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AN ADVISORY SERVICES PANEL REPORT Downtown Allentown Pennsylvania

Urban Land $ Institute Downtown Allentown Pennsylvania

Energizing the Vision for Downtown

March 21–26, 2004 An Advisory Services Panel Report

ULI–the Urban Land Institute 1025 Thomas Jefferson Street, N.W. Suite 500 West Washington, D.C. 20007-5201 About ULI–the Urban Land Institute

LI–the Urban Land Institute is a non- resented include developers, builders, property profit research and education organiza- owners, investors, architects, public officials, tion that promotes responsible leadership planners, real estate brokers, appraisers, attor- U in the use of land in order to enhance neys, engineers, financiers, academics, students, the total environment. and librarians. ULI relies heavily on the experience of its members. It is through member in- The Institute maintains a membership represent- volvement and information resources that ULI ing a broad spectrum of interests and sponsors a has been able to set standards of excellence in - wide variety of educational programs and forums development practice. The Institute has long been to encourage an open exchange of ideas and shar- recognized as one of America’s most respected ing of experience. ULI initiates research that an- and widely quoted sources of objective informa- ticipates emerging land use trends and issues and tion on urban planning, growth, and development. proposes creative solutions based on that research; provides advisory services; and publishes a wide This Advisory Services panel report is intended variety of materials to disseminate information on to further the objectives of the Institute and to land use and development. make authoritative information generally available to those seeking knowledge in the field of Established in 1936, the Institute today has more urban land use. than 23,000 members and associates from 80 countries, representing the entire spectrum of the land Richard M. Rosan use and development disciplines. Professionals rep- President

ULI Catalog Number: ASA073

2 An Advisory Services Panel Report About ULI Advisory Services

he goal of ULI’s Advisory Services Program ipants in ULI’s five-day panel assignments are is to bring the finest expertise in the real able to make accurate assessments of a sponsor’s estate field to bear on complex land use plan- issues and to provide recommendations in a com- T ning and development projects, programs, pressed amount of time. and policies. Since 1947, this program has assembled well over 400 ULI-member teams to help A major strength of the program is ULI’s unique sponsors find creative, practical solutions for ability to draw on the knowledge and expertise of issues such as downtown redevelopment, land its members, including land developers and own- management strategies, evaluation of developers, public officials, academicians, representatives ment potential, growth management, community of financial institutions, and others. In fulfillment revitalization, brownfields redevelopment, military of the mission of the Urban Land Institute, this base reuse, provision of low-cost and affordable Advisory Services panel report is intended to pro- housing, and asset management strategies, among vide objective advice that will promote the re- other matters. A wide variety of public, private, sponsible use of land to enhance the environment. and nonprofit organizations have contracted for ULI’s Advisory Services. ULI Program Staff Each panel team is composed of highly qualified Rachelle L. Levitt professionals who volunteer their time to ULI. Executive Vice President, Policy and Practice They are chosen for their knowledge of the panel topic and screened to ensure their objectivity. Mary Beth Corrigan Vice President, Advisory Services and Policy Programs ULI panel teams are interdisciplinary and typically include several developers, a landscape Nancy Zivitz Sussman architect, a planner, a market analyst, a finance Senior Associate, Advisory Services expert, and others with the niche expertise Nicholas Gabel needed to address a given project. ULI teams Associate, Advisory Services provide a holistic look at development problems. Each panel is chaired by a respected ULI mem- Jason Bell ber with previous panel experience. Panel Coordinator, Advisory Services Yvonne Stanton The agenda for a five-day panel assignment is in- Administrative Assistant tensive. It includes an in-depth briefing day composed of a tour of the site and meetings with spon- Nancy H. Stewart sor representatives; a day of hour-long interviews Director, Book Program of typically 50 to 75 key community representa- Stella Tarnay tives; and two days of formulating recommenda- Manuscript Editor tions. Many long nights of discussion precede the Betsy VanBuskirk panel’s conclusions. On the final day on site, the Art Director panel makes an oral presentation of its findings and conclusions to the sponsor. A written report Martha Loomis is prepared and published. Desktop Publishing Specialist/Graphics Kim Rusch Because the sponsoring entities are responsible Graphics for significant preparation before the panel’s visit, including sending extensive briefing materials to Diann Stanley-Austin each member and arranging for the panel to meet Director, Publishing Operations with key local community members and stakeholders in the project under consideration, partic-

Allentown, Pennsylvania, March 21–26, 2004 3 Acknowledgments

n behalf of the Urban Land Institute, the Planning Department, and Linda Kauffman of Al- panel members and staff wish to extend a lentown Parking Authority. special thanks to the Allentown Economic O Development Corporation, participating The panel is indebted to the dozens of community, private sponsors, the city of Allentown, and the business, and government leaders who provided county of Lehigh for their leadership and support unique and valuable insights during the interview during this Advisory Services panel. process. The panel thanks all of these people for offering their time and expertise, and for helping Special thanks are extended to Mayor Roy Affler- the panel understand the issues facing downtown bach, County Executive Jane Ervin, Rob Osborn Allentown from all perspectives. of the Allentown Economic Development Corpo- ration, Ed Pawlowski of the Department of Com- Panel members appreciate the hospitality ex- munity and Economic Development, Bob Wood of pended to them by the people, businesses, and Allentown Ahead, Jack Bradt of the Hamilton government of Allentown, which made their stay Business Center, Roland Sigal of the Hamilton enjoyable. Business Center, Michael Hefele of Allentown

4 An Advisory Services Panel Report Contents

ULI Panel and Project Staff 6

Foreword: The Panel’s Assignment 7 Overview and Summary of Recommendations 10 Market Potential 13 Planning and Design 23 Development Strategies 29 Implementation Strategies 34 Conclusion 39 About the Panel 41

Allentown, Pennsylvania, March 21–26, 2004 5 ULI Panel and Project Staff

Panel Chair F. Anthony (Tony) Orbe Managing Member Anne Warhover Equinox Consulting, LLC President/Chief Executive Officer New York, New York Downtown Denver Partnership, Inc. Denver, Colorado Richard T. Reinhard Principal Panel Members Niagara Consulting Group Atlanta, Georgia Guillermo M. Aguilar Vice President ULI Project Staff TELACU Santa Ana, California Anita Kramer Director Elinor R. Bacon Retail Development President E.R. Bacon Development, LLC Nancy Zivitz Sussman Washington, D.C. Senior Associate Advisory Services Thomas Curley Director of Urban Planning Jason Bell HOK Panel Coordinator New York, New York Advisory Services H. Cales Givens Principal/Vice President EDAW, Inc. Denver, Colorado Hermann J. Kircher President Kircher Research Associates, Ltd. Toronto, Ontario Canada

6 An Advisory Services Panel Report Foreword: The Panel’s Assignment

he city of Allentown has been unusually ac- Lake Erie tive over the last seven years, undertaking NEW YORK numerous activities and programs focused T on downtown. The list is long and comprehensive, and includes grant programs for façade Scranton improvements, loan programs for conversion of Wilkes-Barre upper floors to housing, tax leniencies for develop- OHIO PENNSYLVANIA ment on particular sites, specific studies of down- NEW town housing and retail markets, and a master Bethlehem JERSEY Allentown plan for the cultural arts and entertainment dis- Pittsburgh Harrisburg Reading trict. Trenton Lancaster Philadelphia Camden The overall guide to pursuing, developing, and/ Cherry Wilmington Hill or implementing these programs has been the WEST VIRGINIA MARYLAND Hunter report, a 1997 consultant study. It is clear Above: Location map. At that this report has served the city well. Now, with CARBON 209 WARREN a number of developments in place or well under- 46 left: Regional map. NORTHAMPTON MO way—the PPL Plaza, the streetscape improve- SCHUYLKILL LEHIGH ments on Hamilton Street, the reuse of Hamilton 78 Allentown Bethlehem HUNTERDON Plaza Hotel, the new Lehigh County Historical 78 Society museum, an addition to Symphony Hall, 222 BERKS 476 O N 422 expansion of the Allentown Art Museum, the ini- Reading BUCKS tial phase of the Arts Walk, and the America on MONTGOMERY MERCE 176 Trenton Wheels Museum—the city believes it is time for 276 an updated roadmap for the next round of action. 76 ster LANCASTER PHILADELPHIA 30 Certain key challenges remain. The city still 222 CHESTER Philadelphia Camden struggles with attracting enough vibrant retail DELAWARE Cherry and commercial development to change the image Wilmington GLOUCESTER Hill 206 NEW295 CAMDEN of downtown from a place that “no one” comes to, 322 to one that is a center of city life. Blessed with an terest back to the downtown district. Specifically, array of organizations and departments enthusias- the panel was asked to: tically interested in downtown, the city still must make a great effort to coordinate these interests • Identify uses—commercial, residential, visitor, for maximum efficiency and effectiveness. and higher education facilities—that can thrive in downtown Allentown; In recognition of these challenges and the successes to date, the Allentown Economic Develop- • Recommend planning and design guidelines ment Corporation (AEDC), in partnership with that support recommended market components, the city of Allentown, the county of Lehigh, and a improve aesthetics, and improve circulation; group of private sector sponsors, asked the panel to assist in identifying key strategies that would • Propose development strategies and specify pri- result in bringing community and development in- ority projects; and

Allentown, Pennsylvania, March 21–26, 2004 7 willing to trade a longer work commute for lower- priced housing. Still, Allentown and the surrounding Lehigh Valley are essentially a separate econ- omy, providing employment for most of Allentown’s resident population. According to the 2000 U.S. Census, 78 percent of Allentown residents work in Lehigh County and an additional 11 percent work elsewhere in Lehigh Valley.

Allentown is the seat of Lehigh County and the largest of three cities in Lehigh Valley. Allen- town’s population, which was 206,632 in the 2000 U.S. Census, has remained fairly stable over the last ten years. Bethlehem, immediately east of the city, has a population of 71,329, and further east, Easton has a population of 26,263. About 35 per- Above: The panel dis- cent of the population in the Valley resides in cusses observations these three cities while 65 percent lives outside during a walking tour the cities’ boundaries. It is interesting to note that of downtown Allentown. Allentown is the third largest city in Pennsylva- Right: Mayor Roy nia, after Philadelphia and Pittsburgh, but it is Afflerbach introduces the closer in size to Erie, Reading, and Scranton then panel’s final presentation. the two largest cities. Downtown Allentown was once the commercial center of Lehigh Valley—the main shopping district and employment node. Hamilton Street hosted thriving retail with department stores and a variety of smaller stores, as well as the county courthouse, county government, city gov- • Provide implementation strategies that create ernment, PPL headquarters, various bank re- structure and coordination among the large gional office/service facilities, and Class A office number of downtown supporters. space tenanted primarily by attorneys’ offices who chose to be near the courthouse. Context and Background Information Downtown Allentown’s role as a commercial cen- Downtown Allentown is centered along Hamilton ter has dramatically been impacted by a series of Street from 4th Street to 13th Street. It is this developments, including major retail projects street segment specifically that defines the health within two miles of the center, the demise of and image of downtown, both practically and per- downtown department stores, the loss of a Class ceptually. The briefing materials provided to the A office building to a sinkhole, and the develop- panel also defined downtown as including blocks ment of suburban office parks. The courthouse re- north of Hamilton Street to Linden Street and mains, but attorneys do not appear to need imme- south of Hamilton Street to Walnut Street. diate proximity as they once did. While specific changes in the city core would have, by them- Allentown is in southeastern Pennsylvania, about selves, impacted the downtown profile, develop- 80 miles west of New York City and Newark, and ment patterns elsewhere have seriously impaired 60 miles north of Philadelphia. Over the past the ability to easily replace those losses. Further, decade, Allentown has become attractive to a the demographics of the city have changed, with small but growing number of people who are em- a predominantly lower-income ethnic population ployed in these major metropolitan areas and are concentrated in downtown neighborhoods.

8 An Advisory Services Panel Report The new population could very well represent fresh opportunities, although the current perception is that these demographic changes have taken downtown Allentown one more step away from what it used to be. Further, a major concern voiced by the city and stakeholders is that the general public—seeing high vacancies and lack of foot traffic—perceives downtown to be unsafe. The city’s police data prove this to be unfounded. The panel believes that it will be critical to change this common perception as part of downtown’s revitalization, and it addresses the issue in its analysis and recommendations.

Allentown, Pennsylvania, March 21–26, 2004 9 Overview and Summary of Recommendations

ne of the strongest impressions the panel • New projects should be designed to welcome has of downtown Allentown is that of a pedestrians and create an environment that en- place with extensive activity already un- courages downtown visits. O derway, and of the positive momentum this Prior to developing specific recommendations, the has created. The panel supports the continuation panel also drew up general supporting guidelines, of all programs and initiatives but offers recom- as follows: mendations regarding additional catalyst projects, priorities, and implementation structure. • Downtown should be safe, clean, and friendly. In other words, trash must be removed, sidewalks From a broad perspective, the panel views the cleaned, and lighting improved on side streets. success of downtown Allentown as critical to the • The Latino community should be recognized as economic growth of Lehigh Valley. As the largest a strong source of support for retail, housing, city in the Valley and one with the most extensive and new business. The “cultural divide” must be downtown infrastructure, a vibrant Allentown is bridged. both a symbol and a reflection of the general well- • Signage for streets, places, and parking should being of the area. Regardless of where Lehigh be visible and say “we want you here” to both Valley residents live or work, a healthy urban core vehicular and pedestrian traffic. provides them with a unique blend of enriching amenities, facilities, and activities—culture, edu- Specific development recommendations are made cation, employment, recreation, homes, and a in the context of three districts—a concept drawn place to gather. With commitment from both the from previous planning documents and further re- public and private sectors, the panel believes that fined during the course of the panel’s study. Retail is addressed separately after the discussion of the downtown Allentown can, and will, become the districts as certain retail has a place throughout most important urban center of Lehigh Valley. and near downtown. Prior to developing specific recommendations, The districts extend from about 4th Street to about panel members identified the following develop- 13th Street. An existing night club and entertainment principles, intended for use by the city as it ment district between Front and 4th streets is considers new downtown development proposals. growing and developing based on its own energy They also served as guidelines for the panel’s work: and initiatives, and supports the three districts west of 4th Street. The panel believes that the seg- • Downtown Allentown should be considered first ment of Hamilton Street from 4th to 13th streets for any development or relocation proposed in represents the downtown core from a practical Lehigh County, i.e., Downtown First! perspective and, therefore, this segment is the panel’s primary focus. The panel notes, however, • Development should result in more people on that activity to the east of this core area, notably Hamilton Street—a means to address the per- the America on Wheels Museum and Lehigh Land- ceived lack of safety. ing, is vital to the core in terms of linkages and influence. Unique regional attractions such as these, • Development should provide support for, and be in close proximity to the downtown core, help in connected to, existing and future facilities, there- several ways: They improve the image of the gen- by creating a place rather than individual projects. eral area; they expand the number of leisure and

10 An Advisory Services Panel Report recreational destinations, thereby creating a stronger overall destination; and they provide an additional visitor base for downtown attractions and facilities to draw on.

Commercial District The panel recommends the development of two new anchor projects in the downtown commercial district (Hamilton Street from 7th through 10th streets). The first project should support the district’s destination hotel, the Crowne Plaza. The second project should create a new destination. Both will bring new users to the PPL Plaza, the Crowne Plaza Hotel, the 800 block of Hamilton Street, and the Allentown Brew Pub now under construction—and will increase the number of Above: The 800 block of people on the street. The first priority will be to Hamilton Street is already develop a new conference and exhibit center, undergoing revitalization, which will result in increased use of the hotel. A including: conversion of multipurpose venue should follow. The next step the old Harold’s Furniture in realizing these projects will be research to de- building into a brew pub, termine the requirements of potential users. apartments, and offices; The panel emphasizes the importance of complet- and remodeling of the ing pending office and retail projects—the 800 corner property for a mix block and the Allentown Brew Pub—as well as of office, residential, and leasing the 30,000 square feet at PPL Plaza. These retail uses. At left: The are also catalyst projects for the district, and will Baum School of Art has play a key role in raising the level of daily activity. been a fixture in Allentown for almost 80 years, and When completed, the projects will provide a new at its current location— environment, each giving people one more reason 5th and Linden streets— to come downtown. quired to create a true destination. The panel for almost 20 years. It is views the arts district as one of downtown’s signa- one of the key anchors The Arts District ture areas, and makes its recommendations with of the arts district. the intent to support and encourage the momen- The catalyst activity in the arts district (Hamilton tum already under way. Street from 4th Street to Center Square at 7th Street) primarily comprises the continuation, expansion, and coordination of a wide range of exist- Library Residential District ing projects. The panel additionally recommends the introduction of several new projects into the The catalyst for activity in the library residential district—a child-focused facility, an open-space district (Hamilton Street from 10th to 13th streets) amenity on the sinkhole site, relocation of existing around Allentown’s main library is housing. Hous- festivals to the arts district, and an arts or Span- ing in its many forms—townhomes, condominiums, ish-language theater. Panel members suggest the and apartments—will bring more people into the creation of a management position in support of area and transform the image of downtown. The the district’s cultural activities. The new manager housing stock around the Main Library can be in- would coordinate and cross-promote arts and en- creased through infill development, rehabilitation, tertainment events to maximize their exposure code enforcement, and the conversion of commer- and use. Numerous successful activities will be re- cial upper floors to residential use. In-town resi-

Allentown, Pennsylvania, March 21–26, 2004 11 The Main Library, located Implementation Strategies on Hamilton Street between 12th and 13th In drawing up recommendations, the panel also streets, serves as a com- focused on implementation strategies that will munity center for nearby help Allentown realize its revitalization goals. neighborhoods and pro- The panel’s recommended strategies for moving vides continuity between downtown Allentown into the future are summa- residential areas and rized below: downtown. • The private sector organizes, leads, and supports a vision for downtown.

• Allentown Economic Development Corpora- tion’s sole purpose is to plan and implement dential development has been shown to be one of critical downtown development projects. the essential components in the revitalization of older downtowns. • Public agencies with particular relevance to downtown revitalization coordinate and focus Diverse urban housing attracts a mix of profession- their efforts. als, students, and artists—including those who are looking for move-up housing from nearby neigh- • A “Downtown Summit” educates the citizens of borhoods, those moving in from other metropoli- Allentown and Lehigh Valley on the many posi- tan areas, and those who are looking for a change tive developments occurring downtown—and from suburban communities. This area will be simultaneously invites them to become involved more visually appealing and will become more in shaping downtown’s future. vital as housing availability and choices increase, and more people consider downtown their home. • A clear and concise agenda specifies exact goals. • An independent financial expert evaluates fi- Retail nancing tools now in place as well as effective tools not yet in use for downtown Allentown. The panel considered the current downtown retail potential from two perspectives—that of the down- • Better marketing efforts are used to promote town neighborhood and of the larger region. downtown and address both consumers and businesses. To serve the population on the fringe of downtown, the panel recommends development of a • Universities engage in downtown revitalization, modern community shopping center, optimally lo- whether through location or field projects, cated north of Hamilton Street and in close prox- thereby providing fresh ideas and insights. imity to the proposed Multi-Modal Transportation • The city recognizes that any efforts made in Center. It is likely that local-serving stores now on downtown must be supported by long-term eco- Hamilton Street would relocate to such a center, nomic development strategies for the city as a allowing for a general upgrade of retail establish- whole. ments on Allentown’s main street. Downtown revitalization often is the result of While the panel does not believe that traditional one project/one step at a time, and Allentown has retail is coming back to Hamilton Street, the panel clearly taken many steps forward. The city’s agen- sees the potential for niche specialty stores sup- cies and leaders have the experience, the inter- ported by a wider market. Growth in the current est, and the resources to continue progress—and number of specialty stores will most likely follow a to make downtown a vital center of the city and larger “driver” and therefore the panel’s recom- the Valley. mendations are conditional on particular changes downtown.

12 An Advisory Services Panel Report Market Potential

owntowns across the country are experi- gional growth sectors. It is centrally located in the encing renewed interest from businesses Valley, allowing employers to draw residents from and the general public. Many are success- throughout the region. Downtown can offer a unique D fully being transformed from abandoned environment, one that provides accessibility to cores into vibrant centers of activity. Given down- lunchtime eating places, opportunities to shop and town Allentown’s fitting role as the center of the stroll, and proximity to other businesses. At this city and Lehigh Valley, the panel evaluated a range point, however, downtown faces stiff competition of markets and activities to determine how they from suburban office parks, as evidenced by the can contribute to energizing downtown. Members larger number of workers outside downtown. Sub- considered the office market, retail market, hos- urban settings often offer parking directly in front pitality market, residential market, and arts and of the building and newer space, and also most crit- entertainment. ical at this time—a sense of safety. In 2000, only some 6,000 persons, representing about 11 percent Office Market of the city’s total workforce, were employed downtown. Much of this is government- or utility-based One essential component of vibrant downtowns is employment, neither of which is projected to grow. an active employment base, which provides day- Further, as suburban office nodes strengthen, em- time use of buildings and infrastructure, and sup- ployee bases downtown become further weakened. ports other ongoing activities such as restaurants, Major office buildings of 40,000 square feet or more retail, and service businesses. are concentrated outside of downtown, mainly along Lehigh Valley had 324,247 jobs in 2000, according Route 22. to the Lehigh Valley Commission. The area’s un- Downtown office employment declined sharply employment rate was 5.4 percent in 2002, accord- in the 1990’s due to the collapse of a Class A high- ing to the Pennsylvania Department of Labor and rise office building into a sinkhole, bank merg- Industry. Lehigh County accounted for 65 percent ers, and simultaneous growth of suburban office or 210,244 of the Valley’s jobs and had an unem- parks. Since then at least some of the empty bank ployment rate similar to that of the Valley. Allen- buildings have been reused for nonoffice space, town accounted for 26 percent or 55,498 of Lehigh and downtown’s employment base appears little County’s jobs. changed, if at all. The most significant event was Demand for Office Space the recent relocation of PPL employees into a new The Lehigh Valley Planning Commission projects Class A building, developed by Liberty Property a growth of over 12,000 jobs in Lehigh Valley by Trust, just east of the PPL tower. This move con- 2010. These figures belie the fact that certain sec- solidated existing PPL employees from scattered tors such as finance, insurance, real estate, and downtown sites and did not represent a net in- services are projected to grow, while others, such crease in employment. as manufacturing, transportation, utilities, and wholesale and retail sectors are projected to de- Currently, many of the largest employers in Allen- crease. The growth sectors all rely heavily on of- town are on Hamilton Street or within a few blocks. fice workers. However, they are, for the most part, entities in owned, single-purpose buildings with little need Downtown Allentown should and can be a reason- for outside space. Still, their location downtown able alternative to suburban development for re- provides prestige and stability, and it brings peo-

Allentown, Pennsylvania, March 21–26, 2004 13 Near right: This renovation and remodeling project at 818-822 Hamilton is in a Keystone Opportu- nity Zone, a site-specific state designation that re- duces or minimizes state and local taxes. Far right: The PPL office tower at Hamilton and 9th streets stands out as the visual anchor for downtown when approached from outside Allentown.

ple in on a daily basis. These employers include Recommendations Lehigh County, PPL, Sacred Heart Hospital/Health Based on the observations and analysis discussed, Care System, Good Shepard Home/Rehabilitation the panel makes the following recommendations: Hospital, the city of Allentown, and Morning Call. Other large employers in Allentown, such as Mack • Create a dense node of employment and a visu- Trucks, would not require space downtown given ally appealing new image in order to reestablish the nature of their activities. downtown as a place to do business. This can be accomplished by filling available new and re- The panel notes the importance of new office space habbed space and complimenting the PPL office that is available, or coming on line soon, on Ham- cluster by completing the 800 block. The quality ilton Street. This includes the new building de- of the new PPL building and the public plaza veloped for PPL by Liberty, with 30,000 square creates an anchor for this node. It can further feet of Class A office space available for lease. be anchored by the PPL tower and Crowne As Liberty is seeking a single tenant for the en- Plaza Hotel. tire floor, this space has been on the market for • Direct any subsequent office development to lo- some time. A pending rehabilitation project is cations in close proximity to the new PPL build- located across the street from PPL at 818-822 ing and plaza. Hamilton. Both projects are on designated Key- stone Opportunity Zones (KOZs), which indicates • Seek the support of the largest non-government to the panel the value of this program to down- downtown employers such as PPL and the near- town revitalization. by health care institutions to promote their location as a viable place for business. The panel also is aware of efforts to lease vacant older and rehabbed office space within several • Make downtown Allentown the priority of all blocks to the east of this node. This kind of avail- Lehigh Valley economic development agencies ability will begin the process of providing more when they assist prospective employers looking competitive space downtown. to locate in the Valley.

14 An Advisory Services Panel Report • Develop awareness among businesses outside Lehigh Valley Shopping Centers the city center that they have extensive parking Major Shopping Centers Size1 opportunities downtown. Outreach to realtors, the Chamber or Commerce, etc. Place signage Lehigh Valley Mall, Whitehall 1,100,000 throughout downtown to insure awareness and invite use. Whitehall Mall, Whitehall 665,985 MacArthur Shopping Center, Allentown 604,100 • Continue to address the perceived lack of safety through media coverage of new development of Northhampton Crossings, Easton 522,170 any kind in the downtown area. Palmer Mall, Easton 458,542

Consider a program like Philadelphia’s Ambas- South Mall, Allentown 378,000 sador Program as a means to address safety con- cerns. The program’s Web site provides the fol- Westgate Mall, Bethlehem 270,000 lowing description: MacArthur Town Centre, Allentown 260,000

In their instantly recognizable and distinctive Tilghman Square, Whitehall 250,000 teal uniforms, the Center City District’s community service representatives (CSRs) provide public safety, hospitality, and outreach services Neighborhood and Community Shopping Centers within the boundaries of the Center City Dis- Allen Street Shopping Center 46,500 trict seven days a week. Patrolling on foot, they are equally prepared to direct a lost tourist, pro- Airport Shopping Center 75,000 vide outreach to homeless individuals, or radio police as necessary. Uniformed, but unarmed, American Parkway Shopping Center 80,000 2 the CSRs are an effective deterrent to crime by Crest Plaza Shopping Center 156,000 serving as the ‘eyes and ears’ of the Philadel- phia Police Department. CSRs also serve as K-Mart Plaza 161,218 goodwill ambassadors to the public. Mountainville Shopping Center 115,000 Such a program is most effective after efforts have been implemented to keep downtown clean. Parkway Shopping Center 135,000 1Square feet of gross leasable area. 2 Estimated. Retail Market Source: National Research Board, Shopping Center Directory, 2001. The potential for retail development in downtown was one of AEDC’s and the city’s main interests led to the closing of many smaller shops. At the due to the area’s long and distinctive history as same time, regional and community-serving shop- the primary retail center for the city and the en- ping centers were developed outside the city core, tire Lehigh Valley. following residential development and locating where vacant land was readily available. Emerg- Three factors affect the current and near-term ing suburban shopping centers not only offered an market for retail: existing and projected supply in the surrounding area as well as in downtown; de- alternative to downtown shopping, they eventu- mand generated by the resident population base ally supplanted it, providing the type of “modern” both in nearby neighborhoods and regionwide; shopping environment that consumers had come and demand generated by office workers and the to expect and be comfortable with. It is worth not- hotel. Each of these factors is addressed below. ing that this shift in consumer support from downtown to the suburbs was repeated across the Competitive Supply country over the last several decades. Downtown’s distinctive role as a retail center ap- peared to end by 1996, when Hess’s—the last of The area’s existing retail stock is extensive and the major downtown anchors—closed. This also close to the city, as indicated by the examples of

Allentown, Pennsylvania, March 21–26, 2004 15 The Bay Leaf is an estab- Freestanding “big-box” stores continue to prolif- lished, successful desti- erate, with two proposals for the Leigh Parkway/ nation restaurant in Lehigh Street area—one for a Wal-Mart, the other downtown Allentown. for a Lowe’s.

Nevertheless, it is important to recognize that demand for downtown retail in Allentown has not disappeared completely. On the one hand, a new concentration of retail outlets appealing to the lower income groups in nearby neighborhoods has emerged. Bargain stores in particular are abun- dant, although they do not necessarily sell at bargain prices. On the other hand, a group of retailers have successfully appealed to a citywide market for “funky” clothing and unique merchandise, such as Garden Gate Natural Food, Planet Earth, Mish Mash, and a new children’s clothing store that sells baptismal outfits. Also, long established retailers who have concentrated on goods and services with a stable demand, such as a jewelry store offering clock repair services, have found a niche that is commercially successful. More of these establish- major and neighborhood shopping centers in the ments could operate successfully and will likely be figure on page 15. identified in the upcoming downtown retail study. Destination restaurants also have found a niche Even today, the number of suburban shopping cen- in downtown Allentown. Through the interview ters continues to grow in Lehigh Valley. As dis- process, the panel learned that at least two long- cussed in the February 24, 2004 issue of Shopping time destination restaurants, the Federal Grill Centers Today, three separate open-air, lifestyle- and Bayleaf, are located downtown, and a new type centers have been proposed in the Valley. restaurant, the Loop, has recently opened in the While it is likely that only one will actually be built area. The panel also learned that the Allentown in the near future, this simultaneous interest is in- Brew Pub, with 300 restaurant seats, is under dicative of the growing strength of the retail mar- construction as part of the conversion of the Har- ket. The development teams for each of the three old’s Furniture building, and the leasing of space proposed centers have a track record of success for a large-scale destination restaurant is under discussion for the new PPL building. The brew with such generally upscale formats. Bayer Prop- pub is particularly noteworthy because it is lo- erties and Forest City Enterprises propose an cally owned by the family who started and runs 800,000-square foot open-air center called The the successful Bethlehem Brew Works. The place- Summit in Bethlehem Township on Route 33, and ment of their second facility on Hamilton Street are aiming for a 2006 opening. Poag & McEwen, is a strong positive statement that a location in the firm that originated the term “lifestyle cen- downtown Allentown is viable when serving the ter” proposes a 700,000 square foot lifestyle center wider region. in Center Valley off of I-78, with a targeted open- In addition to recognizing successful individual ing in 2005. Stanberry Development proposes stores as a starting point, it is important to recog- a 410,000 square foot hybrid lifestyle-power nize that the older built environment along Hamil- center at the intersection of Routes 22 and 512 ton Street provides a potential environment simi- in Hanover Township, also with a planned open- lar to that created by “new” concepts in shopping ing in 2005. centers. Such concepts include the lifestyle cen-

16 An Advisory Services Panel Report ters noted earlier, town centers, main street de- City, where the number of households decreased velopments, and mixed-use developments. They by 8.9 percent. These seemingly divergent trends emphasize, among other things, public gathering are reflected in the fact that the city’s average spaces, entertainment in the form of a leisurely household size increased from 2.36 to 2.42 per- physical environment and restaurants, pedes- sons per household, and average household size trian-scale and pedestrian-friendly layouts, and in Center City increased from 2.47 to 2.73 per- unique design and architecture. Many are based sons per household. These increases signal the on what older downtowns such as Allentown’s arrival of more children, a trend likely to con- once offered. Because Hamilton Street’s older tinue in the near future. built environment remains largely intact, it will provide an ideal setting for these “new” concepts. Income. Overall income of Allentown’s residents is somewhat lower that that of Lehigh and North- Demand from Residents ampton counties. The per-capita income in Allen- To become a true center for the city and region, town was $15,869 in 1999 and the median house- downtown Allentown must serve all segments of hold income was $32,078. The per-capita income the population—both close-in neighborhoods and of Lehigh County residents was $21,897 and the communities across the region. It is important, medium household income was $43,449. Per-capita however, to understand the size and nature of income of Northampton County was $21,399 and these constituencies. the medium household income was $45,324.

Population. Allentown had a population of 106,632 Income is not evenly distributed throughout in 2000, according to the U.S. Census—a modest Allentown—the neighborhoods immediately north increase of 1.5 percent over the 1990 Census popu- and east of downtown are the poorest in the city. lation. Little growth is currently projected for Al- Ethnicity. lentown over the next decade, most likely due a di- Over one-half of Allentown’s Latino pop- minished supply of large tracts of vacant land. ulation currently lives in Center City. Overall, 24.4 percent of Allentown’s population is Latino, a According to the city’s statistical information, the change from 1990 when 11.7 percent of the popula- greatest population growth occurred in neighbor- tion was Latino. hoods abutting or close to downtown (referred to Demand from Other Activities as “Center City”), where the population increased by 1,273 people—a 3.8 percent increase since 1990. Downtown workers are important as a source of With 33,671 people, Center City was also the area daytime patronage. Although downtown employ- with the largest population in 2000, home to 32 ment has changed little over the last eight years, percent of the city’s population. several recent and pending projects will stimulate growth of this daytime population. Occupancy of Lehigh County, the county in which Allentown is the 30,000 square-foot space at the Liberty build- located, and Northampton County, the adjacent ing will potentially add 100 to 130 office employ- county to the north, make up the Lehigh Valley, ees. The new KNBT bank, restaurant, and per- a region with 579,156 residents. The region itself sonal service outlet in the Liberty building will grew 7.6 percent since 1990. Projections for the add another 20 to 50 new employees. The reloca- Valley indicate that its population will grow an- tion of PennDOT into older buildings vacated by other 7.6 percent and reach 620,471 by 2010, PPL will add some 300 additional employees to with 42 percent of the growth taking place in the downtown area. Finally, the redevelopment Lehigh County. of the 800 block will add employees, although the exact configuration of the buildings is not known Households. In contrast to the slight citywide pop- at this time. ulation increase, the number of households in Allentown decreased slightly, by 1.7 percent, be- Guests at the Crowne Plaza Hotel also are an im- tween 1990 and 2000. Similar to changes in pop- portant source of retail patronage, particularly for ulation, the greatest change occurred in Center eating establishments. Future developments in

Allentown, Pennsylvania, March 21–26, 2004 17 the arts district and events-oriented development • After the pending two restaurants are firmly also will provide additional support for retail. established, consider expansion and promotion of existing destination restaurants to create a Recommendations “Restaurant Row.” The key point here is to In general, retail is a “follower” of rooftops and wait until after the two new restaurants have office space rather than a leader, unless there are proven successful. unusual circumstances—those simply do not exist in Allentown. Consequently, the historic retail • After a second college (satellite) campus locates function of downtown Allentown can no longer in downtown Allentown, encourage the estab- be re-created. Moreover, it is obvious to the lishment of eating places nearby that appeal to panel, based on our local inspections, a review of college students. dominant market factors, and our experience, that • After an increase in residential development in traditional retailing is not coming back to down- the downtown area, either through upper floor town Allentown. conversions to lofts or through new townhouse To draw up meaningful recommendations, the clusters, pursue the addition of convenience- panel considered downtown retail potential from oriented retail space, personal services, and two perspectives—that of downtown neighborhood limited medical and dental services for the residents and of the larger regional population. local population.

The panel recommends development of a modern • After further development of the arts district community shopping center anchored by a major and upper floor lofts for artist residences, en- supermarket, drug store, and a range of conve- courage district retail that specializes in locally nience merchandise outlets, as well as personal created art, commercial art, and antiques. and financial services to serve the new residents Finally, the panel understands that the city is in who have migrated to downtown’s fringe neigh- the process of contracting with a consulting firm borhoods. The recommended shopping center for a detailed study of the downtown retail mar- should provide between 120,000 to 150,000 square ket. The panel recommends that final, specific di- feet of gross leasable area and preferably be de- rection be taken from this study. veloped north of Hamilton Street. A location in proximity to the Multi-Modal Transportation Cen- Hospitality Market ter may be of particular interest because of its accessibility by car as well as public transit. Based on interviews with industry participants, the panel learned that Lehigh Valley’s 2003 hotel The most important feature of such a shopping occupancy rate was 63 percent, reflecting over center will be its appeal to the neighborhood cus- 850,000 room nights. The overwhelming bulk of tomer base. The high concentration of Latino visitors (88 percent) drive to the Valley, with the residents in proximity to the site, and to down- majority (60 percent) traveling from a starting town Allentown in general, should provide direc- point within the Middle Atlantic region. The im- tion for the tenant mix. The development of the portance of the visitor industry is suggested by shopping center will likely lead to relocations of the economic impact of these visits—in 2001, the neighborhood retail from Hamilton Street to the most recent year for which data is available, visi- recommended site, which would be a desirable tors to Lehigh Valley provided well over $500 mil- change facilitating the upgrading of retail on lion in direct or indirect sales, creating almost Hamilton Street. 9,000 jobs and generating almost $100 million in tax revenues. To encourage niche market specialty stores that could be supported by a wider market, the panel Hotel facilities in downtown Allentown function in recommends the following initiatives, each to suc- several ways. They provide local businesses with ceed the establishment of a larger “driver:” rooms for incoming business trips and for off-site

18 An Advisory Services Panel Report meetings, and they provide facilities for visitors Residential Market to Allentown, whether for leisure, business, or conference/convention trips. The hotel guests are, Residential development has been shown to be in turn, an additional source of demand for other one of the key components of vibrant downtown downtown activity, particularly restaurants. districts. In fact, in many cases residential development is the anchor. The panel understands that Downtown now has a first-class, newly renovated the city is in the process of contracting with a con- Crowne Plaza hotel with 229 rooms, well poised to sulting firm for a detailed study of the downtown capture a share of the current visitors and to in- residential market, so that a quantitative approach crease visitor presence downtown. Prior to the re- to discussing this market would be redundant. In- opening of the Crowne Plaza, no other hotels were stead the panel focused on highlighting promising located within walking distance of Hamilton Street niche market types that may be overlooked because between Front and 13th streets. The Crowne Plaza of a lack of supporting historical evidence locally. offers meeting rooms that can accommodate 900 people, but cannot provide for exhibit space at the Recent Market Activity same time or for groups larger than 900. First, the panel noted numerous nascent residential activities in and surrounding downtown, all of Maintaining and expanding support for the hotel which point to a beginning of the type of residen- will be a critical to energizing downtown. The pro- tial mix a vibrant downtown requires: vision of additional space for exhibits and meeting space could be a means to provide that additional Lofts. The panel observed the following nascent support. loft activity: redevelopment of the Schoen’s Furni- ture building into 30 loft apartments; renovation Recommendations of a former mill at 128-132 North 8th Street into The panel considers a conference and exhibit fa- 20 loft apartments; and renovation of the Harold’s cility to be a viable option in downtown Allentown Furniture building to include 12 loft-style apart- and recommends that the city undertake the next ments above the new Allentown Brew Pub and level of research. This would entail evaluating ex- restaurant. isting conference and exhibit facilities in Lehigh Valley as far as level of use, user profile, and type These projects are supported by the Upper Floor of space and services now offered, as well as iden- for Housing Program—which provides no-interest tifying users not now serviced by the existing loans of $5 per square foot of rehabilitated interior facilities. space, not to exceed $75,000 per project—and/or by the Pennsylvania Keystone Opportunity Zone Development of such a facility adjacent to, or in (KOZ) program. some way directly accessible to, the Crowne Plaza would be optimal. The panel recommends that Ham- Seniors’ Housing. The panel observed the following ilton Mall and the two buildings between the hotel nascent housing activity for seniors: renovation of and the mall be investigated as possible sites, and the Trojan Powder and First National Bank build- that potential linkage be studied. ings into 62 apartments for the elderly. This project is supported by the KOZ program. The owner and manager of the hotel should be a primary participant in discussions regarding a Rehab in Old Allentown. The panel observed the conference and exhibit facility. following nascent rehab activity in Old Allentown: homeowners are undertaking rehabilitation of The panel also recommends that free or reduced older homes. rate parking be explored for downtown guests. As the vast majority of guests from outside Weed and Seed. The panel observed the following Lehigh Valley drive to the area, parking costs nascent “weed and seed” activity: systematic code are likely to be an important factor in their lodg- inspections in target area; and secured Lead Paint ing decisions. Remediation Grant from HUD for target area.

Allentown, Pennsylvania, March 21–26, 2004 19 Near right: An example of a private home renovation taking place in downtown Allentown. Far right: Penn- rose Properties, the largest developer and manager of residential properties in the state, has expressed interest in converting these two buildings into apartments for seniors.

Proposal for Infill Townhomes. The panel observed “Bohemian Mix.” An integrated mixture of writ- the following nascent infill townhome activity: a ers, artists, students, executives, and actors. A well-known suburban developer, Nic Zawarski & group that is dominated by singles, and has the Sons, is interested in placing 34 townhomes on KOZ second lowest index for children. sites near Walnut and 8th streets. The sites are currently surface parking lots. “Urban Achievers.” A bimodal group with a young/ old profile, single students mixed with older pro- Proposal for Luxury Apartments. The panel ob- fessionals in business, finance, and public service. served the following nascent luxury apartment activity: City Line Construction’s proposal for A thriving arts district, an inventory of com- the 800 block of Hamilton Street includes four mercial and residential properties with histori- luxury apartments. cal and/ or architectural significance, and rela- Emerging Demographic Trends tively low acquisition costs will be prerequisites for attracting these segments of the market to Second, the panel reviewed the population seg- downtown. ments that demographers have identified as new sources of demand for downtown and urban Further, the panel notes the small but growing housing: number of transplants from New York and New “Young Literati.” A mix of young executives, pro- Jersey, many of whom still work in those metro- fessionals, and students who live in multifamily politan areas. The diminished supply of available apartments, condos, and townhouses near private land in Allentown and the urban orientation of urban universities. They have few children. They these newcomers also points to a market segment are free to pursue their interests in art, fitness, that can be serviced well by a range of downtown and travel. housing opportunities.

20 An Advisory Services Panel Report A view of Symphony Hall from a segment of the Arts Walk.

Recommendations The panel views the arts district as one of down- The panel considers it especially important that town’s signature areas—a destination that can Allentown’s Latino neighborhoods be supported draw people from throughout the region. There through residential improvement programs. On- is a greater concentration and diversity of arts going upper story conversions and new develop- and entertainment facilities in downtown Allen- ment on Hamilton Street should support all seg- town than in any other place in Lehigh Valley. ments of the market. Both the nearby and larger As originally conceived, the district was to be area markets will be well-served by development built around an “Arts Walk.” The panel believes of infill townhome and multifamily housing. These that the linkages will be reinforced and expanded types of housing provide an attractive alternative by the expansion of the Arts Walk, programming to single-family homes in the suburbs. They also of the Arts Park, and by targeted areas of addi- provide a larger number of units per single devel- tional arts development. Visitors to the district, opment and create a significant visual and neigh- in turn, stimulate the development of restaurants borhood impact. Therefore, the panel recommends that the city put a premium on completion of the and new retail. 34 townhomes and identify other possible multi- There is no movie theater in downtown Allen- family sites in the vicinity. town. The existing demand is currently served by large-scale, multiplex theaters located in Lehigh Arts and Entertainment Valley Mall. Due to the distribution territories for The panel was particularly interested in exist- first-run movies existing at this time, which the ing arts and entertainment facilities and pro- panel has not investigated in detail, such a first- grams, and the extensive plans already in place, run theater may not be feasible downtown. Nev- as these can differentiate, define, and energize ertheless a second-run arts movie house or Span- a downtown. ish-language theater with two or three screens

Allentown, Pennsylvania, March 21–26, 2004 21 may well be warranted, but will need further in- ing, it would be unnecessary to build new parking vestigation. if the multipurpose facility was located nearby. Potential sites may include the 0.86-acre vacant Recommendations parcel immediately east of the new PPL building, The panel considers it important to improve coor- and abutting properties directly adjacent to an dination and cross-promotion of existing arts and 800-car public parking garage. Several other loca- entertainment events, and to expand the pro- tions could potentially be assembled but may re- gramming of Symphony Hall and other adjacent quire more demolition. facilities. The relocation of some festival activities now taking place outside downtown to the arts A well-operated venue of this type may offer 120 district would also strengthen this area. Board to 150 events annually in its introductory period, members and directors of all arts institutions with an even higher number once maturity is should be primary participants in discussions of reached. The addition of several hundred or even expanded programming and cross-promotion op- a thousand persons to Hamilton Street during portunities. evening hours, on a frequent basis, would represent a vast improvement over current conditions. Subsequent to the enhancement of existing facili- Its multiplier effect would have a very beneficial ties, programs, and activities, the addition of an impact on the hospitality industry. Such activity appropriate regional attraction to downtown Al- also would contribute to a perception of greater lentown could significantly add to the revitaliza- security, which usually results from increased tion of the area. Of greatest interest would be a pedestrian traffic on the street. multipurpose venue offering a large range of popular events. These could include concert perfor- The panel also considers it important to offer chil- mance presentations with broad appeal—musicals, dren a broader range of entertainment options traveling Broadway productions, and fairs and ex- than are currently available downtown. The panel hibitions, as well as sporting events. A new facil- recommends that the city explore development of ity incorporating the latest technology regarding an attraction of interest to children such as a chil- lighting, sound, state-of-the-art electronics and al- dren’s museum or a “Discovery Zone” facility, or a ternative, flexible configurations would provide a technical (how things work) museum. An attrac- distinct advantage over any existing facility in tion for families, including children, will add to the Lehigh Valley. overall cultural offerings of the area. The greatest benefit to downtown Allentown The panel recommends that a traffic study be un- would be achieved if such a facility could be lo- dertaken to determine the ability of downtown cated on a site bordering Hamilton Street. Due to streets to accommodate such events. the parking requirement of such a venue and the fact that most large parking structures in proximity to Hamilton Street are underused in the even-

22 An Advisory Services Panel Report Planning and Design

hree planning and design tools are specifi- Hotel anchor this area. The height of the tower, cally relevant to the city’s initiatives in down- the excellent design of the Liberty building, and town Allentown: a vision plan; connections the open space of the plaza create a strong central T and linkages to the larger area; and design point. Infill and rehabilitation projects for addi- and development guidelines. tional office space and supporting amenities, such as a conference and exhibition space, would en- Vision Plan courage and expand recognition of this area as the business core. The Allentown vision plan shows the location of, and relationships among, various opportunity The multipurpose venue recommended in the areas suggested by the built environment. previous chapter, while not directly a business amenity, would provide nighttime support for Library/Residential Area restaurants in this area. Use of the undeveloped The panel took particular note of the Main Library site next to the PPL Plaza for such a facility is ap- and its vicinity between 10th and 13th streets. This propriate because it requires less demolition than neighborhood around the library is already well other downtown sites while allowing for use of one established and it bridges Hamilton Street. The of the largest existing parking structures. street’s scale and character are compatible with the qualities of a vibrant urban neighborhood. Center Square Building size and distribution allow in sun and Center Square—the intersection of Hamilton and light, with opportunities for small shops, on-street Seventh streets—marks the main southbound en- parking, and street trees. The library serves as a trance into downtown. This is the historic cross- community center and magnet for nearby residen- roads of the city, clearly designated by the his- tial areas, extending the urban fabric to downtown. toric monument. The panel believes that there are Neighborhood residents use the library and sup- some unique opportunities in this area due to the port small businesses and restaurants nearby. sink hole on Seventh Street.

Infill opportunities in the mid-block regions around Seventh Street, beyond being the southbound Maple and Court streets, and architecturally sig- artery into downtown, is the linkage between the nificant buildings appropriate for renovation, will ethnic neighborhood to the north and the Hamil- allow for further strengthening the residential ton Street corridor. The panel proposes an active character of the area. The plaza space in front of public open space on the sinkhole site to provide the library provides an opportunity for outdoor an open space amenity in the area, as well as to gatherings, with perhaps a café on the ground encourage citywide markets and festivals. Light- floor and vendors, food carts, and outdoor tables frame park structures should be built to accommo- bringing activity out onto the street. date a variety of events such as flower shows and farmers’ markets, etc. The sinkhole site is consid- Business Core ered appropriate for park space because it is un- The concentration of office space and commercial likely to be practical as a development site. amenities provides a business core for downtown between 7th and 10th streets. The PPL tower, the It will be important that streetscape improve- new Liberty office building, and the Crowne Plaza ments in this area be continued.

Allentown, Pennsylvania, March 21–26, 2004 23 Residential Infill Business Core Street Street Street Vision plan. Street Street th th th th th th 13 11 9 12 10

4 4 5

Hamilton Street

1 2 3

Key: Parking 1. Library 8. Infill Apartments 2. Conference/Exhibition Facility 9. The Baum School of Art 3. Crowne Plaza Hotel 10. Allentown Art Museum Office 4. PPL 1 1. City Hall Mixed-Use Office/Retail 5. Multipurpose Venue 12. City Square Multi-Modal Transportation Center 6. Educational Arts Walk 7. Symphony Hall

Arts District grow, little change is expected in the civic center, Symphony Hall, the Allentown Art Museum, the but all together the current activity provides a Baum School, and the Lehigh County Historical distinct downtown anchor. Society museum form the heart of the arts district centered on the Arts Park—the “living room” of Connections and Linkages the area. Conversion opportunities, from commer- In order to keep the city’s revitalization focus on cial use to residential and/or artist workspace, are Hamilton Street, activities that may take place out- extensive in this area and are key to expanding side the downtown core should be carefully evalu- the district. Infill potential exists at 6th and Lin- ated to ensure that they support downtown, or at den streets for additional artist space. a minimum, do not divert resources and energy from it. Potential activities to monitor fall into Civic Center three categories: land use; transportation and ac- The proximity of federal, county, and city build- cess; and greenways and place-making destinations. ings creates a de facto civic center—a post office, Land Use the old and new county courthouses, and City In order to create a healthy city core—located Hall. The old county courthouse and post office in within a five-minute walk from Center Square— particular are attractive landmarks for this area. future development activities in the area must be Given that government activity is not expected to guided by two supporting principles:

24 An Advisory Services Panel Report Arts District/Civic Center Street Street Street Street Street th th th th th 8 4 5 7 6

8 9

7 10

11 6 12

• A longer-term influence zone. This is generally Transportation and Access a one-mile radius around Center Square. Revi- In order to make downtown an easy place to find talization of neighborhoods, infill housing, and and get around in, transportation and access must preservation of Old Allentown historic buildings be planned and developed according to the follow- within the zone will enliven downtown. Similar- ing guidelines: ly, development of ethnic retail districts to the • Establish gateways to downtown from the major north and east, and revitalization of community arterials and interstates—I-78 and State Route retail districts along 7th Street and the west 22. Use signage, landscape and lighting, as well segment of Hamilton Street will strengthen the as quality development at these points. downtown city core. • Distinguish the three main arrival points to • Increased employment opportunities adjacent downtown through landscaping and signage to to the core. Bring more employment adjacent to provide an attractive introduction. The three the city center through brownfield development main arrival points are 15th Street/ Hamilton at three major industrial areas (along the corri- Street on the west, Center Square, and Ameri- can Parkway/Hamilton Street on the east. dor between Route 22 and I-78) to provide accessible employment to inner city and down- • Differentiate the eight major routes to downtown neighborhoods. town based on local versus first-time visitor

Allentown, Pennsylvania, March 21–26, 2004 25 22

y rkwa Pa n a ic er m ius A Rad ile Street vard M e- Street th n O th 15 7 Union B Boule oulevar

t d

Tilghman Street

Cres r ue

Ceda en Hanover Av

Hamilton Street Lehigh Landing and America on Wheels

t ee e

r u Key: n

St e

h v ig A Neighborhood eh e

L k

i P

h Industrial Park t

S Core (5-minute walk)

Land use strategy. usage to make lighting, landscaping, and way- • Relocate the bus routes from Hamilton to Lin- finding signage effective. The eight major routes den and Walnut streets in order to make Hamil- are I-78/South Pike Avenue, I-78/Lehigh Street, ton Street more pedestrian friendly. Hamilton Street/Cedar Crest Boulevard, Tilgh- Greenways and Place Making man Street/Cedar Crest Boulevard, 22/15th In order to create a more livable downtown, the Street, 22/7th Street, 22/American Parkway, and downtown area should be linked to surround- Hanover Avenue to Hamilton from the east. Once ing areas through greenways, bikeways, and completed, the new American Parkway Bridge pedestrian-friendly access streets. These should will also become a well-used visitor route. be planned and developed according to the following guidelines: • Evaluate the one-way pairs and two-way streets. For example, the panel strongly recommends • Pursue development and programming of existing and proposed parks and public places. that Hamilton Street (from the river to Cedar This includes the programming—special events, Crest Boulevard) and 7th Avenue (from State concerts, etc.—for the library plaza, PPL Route 22 to Union Street) become two-way. As Plaza, Jordan Creek Park on 4th Street, and the mentioned earlier, these streets may need to ac- park at the end of 7th Street; re-landscaping of commodate greater traffic volume during large Center Square; completion of and programming downtown events. for the Arts Park; a new festival park at the

26 An Advisory Services Panel Report 22

y ntr l E na io n Parkway Reg ica er m A

Local Entry d

2-Way Union B

oulevard st Boulevar

e Tilghman Street Cr Street Street Local Entry th th venue 7 ver A 15 o Cedar an Local Entry H

2-Way

Hamilton Street

Key: Gateways Arrival Points

78 y

t n

E Core (5-minute walk)

ry l

t a

n c

E o

l L

n o i g e

h t

eet tr S h ig Leh

sink hole site on 7th Street; and completion of between Walnut and Maple streets and between Transportation and the Lehigh Landing Riverfront Park. Linden and Courts streets. access.

• Link the existing and proposed parks through a • Once approval is received from the state, the system of greenways, following existing creeks, city should install signage that is clear and di- streambeds, and the Lehigh River. rectional for wayfinding and that includes cul- • Link the existing and proposed parks through tural and entertainment destinations, major bikeways. civic buildings, and public parking.

• Link neighborhoods adjacent to the core to Ham- • The streetscaping program should continue to ilton Street via pedestrian streets. For example, 4th Street through the civic center to tie in with Church Street, Penn Street, and Jefferson Street the existing plan. have the potential to be more pedestrian friendly. • Building height should be controlled and re- Design and Development Guidelines stricted to six floors along Hamilton Street from 10th to 4th streets. The panel suggests a height The panel recommends the following: limit of four stories in the more residential por- • Parking garages should be prohibited on Hamil- tion along Hamilton Street between 10th and ton Street. Any new garages should be located 13th streets.

Allentown, Pennsylvania, March 21–26, 2004 27 22

y rkwa Pa n a ic er m A Street Street th

th oulevard 15 7 Union B Boulevard

st Tilghman Street re

1 C

ar d e ue C Muhlenberg en Hanover Av College 7 4 6 9 Hamilton Street 5 8 Lehigh Landing and 2 America on Wheels

Key: Bikeways Greenways 78 Pedestrian Streets Parks 1 Trexler Memorial Park 2 7th Avenue Park

e 3 Jordan Creek Park

t u

e n

re e v

St A 4 Lehigh Landing and

h e

ig k

i America on Wheels eh P

h t

S Public Spaces 5 Library Plaza 6 PPL Plaza 7 New Festival Park 8 City Square 9 Arts Park

Places and linkages. • The panel supports the Hamilton Street Facade Program and encourages the city to adopt the regulations contained in the plan. • Design review is important to safeguard against incompatible design. Design guidelines provide direction in terms of scale, materials, color, set- backs, and the like.

28 An Advisory Services Panel Report Development Strategies

he downtown development plan prepared implementation of several downtown develop- by Hunter Interest, Inc. in 1997 focused on ment projects. However, a more focused and methods and recommendations for market- concentrated effort is needed. The panel recom- T ing downtown Allentown, as well as recommends that priority be given to downtown de- mendations for physical improvements. The panel’s velopment. This would mean that any new de- development strategies attempt to build on those velopment proposed in the city limits be given early concepts and provide specific guidelines for top priority for consideration and approval, if physical and economic development of Hamilton the developer agrees to locate downtown and is Street between 4th and 13th streets, with limited in line with the following guidelines and strate- spillover to some adjacent streets. At the same gies. Any relocation that requires city approval time, the panel recognizes that other development should also be given priority if that relocation is has been taken—or will take place—outside the to downtown. downtown core. It therefore proposes that physical linkages be provided between these projects • The development should result in more people and downtown. on Hamilton Street. More people on the street are the best advertisement for the fact that The panel recognizes that the dynamics of devel- there are reasons to be downtown. It also is a opment in Allentown have changed (due to such practical means to address the negative percep- factors as the growth of competing centers in tions of safety. Bethlehem and Easton, and the recent influx of • Development should strengthen and be con- immigrants to Allentown), and that some early nected to the key downtown centers suggested planning concepts are therefore obsolete. The in this report (such as the arts district, confer- panel has attempted to offer a fresh and bold ap- ence and exhibit facility, and the PPL Plaza). proach to development strategies that the public and private sector of Allentown can pursue to re- • New projects should be designed to welcome gain and enhance downtown’s vibrancy. pedestrians with main entrances on Hamilton Street (not on a side street) and facades should Development Principles allow pedestrians to see into the buildings. First, it is important that Allentown adopts devel- In addition to these guidelines for specific proj- opment principles or guidelines to assist in priori- ects, the panel suggests the following overall de- tizing development efforts, action items, and re- velopment guidelines: sponses to development proposals. Otherwise, it is easy to lose focus and in the end accomplish little. • To ensure that new developments are success- The panel suggests that all proposed projects be ful and attract their optimal market, downtown screened according to the following guidelines: should be made clean, safe, and friendly. De- velopment projects in downtown Allentown • Downtown First! Downtown should be consid- need to be supported by a public infrastructure ered first for any proposed new development or that is user-friendly and makes people feel safe. relocation in Lehigh County. The city govern- Trash and graffiti communicate neglect and lack ment and the Allentown community are well on of safety. Removing the trash and cleaning the their way to promoting development in the city sidewalks is essential for development to suc- core, and already have begun the planning and ceed downtown. The money spent on keeping an

Allentown, Pennsylvania, March 21–26, 2004 29 tinct development opportunity areas or districts. The district concept is an expansion of some districts already in place, and a further refinement of the district concept suggested by the Comprehen- sive Plan and the Hunter Downtown Development Plan. The panel recommends that the districts be precisely defined to emphasize the numerous potential activities downtown:

• The Commercial District. This area will be concentrated on Hamilton Street between 7th and 10th streets.

• The Arts District. This area will comprise the eastern portion of downtown, specifically between 4th and 7th streets, and between Linden A view looking east along area clean and safe has a high rate of return in and Walnut streets. Hamilton Street toward the form of sales and property taxes. Lighting City Square. Hamilton also is paramount for a sense of safety by work- • The Library Residential District. This area will Mall is the low-rise builders who stay downtown after hours, as well as comprise the neighborhood surrounding the ing with the curved for nighttime visitors and residents in the area. Main Library, specifically between 10th and awning. The Crowne The lighting along Hamilton Street is excellent; 13th streets, and between Linden and Walnut Plaza Hotel is the third more lighting is needed on streets off of Hamil- streets. building farther east. ton, particularly around the arts district. The Commercial District • The ethnic divide that is prevalent in Allentown This development area should be limited to Hamil- must be addressed. The Latino community must ton Street between 7th and 10th streets to consol- be recognized as a strong source of support for idate existing developments and provide a critical retail, housing, and new businesses. Acceptance, mass of office, commercial, and entertainment- communication, and recognition are key to break- ing down barriers and to viewing that commu- based activities. nity as part of the solution, not the problem. New Conference and Exhibition Space. As dis- • Downtown directional signage and pedestrian cussed previously, the panel recommends that the signage should say “we want you here” to Al- Hamilton Mall structure be converted into a state- lentown’s visitors. Without such signage, dri- of-the-art, flexible exhibition and conference facil- vers and pedestrians are easily confused and ity to complement and draw from the Crowne will end up not arriving or coming back. Plaza Hotel. The panel believes that this will strengthen the hotel’s business, promote extended • Downtown parking is a challenge in almost every stays, and provide much needed meeting space city. If it is not free and within ten feet of the that cannot otherwise be accommodated at the ex- customer’s destination, it becomes a disincen- isting hotel. tive. Recognizing that this problem will never be totally solved, mitigating the negative im- The new exhibition and conference facility, which pacts of this perception needs to be given atten- the panel views as an immediate priority, should tion. Good directional signage is essential. have the following components: Strategies • Flexible space; For the purpose of drawing up development stra- • Free or reduced parking fees for guests and tegies, the panel divided downtown into three dis- employees;

30 An Advisory Services Panel Report • First priority and assistance with available grants and/or tax relief, in the form of KOZs or other financing;

• Possible incorporation of the Visitor Center and a relocated Chamber of Commerce in the facility; and

• Signage directing traffic to downtown from major thoroughfares.

The panel recommends that the next level of research be undertaken to determine the pre- cise nature and size of an exhibition and conference facility.

Office Projects. For the downtown area to succeed, a critical employment mass should be cre- in contrast to Symphony Hall, which caters to a This underutilized parking ated to attract a stable consumer base. The panel more focused and narrow audience. The multi- deck with 733 spaces was recommends that two main actions be taken in purpose venue could host as many as 150 yearly originally constructed for this regard: events, and should be designed for such use. The Hess’s Department Store. adjacent PPL Plaza can be an outdoor extension It is located between 8th • Complete leasing of the Liberty building. The of this facility so that an indoor/outdoor atmos- and 9th streets behind the 30,000 square feet of office space will bring ap- phere is created. This will also contribute to bring- new PPL building. proximately 100 new employees to downtown. ing people to Hamilton Street. Therefore, the panel recommends that filling this space be given top priority before other The panel believes that the location of this facility office sites within the city limits are approved. on the proposed site will benefit Hamilton Street and will make use of the existing Hess’s parking • Promote a quick start of new Class A office garage, which is currently underutilized. The mi- space, making use of the proposals that have crobrewery project now under construction could been presented for the site at 9th and Hamil- be a strong component of the multipurpose venue ton streets. project and would provide the synergy, critical Multipurpose Venue. The main developments en- mass, and 24-hour activity necessary to its success. visioned for this district focus on the creation of The Arts District a new multipurpose venue complex. Conceivably, The arts district includes Center Square at 7th this complex could be located on a vacant parcel Street and extends eastward to 4th Street. The adjacent to the new PPL building and abutting panel views the arts district as one of downtown’s parcels fronting Hamilton and 9th streets. The signatures areas—a destination that can attract facility could take the form of a multifunction the- people from throughout the region. It is important ater incorporating the latest technology such as to capitalize on the identity of this district through electronic sound and lighting, audiovisual tech- the following specific actions: nologies, and should be able to offer numerous configurations to appeal to different size audience • Solicit the location of additional college or uni- requirements. versity activities. Expand the focus of the drive to include specific arts and drama programs as The multipurpose venue should complement other well as an entire branch; theaters in Allentown by featuring attractions that cannot readily be accommodated at those sites. • Continue to support conversion of upper stories Events like off-Broadway productions, musicals, to lofts to encourage artist studios, combination jazz festivals, etc. will address popular culture, artist housing and gallery space, and living

Allentown, Pennsylvania, March 21–26, 2004 31 gram manager be hired to assure maximum uti- lization of arts district offerings.

The panel recognizes that the Americus Center and the Capri Theater represent eyesores and lost opportunities. The panel supports the city’s efforts to monitor the status of the property and recommends that the owner be made aware of the city’s vision and plan for the area.

The panel also recognizes that the post office is underused, but does not consider it a negative factor. The building is an attractive landmark, and supports an appropriate downtown activity. The Library Residential District This development area should be distinctly differ- A view from Hamilton space for residents who prefer to live near art- ent from the other two districts. The focus should Street of a segment of the related activities; be on strengthening its residential character and Arts Walk with unique providing for infill housing to include market-rate streetscape features. This • Expand opportunities for artist space with a housing of different types, namely townhomes, segment is adjacent to new building at Linden and 6th streets; condominiums, and apartments. the Sovereign building. • As the number of residents and visitors grows, As the Allentown Looking Ahead comprehensive encourage development of area galleries and plan correctly states, “Housing plays a vital and cafés; prominent role in assuring the health and prosper- • Complete the Arts Park; ity of the community.” This applies appropriately to bringing a stable supply of new residents to • Expand the Arts Walk and link new develop- downtown, which will provide a local consumer- ments and activities; base for new businesses. At the same time, de- mands in infrastructure, services, and the recent • Investigate the potential for a second-run arts migration of Latino and other minorities to neigh- movie theater or Spanish-language theater, or a borhoods adjacent to downtown make a compel- means to provide such films in one of the exist- ling case for a determined focus on providing a ing institutions; range of adequate housing. Downtown development also should capitalize on changes in lifestyle • Expand programming at Symphony Hall; as discussed in other portions of this study, to • Relocate festivals and events now taking place generate new housing development opportunities outside of downtown to the arts district; as follows:

• Develop an active public open space on the sink- • Develop new infill, market-rate housing on hole site to provide an open space amenity for empty lots, underutilized parking areas, or on abutting neighborhoods to the north, as well as sites now occupied by decrepit housing. Typical to encourage citywide markets and festivals; individual new developments in this area should be small in order to maintain the historic char- • Investigate the potential for a child-focused fa- acter of the district. cility or wing of an existing facility, such as a children’s museum; and • Restore historically significant buildings. The panel recommends that the city work aggres- • Coordinate and cross-promote arts and enter- sively to restore and maintain historically sig- tainment events. In order to effectively accom- nificant residential structures, and to make use plish this, the panel recommends that a pro- of all available financing mechanisms that incen-

32 An Advisory Services Panel Report tivize investment in these properties. This • Involve neighborhood groups and nonprofit should include the aggressive use of historic tax organizations; credits, etc. • Form neighborhood improvement associations; • Continue to market the Upper Floor for Hous- ing Program so that small merchants can es- • Support lifestyle community and ethnic groups; tablish businesses on the ground floor of their • Involve colleges and significant employers. In- buildings while using the upper floors for liv- vite the schools of architecture and arts pro- ing quarters. grams of adjacent colleges and universities to • As properly addressed in the comprehensive participate and conduct local charettes with the plan, renter-occupied properties in this district residents; should be aggressively inspected, and absentee • Promote mixed-use housing; landlords should be fined with stiff penalties if their properties are not maintained properly. • Provide live/work space; Vacant properties should be inspected for code violations, unsightly maintenance, etc. • Enforce maintenance of renter-occupied and vacant properties; and For the above programs to succeed, the city as a whole should start a dynamic and aggressive out- • Enforce absentee landlord ordinances and pro- reach program that involves the entire community vide stiff penalties if properties are not properly in planning and implementation programs. Such maintained. outreach and involvement will require the following steps:

Allentown, Pennsylvania, March 21–26, 2004 33 Implementation Strategies

he staff of the city of Allentown and related ships help sustain downtown revitalization activi- agencies should be congratulated for the ties. For discussion purposes, the panel names progress they have made in implementing such a partnership the “Downtown Partnership.” T positive change over the past few years. A number of worthy projects have been undertaken; Downtown Allentown today has a unique opportu- and a number of others are in the pipeline. nity to form a strong Downtown Partnership with the leadership of both longtime downtown stal- Many interviewees noted that, for the first time warts and players new to the scene: in many years, the conditions are right to affect a renaissance in downtown Allentown. City staff • Major longtime employers such as PPL, Allen- should be cited for their professionalism, coopera- town Morning Call, Lehigh-Carbon Community tion, and determination. Regional entities should College, Sacred Heart Hospital, and Wachovia be commended for recognizing how important and other banks; downtown Allentown is to the future success of • Developers and property owners new to town— the region. e.g., Liberty Property Group, Pennrose Proper- If Lehigh Valley is to truly prosper from growth ties, Landmark Communities, and Allentown that has been projected, downtown Allentown must Brew Pub; serve as the urban core for the region; it must be treated with the care and purpose that the region’s • Minority group leaders such as the Hispanic capital deserves. Just as downtown Allentown is Chamber of Commerce; and blessed with the advantages of an urban center • City officials and authority heads. (the arts, historic structures, cultural diversity), so it is burdened with some of its liabilities. The Partnership should proceed with some of the priorities identified by the able Allentown Ahead Recommendations task force set up by Mayor Afflerbach. Following are the panel’s recommendations for The Partnership should maintain a focus on: implementing successful downtown revitalization • Vision. Making sure that the vision for down- strategies as downtown Allentown moves into town Allentown is formed, marketed, and the future. implemented. Private Sector Engagement • Maintenance. Downtown’s sidewalks should be The private sector must organize, lead, and sup- free of litter and snow, and decorated with flow- port a vision for downtown. The private sector ers and banners. needs a strong downtown partnership, with top- level representatives from major private and non- • Security. Downtown should not just be safe, profit stakeholders at the table. It is a long shot but should be perceived as safe, through pro- that a downtown will become successful by relying grams like Philadelphia’s Downtown Ambas- solely on the public sector for leadership. Public sador Program. sector leaders need help formulating and implementing strategies. Strong downtowns have • Public space management. Downtown should strong downtown partnerships, led by major em- have well-regulated and well-animated public ployers and property owners, and these partner- spaces.

34 An Advisory Services Panel Report • Marketing. A marketing program is outlined A small group of private sector stakeholders— below. with assistance from the mayor’s Allentown Ahead task force—could begin work immediately The Partnership should collaborate with AEDC, on maintenance, security, marketing, and other the city of Allentown, and other entities. The initiatives to be supported by the Downtown able leadership of city officials needs the private Partnership. AEDC could begin tomorrow to de- sector’s assistance if downtown Allentown is to velop and construct a work plan of priority down- be revitalized. town development projects.

Private sector leadership will provide constancy The director of the Allentown Department of across city administrations as political leadership Community Development and his senior staff changes. Depending on the nature of activities un- are critical to the future implementation of down- dertaken or desired by the Partnership and the town projects and programs, and should be in- interest of the general business community, the cluded on the board of the Partnership (and con- Partnership may eventually wish to reexamine tinue to be on the board of AEDC). He will play a the feasibility of a formal organization. critical role in coordination of activities between the two organizations, and in the coordination and AEDC Role focus of city agencies and authorities on down- The city should designate Allentown Economic town revitalization. Development Corporation as having the sole purpose of planning and implementing private sector Role of Public Agencies developments for downtown Allentown. In the The city should coordinate and focus public agen- previous key recommendation, the panel advises cies toward the goal of revitalization. Allentown that a private sector partnership be formed, de- has a full range of public and quasi-public agencies voted to the sole purpose of making sure that and authorities with responsibility for various ser- downtown Allentown is clean, safe, friendly, ac- vices, which directly impact the downtown and cessible, and that it has the appropriate vision. its revitalization. These agencies and authorities In this recommendation, the panel suggests that must be brought into the process of establishing AEDC be given a similarly clear focus—to plan the development and implementation strategy for and implement critical downtown development downtown Allentown’s revitalization, and adopt projects. While the board of the first organization the resulting downtown revitalization agenda as is to come primarily from the major private sec- a priority. Each unit of government should have tor and nonprofit leaders (with some city repre- a specific role and responsibility in the revitaliza- sentation) the private sector also must make sure tion process. that it participates actively and fully in the gover- The panel suggests that this process be carried nance of AEDC. out as follows:

In essence, the panel suggests that two organi- • Identify agencies with particular relevance to zations—the Downtown Partnership and AEDC downtown revitalization. These include the city —work in tandem to ensure the future success of departments of Finance, Community and Eco- downtown. The panel believes there is no reason nomic Development, Public Works, Police, the why either of these initiatives needs to wait Allentown Commercial and Industrial Develop- longer than a day. Time is critical. The continued ment Authority, Allentown Arts Commission, success of the Crowne Plaza Hotel and remaining Center City Hamilton Mall Review Board, His- downtown retailers and restaurateurs, the future torical Architectural Review Board, Human Re- success of the Allentown Brew Pub, the America lations Commission, Allentown Housing Author- on Wheels Museum, and housing developments all ity, Parking Authority, Redevelopment Authority, depend upon people’s confidence in downtown Al- Shade Tree Commission, Vacant Property Re- lentown. That confidence depends on immediate view Board Blighted Property Review Commit- action that improves downtown and its environs. tee, and the city Planning Commission.

Allentown, Pennsylvania, March 21–26, 2004 35 • Each agency and authority completes an inven- improvements have occurred in downtown Allen- tory of financial and human resources. The town over the past few years, and many more are panel suggests that this be managed by an out- under way. The panel’s interviews indicated that side consultant or staff from the mayor’s office there is a large gap between the city’s knowledge to assure consistency of approach and focus on of these projects and public awareness. Further, downtown revitalization needs. many groups and individuals have expressed interest in being a part of Allentown’s progress and, • Each agency and authority then prepares a in part, their feeling of being left out of the revi- one-year action agenda with specific work talization process. items, milestones, budget commitments, and allocation of staff to support the downtown revi- One way to raise public knowledge and enlist sup- talization, with annual reviews and updates. port is to convene the Downtown Summit. The city could enlist the support of local professional • Regional and state cooperation is critical to the and civic groups, as well as universities, to con- downtown agenda implementation strategy and duct such a half-day or all-day event. The mayor the overall health of Allentown. Key regional and the chair of the Downtown Partnership should and state agencies include: the Lehigh County cohost the summit. Department of Community and Economic De- velopment, Governor’s Action Team, Lehigh Clear and Concise Agenda Valley Economic Development Corporation, and An effective implementation strategy requires a the like. These entities also should participate clear and concise vision, message, and priorities, actively in the establishment of the downtown which will be established in part by the Down- Allentown revitalization agenda, complete an town Summit. Although it is premature to iden- assessment of resources they can bring to the tify the areas of focus, based on interviews with table, and establish a short- and long-term ac- numerous stakeholders, the panel suggests the tion plan of support. following:

Key elements of cooperation include: school • Add so many units of housing, so many per year, funding; transportation; tax revenue sharing; by such and such a date; and economic development. • Improve so many arts/entertainment facilities These elements all require long-term commitment by such and such a date; and and cannot be addressed within the scope of this • Make downtown clean, safe, and friendly by report. However, the panel wants to stress the crit- implementing the following activities: twice- ical nature of each. Cities must have good schools a-day litter pickup; so many police on foot pa- to attract and retain families—the current school trol; and so many downtown festivals and events funding system results in severe disparities which per year. can only be resolved through regional and/or state cooperation and action. The economic health of Whatever three or four key foci emerge from the Lehigh Valley’s urban center is key to the health summit must also be the key elements of revital- of the entire region. Goal setting and regional co- ization. The mayor, the Downtown Partnership, operation are needed to insure that Allentown AEDC, and city agencies and authorities, as well captures a significant proportion of the thousands as county, regional, and state stakeholders will of new jobs projected for the region by 2010. rally around the vision and priorities.

Downtown Summit The mayor will espouse them as a priority of his The city should convene a “Downtown Summit” to administration, assess their progress in his state educate the citizens of Allentown and Lehigh Val- of the city addresses, and accordingly prioritize ley on the many positive developments occurring his requests for funding and other support to the downtown—and simultaneously invite them to governor and federal government. City agencies participate in shaping its future. Many significant and authorities will use the revitalization vision

36 An Advisory Services Panel Report and priorities as the basis for their action agendas a specified purpose. Such bond funds might be and budget priorities. The Downtown Partner- used for developing a conference center, public ship will focus its efforts in support of the vision infrastructure such as parks and street improve- and priorities. ments, etc.

With such clarity and focus, the city can effec- The city agency/authority resource assessment tively call upon the good will of the state and the discussed above will show where city resources federal government to support downtown Allen- might effectively be committed to downtown revi- town’s revitalization, and will more effectively be talization. Public resources and agency budgets able to approach the federal government with spe- must be coordinated and focused. For example, cific requests for assistance. perhaps a portion of the parking revenues could be devoted to the effort, as has happened with Evaluate Financing Strategies sewer funds. The panel commends the city of Allentown for its creative use of financing mechanisms to spur The panel recommends that an independent finan- downtown development. Its Design Assistance cial expert be engaged to advise the city on the Program, Hamilton Street Facade Grant Pro- best use of its public resources for downtown re- gram, Upper Floors for Housing Rehabilitation vitalization and to establish an overall financing Program, and others clearly are having a posi- strategy. This expert could also advise on state tive impact on the downtown, as is the effective and federal financing mechanisms. Possible fund- use of the KOZ program and other state and fed- ing resources for consideration include: eral programs. • Federal brownfields funds; The panel recommends that the effectiveness of • Environmental Protection Agency (EPA) funds; the programs be evaluated—now that there is a track record—to determine whether funding lev- • Downtown Business Improvement District tax; els are appropriate, how programs are utilized, whether they are achieving objectives, whether • HOPE VI; some could be merged for more effective admin- • Bond financing; istration, the effectiveness of oversight, etc. If greater incentives are needed to spur investment, • National Endowment for the Arts (NEA) arts the city might consider providing limited-term tax financing; abatement, phase-in of full property value assessment, etc. If owners are reluctant to improve build- • Foundations; and ing upper floors for housing because this is not • Historic and Low Income Housing Tax credits. their core business, the city might explore the option of master leasing. Residential development Marketing Strategies professionals and property managers who are at- Downtown Allentown needs to be better mar- tracted to projects of greater scale than two or keted, both to consumers and to businesses. The three units could be encouraged to lease the up- panel’s suggestions for business-to-consumer mar- per floors of multiple properties. keting include:

The panel suggests that the city explore the bene- • PPL Plaza and the Arts Park lot can and should fits of establishing a Tax Increment Financing be used—immediately—for public events and (TIF) district as a source for financing various de- festivals. Programs could include, during good mands of the downtown revitalization agenda. Al- weather months, a weekly afternoon “party,” a though the program varies by jurisdiction, in gen- la “Parties in the Plaza” in Syracuse or “Thurs- eral through a TIF program, incremental taxes days in the Square” in Buffalo, or a weekly farm- over the base (property and/or sales taxes) are ers’ market. PPL Plaza also can be animated committed to repaying bonds issued to cover in- with outdoor cafes/vendors and white Bryant frastructure and other public improvements with Park–style chairs.

Allentown, Pennsylvania, March 21–26, 2004 37 • The city should consider relocating some festi- The Downtown Partnership and AEDC should vals and events—currently held in city parks— reach out to partnerships with local colleges and into the downtown area. universities, including Muhlenburg, Cedarcrest, Lehigh-Carbon Community College, Lehigh, • The Downtown Partnership should develop Lafayette and others, as well as to larger institu- cross-promotions with restaurants on evenings tions, such as the University of Pennsylvania, Penn- that the symphony is playing, on festival week- sylvania State University, and others, to work on ends, etc. projects and programs for downtown Allentown. • The Downtown Partnership should develop For example, the University of Pennsylvania’s a once-a-month Arts Walk among facilities in Department of Urban and Regional Planning and downtown Allentown. Pennsylvania State University’s Department of Landscape Architecture should be invited to Al- • The Downtown Partnership should lead retail- lentown to work on further implementation of ers to promote themselves to downtown em- some of the recommendations from this report. ployees and residents. Perhaps a local benefactor would consider fund- The panel’s recommendations for business-to- ing an Allentown urban design center that would business marketing include: regularly partner with area and statewide colleges and universities to work continually on • The Downtown Partnership and AEDC should downtown projects. ensure that downtown office, retail, and entertainment space—as well as land—are being ade- Long-Term Strategy quately marketed by state and regional market- Strategies for downtown Allentown must be im- ing entities and should educate them as to the plemented with support from the city’s overall many positive changes occurring downtown. long-range economic development strategy. It will Such entities would include the Lehigh Valley be important to envision and maintain a long-term Economic Development Council, the Lehigh implementation approach. Potential links be- Valley Convention and Visitors Bureau, and the tween downtown revitalization and city economic State Department of Economic Development. development include brownfields redevelopment, regional cooperation and resource allocation, and • The Downtown Partnership and AEDC should business retention and attraction strategies. ensure that downtown office, retail, and entertainment space—as well as land—are being ade- quately marketed by private sector entities such as realtors and hotels. • Work with universities. Downtown Allentown needs the best and brightest minds of Lehigh Valley, of the region, and the state working on its opportunities and on its problems. At the same time, downtown Allentown represents a living laboratory that today’s generation of students increasingly insists on experiencing as part of their undergraduate and graduate education—and represents a city scale that is manageable yet significant.

38 An Advisory Services Panel Report Conclusion

he extent to which government and non- Introduce New Types of Projects profit organizations have focused their concern on downtown Allentown is impressive The objectives of new types of development proj- T and vital. They have an established history ects are as follows: of productive planning efforts and, more recently, • Ensure the longevity of the major downtown a track record of effective development projects. hotel through expansion of amenities like a con- The panel considers the following three directions ference and exhibit center. Guests at a thriving to be key to the continuing and expanded success hotel, in turn, provide support for other down- of downtown revitalization: town activities;

• Continue pursuit of development projects simi- • Expand the notion of a multipurpose downtown lar to those already underway, such as residen- through a venue that accommodates attractions tial of all types and the Arts Park/Walk; not readily serviced by other downtown facilities. An emphasis on popular culture will serve • Introduce new types of development projects to open downtown to a wider audience; such as a conference and exhibit center; and • Solidify the number of destination attractions • Strengthen implementation mechanisms. and create another anchor through the development of America on Wheels; and

Continue Similar Projects • Open downtown to population segments not The objectives of the continued pursuit of devel- currently well served. Projects such as a chil- opment projects similar to those already under- dren’s museum or section of a museum, and an way are as follows: active public space on the sinkhole site could serve the broader population well. •Transform the image of downtown both visually and practically by providing a range of Strengthen Implementation housing products; Mechanisms • Strengthen downtown’s competitive status The objectives of the implementation mechanisms relative to suburban office space by support- are as follows: ing new/rehabbed office development; • Place the private sector in its rightful place as • Respond to the retail market realistically by the leader of downtown’s success through for- serving close-in neighborhoods with a shopping mation of a strong downtown organization; center north of Hamilton Street and encourag- ing the niche restaurants and retail establish- • Position the city’s development arm for greater ments that serve the larger market to locate effectiveness by directing it to focus solely on on Hamilton; downtown;

• Expand on the interest generated—and the • Coordinate responsibilities, finances, and agenda promotion opportunities presented—by the of all stakeholders—public, private, and community Arts Walk and Arts Park, and the arts district —relative to downtown through in-depth evalu- as a whole. ations and summits; and

Allentown, Pennsylvania, March 21–26, 2004 39 • Let people and businesses get involved in downtown immediately through outdoor events, coordination of existing programs, and overall marketing of downtown successes. The panel believes that these objectives sum up the needs and direction of downtown Allentown, and that Allentown is well on its way to achieving success. Downtown revitalization is often the result of one project/one step at a time—Allentown has clearly taken many steps. It has the experience, interest, and resources to continue its progress and make downtown the center of the city and of Lehigh Valley.

40 An Advisory Services Panel Report About the Panel

Anne Warhover development for construction projects totaling over $3 billion. Panel Chair Denver, Colorado With his strong management approach, extensive development planning, design, and construction Anne Warhover is president and CEO of the experience, Aguilar has successfully completed Downtown Denver Partnership, a private, non- projects to meet design and aesthetic goals while profit corporation. The Partnership, a group of simultaneously meeting timetables and budgetary three separate corporate entities and one quasi requirements. The types of projects he has worked governmental entity, markets downtown as a vi- on include but are not limited to schools, medical brant and diverse place to work, live, play, and in- facilities and hospitals, hotels and resorts, residen- vest. A $6 million dollar annual budget provides tial multifamily buildings, and office and multiuse funds for services designed to give downtown buildings. Aguilar has proven his knowledge, pro- Denver a competitive edge as the business center fessionalism, and ability to work in various areas and entertainment destination for the Rocky of the development and program management field Mountain Region. Services include keeping down- in multiple projects with many types of private town clean and safe, retaining and recruiting jobs, and public institutions. facilitating housing development, marketing entertainment and retail destinations to the metro Aguilar received a bachelor of architecture from area residents, and producing three major annual the National University of Mexico, a master of events. In her role as president, Warhover is re- architecture from Tulane University, and a master sponsible for implementing the policies set by four of landscape architecture from Harvard University. separate boards of directors who represent 475 member businesses and over 600 downtown prop- Aguilar is a registered architect in California, erty owners. a full member of the Urban Land Institute, and a member of ULI’s Residential Neighborhood Prior to joining the Partnership in 1992, Warhover Development Council. In addition, he serves as a was a vice president of First Interstate Bank of member in the Blue Ribbon Citizens Oversight Denver. As a banker for over 15 years, she pro- Committee for school construction in Los Ange- vided corporate banking services to regional and les, overseeing over $10 billion of school bond national customers and managed the Community construction. Relations Department. She graduated from the University of Colorado. Elinor R. Bacon Guillermo M. Aguilar Washington, D.C. Santa Ana, California Elinor Bacon has more than 25 years of experience in housing, real estate development, and Guillermo Aguilar, AIA, has more that 25 years community development in the public and private of experience managing and developing large com- sectors. Bacon formed E.R. Bacon Development, plex projects. As a project executive, he has pro- LLC, a real estate development and consulting vided professional services including architectural firm, in 2002. The firm’s primary clients have been design, program management, environmental plan- Forest City Washington and the Housing Author- ning and design, master planning, and real estate ity of the City of Spartanburg. The firm is cur-

Allentown, Pennsylvania, March 21–26, 2004 41 rently codeveloping two market-rate infill town- for clients as diverse as the Walt Disney Company, house developments with six and ten units respec- the Guggenheim Museum, the city of New York, tively, in Baltimore, MD, and a 500-unit mixed-in- the Untied States Air Force Academy, the Na- come, mixed-use for sale and rental HOPE VI tional Capital Planning Commission, the District development in Spartanburg, South Carolina. The of Columbia, the New Jersey Nets, and the Smith- firm’s development focus is on urban infill; mixed- sonian Institution, among many others. use mixed-income projects involving rental and/or for-sale housing and retail; and adaptive use of his- Curley has designed new towns in the Philip- toric buildings. pines, China, and Australia, and recently completed a submission for the 2008 Olympic Vil- From January 2001 to April, 2002, as president lage in Beijing. He was the lead designer for and CEO, Bacon launched the National Capital Phase II EuroDisney in Marne la-Valle, and pro- Revitalization Corporation (NCRC), a public real vided strategic planning for 9,000 acres of Disney estate development corporation established by the property south of the Disney World resort in Flo- ULI Washington D.C. District Council. NCRC’s rida. His most recent works include the recon- mission is to spur economic development in the struction of downtown Beirut, for which he won District, primarily in neighborhoods of need. an international design award for excellence from the Congress for New Urbanism. In addition, he From June 1997 through December 2000, Bacon was one of the authors of the Legacy Plan for the served, under Secretary Andrew Cuomo, as National Capital Planning Commission. Curley deputy assistant secretary for the United States believes that to be called to service on public proj- Department of Housing and Urban Development ects is the highest honor an architect can achieve. Office of Public Housing Investments. In this ca- pacity, she administered the $4.2 billion HOPE Thomas Curley graduated from the Southern Cal- VI Program and other public housing capital pro- ifornia Institute for Architecture with graduate grams with annual appropriations of approxi- degrees in architecture and urban design. mately $2.5 billion. H. Cales Givens Before joining HUD, Bacon was a private real estate developer and consultant in Baltimore where Denver, Colorado she established her firm, Bacon & Company, in 1985. The company focused on affordable hous- Throughout his career, H. Cales Givens has ing, adaptive reuse, historic preservation, and de- elected to use his consensus building skills on a velopment management of public purpose urban variety of project types for diverse clients. Due projects. Prior to forming her company, Bacon to the nature of his focus—urban revitalization, worked for more than ten years in the field of pub- community planning and design, parks and greenways—many projects have been sizable and very lic sector housing and community development at much in the public domain. The Potomac Yard, the city and federal levels, and for the Johns Hop- Lakelands, Celebration, and now Stapleton in kins Hospital. Denver, Colorado, are among the high-profile Bacon has a master of arts degree in Chinese new communities he has worked on, and St. Louis studies from the University of California, Berke- was the site of an award-winning downtown plan- ley, and a bachelor of arts degree from the New ning project. School for Social Research. At 4,000 acres, Stapleton is the largest urban redevelopment site in the nation. As principal in Thomas Curley charge, Givens has overseen EDAW’s work for New York, New York the past four years, which encompasses master planning, design guidelines, a major urban park Thomas Curley is director of urban planning at and greenways design, urban drainage, sustain- HOK. His projects can be found on six continents ability, civic meetings, and design review. The

42 An Advisory Services Panel Report project is destined to become a national model for brand (now Pricewaterhouse Coopers). He opened urban revitalization within the next decade. his own consulting practice in 1992.

In pure acreage, Givens’s largest project to date Kircher has completed strategic, market, and fi- involved the 1,000,000 acres owned by the St. Joe nancial feasibility studies for major retailers, town Company in western Florida. The preparation of a centers, vacation resorts, housing agencies, the market-based business plan and investment strat- hospitality industry and office developments. He egy for land development required Givens to work also has been responsible for more than a thou- with a cross-disciplinary staff that included land sand shopping center market studies for develop- planners, economic specialists, facilitators, and in- ers, retailers, financial institutions and public formation technology specialists. He also was in- agencies. Furthermore, he conducted extensive strumental in organizing and facilitating three research on developments combining retail and major workshops in six weeks during the plan- entertainment including West Edmonton Mall, the ning process. Mall of America and Mills Centers. In addition, he has been an expert witness before courts and Many of Givens’s projects have received local and quasi-judicial agencies regarding lease valuations, national awards from the ASLA and the APA, in- rent arbitrations, expropriation hearings and zon- cluding the St. Louis downtown development ac- ing, as well as impact issues. tion plan; Stapleton; the Lansdowne (Loudoun County, Virginia) corporate center master plan; Kircher’s professional affiliations include the the Potomac Yard (Alexandria, Virginia) master Urban Land Institute where he has been a mem- plan; and a memorial to the 56 signers of the Dec- ber of the Entertainment Development Council, laration of Independence. and the Urban Mixed-Use Development Council. He also is a member of the National Retail Feder- Givens holds a bachelor’s degree in landscape ar- ation, International Council of Shopping Centers, chitecture from Virginia Polytechnic Institute and and the Retail Council of Canada. He holds master has served as a member of the College of Archi- of business administration and bachelor of com- tecture Advisory Board. He also is a member of merce degrees from the University of Toronto. the American Society of Landscape Architects. Besides his extensive consulting background in Canada, his international assignments include Givens has been an active ULI member since major research studies in the United States, most 1988, serving on the Mixed-Use Council and par- European countries, Africa, South America, and ticipating in numerous Advisory Service panels in the Middle East. North Carolina, Illinois, Ohio, and California, tack- ling local issues ranging from football stadiums and downtown plans to transit corridors and base F. Anthony (Tony) Orbe realignment and closure. He is currently vice New York, New York president and principal in the Denver office of EDAW, Inc. Tony Orbe joined Insignia/ESG in February 2000 as senior managing director in the firm’s Capital Hermann J. Kircher Advisors Group. With more than 25 years of real estate experience, Orbe’s focus at Insignia\ESG is Toronto, Ontario large, complex investment transactions such as Canada joint ventures.

Hermann Kircher was for 25 years president of Orbe began his career in 1972 at a major financial the international real estate market research firm, services firm. In 1979, that company asked him to Larry Smith and Associates Ltd. After merging open the New England investment office. There, that firm with Coopers and Lybrand, he served he led his staff in the development of three of- for 12 years as partner responsible for real estate fice/R&D parks, and the acquisition and redevel- and retail consulting services at Coopers and Ly- opment of three regional malls. All projects were

Allentown, Pennsylvania, March 21–26, 2004 43 brought in under budget and exceeded the pro- Richard T. Reinhard forma expectations. Atlanta, Georgia In 1986, Orbe was named officer-in-charge of real estate operations in the Northeast. In that capac- Richard Reinhard has spent two decades leading ity, he oversaw five regional offices. He restruc- nonprofit, urban revitalization corporations in the tured and energized an existing organization, United States—making center cities clean, safe, managing a $7 billion portfolio of mortgages and friendly, and accessible; attracting and retaining equity. He established an aggressive asset rede- businesses; developing housing and commercial velopment plan that reinvigorated the equity properties; and creating good urban design. In the portfolio. Notable projects for which Orbe was re- summer of 2004 he will begin working abroad as sponsible include 660 Madison Avenue (Barney’s executive director of a large, new, urban regener- store) in Manhattan, the Centre Square Complex ation company in Northern Ireland. in downtown Philadelphia, and Woodmont Plaza in Reinhard has led downtown improvement organi- suburban Washington, D.C. zations in Richmond, Buffalo, and most recently, In 1991, Orbe assumed additional responsibilities, in Atlanta, where he led Central Atlanta Progress overseeing the firm’s interest in two firms, an in- and its four affiliates, with combined budgets of vestment management organization and a large- $11 million a year. Reinhard has served as chief scale projects development firm. Along with the of staff to the mayor of Buffalo and as chief oper- Northeast real estate portfolio, Orbe assumed ating officer of a real estate development corpo- leadership of the Midwest real estate operation, ration headquartered in Toronto. His consulting bringing total assets under his management to organization, Niagara Consulting Group, has un- over $15 billion. He also supervised the New Busi- dertaken forming a medical campus in Buffalo, ness Development Unit. In 1992, Orbe was se- developing a citizens’ plan for Niagara Falls, and lected to lead the Real Estate Investment Man- currently is working on forming a streamlined agement Group, servicing and managing all of the downtown organization for Detroit. firm’s international and pension fund clients. In Reinhard has a bachelor of science degree from 1995, Orbe, along with several other senior invest- the College of William and Mary and a master of ment executives, formed Equinox Investments, business and public management degree from Inc., a consulting and investment firm servicing Rice University. He was a Loeb Fellow at the the institutional market. Harvard University Graduate School of Design. Orbe is a 1968 distinguished military graduate Reinhard has served as an adjunct faculty mem- of the Baruch School of Business Administration, ber in urban planning and public policy at Virginia City College of New York. He is an active member Commonwealth University, the University at Buf- of the real estate industry and several of its asso- falo, and Georgia State University. ciations including the Real Estate Board of New York and the Urban Land Institute. He also is an active member of the community, serving as a founding director of the Grand Central Partner- ship, and as a trustee for the Children’s Aid Soci- ety, the Bellevue Association, and the Citizen’s Budget Commission.

44 An Advisory Services Panel Report