OLIVETTE AND UNIVERSITY CITY I-170/OLIVE BOULEVARD JOINT REDEVELOPMENT TASK FORCE FINAL REPORT

(adopted September 7, 2011)

TASK FORCE MEMBERS: UNIVERSITY CITY Mayor Shelley Welsch Nova Felton, Plan Commissioner Marc Jacob, Chairman Rod Jennings OLIVETTE Mayor Jean Antoine J. Gregory Carl, Planning and Community Design Commissioner Lance Finland Michael J. Sewell

Staff Support Provided by: University City Community Development Department and the Olivette Department of Public Services

OLIVETTE UNIVERSITY CITY I-170/OLIVE BOULEVARD JOINT REDEVELOPMENT TASK FORCE

EXECUTIVE SUMMARY In May 2009, the I-170/Olive Boulevard Joint Redevelopment Task Force (Task Force) was tasked by the City Councils of University City and Olivette to explore redevelopment opportunities and joint initiatives in the Olive Boulevard corridor on the east and west sides of the intersection with I-170. Our assignment had many components. We were to discuss similarities and differences between the communities relating to long-range redevelopment goals and objectives; develop principles and goals to guide redevelopment in both communities; solicit expert opinion about the redevelopment principles and make appropriate adjustments; develop action steps to accomplish the long-range redevelopment principles and goals; identify experienced developers; and explore available financing and potential joint governance mechanisms. With the exception of identifying experienced developers, which we believe is premature at this juncture, we have completed our assignment. Our findings indicate that the target area, including the existing land use types and businesses, which have long existed in both communities, is stagnant. Privately-led efforts to rejuvenate the area have not been successful. Over the past several decades, there have been multiple redevelopment attempts which have failed to materialize due to complications in land assemblage, financing, or obtaining the necessary political support. Failure to capitalize on the recent interchange improvements will have long-term consequences to the future image and investment in both communities. Continuing with the status quo as it relates to each community maintaining, planning, and redeveloping the area independently is not recommended. Without a major catalyst to energize property owners to work towards a common vision for the future, we recommend that the cities of Olivette and University City continue to work together. These collaborative efforts should result in a framework for redevelopment of the area that exploits the existing and future transportation improvements. In terms of the next step, we believe the most effective means for a coordinated redevelopment approach is for both the communities to develop an Intergovernmental Agreement. Among other items, this Intergovernmental Agreement should address: economic incentives; marketing and promotion; revenue sharing that recognizes the current sales tax structure; common zoning regulations, including: o complimentary architectural design and site development standards, o common streetscape standards, o a form-based code or other appropriate zoning mechanism for regulating developments reflective of the vision for the area; and o a contemplated master plan to be developed in the future, though the Intergovernmental Agreement itself need not contain a master plan.

After the two cities develop the framework and parameters for the Intergovernmental Agreement, the Task Force recommends that the next joint steps be as follows: continue to use the Saint Louis County Economic Council, the Urban Land Institute, the private development community and others as resources to solicit anchors for redevelopment of the area; and actively pursue Saint Louis County, including the Economic Council, East-West Gateway Council of Governments, Metro, the Missouri Department of Transportation, and the Great Rivers Greenway District, to partner, invest and plan for redevelopment of the areas surrounding the interchange.

While these recommendations are being considered and pursued, both communities should continue the collaborative efforts that reflect the mission of this Task Force. Should any future group be formed to
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assist in the recommended endeavors, the Task Force recommends an established budget to retain specialized professional services. It has been an honor to serve as members of the I-170/Olive Boulevard Joint Redevelopment Task Force. Understanding the dynamics of the study area and the potential impact of a coordinated redevelopment effort on both communities has been an enlightening and rewarding experience. Two economically, environmentally, and socially diverse communities have come together to partner toward a common goal: the sustainable redevelopment of each citys threshold. This partnership should be underscored for its innovative quality, particularly in the regional context. Thank you for this opportunity to serve. The I-170/Olive Boulevard Joint Redevelopment Task Force

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TABLE OF CONTENTS
Executive Summary Introduction Joint Redevelopment Task Force Joint Council Meeting Establishment of Joint Task Force Objectives Task Force Findings Similarities and Differences Redevelopment Principles Expert Opinion Action Steps Experienced Developers with Track Record Financing and Joint Governance Mechanisms Recommendation Next Steps/Conclusion

OLIVETTE/UNIVERSITY CITY I-170/OLIVE BOULEVARD JOINT REDEVELOPMENT TASK FORCE

I NTR OD UC T I ON In May 2009, the Joint Redevelopment Task Force (Task Force) was tasked by the City Councils of University City and Olivette to explore redevelopment opportunities and joint initiatives in the Olive Boulevard corridor on the east and west sides of the intersection with I-170. The Task Force assignment had many components, including the charge to: identify and discuss similarities and differences between the communities relating to long-range redevelopment goals and objectives; develop principles and goals to guide redevelopment in both communities; solicit expert opinion about the redevelopment principles and make appropriate adjustments; develop action steps to accomplish the long-range redevelopment principles and goals; identify experienced developers; explore available financing and potential joint governance mechanisms.

B A C K GR O U ND Over the years, both the City of Olivette and the City of University City have experienced redevelopment pressure at the I-170/Olive interchange. However, the complexities of the area in terms of land assemblage, road infrastructure, and utility services, have presented major obstacles for private development to take root on its own. Each city has actively pursued redevelopment opportunities supported with public financing and redevelopment assistance. Even with these incentives, the development community, the Market, has not found significant redevelopment attractive. Overall, the existing conditions are a detriment to the quality of the Olive Boulevard corridor, and hamper the economic vitality of each community by failing to generate rising tax revenue and by discouraging reinvestment in and maintenance of the area. The area is characterized by a predominance of dilapidated structures, excessive vacancies, depreciation of physical maintenance and a lack of unified planning. Many of the parcels are functionally or economically obsolete. The lots are shallow and indicative of obsolete platting. The parcels are underutilized with respect to site coverage and density. The average age of the buildings in the subject area is 57 years. Buildings have no unifying architectural style, creating a fragmented appearance. Land uses are incongruent and lack synergy. Landscaping, curb cuts and parking layouts are inadequate or inconvenient in many areas. The Olive Boulevard and I-170 interchange is centrally located along the I-170 corridor, with Interstate 64 and the St. Louis County seat of Clayton to the south, and Lambert St. Louis International Airport and Interstates I-70 and I-270 to the north. The interchange serves as the gateway to the western portions of University City and the eastern portions of Olivette, and has long been identified by both the City of University City and the City of Olivette as a major opportunity for redevelopment. One would assume that with the recent improvements to the interchange, redevelopment pressure would increase. The Missouri Department of Transportation invested nearly $25 million in road infrastructure improvements, including a new interchange, street widening along Olive Boulevard, coordinated traffic management along the corridor, and streetscape improvements. Even with said improvements, and considering the current economic conditions facing the nation and region, redevelopment interest in the area has barely accelerated. Our findings indicate that the surrounding lands, including the existing land use types and businesses, which have long existed in both communities, are stagnant. Privately-led efforts to rejuvenate the area have not been successful. Over the past several decades, there have been multiple redevelopment attempts which have failed to materialize due to complications in land assemblage, financing, or obtaining the necessary political support.

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TH E A SS I G N ME N T The Task Force was directed to explore redevelopment opportunities and joint redevelopment initiatives in the Olive Boulevard corridor on the east and west sides of the intersection with I-170. The activities of the Task Force were anticipated to take six months. The requested deliverable is a report to both City Councils with a detailed analysis and recommendation for action steps. A breakdown of the assignment was as follows: Discuss similarities and differences between the communities relating to long-range redevelopment goals and objectives; Develop a mutual consensus on redevelopment principles and goals to guide redevelopment in both communities; Solicit expert opinion and input, both inside and outside the metropolitan area, from a wide variety of disciplines, regarding the identified redevelopment principles and goals for the corridor; Make appropriate adjustments to the redevelopment principles and goals based on the results of the sessions with expert opinion leaders; Develop a series of specific action steps, with proposed timelines, to be pursued by both communities, both individually and in tandem, to accomplish the long-range redevelopment principles and goals; Identify experienced developers with a proven, consistent track record for implementing redevelopment projects consistent with the established redevelopment principles and goals on a local, regional, and national level; Explore available financing and potential joint governance mechanisms to be utilized to pursue a cohesive redevelopment initiative that transcends municipal boundaries as required to successfully implement the established redevelopment principles and goals; Summarize the results of the steps outlined above in a jointly prepared Executive Summary, with supporting background materials, offering specific recommendations for next steps to be reviewed by the respective governing bodies in a joint meeting.

A directive of the City Councils was not to pursue the development of a comprehensive redevelopment Master Plan for the targeted redevelopment areas in both communities. Experience has shown that establishment of a master plan at this stage of a complex, ambitious project tends to limit creativity and consideration of a broad range of redevelopment possibilities and often leads to inadequate attention to changes in the economy, consumer preferences, and real estate market realities that evolve over time. Experience with similar projects indicates that accomplishment of the redevelopment principles and goals is a multi-year process involving a series of smaller, more targeted plans with a variety of successful developers from multiple real estate specialties, consistent with the overall redevelopment principles and goals. As the redevelopment process moves forward beyond the initial phase, a more comprehensive redevelopment strategy (or series of strategies) could emerge as a roadmap for redevelopment over a period of years. However, this proposal does not anticipate the engagement of professional planners during the initial stage of the process, as outlined above. Implementation of the joint redevelopment process does not preclude the ability or prerogative of either community to consider specific redevelopment proposals in the targeted redevelopment areas or proceed with the issuance of a Request for Proposals or Request for Qualifications for redevelopment in these areas. However, the general intent of this proposal is that such efforts will be held in abeyance until the process outlined above is completed. Due to the magnitude and complexity of the proposed cooperative effort, it is likely that professional assistance and guidance during this initial phase will be required to ensure a successful result. While most of the potential legal questions can be adequately addressed by the two City Attorneys, it is expected that the Task Force will require consultation and advice from experts in local government law, redevelopment, and real estate. Potential costs to both
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communities are unknown at this time, but will require authorization by the respective governing bodies. The Task Force has been meeting on a monthly basis since November 2009 to discuss land use regulations and comprehensive planning efforts, establish redevelopment principles and a list of preferred uses, and receive expert opinion on redevelopment potential. F I ND IN G S At the initial Task Force meeting on October 29, 2009, the first item for discussion, following introductions, was whether coordinated redevelopment is a viable option. A general consensus amongst Task Force members was that coordinated redevelopment is a viable option if coordinated redevelopment: builds on the strengths of established businesses already along the corridor; acknowledges and reinforces the existing cultural identity of the corridor and the ethnic diversity; establishes a unique identity for the area other than looking like every other interchange along I-170; has a consistent architectural style connecting the quadrant; creates an area that is walkable, even with the highway and interchange obstacles; encourages higher-density living and businesses that are not necessarily retail only; has strong anchors such as corporate offices, corporate headquarters, or highdensity housing development.

Similarities and Differences. During the first series of meetings in 2009, the Task Force reviewed, and discussed the various planning documents and regulations that had been implemented by both communities. The list of documents included: 1. 2. 3. 4. 5. 6. 7. 8. 9. University City Comprehensive Plan Update of 2005 University City Development Subsidy Policy University City Olive Boulevard Implementation Plan University City document named Olive Boulevard Design Guidelines Olivette Economic Development Tools Evaluation Checklist Olivette Eminent Domain Task Force Final Report Olivette Redevelopment Project Management Process Olivette Strategic Plan-Part 2 Defining Sense of Place Olivette Strategic Plan-Part 3 Launch the Vision

It was the Task Force finding that the overall goals and objectives for redevelopment along the Olive Boulevard corridor as described in the documents of each community were not that different. Both encouraged good planning principles for redevelopment, site design, and architecture. Both communities outlined similar financial development tools, and both communities noted potential use of eminent domain under certain conditions.

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Redevelopment Principles. After reviewing the various planning documents, the Task Force established the following redevelopment principles:
Development should be sustainable, ensuring that any redevelopment surrounding the Olive/I-170 interchange be socially, economically, and environmentally balanced.

Adams, W.M. (2006). "The Future of Sustainability: Re-thinking Environment and Development in the Twenty-first Century." Report of the IUCN Renowned Thinkers Meeting, 2931 January 2006. Retrieved on: 2009-02-16.

The above graphic developed by W.M. Adams in 2006, in The Future of Sustainability: Rethinking Environment and Development in the Twenty-first Century was adopted as a guide to define sustainable development as envisioned by the Task Force. The graphic illustrates the three fundamental components that would be used to gauge whether a development is sustainable: o Component One: The Social implications: Socially, the development should be bearable and equitable: o build on the ethnic mix and diversity found along the corridor; have a strong and affordable residential base, with mixed-income living and housing pricing. Economically, the

Component Two: The Economic implications: development should be equitable and viable:

the development should be operationally viable the development should build on the strengths of a strong anchor, preferably an office/corporate user or high density housing;

Component Three: The Environmental implications: Environmentally, the development should be bearable and viable: build-on and provide for a variety of transportation options. encourage an active lifestyle. strongly encourage LEED building development standards.

Development should build on the principles of Transit Oriented Development. o o o o o o o Walkable design with pedestrian as the highest priority. MetroLink Train station as prominent feature of the development area. A regional node containing a mixture of uses in close proximity including office, residential, retail, and civic uses. High-density, high-quality development within 10-minute walk circle surrounding train station. Collector support transit systems including trolleys, streetcars, light rail, and buses, etc Designed to include the easy use of bicycles, scooters, and rollerblades as daily support transportation systems. Reduced and managed parking inside 10-minute walk circle around the redevelopment area / train station.

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Development in the area should have common architectural elements and identity o Permit varied, yet complementary architectural design which promotes the integration and compatibility of land uses and building uses within the redevelopment area. Ensure the design of buildings provide human scale. Establish the importance of shared space, such as streets, streetscapes, squares, plazas, and connective open space through building location, orientation, massing and architectural design.

o o

Development should serve as a catalyst for future redevelopment along the Olive Boulevard corridor, extending from Skinker Boulevard to Warson Road

In addition to the above referenced redevelopment principles, the Task Force recommends the following additional steps: SHORT TERM: Extend the joint zoning district overlay for at least one additional year; Establish a form-based code; Develop complementary architectural design and site development elements; Adopt common redevelopment policies and develop common redevelopment tools; Continue to actively engage the St. Louis County Economic Council, Saint Louis County, East West Gateway Council of Governments, Metro, Missouri Department of Transportation, and the Great Rivers Greenway.

LONG TERM: Establish redevelopment boundaries; Develop a redevelopment plan encompassing both communities; Adopt redevelopment policies, including the rules for the use of eminent domain.

The vision developed by the Task Force was as follows:

Development Anchors The redevelopment area should have one or more of the following land uses intended to serve as anchors or cornerstones for the redevelopment area: Assembly of multi-story office building that could serve as a: Senior Living Facility Metro Link and Bus Transfer Station Multi-level public parking structure corporate headquarters medical institution/research facility higher education offices/school facilities

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Preferred uses In a mixed use, multi-story format, the following uses would be preferred:

First three levels of a mixed-use structure mid-scale retail, less than 20,000 sf. grocery stores restaurants establishments, including micro breweries wine bars bakeries/delicatessens personal services establishments including: financial services and banks spas, barbers, beauticians tailors/custom dressmaking/shoe repair drop off dry cleaners art galleries museums child daycare entertainment venues, including theaters hotel lobbies

Upper levels of a mixed-use structure general offices government and administrative offices school administrative centers technical and business school branches for continuing education residential units, including: lofts and studio units mixed-income apartments/condos upper end residential units penthouses independent senior living facilities Hotel rooms and suites Hotel banquet facilities Hotel conference facilities

Controlled/Regulated Uses The following uses would be considered under specified conditions regarding their location, design, and size. Limited Uses, under specified conditions (CUPs) Any of the above listed uses subject to conditions regarding location and design medical and dental offices on ground floors urgent care medical facilities medical services, such as dialysis or imaging facilities, on ground floor skilled nursing facilities retail facilities between 20,000 to 50,000 sf.

Controlled/Regulated Uses retail facilities in excess of 50,000 sf. rental car facilities bars and taverns

Discouraged as Standalone Uses The following uses would be discourage as free standing or stand-alone facilities or buildings. gasoline or service stations convenience stores drive thru food establishments carwash car dealers limited service hotels warehouses package liquor facilities pawn shops short-term loan establishments resale/thrift stores tattoo parlors telecommunication facilities, not integrated in the building architecture dry cleaners/laundromats animal hospitals/veterinary facilities surface parking lots as a principle use

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Solicit expert opinion. Various professionals with experience in urban redevelopment, LEED architecture, and economic redevelopment law, were invited to speak before the Task Force. Those invited were: Michael Mindlin Architect with the Jacobs Engineering Group, Inc. Dan Hellmuth, Architect with Hellmuth & Bicknese Architects, LLC. Joe Edwards of University City, active property owner in the U City Loop and former President of the Loop Special Business District. A Technical Assistance Panel made up of members of the St. Louis chapter of the Urban Land Institute. James E. Mello, Attorney with Armstrong Teasdale, LLP. Each professional provided insight on various components of urban redevelopment. Mr. Mindlin discussed with the group the importance of creating an environment that is conducive to social interaction, creating a place with identity, the importance of anchoring a redevelopment with a jobs generator, and investment in infrastructure and amenities. Mr. Hellmuth discussed the importance of creating a development that is self-sustainable, including walkability, capitalizing on the natural environment, and developing efficient, green, and LEED design elements. Mr. Edwards discussed the importance of finding a niche to capitalize on, importance of community cooperation, owner occupied developments, and providing a residential base. The Urban Land Institute was contracted to provide guidance though a Technical Assistance Panel on the whether the preferred uses identified in the adopted redevelopment principles are realistic, what can the municipalities do to attract and incentivize these preferred uses, and what the benefits, obstacles and drawbacks are of the two communities working together. The Panel expressed strong support for the two communities working together; provided advice on a coordinated redevelopment approach that would be primarily overseen through a Chapter 353 Redevelopment Corporation; and found that the redevelopment vision, including the list of preferred land uses, was realistic for the area and St. Louis market place. Mr. Mello advised the Task Force that before a Chapter 353 Redevelopment Corporation is considered, that both communities develop an Intergovernmental Agreement. The intergovernmental agreement would set the parameters in which the two cities are willing to work together, including addressing issues such as governance, revenues and expenditures, and outlining an agreement to develop a joint master plan. The following provides a bullet point summary of each professionals presentation. Michael Mindlin with the Jacob Engineering Group. Michael Mindlin is the Director of Architecture at Jacobs Engineering Group, Inc., one of the worlds largest and most diverse providers of professional technical services, including all aspects of engineering, architecture, construction, and operations and maintenance as well as scientific and specialty consulting. Key points of the discussion with Mr. Mindlin are as follows: Any redevelopment should encourage social interaction. Understand how it works, enhancing individuals perspective of this transaction is a key to great cities. It is important to find the right people to make it happen. There is a need for Place Making, a year round imperative. Job generation is a principle component in the sustainability of any redevelopment effort. Corporate campuses, universities, hospitals, and amenities can all be destination experiences, real communities, cities, and the life on the street experience are dependent on job creation. Understand what is driving the real estate markets today, attracting and retaining a market for real estate is based on: employee amenities; being part of a real community; values and lifestyles; diversity of residential choice; unique and authentic experiences; sustainability; green values; entertainment; recreation; wellness and healthcare; education; and cultural diversity.
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Strengthen each communitys unique qualities. Creating value by creating place. Investment in infrastructure and amenities is crucial.

Dan Hellmuth with Hellmuth + Bicknese Architects. Dan Hellmuth is a principle and cofounder of the firm Hellmuth + Bicknese Architects, a full service architectural design and planning firm dedicated to planning for sustainable development and providing building solutions through high-performance design. Key points of the discussion with Mr. Hellmuth are as follows: Set up an overlay district while development pressures are low. NOTE: The Task Force has done this already. Create a vision that is shared and supported by the public. Capitalize on new American Dream of a livable and walkable community. Create an exciting draw for developers that can see the potential. Be one of the first LEED neighborhood developments. Attract Federal funding. Pursue an opportunity to restore the River des Peres, and address flooding issues. Develop a form based code

Joe Edwards, co-founder of The Loop Special Business District. Joe Edwards creative vision, risk-taking, and leadership have helped transform the Loop into one of the most vibrant restaurant, shopping, arts & entertainment districts in the United States. Mr. Edwards was instrumental in the development of the nationally-renowned restaurant and music club Blueberry Hill, the Tivoli Movie Theatre, the non-profit St. Louis Walk of Fame, The Pageant concert nightclub, Pin-Up Bowl, and the Moonrise Hotel. He has also renovated numerous historic buildings (including creating the Flamingo Bowl on Washington Avenue in downtown St. Louis) and encouraged one-of-a-kind specialty shops, restaurants, and cultural institutions to make The Loop their home. Currently he is spearheading the effort to bring a fixed-track, vintage trolley system back to the area. Key points of the discussion with Mr. Edwards are as follows: Redevelopment efforts should find a niche, as in the vision for The Loop saw a need for a 2,000 capacity night club in the region. Work cooperatively with cities regarding licensing, permitting, etc. Important to have owner occupied businesses. Creation of special business district. Tax rates and licenses need to be same on both sides. Eliminate inconsistencies between both communities. Alluded to the Loops success given its strong residential base.

The Urban Land Institute. The Task Force contracted assistance from the Urban Land Institute (ULI) St. Louis District Council to evaluate the feasibility and merits of both communities working together in the redevelopment of the area surrounding the interchange and to evaluate the preliminary redevelopment principles, including the list of preferred land uses and design criteria. The evaluation was done through the ULIs Technical Assistance Panel (TAP) program, a service intended to provide expert, multi-disciplinary advice to public agencies and non-profit organizations facing complex land use and real estate issues in the St. Louis metropolitan area. Members of the TAP panel included: Bob Lewis with Development Strategies (Planner), Tim Boyle of City Property Company (Developer Builder/Visionary), Bill Kueling of Pulsinelli Law Firm (Attorney), Bill Burke of Oats Associates (Architect), Gwen Knight of Enhanced Value Strategies, Inc. (Developer Financing), and Cady Scott with McCormack Baron Salazar (Developer Marketing and Site Location).
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The TAP panel provided strong support of the idea for Olivette and University City joining together to transform this woebegone area. The TAP recommendations included: Create a bi-city Chapter 353 district and Redevelopment Corporation to tackle: the adoption of a joint redevelopment plan, strict, consistent design standards, and analyze various financing options.

Nurture partnerships by approaching private, county and regional sectors, government agencies as well as Chambers of Commerce, developers, and businesses. Assemble and redevelop the southwest quadrant.

At the same time, the TAP panel recommended the cities jointly be working to: Establish a form-based zoning code for the 353 district; Attract MetroLink and transit-oriented development; Make heavy streetscape improvements; Insist that property owners share design enforcement with the cities; Budget for robust publicity; Find a strong champion for the district.

The TAP panel also found the redevelopment principles and vision, as prepared by the Task Force, reasonable and realistic. A copy of the TAP panel report has been attached. James E. Mello with Armstrong Teasdale. James Mello is a partner with the firm Armstrong Teasdale, LLP, a multidisciplinary law firm with headquarters in the St. Louis region. Jim Mello, practice area leader of the firms Public Finance practice group, focuses on public law. A primary part of his practice involves private-public development projects and governmental finance. As counsel to municipalities, small manufacturers, non-profit organizations, investment banking firms, and banks, Mr. Mello structures deals to finance cash flow borrowings, infrastructure projects, redevelopment projects and other projects. His work has resulted in the financing or refinancing of many public/private projects including retail shopping centers and business headquarters. In addition to his transactional practice, Mr. Mello has significant municipal law and public finance litigation experience. In actions relating to tax increment financing, zoning and finance, he serves as trial and appellate counsel to parties through all phases of governmental litigation. Key points of the discussion with Mr. Mello are as follows: The two communities should first develop term sheet of agreed upon principles, with essentially would serve as the foundation for an Intergovernmental Agreement. Both City Councils should then adopt an Intergovernmental Agreement, to serve as a contract of cooperation. Following the intergovernmental agreement, the two communities should adopt a master plan. Consideration should be given to establishing a 353 Redevelopment Corporation as means to implementation.

In summary. The Task Force invited various development experts with varied backgrounds and expertise. The input from Mr. Mindlin and Mr. Hellmuth assisted the Task Force to develop a comprehensive redevelopment vision focused on the principles of sustainability. The aspects of place making, social interaction, and environmental sensitivity all played roles in establishing the principles for redevelopment. Mr. Edwards experiences dealing with multiple communities help the Task Force develop the framework of the Joint Development Overlay District. This includes references to the redevelopment vision and coordinated plan reviews. The ULI TAP panel reinforced the concept of a coordinated approach to redeveloping the areas surrounding the interchange. The Panel also found the redevelopment vision, and list of preferred land uses, realistic and feasible to implement in the area and overall St. Louis region.
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The Panel also provided guidance as to implementation plan for coordinated redevelopment involving a Chapter 353 Redevelopment Corporation. The guidance provided by the Panel was reassuring. One of the primary tasks for the Task Force was to determine whether cooperation between the two communities was merited. The Panel reassured the Task Force of the benefits of a cooperative redevelopment effort. In doing so, the Panel noted that there would be a series of obstacles and issues that the two communities would have to address, such as taxing structure. The Panel, a mixture of professionals that represent the St. Louis region development community, also reinforced the credibility of the Task Forces redevelopment vision and list of preferred land uses. Mr. Mello provided the Task Force a map as to how a coordinated redevelopment approach should be initiated. This was through the formation of an intergovernmental agreement in which the various issues noted by both the TAPS panel and Mr. Mellos presentation. Series of action steps. It is the Task Forces recommendation that the most effective means for a coordinated redevelopment approach is for both communities to develop an Intergovernmental Agreement. Among other items, this Intergovernmental Agreement should address: use of economic incentives; marketing and promotion; revenue sharing recognizing the current sales tax structure; common zoning regulations, which would include: o o o complementary architectural design and site development standards, common streetscape standards, form-based code or other appropriate zoning mechanism for regulating developments reflective of the vision for the area; and

a contemplated master plan to be developed in the future, though the Intergovernmental Agreeement itself need not contain a master plan.

After the two cities develop the framework and parameters for the Intergovernmental Agreement, the JRTF recommends that the next joint steps be: Continue to use the Saint Louis County Economic Council, the Urban Land Institute, the private development communities and others as resources to solicit anchors for redevelopment of the area. Actively pursue Saint Louis County, including the Economic Council, East-West Gateway Council of Governments, Metro, the Missouri Department of Transportation, and the Great Rivers Greenway District, to partner, invest and plan for redevelopment of the areas surrounding the interchange. Consider the formation of a Chapter 353 Redevelopment Corporation, if appropriate given the circumstances, as a means to implement the Intergovernmental Agreement and promote sustainable development.

While these recommendations are being considered and pursued, both communities should continue the collaborative efforts that reflect the mission of this Task Force. Should any future group be formed to assist in the recommended endeavors, it is encouraged that it be provided an opportunity to solicit not only staff support, but to also have an established budget to retain specialized professional services. Experienced developers with a track record. The Task Force finds that discussions with experienced developers with a track record would be premature given the series of action steps identified above. It is prudent that both Olivette and
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University City lay the ground work to coordinate redevelopment efforts before entertaining redevelopment concepts at this time. Financing and joint governance mechanisms. Throughout the Task Forces research and discussions, various financing and joint governance mechanisms were discussed. The Task Force finds that some form of economic assistance will be necessary if the preferred redevelopment vision is to become reality. There are several reasons why, but one of the main obstacles to redevelopment, whether coordinated or not, is land assemblage. The number of parcels, the obsolete platting mentioned earlier, and costs of land and assisted relocation, present the biggest barrier to generating any form of redevelopment. In addition, the Task Force sees the burden of place making, creating identify, developing a streetscape, and installation of other public amenities will lie on the shoulders of two communities or assigned redevelopment board. There were three primary financing mechanisms discussed: those that generate revenue though sales only, those that provide some form of tax relief or abatement, and those that combine both revenue generation and tax abatement. The financial mechanisms that generate revenue for the development include Community Improvement Districts and Transportation Development Districts. Within said districts, an additional sales tax increment would be placed above current sales tax rates, with the increment directed to overseeing board or commission. The merits of these revenue generating mechanisms is that the municipal boundaries play a limited role. The disadvantage is that the revenue generated is limited to only specified uses, and generally a larger volume retailer, such as a big box, is the best way to capitalize on the sales tax increment. The other form of financing includes abatement or some form of tax relief. The most common form is through tax abatement. In this case, the increment in taxes generated though improved property is diverted to a developer or development board. The money generated could go back to pay for specific development costs incurred. The advantage is that in essence, there is no net tax loss; however, the disadvantage is that the net tax increase is not returned to the citys coffers, nor that of other taxing jurisdictions. A third form of financing is a combination of the two noted above, in which additional sales tax is generated and tax abatement and/or relief can be utilized. The two prominent forms of financing in this category include Tax Increment Financing (TIF) and Chapter 353 District and Corporations. It is important to note that in cases where tax abatement is provided, the issue of eminent domain becomes a focus, whether utilized or not. Both communities would have to work out details regarding potential use of eminent domain. C O NC L US I O N Failure to capitalize on the recent interchange improvements will have long-term consequences on the future image of and investment in both communities. Continuing with the status quo as it relates to each community maintaining, planning, and redeveloping the area independently is not recommended. Without a major catalyst to energize property owners to work towards a common vision for the future, we recommend that the cities of Olivette and University City continue to work together. This collaborative effort should result in a framework for redevelopment of the area that exploits the existing and future transportation improvements. The Task Force recommends that both City Councils meet in a joint work session to discuss the action steps as noted in this report as soon as possible. If both communities are seriously committed to the best and highest use form of redevelopment for this intersection, it is vital that both communities commit to an Intergovernmental Agreement. The Intergovernmental Agreement, at a minimum should address: use of economic incentives marketing and promotion

I-170/Olive Joint Redevelopment Task Force Final Report

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OLIVETTE/UNIVERSITY CITY I-170/OLIVE BOULEVARD JOINT REDEVELOPMENT TASK FORCE

revenue sharing recognizing the current sales tax structure common zoning regulations, which include: o o o o complementary architectural design and site development standards common streetscape standards a form-based code or other appropriate zoning mechanism for regulating developments reflective of the vision for the area a contemplated master plan to be developed in the future, though the Intergovernmental Agreement itself need not contain a master plan.

Both communities should continue to use the Saint Louis County Economic Council, the Urban Land Institute, private development communities and others as resources to solicit anchors for redevelopment of the area. In addition, both communities should actively pursue Saint Louis County, including the Economic Council, East-West Gateway Council of Governments, Metro, the Missouri Department of Transportation, and the Great Rivers Greenway District, to partner, invest and plan for redevelopment of the areas surrounding the interchange. While these recommendations are being considered and pursued, both communities should continue collaborative efforts that reflect the mission of this Task Force. Should any future group be formed to assist in the implementation of recommendations in this report, the Task Force recommends an established budget to retain specialized professional services as needed. It has been an honor to serve as members of the I-170/Olive Boulevard Joint Redevelopment Task Force. Understanding the dynamics of the study area and the potential impact of a coordinated redevelopment effort on both communities has been an enlightening and rewarding experience. Two economically, environmentally, and socially diverse communities have come together to partner toward a common goal: the sustainable redevelopment of each Citys threshold. This partnership should be underscored for its innovative quality, particularly in the regional context. Thank you for this opportunity to serve.

The I-170/Olive Boulevard Joint Redevelopment Task Force

I-170/Olive Joint Redevelopment Task Force Final Report

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