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Commercial Corridors Revitalization Strategy: Final Report of the Commercial Corridors Task Force

9City of Fort Worth Planning Department

REVITALIZATION PRINCIPLES AND STRATEGIES

Guiding Principles

From the assessment of the commercialcorridors’ opportunities and challenges, conclu-sions of the market analysis, and input fromstakeholders, it was determined that central cityreinvestment activities must be directed by thefollowing principles:

• City Council will be proactive and entrepre-neurial.

• Efforts will be market responsive.

• Villages will be collectively managed as a“portfolio of assets.”

• Neighborhood assets will be enhanced.

• Revitalization “tool bag” will have many tools.

• Public investment will leverage privateinvestment.

• Public/private partnerships are essential.

• Regional public policy will support corridorredevelopment.

• Land use planning and zoning will besupportive.

• Effective stakeholder efforts will be coordi-nated and leveraged.

• Catalyst projects will be publicly supported.

Village Analysis

Village plans and analysis were developedthrough research and more than 60 meetingswith stakeholders, developers, regulators,lenders and others, as well as three publicforums held during 2001 at the Fort WorthConvention Center. Well over 200 interestedcitizens and stakeholders, representing a cross-section of the city, attended each of the publicforums.

The first public forum, “Setting the Stage,”was held in January. The character, opportunitiesand barriers of each commercial corridor werediscussed, potential urban villages were identi-fied, and participants prioritized issues andpotential village areas using colored dots to“vote.” Using consultant analysis and the public“vote,” the Task Force selected two villages oneach of the five corridors on which to focus.

During the second forum in April, “MakingChoices,” participants made visual preferencechoices about the land uses, landscaping, andurban design they wanted for the urban villages intheir areas. They also used an interactive exerciseto plan the preferred land uses for each village.These land use and urban design recommenda-tions served as the foundation for the redevelop-ment strategies for the corridors and villages.

In October, the final forum, “Bringing ItHome,” was held, in which the consultant teampresented redevelopment plans and strategies forpublic comment. Their recommendations joinedthe community vision developed through theforums and meetings with the identified marketopportunities and development barriers andincluded an action plan for implementation.

Implementation

Following completion of the village conceptplans and analyses came the challenge ofoutlining an implementable strategy for promot-ing investment in the central city corridors.

As explained throughout the process, no singleproject will revitalize the commercial corridors.Rather, a series of projects that occur over timeand promote excitement and capture the interestof potential investment partners will do so.Therefore, part of the recommended positioningand investment strategy for the commercialcorridors is designing a process that keepsmultiple projects moving forward simultaneously.

Project definition is broad – it includes public,private or public-private physical projects, socialprograms, educational programs, public rela-tions and goodwill-building programs, andpolicy reform. What is most important strategi-cally is to continually introduce and moveforward a number and variety of programs. Thisstrategy builds community goodwill, enhancesquality-of-life, provides opportunities for publicparticipation, allows special-interest groups tohave a role in the revitalization effort, sends amessage that the corridors are making positivestrides towards success, and creates an increas-ingly attractive environmentfor investment and develop-ment. Investors, developersand lenders seek out environ-ments with market opportu-nity and prospects forsuccess, devoid of obstaclesand sound in sustainability.

First Commercial Corridors Public Forum, January 2001


10 City of Fort Worth Planning Department

REVITALIZATION PRINCIPLES AND STRATEGIES (Cont.)

Summary of Standard Strategies

• Public, private and non-profit advocatesimplement the reinvestment strategies.

• Central city and corridor projects provideleveraged financial return – “village portfo-lio.”

• City maintains a pro-business attitude towardsredevelopment in the central city.

• Surplus properties are returned to tax rolls atan accelerated rate.

• Existing resources are fully utilized.

• Neighborhoods are extensively involved.

• Comprehensive financial resources are madeavailable.

• Commitment is made to remedy existingproblems and prevent future ones.

• Higher-density urban infill projects in thecentral city are encouraged.

• Central city business recruitment, retentionand expansion are promoted.

• Public commitment is long-term.

• Development framework is established withshort-term standards and long-term guide-lines.

• Cultural and historic resources are preserved.

• Physical environment balances role ofvehicles and pedestrians.

• Officials and leaders continue public outreacheffort to increase awareness of redevelopmentgoals and strategies.

Actions and Timeframe

The final step in the Commercial CorridorsRevitalization Strategy was development of anaction plan for the village plan strategy ele-ments. The action plan describes the roles andresponsibilities of those departments, organiza-tions and individuals identified to implement thestrategy elements, as well as the City’s rolerelative to their implementation. The planaddressed timing – which strategies can beimplemented immediately (1 to 2 years), in thenear-term (3 to 5 years) and long-term (6 to 10years). Many of the strategies should continuefor years to come.

Historically, the planning, financing andimplementation of projects in the city were theprimary responsibility of public sector entities.The City was understood to have the largest andlongest-term interest and responsibility, makingit the obvious lead in any revitalization orinvestment effort. However, while the publicsector will continue to play a significant role inthe implementation of this strategy, a criticalcomponent to its success will be participation byprivate, non-profit, neighborhood and otheradvocacy organizations. The City’s role will beto shepherd this endeavor, acting as an advocate,promoter, facilitator, policy maker, financier andeducator. City efforts will need to work in concertwith those of the advocacy organizations. Thecentral city maintains a diverse mix of stake-holder groups, each one an anchor that haschosen its central city location. This plan is theirstrategy, their road map for a vital central city.

Strategy Elements

Just as the challenges or barriers to investmentare multifaceted, so too are the solutions. As thecentral city commercial corridors compete in thelocal and regional marketplace, their “tool bag”must contain a variety of mechanisms to attractinvestment. Given the obstacles or barriersassociated with commercial development, it isimperative that whatever mix of tools is put inplace be comprehensive, flexible and creative.This study identified a variety of incentives andresources that can be packaged together in acohesive strategy. They can be used indepen-dently or in various combinations.

Tools used for corridor revitalization fall intoseveral broad categories including: assistancewith site acquisitions and building and facadeimprovements, start-up capital, operatingassistance, and business counseling.

Strategy elements are organized into twobroad categories: standard strategies, which area necessary foundation for reinvestment withinall of the corridors and villages, and customizedor village-specific strategies. Both the standardstrategies and village-specific strategies havebeen developed specifically for the City of FortWorth central city commercial corridors. Theyare responsive to the market opportunities,village concepts and development programs,financial analyses and broad stakeholder inputprovided by the community and presentedthroughout this process.



STANDARD STRATEGIES Key word presented in bold for reference to glossary.

Regulatory Financial Market Physical

COMMERCIAL CORRIDORS REINVESTMENT STRATEGIES

Immediate (1)Identify city designee to facilitate coordina-tion of permitting and approval process,resource allocation, and elimination ofobstacles – for projects within priorityareas (empowered to negotiate on behalfof City) (1)

Encourage and support demonstrationprojects within urban village areas (1)

Use petition-based process to rezoneparcels for compliance with village plan,encouraging higher density housing andmixed-use (1)

Assign Neighborhood EmpowermentZone (NEZ) designation to villages andqualifying surrounding neighborhoods (1)

Assign priority to the villages in theallocation of capital improvement funds (1)

Actively apply Chapter 34 of InternationalBuilding Code (IBC) in an effort to offerrelief to owners of historically significantproperties (1)

Revise enterprise zone boundaries basedon 2000 Census results; include qualifyingvillages and applicable NEZ area (1)

Immediate (1)Support creation of a community develop-ment public-private partnership (fundingintermediary) for corridor-based advocacyentities. Funding intermediary promotesand supports corridor projects: coordinateswith City designee, provides technicalassistance Research the application ofEconomic Development Administration(EDA), HUD and other federal grant fundsfor predevelopment and developmentassistance (1)

Aggressively research multiple transporta-tion funding sources given variety ofmodes potentially available within thevillage (1)

Encourage innovative bank participation inproject financing through establishment ofloan pools, greater use of:

Historic Preservation Investment TaxCredits (Federal); Historic Site TaxExemption (Municipal); CommunityReinvestment Act (CRA) Programdollars; Reverse Mortgage, etc. (Seeglossary) (1)

Work with lenders to establish a low-interest loan pool for projects within thevillage (1)

Approve qualified requests from villageareas for Tax Increment Finance (TIF)designation to assist with funding capitalprojects (1)

Use Low Income Housing Tax Credits inCDBG-eligible areas for relevant projects(1)

Encourage the use of historic preserva-tion investment tax credits amongqualifying projects in priority areas (1)

Encourage application of historic site taxexemption program among qualifyingprojects in priority areas (1)

Immediate (1)Encourage the provision of communitydevelopment advocacy/services tounserved urban village areas in order todirect and manage implementation ofprojects, collaboration of relevant entities,etc. (see advocacy entity) (1)

Support neighborhood associations to takeon an expanded role in neighborhoodimprovement efforts (e.g., adopt-a-block,nuisance abatement, community policing,etc.) (1)

Use CDCs (Community DevelopmentCorporations) and other communityliaison organizations as holding entities formarket information (1)

Distribute all market information (MPF,Commercial Corridors, etc.) to localdevelopers (1)

Facilitate the offering of educationalseminars promoting investment andeliminating barriers to investment withinthe central city (1)

Immediate (1)Establish a five-year capital improvementplan for each village to fund infrastructure(1)

Assist neighborhood associations, CDCsand other advocacy entities to marketdesign elements of the village plans todevelopers as an interim step beforemixed-use zoning and design standardsare in place (1)

Encourage the development of designguidelines tailored to each village withboard representation from contiguousneighborhood groups (1)

Establish urban renewal districts inselect commercial areas for the purpose ofacquiring and retrofitting commercialproperties (1)

Inventory historic properties within village;prepare zoning overlay; Retain significantbuildings (1)



STANDARD STRATEGIES Key word presented in bold for reference to glossary.

Regulatory Financial Market Physical

COMMERCIAL CORRIDORS REINVESTMENT STRATEGIES

Near Term (2)Institute a streamlined developmentapproval process including use of the keystaff person to serve as liaison betweenthe applicant and appropriate city depart-ments (2)

Establish project thresholds wherebysmaller projects can be rapidly permitted (2)

Provide regulatory options that facilitateland assembly (property purchases, roadvacations) (2)

Return City surplus properties to theprivate sector through a number ofdifferent avenues, including the use ofcommunity development corporations(CDCs), and developer Request forProposals (RFPs) (2)

Maintain publicly-held properties untilreturned to the tax roles; ensure codecompliance through commitment ofappropriate resources (2)

Establish dispersion policies or regula-tions that prevent the concentration ofhomeless shelters, halfway houses, andsocial service organizations (2)

Direct appropriate public facilities (libraries,schools, cultural facilities, communitymeeting places, government administrativebuildings) to villages (see concentratedpublic facilities); lease space in villagedevelopments to encourage other publicentities to locate within villages (2)

Establish a self-certification program tospeed up compliance with regulations (2)

Develop Intergovernmental Agreementswith taxing entities in order to allow for theaccelerated return of surplus propertiesto the tax rolls at below market value (2)

Allow multiple use of plans as qualifyingelement for various programs (e.g., villageplan NEZ designation) (2)

Near Term (2)Work with private foundations and banks toexpand the availability of predevelopmentfunding grants beyond EDA dollars (2)Establish facade maintenance program –(local, state, federal) low interest loans andgrants (2)Delay and/or waive development fees untilNEZ designation implemented within thevillages (2)Research the logistics of establishing low-interest, patient capital project financing inpriority areas through programs such as a“linked deposits program” in other states,public subordination of debt, and othervehicles (2)Promote more aggressive application of taxabatement among qualifying projects in thevillages (2) Make available CDBG, HOME and HIPdollars for affordable housing new constructionand rehabilitation independent of the ModelBlock Program (2)Consider tax exempt bond financing tosupplement financing options for projects inthe villages (2)Encourage and support expansion ofCommunity Development FinancialInstitutions (CDFIs) and designation ofexisting institutions as CDFIs to promotelending in challenged priority areas (2)Establish a task force with lender andinsurance company representation, to discussrate differentials and provide public support tooffset impacts on operating cashflow (seeinsurance redlining) (2)Monitor the space needs of businesses withinpriority areas, providing assistance withassemblage where feasible (2)Commit to creative financing strategies

including infrastructure cost participationwhere feasible (2)

Long Term (3)Evaluate the feasibility of disincentivesdesigned to discourage landowners frompracticing land speculation (e.g., speculatortax, etc.) (3)

Near Term (2)Encourage local utility companies to buryoverhead wires (underground utilities)and/or provide low-interest loans forprojects in priority areas (2)

Utilize available financial incentives tofacilitate brownfields redevelopment (seeEnvironmental Impact Report (EIR) (2)

Establish a parking district to manageshared parking facilities once developmentreaches a certain point, as well as protectneighborhoods from impacts associatedwith commercial development (2)

Near Term (2)Encourage structured and/or sharedparking through regulatory or financialassistance that supports a mix of useswhen cost effective (2)

Promote pedestrian environment througha number of mechanisms:

• minimizing curb cuts, encouraging largerassemblages and projects;

• surrounding big box style developmentwith first-floor retail space;

• minimizing blank walls and dead spaces;• encouraging parking behind buildings(interior to projects);

• offering fee incentives to projects whichmeet this goal (2)

Use petition-based process to rezonedistricts for compliance with village plan,encouraging higher density housing andmixed use (2)



IMPLEMENTATION TO DATE

After more than a year of intense study andcommunity outreach by the Leland team andCity staff under the direction of the CommercialCorridors Task Force (CCTF), the City Councilaccepted the conceptual redevelopment plan ofthe Commercial Corridors RevitalizationStrategy in November 2001. It is a centralelement of Fort Worth’s efforts to revitalize thecentral city. The principal strategies that the Cityis employing for this revitalization are to:

• Develop compact, pedestrian-oriented mixed-use growth centers.

• Revitalize distressed commercial corridors bydeveloping mixed-use villages along thosecorridors.

• Develop a light-rail transit system to connectthe growth centers and villages.

All three of these strategies are addressed inthe Commercial Corridors RevitalizationStrategy.

A major piece of the Revitalization Strategy isthe 65-item Reinvestment Strategies action planfor achieving reinvestment in the commercialcorridors. (See previous section of this FinalReport for the list of the standard strategies.)Strategies for individual villages are found in theVillage Plan section.

The reinvestment strategies support the CityCouncil’s six strategic goals for 2002-2005:

• Create a clean, attractive city and neighbor-hoods

• Make Fort Worth the safest major city

• Diversify the economic base and create jobs

• Revitalize the central city neighborhoods andcommercial districts

• Promote orderly growth in developing areas

• Create a user-friendly government

Since October 29, 2001 when the CCTF wasfirst briefed by the Leland team on the strategiesaction plan, much has been accomplished. Theaction items have been refined, with extensiveTask Force, community, and staff participation.

The Task Force has made several specificrecommendations on which City Council hastaken action, and staff is in the midst of imple-menting the list of the immediate and near-termstrategies.

The City structure has been realigned toaddress central city issues more effectively andefficiently. To that end, the Economic Develop-ment Division of the City Manager’s Office hasbecome the Economic and Community Develop-ment Department. The position of CommunityDevelopment Manager has been created withinthat department to facilitate coordination of therevitalization efforts of the central city andcommercial corridors.

In addition, the City is seeking additionalpublic partnerships to help leverage the neededprivate investment to make the village plans areality. Since 1998, the City has securedapproximately $33 million towards key catalystprojects within the urban villages to triggerbroader revitalization within the commercialcorridors. These funds have the potential toleverage $276 million for development projectsthat are currently in the planning stages.Fort Worth Central City



The City Council has also initiated a Neigh-borhood Empowerment Zone (NEZ) programtargeted to eligible areas around 12 of the 13urban villages. Other redevelopment strategieswill be employed to revitalize the Camp Bowie/Hulen village, which does not meet eligibilityrequirements for the NEZ program. One otherarea, Stop Six, which does not contain an urbanvillage, has NEZ designation. It is also a targetof other City revitalization initiatives.

At the recommendation of the CCTF, the CityCouncil has taken the following steps toimplement the NEZ program for the urbanvillages:

• Streamlined the NEZ designation processfrom a two-step to a one-step process.

• Instituted a requirement that mixed-use zoningbe in place as a prerequisite for NEZ designa-tion.

• Prohibited automatic tax abatements in taxincrement finance (TIF) districts that are alsowithin NEZs.

• Designated the Ridglea NEZ and mixed-usevillage. (M&C G-13580) Accepted the

suggested mixed-use and NEZ boundaries forthe remaining 11 of the 12 eligible villages.

• Agreed that NEZs be designated individuallyafter mixed-use rezoning is in place for thatvillage.

• Adopted a policy that the mixed-use rezoningbe petition-based while reserving the discre-tion to use Council-initiated rezoning underextraordinary circumstances.

IMPLEMENTATION TO DATE (CONT.)

Central City

Mixed-Use Growth Centers

Commercial Corridors

Eligible Urban Villages

Ineligible Urban Village



Neighborhood Empowerment Zones

SUGGESTED NEZ BOUNDARIES

Petitions Not Yet Circulated

Evans & Rosedale

Hemphill/Berry

Mercado

Paddock Bend

Rezoned to Mixed-Use

Ridglea

Petitions for Mixed-Use Rezoning in Circulation

Historic Handley Trinity Park

Oakland Corners West 7th/University

Polytechnic/Wesleyan Berry/University

Magnolia

STATUS OFMIXED-USEREZONING

Existing NEZs

1. Stop Six

2. Ridglea

Suggested NEZs

3. Historic Handley

4. Oakland Corners

5. Polytechnic/Wesleyan

6. Evans & Rosedale

7. Magnolia

8. Hemphill/Berry

9. Trinity Park

10. West 7th/University

11. Mercado

12. Paddock Bend

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CENTRAL CITY COMMERCIAL CORRIDOR …fortworthtexas.gov/uploadedFiles/Planning/My_Urban_Village/2 CC... · CENTRAL CITY COMMERCIAL CORRIDOR ... associated with commercial development,