili-tate the changes necessary to accommodate theneeds of residents and business owners as well as

Overview and Summary ofRecommendations


Many of the buildings inthe area have been deco-rated with elaboratemurals.

Left and below left: Thesmall neighborhood busi-nesses reveal their char-acter in their artistic exte-riors. The barbershopprovides a needed ser-vice, and the Tacos andMore restaurant is one ofseveral eating establish-ments in the neighbor-hood.

process and strengthen redevelopment initiatives.The organization is distinguishable from a non-profit in that it is intended to serve as a task force,established to serve temporary development needs.Its effectiveness should be reevaluated on an an-nual basis.

The AGCAC should be established by an ordi-nance of the San Antonio City Council. Composi-tion of the group, as recommended by the panel,should be specified by the council, and partici-pants will serve on a voluntary basis. The AGCACshould be charged with creating a strategic actionplan, establishing priorities, and securing funding.The plan should be presented to the city councilfor endorsement, and periodic progress reportsshould be required. The plan should be an overalldevelopment strategy for the area. A designated“champion” should be chosen from among thecommittee members. This person will be the li-aison between AGCAC and the council. Staff as-sistance should come from public agencies work-ing as a team to provide input and assistance andguarantee that all agencies are on board. A pro-gram manager should be designated in the city’sNeighborhood Action Department to lead thisteam.

In addition, the AGCAC should have input intothe planning and review process of prospectivepublicly funded projects. The panel hopes that theAGCAC can achieve its purpose of bringing to-gether the diverse community interests to focuson the needs of the area. The panel believes in thepotential for redevelopment of this area and rec-ommends the community-based organization de-scribed to spearhead redevelopment.


The Avenida Guadalupe community is rich inhistory and proud traditions. It is a cradle ofHispanic migration into the United States,where thousands of Mexican Americans

claim their roots and share fond memories of thisimportant passage. The rich heritage of the com-munity is of world-class proportion.

The panel was consistently impressed with thepride the residents and expatriates express in theAvenida Guadalupe community. The strength ofthe area’s citizens and organizations and theircommitment to the community’s success are im-pressive. The caring and achievements of a widerange of locally based organizations are a reflec-tion of community pride.

Community AssetsBecause so many members of San Antonio’s His-panic population claim roots in the Avenida Gua-dalupe area, there are strong connections to fam-ily, friends, and the place itself. This factor isprobably the single greatest strength of the area,and it gives the community a competitive advan-tage in capturing its share of economic growth.

Recent developments have brought new economicgrowth engines to the east and the west of Ave-nida Guadalupe. The University of Texas at SanAntonio’s downtown campus in the CattlemenSquare area to the east, and the University Cen-ter for Community Health to the west, have beenadded to the community in the last few years,bringing employees, students, visitors, and addi-tional spending into the edges of the area.

The area’s proximity to downtown is a significantasset, providing access to employment and trans-portation through a sufficient street network withreliable bus service. This linkage also provides apotential for connection to the city’s 20 million an-nual visitors.

Cultural and community anchors are groupednear Avenida Guadalupe and South Brazos Streetwhere the Guadalupe Cultural Arts Center, theGuadalupe Theater, and Plaza Guadalupe are situ-ated. These facilities celebrate the heritage of thecommunity, serving as an icon for the communityand a gathering place for residents and visitorsalike. The community’s connection to the churchand the affiliation many share with Our Lady ofGuadalupe church serves as a strong social bond.Area businesses are few, but some proprietorssuch as the Davila and Segovia families have fol-lowed their community affinity with large finan-cial commitments. The Davila Pharmacy is athird-generation business, while the Segoviacandy business has been operating for more than60 years. Also in this vicinity are the El ProgressoCommunity Center; El Parian, which houses anumber of local nonprofit organizations and smallbusinesses; and Oficinas de la Avenida, the homeof the Avenida Guadalupe Association and otherlease space.

Other factors provide a competitive advantage fordevelopment in Avenida Guadalupe, including thecomparatively low cost of land and labor. Effi-cient public transportation provided by VIA, thearea transit system, supports the many workingfamilies in the area who must travel around thecity and to the downtown area for job opportuni-ties. Many of the residents in the area work in thehospitality industry, necessitating travel to the ho-tels in the downtown; others tend to work in thenorthern suburbs.

Community LiabilitiesDiscussion of Avenida Guadalupe requires afull acknowledgment of the wider range of issuesthat beset San Antonio and this neighborhood inparticular.

Market Potential


Unfortunately, the image of Avenida Guadalupeamong many San Antonians and visitors is thatthe area is a rough-and-tumble place, full of crimeand poverty—a virtual no-man’s land. Whereasthis perspective shows little awareness of the com-munity’s assets, it does exhibit a condition thatneeds to be reversed.

Evidence shows that the Avenida consistentlyranks high in crime statistics that include assaults,murders, illegal drug activity, and prostitution.One statistic shows that in the area more than400 youths between the ages of 10 and 16 hadgone through the juvenile justice system in a re-cent year.

The 2000 census shows the three census tracts inwhich the study area is located have a high con-centration of very-low-income households, withan average household income of approximately$19,000. This level is far below that of the city asa whole, where the average household income isabout $36,000. Almost 40 percent of the populationis living below the poverty level. This situation re-sults in low disposable income among residents,reducing the support for neighborhood retail ser-vices. Illiteracy is high, and unemployment is alsounderstandably high; at 15 percent, it is more thanthree times the city’s average unemployment rate.

Surveys conducted by others and by this panel,coupled with inspections by code enforcement of-ficials, reveal an aging inventory of housing andcommercial stock. A significant portion of thesebuildings lack architectural appeal. Still otherbuildings are in such a dilapidated condition thatthey create blight along the major corridors, im-posing safety hazards that may include potentialenvironmental pollutants that would require sub-stantial remediation. The area has lost 25 percentof its households over the past 20 years. Code vio-lations, including curbside car repairs, junk piles,outdoor storage of appliances, and debris on va-cant lots along Avenida Guadalupe and adjacentstreets, degrade the community and present theappearance of blight and neglect.

Although the city has invested in upgrading theinfrastructure around the Alazan and Apachecreeks, the Avenida’s infrastructure, includingsidewalks, lighting, parks, signage, and, in places,

drainage, fall below the standards of a major U.S.city. These conditions deter development and addto the overall impression that the area is neglected.

One of the most significant physical barriers tothe community is a series of railroad tracks, whichrequires the exceedingly long Guadalupe Streetbridge that channels vehicular traffic from thecentral business district to the Avenida Guadalupeneighborhood. Significant challenges exist for theconstruction of an entry and exit gateway thatwould improve the image created by the 50-year-old structure.

City government’s resources are strained, mak-ing it difficult to deal with the range of physical,social, and economic problems in the area. Theconditions have been created over time by a lackof public investment as well as a certain degreeof inertia exhibited by property owners withinthe neighborhood.

OpportunitiesIn order to capture a larger share of San Antonio’sbooming housing market, it will be necessary tocapitalize on Avenida Guadalupe’s particular op-

Segovia’s candy store, aneighborhood landmark,is known for its pralinecandies that are shippedaround the country.

Davila Pharmacy is a for-midable business pres-ence along AvenidaGuadalupe where it hasserved the community forgenerations.


portunities. The area possesses a large stock ofvacant lots. It offers relatively low land costs thatwill enable more-affordable new development.The area’s Empowerment Zone designation af-fords general income tax benefits, real propertytax benefits, and job credits.

Additional opportunities include forging partner-ships between the Parks and Recreation Depart-ment and the U.S. Army Corps of Engineers forredevelopment of the Alazan Creek area. The re-cent joint venture of nonprofit organizations—suchas Alternative Housing, AGA, and NeighborhoodHousing Services—in partnership with the SanAntonio Development Authority (SADA) on theaffordable Parade of Homes project may be repli-cated in other sections of the community. The abil-ity of SADA to partner in order to undertake landassemblage affords opportunities to accelerate newhousing development and a repopulation of thearea. Additional partnerships with the San Anto-nio Housing Authority (SAHA) have broughtabout positive change and represent additionalopportunities for repositioning the Avenida Gua-dalupe community as an affordable, pleasant placeto live.

Development projects in the area have the poten-tial to offer additional employment opportunitiesand increase the population in the community.These projects include the training facility fornurses and expansion of UTSA, already servingmore than 6,000 students, and the University Cen-ter for Community Health facilities.

The panel believes that the Avenida Guadalupecommunity can and must build upon its strengthsand opportunities. Most of its weaknesses can bemitigated through the commitment and caring at-tention of the residents, business owners, andother stakeholders.

Development PotentialAs is typical of any redevelopment, limitations areimposed by the availability of financing, that is,both funds that may be attained through conven-tional sources and those that are provided throughpublic funding. Neither financial element can beconsidered independently of the other, at least notuntil momentum has been established by achiev-

ing some development goals, and risk has beenreduced.

In the initial stage, an inventory of readily devel-opable lots must be determined through carefulinvestigation of ownership and assessment of thecondition of each parcel. Apparently, a numberof the existing lots that contain homes or retailstructures or both cannot be economically pre-served and will, of necessity, need to be razed inpreference to stabilizing and improving the healthand welfare of the balance of the community. Thecity should clear the units that cannot be salvagedat no cost or penalty to the landowner. By pinpoint-ing those lots available for redevelopment, a strat-egy for the type and intensity of improvementscan best be programmed.

Currently, the panel envisions that the city willparticipate through the acquisition of only thoselots to be held for redevelopment. The city shouldpay market value for the land. The private devel-oper should be selected based upon experienceand track record in comparable situations.

This inventory of lots should be categorized intwo segments. The first is a block of contiguousvacant lots off Avenida Guadalupe suitable forsingle-family construction. Some considerationcould also be given to including duplex or triplexconstruction as part of the mix.

The second segment of housing opportunity isalong Avenida Guadalupe. Given the quality ofsome of the structures, coupled with the poten-tial need for remediation to meet residential stan-dards, a different dwelling unit design is consid-ered appropriate. Avenida Guadalupe would fallwithin a Conservation District, as discussed inmore detail in the Planning and Design sectionof this report. Such units would have design flexi-bility to be used for both residential and commer-cial purposes.

Land dedicated strictly for retail use is not con-sidered justifiable at this time. The number ofrooftops and the neighborhood’s purchasing powerare simply inadequate today to support retail de-velopment along Avenida Guadalupe. However,the panel recommends flexibility in design in orderto accommodate changing market conditions. Space


can be converted to commercial use if and whendemand warrants.

Residential DevelopmentThe greater San Antonio area is experiencing sub-stantial new residential development in the north-ern area and increasingly to the outer edges inother directions. In 1999, annual new housing startsexceeded 10,000 units. Even new multifamily con-struction has increased in recent years, with an-other 600 market-rate rental units proposed invarious locations in and around the downtown.

Market demand for new housing in the study areais harder to estimate. New for-sale housing is lim-ited, with scattered new small-scale developmentand the new affordable Parade of Homes projectalong the Alazan and Apache creeks being theprimary examples. Bringing in larger-scale,market-rate infill housing developers will requirea substantial partnership with the city. The mar-ket is untested at this point. However, the panelbelieves that the most effective ways to accom-plish an increase in market absorption are thefollowing:

• Increasing supply of quality product;

• Providing for larger tracts of contiguous devel-opable land; and

• Eliminating the blighted conditions predomi-nant in the area.

It is the panel’s belief that a highly visible market-rate (albeit affordable) housing development willdramatically accelerate development interest inthe area. This development, in turn, will help provethe capacity of the market for additional develop-ment throughout the wider study area.

Medical ServicesMedical-related services are anticipated to expandwithin the study area. The University Center forCommunity Health–Texas Diabetes Institute, lo-cated at South Zarzamora just north of AvenidaGuadalupe, provides an anchor for the westernedge of the community. This new development islarge in size, scale, and prominence. The locationfor this facility was partially determined by thehigh percentage of Hispanic persons sufferingfrom diabetes, which is the mission of this major

Above: An example of thequality of redevelopmentin the neighborhood. Left:Terraza’s Tire Shop couldbe considered an incom-patible use along themain corridor.


medical facility. Demand for corollary medical ser-vices and supporting retail services will follow thisdirect investment. Additional development willfurther serve the resident population by creatinggreater demand for various convenience supportservices.

UTSA/Cattlemen Square AreaIn the midterm, the dramatic growth of the UTSAdowntown campus will bring new accessory devel-opment, including faculty and administrative of-fice space, additional academic facilities, and, per-haps, student housing. The proximity of the UTSAdowntown campus to Avenida Guadalupe will cre-ate the potential for new renters and patrons foran expanded offering of small businesses and com-mercial services.

Avenida Guadalupe Cultural District Another significant market potential exists in thestudy area between South Brazos Street and theAvenida Guadalupe bridge. Because of the prox-imity to downtown and the existing cultural an-chors at the intersection of South Brazos Street

and Avenida Guadalupe, this area affords addi-tional opportunity for new artist’s and craft stu-dios along with other indigenous-focused retail.

The frontage opposite Brackenridge ElementarySchool has some attractive housing stock appro-priate for rehabilitation. Improved marketing,well-publicized transit, and wayfinding for tour-ists will be essential to capitalize on the develop-ment potential along this eastern edge of AvenidaGuadalupe.

Area leaders should reach out to the creative com-munity to attract artist and artisan residents to lo-cate their businesses along the Avenida. The goalshould be to create a destination that not only fo-cuses on indigenous expression but also encour-ages a broad variety of artistic energy.


The physical character of Avenida Guadalupeplayed a significant role in the panel’s as-sessment of the area. Its physical attributespresent both opportunities and constraints

to the implementation of a revitalization plan. Indefining opportunities for redevelopment, the panelfirst analyzed the existing fabric and then consid-ered planning options, which culminated in thedefinition of five overarching planning principles.These principles should be adhered to in guidingfuture redevelopment actions.

Existing FabricIn devising its recommendations, the panel fo-cused on four key physical aspects of the studyarea: development pattern, land use, open space,and access and circulation.

Development PatternThe panel identified four significant aspects of thecurrent development pattern of the community:

• The entire study area is closely connected withneighborhoods to the north and south by astreet network based on a grid pattern defining150-foot by 300-foot blocks.

• The Apache and Alazan creeks form a naturalboundary along the east, south, and west edgesof the study area, separating it from other partsof the city.

• Durango Boulevard is the northern boundary,representing a natural divide characterized by adifferent development pattern of larger lots anda slightly higher housing quality.

• Generally, the blocks throughout the area weredeveloped of a similar pattern with one- or two-story detached buildings. This pattern differsfrom the pattern found along the corridor.

Land UseAlthough the predominant pattern of land use inthe study area was originally single-family resi-dential with small-scale retail scattered through-out the neighborhood, redevelopment activitieshave yielded a new pattern. Parcels around theintersection of South Brazos Street and AvenidaGuadalupe are generally occupied by new culturaland institutional uses. The land parcels at theSouth Zarzamora Street and Avenida Guadalupeintersection are occupied by highway-orientedcommercial uses, such as fast-food restaurants, ameat market, and a gas station.

Between these two intersections, the pattern ofland use along the corridor is characterized bycommercial and residential uses, isolated by a

Planning and Design

A particularly elaboratemural covers the side of a building facing San Fernando Street just offSouth Zarzamora Street.

This mural shows thequality of the artworkfound in many neighbor-hood buildings.

significant amount of vacant land interspersed be-tween these uses and scattered along the length ofthe corridor. In addition, several recent develop-ments are inconsistent in use and pattern with thetraditional fabric.

Beyond the natural boundary of Alazan Creek, theAvenida Guadalupe corridor at the east end is de-veloped as an industrial/employment area. At thewest end, beyond Apache Creek, the corridor isdeveloped with low-density, highway-orientedcommercial uses. However, the creeks separatethese areas from the bulk of the study area.

Open SpaceOpen space is one of the most significant compo-nents of any community. However, even thougha number of public open spaces exist within thestudy area, community access is constrained forvarious reasons:

• Significant open space along the creek beds isseparated from the neighborhood by a majorgrade change. Cassiano Park, in the southwest-ern corner of the area, is the only developedopen space along the creeks.

• Neighborhood schools and other institutionsprovide developed open space (soccer fields,basketball and tennis courts, baseball diamonds,and so on). However, with the exception of thecity-owned natatorium, public access is timeconstrained.

Access and CirculationA fully developed roadway grid throughout thearea provides excellent connectivity between thestudy area, adjacent residential neighborhoods,downtown, and areas farther west. However, thestreets are generally in poor condition and do notprovide comfortable conditions for pedestrians.Existing sidewalks are narrow and do not afforduniversal accessibility. Telephone poles are locatedin the middle of sidewalks. In addition, moststreets lack adequate lighting, street trees, sign-age, and street furniture such as benches and busshelters. An exception to this pattern is the areaimmediately adjacent to the South Brazos Streetand Avenida Guadalupe intersection. That areaserves as a good example of an appealing pedes-trian environment.


Five Planning PrinciplesThe panel’s recommendations suggest how thecity can prepare the Avenida Guadalupe commu-nity for successful revitalization. With a combina-tion of time and the help of public and private sec-tor development partners, the panel believes thatthe following five planning principles can guidethe area’s revitalization.

Principle #1Develop the Avenida Guadalupe corridor as an in-tegral part of the larger community. Traditionalcorridors such as Avenida Guadalupe have deteri-orated because of the emergence of newer, larger,automobile-oriented retail centers and the declineof the adjacent neighborhoods. The panel believesthat successful revitalization of the corridor re-quires two modes of action:

• Simultaneous revitalization of the larger areadefined as the natural host neighborhood for thecorridor—the area between Durango Boulevardand the creeks;

• Development of strong physical, economic, andfunctional connections between the corridor andthe host neighborhood.

Principle #2Create a forward-looking, community-based visionto guide planning and implementation initiatives.The panel recognizes that multiple options existfor revitalization of the study area. Implementa-tion of revitalization initiatives will be spread outover several years and involve multiple public andprivate entities.

Community needs and market conditions changeover time and all plans undergo modifications andtransformation. To ensure that short- and long-term actions do not conflict with each other orproduce undesirable results, the panel recom-mends that a vision statement be created withsignificant community and stakeholder input. Thevision statement will serve as a guide and bench-mark to evaluate proposals and projects proposedfor the neighborhood.

The vision statement should address three aspectsof the area’s revitalization:


• Image and identity: The vision statement mustguide creation of a unique image and identityprogram for the area, and specifically includethe design of infrastructure improvements suchas bus shelters, banners, and streetscapes.

• Marketing: The vision statement must also pro-vide direction for a multiyear marketing pro-gram for the corridor and the neighborhood.The panel believes that sustained marketing ac-tivities are essential to ensure the effectivenessof revitalization initiatives and to counter nega-tive perceptions.

• Themed special events: The vision statementmust establish a theme for frequent and regu-lar special events to be organized in the corridorfor residents of the area and for those fromother neighborhoods in the city. These eventscould be small scale and more frequent, such asa “Cultural Friday” event; or larger in scale, of-fering a Cinco de Mayo parade along AvenidaGuadalupe in addition to the existing a Diez ySeis (September 16) parade.

Principle #3Establish a land use development framework toguide all development activities within the studyarea. The Avenida Guadalupe corridor presentsopportunities for a diverse and rich mix of uses.

Analysis of existing conditions indicates that, al-though dispersed, the corridor is currently hometo institutional uses, new and old residences, busi-nesses, and regional and local retail establishments.The panel recognizes that this mix can be sus-tained if a critical mass is reached for each of thedifferent uses. The corridor is also very long, andcreation of distinct “places”—such as the AGAcomplex—at key intervals will help make it an at-tractive destination for investors and visitors.

The panel recommends the following four distinctdistricts along the corridor. Boundaries of the dis-tricts are based on preliminary analysis and shouldbe further investigated through a community-based neighborhood planning process.

Employment Opportunity Node. This district is lo-cated at the entrance into the study area from theCentral Business District. The area is bounded onthe north by El Paso Street, on the east by SouthFrio Street, by Vera Cruz Street to the south, andby Alazan Creek to the west. The area is bisectedby a wide swath of railroad tracks, over whichspans the long Avenida Guadalupe bridge.

This area is currently composed of warehouse andlight industrial uses and has recently seen an in-flux of trendy cafés and coffeehouses. The panelrecommends that the existing pattern of employ-ment-oriented uses be continued. The panel en-courages the city to promote the area for addi-

Long-term developmentframework.El Paso Street

Avenida GuadalupeColima Street

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(3) Long-term Development Framework

1/4 Mile Radius

UTSA

AlazanCourts

GuadalupeNeighborhoodParade of

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Regional institutional/commercial node

Cultural arts district

Employment opportunity node

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Development areas

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tional development with employment-generatingbusinesses.

The Avenida Guadalupe bridge is perceived as abarrier between the Avenida Guadalupe neighbor-hood and the greater downtown area. The heightand length of the bridge is a visual barrier and isuninviting to residents and visitors from outsidethe neighborhood. The panel recommends thatthe bridge be modified; the width of the span wasoriginally determined by the width of the railroadtracks, which are now underutilized. Given thecurrent situation, it is possible that the heightcould be lowered or the length could be shortened,or both. In addition, the potential exists for usingthe bridge to create an attractive entry into theneighborhood. Enhancements could include apedestrian/bicycle path, added design features,and lighting and signage welcoming visitors intothe Avenida Guadalupe area.

Cultural Arts District. The purpose of this districtis to memorialize and celebrate the rich culturalheritage of the neighborhood and provide a liv-ing experience of the Hispanic community’s past,present, and future. Centered at the intersectionof South Brazos Street and Avenida Guadalupe,this district builds upon the existing culturalinfrastructure—Guadalupe Cultural Arts Center,Guadalupe Theater, Plaza Guadalupe, El Parianand El Progresso Center, and the Oficinas de laAvenida—to create a cultural arts “center” forthe neighborhood.

The entrance into the neighborhood truly beginswhen one has crossed over the Avenida Guadalupebridge. The area between the bridge and SouthBrazos Street should be designed as a heavilylandscaped gateway entrance to create an attrac-tive first impression of the neighborhood andsoften the edges of the recent SAHA develop-ment. The SAHA development turns its back onthe Avenida through its use of fenced walls alongthe street. Farther along the block, between SouthBrazos and South Jacinto streets, however, is agood stock of existing historic structures. Thesebuildings should be rehabilitated and adaptivelyreused as incubator artisan work/live spaces. Anyvacant lots should then be infilled with rehabili-tated, relocated housing stock from elsewhere inthe neighborhood or with new, appropriately de-signed structures.

The area to the north of Avenida Guadalupe up tothe Alazan Courts public housing complex shouldbe developed with new, middle-income residencesin order to enhance the first-impression aspect ofthe gateway/arts district and bring a critical massof residents into this district.

Cultural arts district.

(4) Cultural Arts District

Civic/public

Commercial

Residential

Green/open space

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New urban infill lots withoutbuildings on alley and

adequate parks/open space

Small communitytienda commercial at

designated intersections

Revitalized culturalarts plaza/market

Rehabilitated/relocatedexisting housing as

arts incubators

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The Avenida GuadalupeAssociation fills most ofthe office space at thenewly constructed Ofici-nas de la Avenida buildingthat adds to the concen-tration of community andcultural services.


Closer to the South Brazos intersection, revital-ization of Plaza Guadalupe could provide a numberof benefits to the community. If the plaza wereopened up to the street it would help enliven thissection of Avenida Guadalupe. Activities occurringwithin the plaza would be visible to the surround-ings and would help draw more people into thearea. Redesign could also improve the connectionbetween the plaza and Our Lady of Guadalupechurch so that the open space relates better tothe church.

Regional Institutional/Commercial Node. The inter-section of Avenida Guadalupe and South Zarza-mora Street is currently home to a large numberof high-traffic-oriented commercial uses and thenew University Center for Community Health.These high-traffic community-serving uses shouldbe expanded.

Additional commercial development along theSouth Zarzamora Street corridor should beencouraged. New development will help definethe corridor and enhance the area. Site-planningconsiderations should include minimal buildingsetbacks to encourage construction closer to thesidewalk, with parking in the rear. Also, medical-

related uses should be expanded south acrossAvenida Guadalupe, with auxiliary uses (such asprofessional medical services) developed west to-ward Apache Creek and farther south along SouthZarzamora Street.

Commercial development along Avenida Guada-lupe should vary in terms of scale and services.The Commercial Node diagram shows a range ofservices at strategic intersections, varying in in-tensity from regional offerings at South Zarza-mora Street to small stores (tienditas). This con-cept allows for the development of major serviceswhile supporting small family businesses. It is alsodesigned to bring a variety of convenience goodsand support services into the neighborhood thatwill blend with the existing scale of development.

Conservation District. The panel recommends thatthe formerly residential pattern of developmentalong the portion of Avenida Guadalupe betweenthe Cultural Arts Activity and Regional Institu-tional/Commercial nodes be conserved throughcarefully designed infill housing and the reestab-lishment of small tienda-style businesses. Thesquare footage of some housing units could be in-creased to better accommodate large, intergener-

Commercial node diagram.

(5) Commercial Node Diagram

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Regional CommercialNeighborhood CommercialCommunity CommercialTienditaProject Study Boundary

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ational families. Increased lot size is also possiblein certain sections, particularly in the area southof Avenida Guadalupe. The panel recommends avariety of housing options that maintain the exist-ing fabric defined by the street grid and bring lifeback to the alleys.

The predominant scale of development along thecorridor is composed of one-story buildings. How-ever, two-story units could be built at the intersec-tions where live/work spaces could be developedabove commercial uses.

Structural condition permitting, the existing his-toric structures along Avenida Guadalupe shouldbe preserved and maintained. Also, some of thestructures along the corridor have been renovatedby current residents and have yielded creativerehabilitation/redevelopment strategies. Theserenovations should be assessed and the zoningcode appropriately amended to allow continuationof some of these more creative solutions.

Where vacant land exists or existing structuresare deemed unsuitable for rehabilitation, these

parcels should be developed with new infill hous-ing in keeping with the historic character of theexisting housing stock. The panel recommends anew development strategy based on traditionalneighborhood design to exploit opportunities forcombining the existing platted 33 feet by 74 feetback-to-back lots between Avenida Guadalupe andMontezuma Street and creating new lots with suf-ficient depth (±150 square feet) to permit an 1,800-square-foot home on the Avenida, a rear yard, andan alley-loaded garage with an approximately 400-square-foot rental unit above.

The continuous grid pattern in the neighborhoodprovides ready access to and through the Avenida.The hierarchy of the north-south cross streetsprovides a variety of potential commercial nodeintersections that could include neighborhood ser-vices such as restaurants and drugstores as wellas the smaller, more typical tienditas.

To adequately serve residential and commercialuses along the Avenida, ample on-street and ap-propriate off-street and on-site parking must beprovided. Parking must be available to serve all

Infill housing strategy.

Property Line

Avenida GuadalupeCurb line

Montezuma Street30' Alley

5' Rear setback

22' Alley-loaded garage

(rental unit above)

48 –53' Privateopen space

50'–55'Housing unit

20' Frontsetback

Property line

Right: This home, recentlybuilt by a former residentreturning to the commu-nity, illustrates residents’commitment to the neigh-borhood. Far right: Nomajor grocery stores arelocated in the study area,but a few small markets,like the Guadalupe FoodMart, serve the basicneeds of the community.


potential users, including employees, residents, andvisitors. Off-street parking facilities should be lo-cated at the rear of the property and have adequate,well-signed, and well-lit pedestrian connections.

Principle #4Balance pedestrian and automobile needs withinthe Avenida Guadalupe right-of-way. The panelhas observed that the current travel lane width ofAvenida Guadalupe appears to be in excess of pre-sent-day traffic needs. If this observation is con-firmed by detailed traffic studies, the panel recom-mends that the street be redesigned as a morepedestrian- and commercial-friendly corridor. Thisredesign would include reducing the existing four-lane arterial roadway to two travel lanes with on-street parallel parking and widening the existingsidewalks to an eight-foot width.

As part of the necessary infrastructure improve-ments, and coupled with the need for neighbor-hood image enhancement, the streetscape shouldbe significantly redesigned to include pedestrian-oriented street lighting (similar to the South Bra-zos Street intersection), the addition of streettrees, signage, sidewalk bump-outs at intersec-tions with pedestrian crosswalks, and attractivebus shelters. Particular emphasis could be placedon the bus stop locations, all of which coincide withadequately sized north-south crossings and poten-tial commercial nodes. These bus stop and com-mercial intersections should be designed as “safe

havens,” with neighborhood image-enhancinglighting, signage, and security features. Theseenhancements have the potential to increasepedestrian activity on the corridor and encouragehigh-quality private investment on adjacent de-velopment parcels.

Principle #5Establish a well-rounded open-space network thatserves the study area and the host neighborhood.Although a variety of active and passive open-space resources are currently available in thearea, they are usually colocated with neighbor-hood schools outside the study area and do notappear to be uniformly distributed throughout theneighborhood. The streets that connect the schools(Calaveras, San Jacinto, and Vera Cruz streetsand Durango Boulevard) are inadequately de-signed to encourage travel between the variedrecreational facilities. These streets should be im-proved to support an infrastructure greenwaylinking the existing neighborhood resources andproviding amenities for bicyclists, pedestrians,and slow-moving automobiles.

Because the open spaces and recreational facilitiesare mostly colocated with the neighborhoodschools, the residents appear to have limited ac-cess to recreational resources during school hours.The city’s Department of Parks and Recreation orother appropriate agencies should conduct a sur-vey to determine the open space/recreationalneeds of the residents. The survey should also

Avenida Guadalupe streetsection.

55'6" Right-of-way

Avenida Guadalupe

Balcony Walk Parking/bus lane

Travel lane Arcade8' 8' 8' 8'27'9"11'9"


identify the types and preferred locations of newpublic parks or play areas. Another deficiencyappears to be a lack of passive, small-size, openspaces within easy walking distance for use byyounger children or older residents. A series ofvacant parcels should be identified, acquired, anddeveloped as “pocket parks” in conjunction withany new residential infill development.

SummaryRedevelopment of the Avenida Guadalupe corri-dor itself could prove the biggest challenge. De-velopment activity concentrated at the intersec-tion of the corridor with the major north-southstreets—at South Brazos and South Zarzamorastreets—is already underway, as noted in the

Linkages.

(2) Linkages

Avenida Guadalupe

Regional corridorNeighborhood corridorSchool/park loopExisting community facilityProposed green space1/4-mile radius activity nodeProject study boundary

Key:

Alazan Creek

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1. University Center for Community Health 2. De Zavalla Elementary School 3. Barkley/Ruiz Elementary School 4. Lanier High School 5. City Natatorium

6. Our Lady of Guadalupe Church 7. Brackenridge Elementary School 8. Plaza Guadalupe 9. Inman Christian School10. San Fernando Cemetery

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Right: Chain-link fencingused mainly for securitypurposes is a predomi-nant characteristic of thehousing along AvenidaGuadalupe and through-out the neighborhood. Farright: Development ofinfill sites will help mendthe fabric of the neighbor-hood, particularly alongthe major corridor.


Cultural Arts and the Regional Institutional/Com-mercial nodes. However, focus on the Conserva-tion District between these two nodes is critical tothe success of the overall redevelopment of theneighborhood. The corridor must maintain its in-tegrity—its existing fabric—as defined by thescale of its buildings and the existing street grid.

Infill development along the corridor will helpeliminate vacant parcels—the gaps in the streetfabric—with the addition of housing and neigh-borhood commercial services. A reduction fromfour to two lanes of traffic and the improved

streetscape and linkage with a network of openspaces will create a better environment forpedestrians.

Greater efficiency for vehicles will result frombetter signage and an improved parking plan. Acommunity-based vision should be translated intoa redevelopment plan that will guarantee a contin-uation of the area’s distinctive image, most no-tably influenced by development along AvenidaGuadalupe.


The city of San Antonio requested assistancein making the Avenida Guadalupe commu-nity a “neighborhood of choice”—a goodplace to live, work, and raise a family—

while respecting and preserving its rich culturalheritage. The panel believes that reaching thisgoal will require working partnerships betweencommunity stakeholders and the private sector.

Strategies should capture the vision and preservethe cultural heritage of the community, addressthe needs of current residents and business own-ers, and use a bold and comprehensive approachto address the challenges that currently face thiscommunity. The panel believes that its proposeddevelopment strategies, if held to strict timelineswith clearly defined responsibility for implemen-tation, will create the infrastructure and resources—both physical and human—to make the commu-nity a vibrant, cultural hub for San Antonio’s His-panic families.

Initial ActionsThe planning process must include an inventory ofexisting conditions to determine community needs.Following that data collection phase, a plan can beformulated to address shortcomings and exhibitthe range of possibilities.

Property InventoryThe first task is to complete a comprehensive in-ventory of all the property within the target area,including homes, businesses, and vacant lots. Achecklist should be developed that identifies prop-erty condition, current use, permitted use, owner-ship, and historical significance.

In addition, the process used to create this inven-tory allows surveyors an opportunity to make con-tact with the residents and business owners oc-cupying these buildings. Family demographics,including number and ages of children, employ-ment status of family members, educational at-

tainment levels, and health and social service needs,should also be compiled. Business owners can bequeried on their customer base, number of em-ployees, expansion plans, and financing needs.Banks could be queried on the number of com-mercial and residential loans that have been ap-plied for and approved or denied, and schoolscould be identified by their enrollment trends.Given the extensive involvement of the Annie E.Casey Foundation in this area, the foundation isin an excellent position to provide the leadershipand guidance for this activity, assisted by city staff(for building-condition assessments) and univer-sity students, and supplemented by staff of localnonprofit organizations.

A Revitalization Plan When the property inventory has been completed,a plan for neighborhood commercial revitalization,which may well include some of the contiguousresidential areas, can be created. The plan is criti-cal. To ensure community and city support, thegroup given the task of creating this plan shouldinclude an array of public, private, and residentrepresentatives. The challenge of any revitaliza-tion program is to focus efforts on creating a visi-ble effect. Small efforts to address large problemswill not be sufficient. A convergence of interestsand resources must be leveraged to create sig-nificant improvements for the Avenida Guadalupecommunity.

Suggested StrategiesTo produce a vision and a plan to address commu-nity needs, the panel recommends a number ofstrategies that will help create significant neigh-borhood revitalization for the Avenida Guadalupecommunity. These strategies include a range ofactivities from human capital investment to moreprocess-oriented actions.

Development Strategies


Invest in Human Development and Engage LocalResourcesThis neighborhood appears well endowed withmany human services agencies. Collaboration andcoordination of the programs available to theneighborhood should be encouraged to avoid du-plication of efforts and ensure that scarce re-sources are well leveraged. Programs should ad-dress the challenges facing the residents andbusiness owners of the Avenida Guadalupe com-munity, as documented by the Annie E. CaseyFoundation’s efforts of the past several years.

Residents should be given the opportunity to en-roll in education and training programs that canprovide them with access to employment opportu-nities at family-sustaining wages. Optimally, link-ages with the workforce investment system couldenable residents to receive on-the-job training;currently, many residents already work two orthree jobs, leaving little time for educational pur-suits. Target industries for job training shouldfocus on opportunities within the community, suchas medical services and construction. Homeowner-ship counseling, financial education programs, homemaintenance, and minor home repair workshopscan provide residents with the skills they need todevelop and maintain their personal assets.

Reportedly, this community is largely “unbanked,”providing significant opportunity to engage locallenders in retail banking services as well as largercommunity investments. Partnership with Fed-eral Home Loan Bank members to develop hous-ing in the neighborhood is an excellent way of en-couraging lenders to see this market as viable fortheir services.

Eliminate BlightBlighted properties should be identified and theowners given a clear deadline for remediation,rehabilitation, or demolition. Public and privateagencies responsible for the administration ofowner-occupied and rental rehabilitation assis-tance programs should facilitate access to theseprograms for any owners needing these resources.During the initial assessment stage, priority shouldbe given to families living in the target area. If re-mediation is not accomplished within the allottedtime, the San Antonio Development Authority(SADA) should condemn and acquire the property.

The process by which these properties are thenreconveyed for redevelopment should be clearlydefined, and performance measures and capacityfor reuse should be documented. A memorandumof agreement between the Dangerous StructuresDetermination Board and the city and state his-toric preservation offices should be created to ex-pedite the demolition of these blighted structures.Environmental issues must also be addressed be-fore redevelopment can occur. The city’s brown-field redevelopment program can assist with siteassessment. Sites within the Empowerment Zoneare eligible for federal tax credits for remediation.

Streamline Development—Remove BarriersThe report of the Community Revitalization Ac-tion Group (CRAG 2000) provides excellent guid-ance for streamlining development. Some of therecommendations in that report should be revis-ited, such as expediting services and resources forinner-city development projects, waiving permitfees, streamlining the process for residents andbusiness owners to access city incentive and assis-tance programs, implementing the “Super Sweep”program in targeted neighborhoods, and assem-bling parcels for development of affordable hous-ing in targeted areas. The Avenida Guadalupecommunity could be used as a pilot for some ofthese initiatives, with a follow-up assessment todetermine which had the most effect in encour-aging reinvestment in the community.

The city of San Antonio’s Incentive Scorecardpromotes targeted development and communitygrowth in both residential and commercial/indus-trial projects that meet priorities and goals setby the city council, by location, type of project, orboth. The evaluation and application is an auto-mated process that is used to facilitate and expe-dite the award of targeted development incen-tives. The scorecard offers incentives throughreductions or waivers of fees for street closures,sidewalk closures, preliminary review fees, andSan Antonio System Water & Sewer impact fees.The city has amassed an impressive array of in-centives for its incentive toolbox. However, it isdifficult for smaller-scale developments to “score”sufficiently high to access those resources.


Coordinate Existing Programs and ResourcesMaking a significant and lasting impact on theproject area will require targeting both public andprivate resources. The shortest path to redevelop-ment success requires that the city’s leadership bewilling to dedicate what may be, in the short term,a disproportionately large share of resources tothis area. Long term, this investment will attractthe private sector investment necessary to sustaincommunity revitalization.

Clean and Safe. It is critically important to thesuccess of any redevelopment effort to initiate a“Clean and Safe” program within the neighbor-hood. The staff members of the San Antonio Fear-Free Environment (SAFFE) program unit havean excellent grasp of the neighborhood’s specificareas of concern and can provide guidance incrime-prevention activities. A comprehensivestreet-lighting program can enhance neighbor-hood safety. SAFFE staff members should be ableto quickly enlist the assistance of the city’s codeenforcement staff to curtail illegal dumping andinappropriate uses of private property. VIA hasexpressed a willingness to consider additional de-velopment of its transportation infrastructurealong the Avenida Guadalupe corridor, includingdevelopment of shelters, signage, and lighting. Amechanism for community input should be putinto place so that community members can workwith VIA toward improving the transit serviceenvironment.

Development Funds. The proposed Section 108application, along with Community DevelopmentBlock Grant and Home Investment PartnershipProgram (HOME) dollars, creates a significantpotential resource pool that can be used to facili-tate development within the Avenida Guadalupeneighborhood. These funds should be thoughtfullyallocated in a way that will induce additional pub-lic and private investment—perhaps by fundingsome of the infrastructure for the new affordable-

housing developments proposed for either theParade of Homes or the El Paso/Avenida Guadal-upe neighborhood. In that way, development costsper lot are reduced, enabling nonprofit developersto offer new homes to residents at a further re-duced cost.

As mentioned previously, the city’s owner-occupiedrehabilitation programs and rental rehabilitationprograms need to be heavily targeted to this areaduring the initial redevelopment phase in orderto preserve the properties when financially feasi-ble. The panel strongly recommends that this ac-tivity be given priority for completion within thenext 24 months so that it becomes a tangible dem-onstration of the city’s commitment to the commu-nity, its residents, and potential investors.

The city’s HOME-funded downpayment assis-tance programs should also be an integral part ofall housing development programs in this commu-nity. Subsidy layering can be achieved by usingthe Affordable Housing Program and the Home-buyer Equity Leverage Program of the FederalHome Loan Bank to further reduce housing costs.The city and the Housing Trust Foundation offerhousing counseling programs certified by the U.S.Department of Housing and Urban Development(HUD) that prepare first-time homebuyers topurchase a home. This service can be provided atlocations within the neighborhood to facilitate ac-cess by community residents.

The city has a number of small business loan pro-grams to assist those business owners within thetarget area wishing to grow their businesses. TheNeighborhood Commercial Revitalization desig-nation creates access to the city’s business facadeimprovement program funds, through OperationFacelift. These funds, coupled with traditionalSmall Business Administration loan programs,provide financial products that can be used to helplocal businesses grow. The Federal Home LoanBank of Dallas also has the Economic Development

These two local busi-nesses provide a range of services.


Program Plus Small Business Grant program,designed to promote and enhance small businessdevelopment, foster relationships between locallenders and the business community, and createand retain jobs.

Other Potential Sources of Assistance. Both FannieMae and the Enterprise Foundation are active inSan Antonio. The panel suggests that the city con-tact these organizations to investigate availableassistance. It should be noted, however, that Fan-nie Mae has recently suspended all foundationgrant-making activity. A Fannie Mae PartnershipOffice is located in San Antonio, however, and typ-ically its programs at the local level are deliveredthrough a network of lenders. The largest currentcommitment is the “American Dream Commitment”of expanding access to homeownership for first-time homebuyers, with a particular interest inincreasing the rate of minority homeownership.This assistance can take the form of new mortgageproducts, relaxed underwriting requirements, andthe like. Fannie Mae also engages employers inEmployer Assisted Housing Programs and haseducational programming to address predatorylending. The city should inquire whether FannieMae has any funding specifically targeted for Ave-nida Guadalupe.

The Enterprise Foundation has both an officeand an initiative in San Antonio—Enterprise SanAntonio. The foundation has been in San Antoniosince 1994 and has invested more than $29 millionto create almost 8,000 affordable homes. It leadsa collaborative of local and national funders—theSan Antonio Community Development Partner-ship—that provides operating support to commu-nity-based nonprofits. It also provides technicalassistance and specialized training. Furthermore,the foundation supports a group called Commu-nity Leadership Institute that provides free lead-ership training classes and networking opportuni-ties for people interested in building support andconsensus for neighborhood change.

Business Development Assistance. San Antonio’snewly acquired Empowerment Zone (EZ) desig-nation also brings with it business-focused incen-tives and bond financing:

• Wage credits are especially attractive to busi-nesses looking to grow. These businesses areable to hire and retain Empowerment Zone res-idents, applying the credits against their federalbusiness tax liability. Businesses located withinthe new EZ enjoy up to a $3,000 credit for everynewly hired or existing employee who lives inthe EZ

• Work opportunity credits provide businesseslocated in EZs up to $2,400 against their federaltax liability for each employee hired from groupswith traditionally high unemployment rates orother special employment needs, including youthswho live in the EZ.

• Welfare to work credits offer EZ businesses acredit of up to $3,500 (in the first year of em-ployment) and $5,000 (in the second year) foreach newly hired long-term welfare recipient.

To take full advantage of these programs, smallbusinesses need assistance with business plan-ning, loan applications, and the use of financingtools. AGA should take a more active role in “bro-kering” these programs to the businesses withinEl Parian and the larger community in partner-ship with local lenders. Students from UTSA andthe members of the local Service Corps of RetiredExecutives (SCORE) program may be availableto provide additional support for AGA’s businessassistance staff. SCORE operates out of localSmall Business Administration offices.

The panel understands that the local chambers ofcommerce lead economic development efforts intheir quadrants of the city. AGA, in partnershipwith the West Chamber and the South San Anto-nio Chamber, should try to use some of the enor-mous economic effect of the new Toyota manufac-turing plant and its spin-off development to buildthe local business base, both in terms of existingfirms and for attracting business and develop-ment. Procurement opportunities should be iden-

El Parian provides a home for many smallbusinesses with ties tothe community. It is partof the concentration ofservices near the AvenidaGuadalupe and SouthBrazos Street intersection.

tified and assistance provided for local companiesto take full advantage of these. In addition, a con-certed effort should be made to ensure that theresidents of this neighborhood have access to thenew jobs created in the course of this economicgrowth.

Expand Cultural EventsThe Guadalupe Theater and Guadalupe CulturalArts Center together form the heart of the neigh-borhood—both literally and figuratively—and areresponsible for preserving the cultural heritageand traditions of this historic Hispanic neighbor-hood. AGA and other community organizationsshould take the lead in preserving this heritagethrough the organization and implementation ofan increased program of cultural events, such asCinco de Mayo and Diez y Seis de Septiembre pa-rades, and las carretas in Plaza Guadalupe.

Thought should be given to more broadly market-ing these cultural activities as a way of heighten-ing awareness of the rich traditions and history ofthe neighborhood—attracting visitors, potentialresidents, and businesses to celebrate Hispanicculture and heritage. This activity will give theAvenida Guadalupe community greater visibilitywithin the city of San Antonio, attracting new cus-tomers for local businesses.

Involve UTSA UTSA intends to expand its downtown campuscurrent enrollment of 6,000 students in the com-ing years. The university will be developing newfacilities and may begin to develop housing forstudents. The proximity of the university to theAvenida Guadalupe neighborhood provides poten-

tial new renters, as well as patrons for local busi-nesses. The AGCAC organization formed to over-see redevelopment (and which is discussed in theImplementation section of this report) should in-clude a representative from UTSA.

Expand Job OpportunitiesThe far southeast part of the study area, boundedby Avenida Guadalupe on the north, South MedinaStreet on the east, Tampico Street on the south,and Alazan Creek on the west, is currently a cen-ter for warehousing and distribution. The city’sEconomic Development Department should be en-couraged and supported in its efforts to locate ad-ditional job-generating employers in this area,providing easy physical access to new job opportu-nities for the residents of Avenida Guadalupe.

Targeted DevelopmentThe panel recommends that the city target spe-cific areas for development. Two prime develop-ment opportunities were identified and are dis-cussed below. The panel suggests that the cityfocus its efforts on the development potential intwo specific areas, one for mixed-income housingdevelopment and the other for an expansion of theinstitutional-related uses and neighborhood com-mercial district at South Zarzamora and AvenidaGuadalupe.

Develop Mixed-Income HousingThrough a collaboration of San Antonio Alterna-tive Housing, Neighborhood Housing Services,and local nonprofit housing developers, the Pa-rade of Homes affordable housing project is plannedfor an area bounded by Vera Cruz and South Col-orado streets, Apache Creek, and South BrazosStreet that was formerly owned by SAHA. Focusgroups have been held with community residentsto guide the design and determine desired ameni-ties to be included in this development. The ef-fort is well underway and should be strongly sup-ported by the city and local lenders.

As additional development is undertaken in thestudy area, efforts should be made to develophomes of varying sizes and price points to meetthe income limits and housing needs of the peoplealready living in the neighborhood, as well as theirfriends and families.


The area’s Hispanic her-itage is celebrated at theGuadalupe Cultural ArtsCenter.


In February 2000, SAHA initiated a study forthe rehabilitation of several neighborhood areasalong the Avenida Guadalupe corridor. A groupwas formed of interested agencies, nonprofit orga-nizations, and the community to focus on a large-scale redevelopment of the 17-acre site boundedby Torreon Street on the north, the Alazan Creekon the east, Avenida Guadalupe on the south, andSouth Brazos Street on the west. Focus on thisarea was prompted by the availability of devel-opable property, ease of land assemblage, andproximity to the Alazan Courts public housingcomplex.

The SAHA concept was simple. Restore the his-toric fabric of the neighborhood by infilling single-family homes to blend with the existing stock. Thepanel determined that this area is preferable forlarger-scale development and, perhaps, one inwhich the private sector in conjunction with thecity should participate. According to SADA, 52vacant lots or structures exist in the area, andonly 20 percent of the existing structures are in“presentable condition.” Therefore, the panel rec-ommends that this area be designated a target forneighborhood redevelopment.

A visual survey of the area confirmed reportedconditions. The panel recommends that a masterdeveloper be selected to undertake the redevel-opment of this area. This strategy will ensure thata “market” approach will be introduced that in-cludes different housing types, uniformity of de-velopment and design guidelines, ability to marketand ultimately sell the homes, and ability to attractlenders to tailor financing to the buyer market.

The plan suggested by SAHA does not recognizethe Avenida Guadalupe corridor and lines up thehousing units sidewise to the street, making thepossibility of any street connection mostly impos-sible. In the process, the traditional narrow-lotfabric of the street with units oriented to the mainstreet has been lost. The panel noted that a simi-lar approach was taken in the new single-familyhomes developed by SAHA across the street onAvenida Guadalupe.

In contrast to SAHA’s approach, the panel recom-mends that the north side of Avenida Guadalupebe developed with a strong orientation toward the

main corridor. Redevelopment should follow theexisting historic street fabric and current lot sizes.Apparently, SAHA is planning to undertake astudy for a new plan of the Alazan Courts complexin the spring of 2005. That plan is anticipated toaddress the overall improvement of this housingproject and its relationship to the Avenida Guada-lupe corridor. The panel strongly recommendsthat the Alazan Courts project be integrated intothe master development plan of the extended areadescribed above so that the master developer canmore comprehensively address a wider portion ofthe neighborhood. This strategy will also ensurethat a mix of housing products is offered that in-cludes subsidized rentals and market-rate hous-ing. Market-rate units will accommodate theneeds of the nascent middle class so that they canbecome a part of the community. In addition, amix of housing types will provide opportunities forfamilies who want to return to the neighborhood,as well as USTA students who may be attractedto living here.

The lack of profit incentive, together with thechallenging, existing market conditions and thedifficulty of navigating the political process, sug-gests that the private sector would be reluctant toparticipate. However, the panel believes that thecity, through its redevelopment agencies, couldpromote involvement of the private sector in thedevelopment of this area. A heavy subsidy pro-gram should be established, including the city’sparticipation in land assembly, infrastructure de-velopment, waiver of permits, and subsidies toreduce purchase and rental rates.

Develop a Regional Institutional/CommercialDistrictThe new University Center for CommunityHealth–Texas Diabetes Institute and ResearchCenter encompasses 153,000 square feet of med-ical and research space located on the western-most edge of the study area. The center repre-sents a significant capital improvement that offersa critical element of change for the community.

Situated just north of Avenida Guadalupe andSouth Zarzamora Street, the University Centerfor Community Health influences the area withspillover demand for support services. These ser-vices may include medical-related facilities as well


services will add to those currently serving thelocal population, which is most affected by theseconditions, together with the San Antonio popula-tion at large.

The University of Texas might be approached toassist in securing land contiguous to the AvenidaGuadalupe redevelopment area, and could serve,as several other urban universities have, as themaster developer.

The panel has proposed that a convenience retail/support services development be located at theSouth Zarzamora Street/Avenida Guadalupe node,incorporating existing retail uses. The UniversityCenter for Community Health is a significant com-munity anchor, and the panel encourages the cen-ter to continue to work with the neighborhood toidentify additional needs for goods and services.SADA can then assist in the acquisition and clear-ance of land.

If a retail center is deemed feasible, it should beoffered for development to a neighborhood/retailprivate developer through a Request for Proposal(RFP) or Request for Qualifications (RFQ) pro-cess. The development should have adequate sur-face parking in accordance with the city ordinanceand should project at least 25,000 square feet ofretail space to attract a seasoned retail developer.

This more detailed description of two specificareas for redevelopment should help guide thecity’s effort in moving forward with plans for thearea. The development opportunity on the eastside along Avenida Guadalupe provides a signifi-cant mixed-income housing opportunity, whereas,the University Center for Community Healthserves as an anchor and an impetus for additionalinstitutional and commercial services at the west-ern edge of the study area.

as convenience shopping for doctors, nurses, em-ployees, visitors, and patients. South ZarzamoraStreet has already experienced change in land uses.Fast-food providers such as McDonalds and Jack inthe Box have already located nearby. These opera-tions have caused a deterioration of the neighbor-hood residential scale of the adjacent area.

The panel believes that the University Center forCommunity Health in conjunction with the UTSAdowntown campus just east of the study area to-gether represent an opportunity for communitytransformation and urban renewal of the AvenidaGuadalupe corridor. In choosing to remain focusedon the study area, the panel proposes that a Re-gional Institutional/Commercial District be imple-mented by ordinance. This area should encompassthe land surrounded by El Paso Street on the north,South Zarzamora on the east, Colima Street onthe south, and the Apache Creek on the west—an area of approximately 12.9 acres.

This zone should capitalize on the University Cen-ter’s ability to attract other comparable uses suchas medical office buildings, research and develop-ment facilities, and other uses needed to expandthe services of the center itself. Expansion ser-vices might include the proposed Women’s Centerand an allied health career training facility. In ad-dition, the panel recommends that a drug rehabili-tation center, together with geriatric and mentalhealth services, be added to the program. These

The intersection of SouthZarzamora Street andAvenida Guadalupe, nowcharacterized mainly byfast-food restaurants, hasthe potential to become aregional commercial node.


The panel assessment of market factors andplanning and urban design considerationsled to suggested development strategiesfor the study area. This section of the re-

port presents a series of recommendations forthe implementation and phasing of a redevelop-ment plan.

Organizational StructureAfter reviewing the various entities that exist inthe Avenida Guadalupe neighborhood, the panelconcluded that one overarching body must be es-tablished to represent all the stakeholders in thearea. With this need in mind, the panel consultedthe previous ULI Advisory Services panel studyundertaken in November 2004 for the St. PaulGateway District of the Eastside of the city. Afterreviewing the recommendation to create a com-munity action committee in the Eastside study,this panel decided to align its recommendationwith that for the Eastside for ease of implementa-tion and consistency of organizational structure.

Existing EntitiesEstablished in 1979, the Avenida Guadalupe Asso-ciation is the recognized organization working onbehalf of neighborhood interests. AGA has beenresponsible for numerous projects, such as devel-opment of Plaza Guadalupe, construction of the ElParian complex as a small business incubator, re-habilitation of the Guadalupe Theater as a com-munity center, and most recently construction ofa 17,000-square-foot office building known as Ofi-cinas de la Avenida. The Guadalupe Cultural ArtsCenter is also very active in the community, alongwith the San Antonio Alternative Housing Cor-poration and Our Lady of Guadalupe church. Al-though all of these organizations are effective intheir own right, the panel determined that a solesource of communication must be used for theneighborhood as a whole.

Proposed Avenida Guadalupe Community ActionCommittee Numerous plans and recommendations have beendeveloped for the Avenida Guadalupe neighbor-hood. However, recommendations from these ef-forts have not been carried out. A process must bedeveloped to better match completed planning ef-forts with implementation of recommendations.

In following the recommendation for the St. PaulGateway District by suggesting the formation ofthe AGCAC, the panel anticipates that this orga-nization will oversee private and public develop-ment, infrastructure improvements, and ongoingprograms within the neighborhood. AGCACshould be proactive, responsive, and accountableto the city, the residents, and the area stakehold-ers. AGCAC should serve as the oversight andmonitoring entity for the city’s commitments inthe neighborhood. As an organization, it will beof finite duration. The panel recommends that ini-tially the organization be instituted for a period offive years, with the right to renew for additionalyears as appropriate.

Toward this end, AGCAC should have the follow-ing operational parameters:

• AGCAC should be established by an ordinanceof the San Antonio City Council. The ordinanceshould specify the composition of the AGCACmembership, the framework for responsibilities,and the tenure of the members.

• AGCAC should be the city’s “agent” for orga-nizing and executing an overall developmentstrategy for the area. AGCAC staff should in-clude a program manager in the NeighborhoodAction Department.

• AGCAC should act as liaison between the com-munity and the city council to address the needsof the neighborhood.

Implementation


AGCAC would initially be charged with specificmandates, such as the following:

• AGCAC should create a strategic action planfor the first two or three years of operation.This plan would focus exclusively on tasks toimprove the overall appearance of the neighbor-hood. The strategic action plan should establishpriorities and the funding needed for implemen-tation. AGCAC should also work to ensure aninclusive and ongoing public involvement pro-cess. It should work with city staff to track thereturn on investment.

• Following development of a strategic actionplan, AGCAC should present the plan to thecity council for its endorsement. Periodic re-ports should be made to the city council andan annual report outlining progress should besubmitted.

• AGCAC should have input into the proposedplans and designs of prospective publicly fundedor incentivized neighborhood projects for appro-priateness with the overall design objectives asdetermined by the community.

The panel suggests that AGCAC be composed ofnine members, including the following:

• The city council representative from the area;

• A representative from a faith-based organization;

• An experienced housing developer who is not astakeholder in the neighborhood;

• A representative from the University Centerfor Community Health;

• A representative from UTSA;

• A representative from a nonprofit institution inthe area;

• Two neighborhood representatives (ideally onehomeowner and one renter);

• A major neighborhood business owner; and

• A school district representative.

Individuals appointed to AGCAC should serveon a volunteer basis. The members will effectivelyserve as a board of directors representing theneighborhood as a whole. One member of AGCACmust be identified as the champion for the group.

Right: A view of the inte-rior of Plaza Guadalupeframes Our Lady ofGuadalupe Catholicchurch in the distance.Far right: Plaza Guadalupe,built in 1984, provides anattractive facade but doesnot bring activities intoview along the street.


This role is important, crucial to the success andeffectiveness of the community action committee.

AGCAC’s meetings should be open to the public.These meetings must be held in the community, ata time that is convenient for residents and busi-ness owners. Representatives from city depart-ments associated with projects in the neighbor-hood should also attend. A team composed of staffmembers from various public agencies could beformed to advise the Program Manager. This teamwould ensure public sector involvement and coor-dination with AGCAC.

Program ManagerThe position of program manager must be createdto serve as staff support to AGCAC and should belocated in the Neighborhood Action Department.Responsibilities of the program manager shouldinclude the following:

• Assist in organizing AGCAC and preparing astrategic plan, which is the detailed action planneeded to implement a master plan for the over-all area (note that the conservation and urbanrenewal plan, discussed below, is one componentof a master plan);

• Be the primary contact for residents and busi-ness owners in the neighborhood;

• Be responsible for communication betweenAGCAC and city council;

• Be responsible for communication betweenAGCAC and city departments;

• Provide budget oversight for projects withinthe community;

• Provide staff support to AGCAC; and

• Provide staff support for the NeighborhoodCommercial Revitalization program.

Implementation Tools To support these recommendations, the panelidentified a number of implementation tools.These are discussed in the following sections.

Conservation and Urban Renewal PlanFirst, the panel suggests that the city proceedwith the necessary studies to move forward witha Conservation and Urban Renewal Plan. Theplan should be designed to effectively deal withthe existing blighted conditions and the negativeeconomic activities that are occurring in theneighborhood.

Manageable and realistic boundaries for the Con-servation and Urban Renewal Plan should be es-tablished. Following this action, a survey of allthe structures within those boundaries should beconducted to determine the physical condition ofeach. A land use plan for the area then needs to bedeveloped. On the basis of the condition survey,properties should be designated for rehabilitationor demolition. Demolition should be used to meetplan objectives only for blighted properties whererehabilitation is not economically feasible.

Funding sources must be designated to align withrehabilitation, demolition, relocation of residents(due to demolition), and reconstruction. A memo-randum of agreement with the Texas State His-toric Preservation Officer should be written to en-able use of federal funds for historic structureswithin the project area.

City Participation and ResponsibilitiesThe leadership of the city of San Antonio mustensure that first and foremost the Avenida Gua-dalupe neighborhood attains the image of a cleanand safe community and overcomes negative per-ceptions. Secondarily, effective and coordinatedcommunication among all relevant city agenciesmust be established. In addition, the city musttake the following steps to support the panel’srecommendations:

• Streamline the development process, especiallywith respect to the time required for processingof applications and project plans.

• Waive permit and processing fees in the proj-ect area until substantial economic investmentexists.

• Develop materials in English and Spanishthat clearly identify all the resources availablewithin the project area to support projects.


• Have these materials readily accessible withinthe community. Consider using AGA as a re-source for dissemination of this information.

• Ensure that the Program Manager is recog-nized as the liaison for this neighborhood.

• Enforce code compliance within the neighbor-hood. Such action may require that the city hireadditional enforcement officers. Provide prop-erty owners with information on the financialresources available for them to bring theirproperties up to code.

• Provide subsidies to renters and homeowners if necessary.

• Work with SAHA to upgrade the appearance of Alazan Courts by painting the housing units,adding porches, and landscaping.

• Support University Center for CommunityHealth and UTSA as economic generators forthe neighborhood.

• Refer to the CRAG 2000 report for implemen-tation tools.

• Recognize that in the short term financial re-sources must be targeted to focused areas toovercome obstacles to development.

• Develop an open space plan for the corridorand environs.

• Assist in land assemblage efforts and infrastruc-ture development.

The city needs to provide incentives to attract pri-vate development interest. Ultimately, the overall

community should benefit from an increase inamenities associated with new development.

ZoningZoning is one of the key tools necessary to imple-ment the recommendations put forth by the panelstudy. The city must take the following steps:

• Support the city council’s adoption of the zoningdistrict that will permit development on 3,000-square-foot lots. This action will ensure a levelof architectural compatibility with existingbuildings. The city council should act on thisproposal sooner than the scheduled July 2005hearing date.

• Examine the permitted uses in the commercialzoning category along Avenida Guadalupe todetermine whether they are compatible withthe proposed improved pedestrian environ-ment, and rezone inappropriate commercialuses. Concentrated commercial services will en-able and encourage pedestrian movement be-tween establishments and along the corridor.

• Create a Neighborhood Conservation OverlayDistrict that will encourage appropriate designstandards for residential development andneighborhood-oriented commercial uses. Con-centrated commercial services will enable andencourage pedestrian movement between es-tablishments and along the corridor. The scaleof development should be conducive to pedes-trian activity rather than automobiles. Theoverlay district should be seen as a tool to sup-port and protect public improvements and in-vestments made, or planned, to enhance thepedestrian environment.

• Have SADA work with owners of business op-erations located on the Avenida Guadalupe cor-ridor that are not considered appropriate uses.These businesses should be relocated to an areathat will permit their activities to flourish eco-nomically. The city must then conduct an envi-ronmental assessment of the properties and, ifnecessary, coordinate cleanup efforts and reme-diation to prepare these sites for reuse.

Public InfrastructureNumerous public infrastructure improvementsare needed in the community, and a clear time-

Bienvenidos—painted onthe side of a building onAvenida Guadalupe nearSouth Brazos Street—welcomes visitors to theneighborhood.


table for implementing the recommendations mustbe established. Appropriate street lighting shouldbe installed throughout the neighborhood to re-duce crime and provide a safe pedestrian environ-ment. All new developments should provide ade-quate lighting and other public amenities on andaround their site. Apparently, stormwater man-agement has been a problem throughout the area.The necessary stormwater improvements shouldbe made, where needed, throughout the neighbor-hood and commensurate with development.

It is important to coordinate the phasing of street-scape and infrastructure improvements with theanticipated redevelopment activities. Availablefunding sources for street improvements shouldbe identified. In particular, discussions with VIAshould begin in an effort to work together in pro-viding attractive bus shelters, signage, and the like.

Marketing the Area for DevelopmentCreating a brand image and marketing programfor Avenida Guadalupe is an effective method forsupporting the revitalization efforts. The panelrecommends that AGCAC establish a brandingpartnership with VIA. This branding could in-clude, for example, a colorful and easily recog-nizable logo incorporated in the signage advertis-ing and identifying the area. It could be repeatedon banners and even on the sides of city buses withroutes along Avenida Guadalupe. This action wouldsupport VIA’s neighborhood identity program.

The panel further recommends that a specialevents plan be devised. This plan can include anynumber of activities: a farmer’s market the firstSaturday of each month at Plaza Gaudalupe; pa-rades along the corridor signifying certain holi-days; arts and crafts fairs, advertised citywide,that will promote and exhibit work done by resi-dents of the neighborhood; and other similar activ-ities designed to highlight the distinctive culturalaspects of the area.

Another effective marketing strategy is to targetthe real estate community, particularly realtors.The idea is to get realtors interested in sellingproperty in the area by keeping them up to dateon the continuing improvements. Advertising therestaurants, special events, and shops with goods

specific to the Hispanic community will furtherattract consumers from beyond the edges of theneighborhood. Success will be judged by creat-ing greater interest in the community and at-tracting visitors to the area by highlighting itsmany assets.

TimelineThe panel divided the timeline according to majoractivities and time periods ranging from immedi-ate to long term. The timeline has been estab-lished as a guide for the city to follow. It allowsthe city to assess its progress and maintain con-trol of the redevelopment process.

First and foremost, the area must change itsimage and gain attention for its cleanliness andsafety. A range of other immediate actions, thoseto be completed by December 2005, needs to occur.The Avenida Guadalupe Community Action Com-mittee should be formed. This action requires ap-pointing a city employee as an interim programmanager, identifying funding sources, and estab-lishing communication among all the stakeholders.Marketing efforts should also begin right away byestablishing a partnership with VIA to preparemarketing materials and begin special-events pro-gramming. An inventory and assessment of allproperty within the bounds of a conservation andurban renewal plan area will require oversight byAGCAC and participation by city staff membersand perhaps UTSA students.

The public should be involved in the planning pro-cess, which should be immediately followed by acomprehensive rezoning effort to support theplan’s objectives. A neighborhood conservationoverlay district should be adopted as part of therezoning process. It is important that the immedi-ate community, the host environment, and thecity all become aware of improvements takingplace. Toward this end, streetscape planningshould begin immediately and should include at-tention to open space and recreation. A programfor special events should begin and gradually buildover the long range.

Short-term actions should occur within one to twoyears. Recommended actions entail hiring a per-manent program manager for AGCAC, imple-


Implementation Timeline

Activity Groups Immediate (End 2005) Short Term (1–2 Years) Midterm (3–5 Years) Long Range

Organizational development

Organize the AGCAC Hire permanent program manager for AGCAC

Marketing Establish branding partnership with VIA and pre-pare marketing materials

Implement VIA neighborhood identity program

Development Complete property survey for code compliance,historic signiicance, property condition, ownership,and rehabilitation/adaptive reuse potential

Identify private development opportunities

Open space Establish recreation facility-sharing partnershipswith the University Center for Community Health,area schools, and other existing entities

Work with the Department of Parks andRecreation to develop a neighborhood open-space action plan

Infrastructure Create neighborhood streetscape design standardsand identity program

Increase street-lighting levels on all streetswithin the study area and influence area

Create plan for redesign of the AvenidaGuadalupe corridor

Organize weekly or monthly outdoor marketfor neighborhood craftsmen and ethnicproduce/food vending

Quality of life Clean and safe sweep Target neighborhood for enhanced owner-occupied rehabilitation funds allocation

Increase visible police presence on streets Increase visible police presence on streets

Partner with Annie E. Casey Foundation to preparehuman capital investment plan

Initiate workforce development program forarea residents

Coordinate available support services for neighbor-hood residents and businesses

Establish small business development fundingand training programs

Create conservation and urban renewal plan for thestudy area and the influence area

Attract private developer(s) for market-ratehousing projects on publicly owned parcels using a competitive RFP/RFQ process

Complete historic resource survey Assemble land and relocation housing opportunities

Appoint city employee as interim program manager

Create special events plan Continue regularly scheduled special events inthe neighborhood

Adopt neighborhood conservation overlay zoningdistrict

Establish format for ongoing communication witharea residents, businesses, institutions, and gov-ernment agencies

Identify funding resources


Midterm (3–5 Years) Long Range

Increase resident/business owner participation Evaluate need for AGCAC to continue

Initiate targeted marketing efforts to realtors andconsumers

Continue to market area business and housing opportuni-ties to consumers and investors

Attract private developer(s) for commercial and mixed-use development projects on publicly owned parcels using a competitive RFP/RFQ process

Facilitate expansion of the University Health Center and UTSA

Enhance Plaza Guadalupe to provide open space and street-fronting outdoor market opportunities

Create school/park loop

Implement necessary stormwater improvements Implement Avenida Guadalupe street improvements

Create neighborhood pocket parks

Target neighborhood for enhanced owner-occupiedrehabilitation funds allocation

Target neighborhood for enhanced owner-occupiedrehabilitation funds allocation

Create a neighborhood small business incubator

Facilitate development of student housing Facilitate private development of regional commercial atthe South Zarzamora Street node

Expand regularly scheduled special events in theneighborhood

Continue regular special events in the neighborhood


Center for Community Health and UTSA will con-tinue as the major anchors and economic enginesfor continued community development. Privatedevelopment should further define the AvenidaGuadalupe/South Zarzamora Street area as a re-gional retail district. In terms of infrastructure,Avenida Guadalupe street improvements shouldbe completed and should include a greenway con-necting school-affiliated recreation areas and pub-lic open space as well as neighborhood pocket parks.Rehabilitation should continue to increase resi-dential and commercial ownership opportunities.

This plan is ambitious, but it should succeed insafeguarding and upgrading the Avenida Guada-lupe community. Enhancement of neighborhoodassets will serve to strengthen and ensure thecontinued viability of this area.

menting a VIA neighborhood identity program,and providing developable parcels for private de-velopment opportunities. Continuation of street-scape improvements and a plan for redesigningthe corridor and devising an open space plan shouldbe undertaken during this time frame. Rehabilita-tion of properties should begin, including a focuson business development.

Within three to five years, the midterm, residen-tial and business development should increasethrough marketing efforts aimed at realtors andconsumers. Through the RFP/RFQ process, thecity should begin to solicit plans for publiclyowned parcels. UTSA should be encouraged toconsider the development of student housing inthe area. Infrastructure improvements should becontinued. A small business incubator spaceshould be developed to complement plans now un-derway next to the Dollar Store in the area northof South Brazos Street.

Long-term projects include a continuation of pre-viously recommended activities with the reevalua-tion of an ongoing need for AGCAC. The market-ing effort should continue to promote the area foradditional business and housing opportunities.The panel hopes that expansion of the University


Development must also balance the need for neigh-borhood convenience services, modest job growthwithin the area, expansion of medical and commer-cial uses, an increase of community and culturalevents, and an improved pedestrian and vehicularenvironment. Redevelopment of the corridor mustinclude the comprehensive consideration of overallneighborhood needs. In other words, this plan ismore than just a corridor plan—it is a plan that re-quires the community to come together in deter-mining a vision for the area.

Numerous problems and constraints must be over-come, beginning with a change in the perceptionsof the area. With immediate public intervention, ahigher level of safety and cleanliness can surelybe reached. Infrastructure improvements to thestreetscape and solutions to drainage and floodingproblems must also be addressed. Circulation is-sues caused by one-way streets can be adjusted,and two-way traffic in single lanes along AvenidaGuadalupe is recommended. Parking should beclearly marked and conveniently located to attractcustomers to new commercial offerings. Some mod-est changes in the circulation system can also helpimprove connections to the downtown throughsignage and other wayfinding means.

New development must address the street andthereby add presence and vitality to the street-

To facilitate redevelopment of the community,the panel proposed establishing AGCAC asthe organization in charge of facilitatingchange. Modeled after the recommendation

for the St. Paul Gateway District by a previousULI Advisory Services panel, the committee willhelp simplify the process for the city and prove ef-fective in dealing with the myriad issues involvedin the redevelopment process. A champion fromamong the participants of the AGCAC will serveas the liaison between the community and the citycouncil. A program manager should be appointedto represent the public agencies involved in rede-velopment and serve as staff support for AGCAC.AGCAC should have input to the planning and re-view of prospective publicly funded projects. Thisorganization is intended to represent all commu-nity stakeholders.

Diversity of housing products and small businessdevelopment will benefit the neighborhood interms of adding choices and creating more vital-ity. The panel suggests that action begin with theidentification of land assemblage and relocationopportunities so that, ultimately, publicly ownedland can be offered to private developers throughthe RFP/RFQ process.

The panel believes that the Avenida Guadalupearea can be revitalized in a way that exhibits sen-sitivity to the community’s Hispanic cultural her-itage. This cultural aspect of the community willultimately serve to attract private sector develop-ment interest. Construction of new quality hous-ing—both affordable and market rate—will ad-dress the need for both workforce housing andmove-up housing. Additional housing will creategreater demand for and support of expanded re-tail services. Given the number of vacant parcels,the potential for land assemblage for larger resi-dential development opportunities should increaseprivate development interest.

Conclusion

Drainage channels protectthe neighborhood fromflooding.


scape; new development should not turn its backon the street. The panel envisions two primarynodes of development along Avenida Guadalupe:one at South Brazos Street, and the other at SouthZarzamora Street. A Conservation District shouldbe established between the two nodes. This areawill support new development of housing and con-venience retail in scale with the existing buildings.

An employment opportunity area exists just eastof the study area. It is composed of warehouse andlight industrial uses and has recently experiencedan influx of small businesses and entertainmentuses. The panel urges the city to promote thisarea for additional employment-generating busi-nesses. Eventually, the bridge that connects thispotential employment area to the study area tothe west, and to UTSA and the downtown fartherto the east, could be redesigned to appear less as a barrier and more as a link between the Hispaniccommunity and the downtown.

The Avenida Guadalupe area needs to be promoted.Regularly scheduled events held throughout theyear can begin to showcase the attributes of thearea. Avenida Guadalupe businesses and housingopportunities should be marketed to consumers,realtors, and investors.

The expansion of major economic activity in thearea will benefit the study area. AGCAC shouldhelp facilitate university expansion plans at thedowntown campus and at the health center onSouth Zarzamora Street. Encouraging redevel-opment requires considerable front-end invest-ment by the public sector. The city council shouldbe prepared to make this investment, which maymean targeting this area for a disproportionateshare of public expenditures to provide the incen-tives for redevelopment. Zoning revisions may berequired. The panel also suggests that design anddevelopment standards be prepared to ensure ahigh quality of planning, design, and construction.

The goal of these recommendations is to buildupon the area’s historic and cultural resources. Asmore people are accommodated in better housingand new businesses present additional servicesand employment opportunities, a better standardof living and an improved physical environmentwill become available to the existing populationand attract new investment into the area.

The fully occupied, 150-unit San Jacinto SeniorCitizen Community, low-income housing forseniors, was developedby AGA in 1996 withmajor support from thestate of Texas.


Richard J. (Rick) DishnicaPanel ChairPoint Richmond, California

Rick Dishnica is President of The Dishnica Com-pany, LLC. The Dishnica Company was formed in1999 to pursue Dishnica’s individual investmentgoals; to develop infill housing, both for sale andfor rent in the Bay Area; and to provide real es-tate consulting services. Current major develop-ment projects include obtaining entitlements for(1) the final phase of a residential project next tothe Lafayette BART station in downtown Lafay-ette (the first phase of 75 apartment units wassuccessfully completed and leased in 2001), and(2) the adaptive reuse and conversion of the SanFrancisco Armory, a building on the National Reg-ister of Historic Places located in the Mission Dis-trict of San Francisco.

Dishnica was an executive vice president andthe chief operating officer of American ApartmentCommunities, a privately held REIT, from 1994through March 31, 1999, with responsibility for allapartment operations, development, and rehabili-tation. Until its merger with United DominionRealty Trust on December 7, 1998, American Apart-ment Communities owned and managed directlyor through subsidiaries in this portfolio 54 apart-ment communities containing a total of 14,141units in nine states.

Since 1982, Dishnica was also an executive vicepresident of the Klingbeil Company, predecessorto American Apartment Communities, with oper-ating responsibilities for the western United States.During this period he was directly responsible forthe development of 304 apartment units in SanFrancisco on the site of the former WinterlandAuditorium. In addition, he was involved in devel-oping three other apartment projects comprising1,012 units in the San Francisco Bay Area. He wasresponsible for obtaining lower floater tax-exempt

bond financing for all of these projects, a new fi-nancing technique for financing apartments in the1980s. All of these projects were in infill locations.During the period 1989–1993, he also served asthe chief financial officer and chief operating of-ficer of K/W Realty Group, a Klingbeil-affiliatedcompany in the for-sale housing business. His rolein this company included overseeing the joint ven-ture development of 42 subdivisions with morethan 4,000 units of housing for sale, most of whichwere located in three major metropolitan markets.

From 1980 to 1982, Dishnica was a principal ofComstock Ventures Limited, a real estate ven-ture capital company. From 1978 to 1980 he wasvice president of Fox and Carskadon FinancialCorporation where he was responsible for the so-licitation, analysis, negotiation, and managementof real estate development joint ventures. From1973 to 1978, Dishnica was an assistant vice presi-dent with Union Bank in San Francisco, Califor-nia, with responsibility in the areas of commerciallending, real estate construction lending, and loanworkouts. Prior to his employment with UnionBank, he served as an officer in the U.S. Navy,achieving the rank of lieutenant, with assignmentsin Vietnam and as the officer-in-charge of a mine-sweeper. Dishnica received his MBA from theUniversity of Southern California in 1974 and hisBS degree from Ohio State University in 1968.

Guillermo AguilarDana Point, California

Guillermo Aguilar, AIA, has more that 25 yearsof experience managing and developing large,complex projects. As a project executive, he hasprovided professional services, including devel-opment services, architectural design, programmanagement, environmental planning and design,master planning, and real estate development, forconstruction projects totaling over $3 billion.

About the Panel

With his strong management approach, extensivedevelopment planning, design, and constructionexperience, Aguilar has successfully completedprojects to meet program, design, and aestheticgoals, simultaneously meeting timetables andbudgetary requirements. The types of projects hehas worked on include but are not limited to area-wide development strategies and project imple-mentation, retail/mixed-use development, medical/hospital facilities, hotels and resorts, residentialmultifamily buildings, and office and multiuse de-velopments. Aguilar has proven his knowledge,professionalism, and ability to work in variousareas of the development and program manage-ment field in multiple projects with many typesof private and public institutions, including TheIrvine Co., Walt Disney Co., the city of LosAngeles, the Los Angeles Schools Bond Pro-gram, and several economic development non-profit organizations.

Aguilar received a bachelor’s of architecture fromthe National University of Mexico, a master’s ofarchitecture from Tulane University, and a mas-ter’s of landscape architecture from HarvardUniversity.

Aguilar is a registered architect in California,full member of the Urban Land Institute, councilmember of ULI’s Residential Neighborhood De-velopment Council, and a thesis adviser for theGraduate School of Architecture at the Universityof Southern California. In addition, he serves as amember in the Blue Ribbon Citizens OversightCommittee for school construction in Los Angeles,overseeing more than $15 billion of school bondconstruction.

Aguilar’s work has been published in the LosAngeles Times, Women in Architecture Maga-zine, Landscape Architecture, and CaliforniaArchitects.

Cesar Garcia-PonsMiami Beach, Florida

Cesar Garcia-Pons, a senior associate at the MiamiBeach office of EDAW, Inc., is an urban designerspecializing in community revitalization and rede-velopment of existing neighborhoods. He has

more than 14 years of urban regeneration expe-rience emphasizing downtown planning, masterplanning, site planning, and transportation/ corridor studies.

His project experience includes creating a landuse plan and comprehensive plan amendment forthe annexation of unincorporated areas into thecity of Port Saint Lucie, Florida; the urban designand exploration of residential alternatives to con-vert an existing “event” parking lot along a majorcorridor into a mixed-use commercial project inthe Gulf Park Master Plan in Miami, Florida; theplanning and design of an 800-unit new town de-velopment in a first-ring suburb of downtownJakarta, Indonesia; the urban design and land-scape architecture study to explore and enhanceexisting alternatives to improve the Interstate-395 corridor in downtown Miami; an urban designstudy in Wilmington, North Carolina, to enhancethe existing central business district by improvingthe relationship between the downtown and theriverfront and to explore potential downtowngrowth options; and site planning and landscapearchitecture for several mixed/multiuse condo-minium/office towers and riverwalks in thegreater Miami and Miami Beach area.

Garcia-Pons is a member in the American Plan-ning Association, ULI–the Urban Land Insti-tute, and the International Downtown Associa-tion. He currently serves on the boards of theMiami Beach Community Development Corpo-ration and the Miami Beach Transportation andParking Committee.

Garcia-Pons received a BA in architecture fromthe University of Miami, Florida, in 1990 andmaintains a relationship with the university asadjunct faculty.

Anish KumarPhiladelphia, Pennsylvania

Anish Kumar directs Hillier’s Urban Design Prac-tice Group. As a Registered Architect and mem-ber of the American Institute of Certified Plan-ners, Kumar brings a special combination of skillsand experience to his clients. His experiencespans the boundary between architecture and



planning, and he has played a leadership role inprojects ranging from developing master plansfor large-scale projects in the United States andabroad to planning and design of complex infra-structure projects.

Kumar’s practice focuses on a wide range of urbanrevitalization projects. He has prepared neighbor-hood plans, corridor development plans, and stra-tegic downtown development plans. His recentexperience includes projects in Florida, New Hamp-shire, New Jersey, New York, and Pennsylvania.

Kumar writes and lectures extensively on sustain-able development, sprawl, waterfront reuse, tran-sit system design, and brownfields rehabilitation.He is regularly invited to speak at the annual con-ventions of the American Institute of Architectsand the American Planning Association. Video-tapes of his lectures Leveraging Infrastructurefor Smart Growth and Reimagining Cities wereselected for distribution on the Web site of theAmerican Institute of Architects. His contribu-tions as an urban designer have received nationalrecognition through prestigious professional awardsand faculty appointments at the University ofPennsylvania and Drexel University.

A graduate of the University of Pennsylvania andof the School of Architecture at Ahmedabad, Kumarlives in Center City Philadelphia where he is ac-tive in the leadership of his community throughthe Center City Residents’ Association and theCentral Philadelphia Development Corporation.

Mary MillerNorfolk, Virginia

Mary Miller is the deputy director of the Down-town Norfolk Council, Norfolk, Virginia. TheDowntown Norfolk Council, established in 1979,is committed to effectively serving its members,the Business Improvement District Ratepayers,the city, and the region by ensuring that down-town is a safe, clean, attractive, and vital place.Current projects Miller is working on include acommercial office space initiative and the cre-ation of a responsible hospitality panel to manageissues related to restaurants and entertainment

uses. In addition, she manages the OperationsStaff of the organization.

Miller has 19 years experience in city planning.She began her career with the city of Norfolk,Virginia, Planning Department, where she servedas staff to the city’s Design Review Committeeand numerous City Council–appointed taskforces. Miller managed the work programs forvarious city consultants, assisted in the develop-ment of the first Pedestrian Commercial OverlayDistrict for the city, and served as the neighbor-hood planner for several areas in the city.

From 1999 until 2001, Miller briefly left municipalplanning and served as vice president of the Lang-ley Group in Kansas City, Missouri. While withthe Langley Group, she managed tourism market-ing programs and public involvement projects.

After brief employment with the city of Chesa-peake, Virginia, as the preservation and urban de-sign planner, she returned to the city of Norfolkin October 2001. As a senior planner, Miller wasresponsible for managing preservation projectsfor the city, managing the Commercial CorridorProgram, staffing the Design Review Committee,and several task forces.

In July 2002, she was appointed as the housingservices planning manager for the city of NorfolkDepartment of Planning and Community Develop-ment. She served in that capacity from July 2002until August 2004 and was responsible for over-seeing and managing the administrative and hous-ing services programs and activities that includedopening the city of Norfolk’s Neighborhood De-sign and Resource Center. The center provides ar-chitectural design and renovation services to Nor-folk residents. She also managed the preparationand publication of A Pattern Book for NorfolkNeighborhoods.

Miller holds a BS in architecture from CatholicUniversity of America and a master’s of commu-nity planning from the University of Rhode Is-land. She is a forum member of the NationalTrust for Historic Preservation a member of theAmerican Planning Association and Urban LandInstitute.


Sue SouthonDetroit, Michigan

Sue Southon is a development professional, train-er, and strategic planner. In 1992, she foundedStrategic Planning Services to provide strategicplanning, site consultation, organizational devel-opment, project management (including construc-tion project management), and grant-writingassistance to industry, government, nonprofit or-ganizations, and educational institutions. Southonhas extensive experience in community, economic,and housing development. She has also servedas project manager for HUD-funded affordablehousing projects in Wayne, Oakland, and Geneseecounties (Michigan). Strategic Planning Serviceshas offices in southeastern Michigan and New Or-leans, Louisiana. Prior to 1992, Southon was withthe Michigan Department of Commerce, responsi-ble for comprehensive strategic planning in dis-tressed communities as well as assisting local mu-nicipalities to develop and implement a range ofbusiness development and retention programs inMichigan’s 83 counties.

From 1995 to 1996, Southon served as the seniordirector of business development for MichiganFirst, the state’s public/private business attrac-tion and marketing organization. From 1980through 1990, she was the executive director ofthe Independent Business Research Office ofMichigan. Housed within the School of Businessat the University of Michigan, the office was cre-ated as a public-policy research resource forsmall business interests.

Southon holds a real estate license in the stateof Michigan. She has authored federal, state, andfoundation grants resulting in awards in excess of$33 million. Southon is on the Training Faculty ofthe International Economic Development Council,Professional Certification Program, the EconomicDevelopment Institute, and the National Associa-tion of Workforce Boards. She is a technical assis-tance provider for the Michigan State HousingDevelopment Authority, Detroit, and MichiganLISC. She is currently serving as interim execu-tive director of Community Development Advo-cates of Detroit, the trade association of Detroit’scommunity-development organization.

Southon received an MS in social work from theUniversity of Michigan in 1970 and a BA in Eng-lish and psychology in 1968.

Nathan WatsonNew Orleans, Louisiana

Nathan Watson has been active in real estate de-velopment in New Orleans for more than 13 years.His company—Watson Developments—focuseson bringing innovative solutions to both urbanand suburban real estate development needs. Cur-rently, Watson is developing planned communitiesin the New Orleans area.

Prior to starting his own firm, Watson was re-sponsible for the development and marketing of a74-acre mixed-use development in downtown NewOrleans named River Park, on behalf of ColumbusProperties. The master-planned urban development—a former rail yard—included more than 700 lux-ury apartments (complete), an expansion of theConvention Center (complete), and 1,250 hotelrooms (still in planning). Watson was also respon-sible for the review of project development oppor-tunities including multifamily, office, hospitality,and storage uses.

Earlier in his career, Watson founded FirsTrustCommunity Development Corporation, a for-profit real estate development bank subsidiarythat focused on urban infill multifamily housingthrough a variety of public/private financingsources.

Watson has been a member of the Urban LandInstitute since 1995. He has served on four ULIAdvisory Service panels—Sparks, Nevada; Oak-cliff in Dallas, Texas; Port Charlotte, Florida; andLowell, Massachussetts. Watson holds a degreein architecture from Auburn University and anMBA from Columbia University.

Walter WiniusPhoenix, Arizona

For more than 45 years, Walt Winius has con-ducted real estate and economic market research,analysis, and real estate appraisals. His work forhundreds of clients has involved market identifica-


tion and analysis, demographic trend analysis,economic trend analysis, absorption rates, projectfeasibility and land use mix recommendations, andvaluation studies in 20 states plus Bulgaria, Kazakh-stan, Macedonia, Mexico, and Slovakia.

Currently, Winius is providing consulting servicesto the International Real Property Foundation, aState Department–funded organization. He hasworked with public and private sector entities inBulgaria, the Czech Republic, Hungary, Kazakh-stan, Macedonia, Poland, Romania, Russia, Slova-

kia, and Ukraine to assist in the privatization ofreal property and provides teaching assistance tovaluers and associated groups in these countries.

Winius is a member of the Appraisal Institute(past national president), the Counselors of RealEstate, and ULI–the Urban Land Institute’s Sus-tainable Development Council. He received BAand BSBA degrees from the University of NorthCarolina. He received an MBA from WashingtonUniversity.

Documents

AN ADVISORY SERVICES PANEL REPORT Avenida Guadalupe San ... · Advisory Services panel report is intended to pro- ... (AGA) board member Theresa De La Haya, AGA Executive Director