Report Reflect the Views of the Authors, Who Are Responsible for the Facts and the Accuracy of the Data Presented Herein

Carter&Riverfront:&Reimagining&the&Scranton&Peninsula& A"Capstone"Project"of"Cleveland"State"University’s"UST"611"Planning"Studio!! May,"2015

Two Visions: Transforming the Scranton Planning Studio Peninsula, Cleveland, Ohio Students Ayden Ergun Alethea Ganaway Rachel Gruic Timothy Holcomb Brandon Isner William Jones Steven Kanner Nathaniel Neider Julie Quinn Julia Schnell Megan Shockey Kessa Turnbull Xin Xu

Instructors Professor Jim Kastelic Professor Wendy Kellogg Carter&Riverfront:&Reimagining&the&Scranton&Peninsula& A!Capstone!Project!of!Cleveland!State!University’s!UST!611!Planning! Studio!!

May, 2015

Prepared for Forest City Enterprises The contents of this report reflect the views of the authors, who are responsible for the facts and the accuracy of the data presented herein. The contents do not necessarily reflect the In Fulfillment of official views or policies of the Cleveland State University or Forest City Enterprises (which Cleveland State University’s, Levin College of paid a stipend to the CSU program in order to participate as a client). Urban Affairs 2015 UST 611Urban Planning All material contained in this document are open source and available to anyone at no cost. It Studio requirements may not be resold without the permission of the authors. When citing this work, proper credit is required . Please cite as follows: This Paper is Available on Our Website CSU, Levin College of Urban Affairs, 2015 UST 611Urban Planning Studio ( Ergun, A., https:// carter-riverfront.com Ganaway, A., Gruic, R., Holcomb, T., Isner, B., Jones, W., Kanner, S., Neider, N., Quinn, J., Schnell, J., Turnbull, K., Xu, X.)

Authors Ayden Ergun For further information about this paper, program or CSU, please contact the following: Alethea Ganaway Rachel Gruic Maxine Goodman Levin College of Urban Affairs, Cleveland State University Timothy Holcomb Brandon Isner 1717 Euclid Avenue, Cleveland, OH 44115 William Jones 216-687-6908 Steven Kanner Nathaniel Neider [email protected] Julie Quinn Julia Schnell http://urban.csuohio.edu/ Megan Shockey Kessa Turnbull Xin Xu

Cleveland State University’s Master of Urban Planning, Design and Development’s capstone class is the UST 611 Planning Studio. A class of thirteen students, led by two instructors, prepared a detailed paper regarding potential redevelopment of the area in Cleveland, OH that is currently known as the Scranton Peninsula. Forest City Enterprises is the private majority share owner for the vast majority of the 80 plus acre property that is adjacent to downtown. They acted as the client of the class. A thorough review of the history, current physical conditions, current zoning regulations & uses, current ownership, demographics, culture, similar development plans from across the US, current local and regional plans for the area, surveying local residents and stakeholders, and brownfields risks was completed to understand the context of the area before any redevelopment of the land was proposed. The class named the development project the Carter Riverfront: Reimagining the Scranton Peninsula in honor of the first European American settler in the area. Next, the 13 students broke up into two separate groups and prepared two different development plans for the site. The plans had many elements in common such as the smart growth philosophy of dense development and mixed use (containing residential, retail, commercial, and office), environmental concern, and appreciation of the environs and the surrounding Cuyahoga River. Differences included an urban campground, a graffiti park and an in-depth review of available funding sources in Group B’s plan, while Group A’s included a center promoting cooperatives and cutting edge supply chain processes, an artist live-work co-op apartment and reuse of one of the buildings to create a recreation-art center. Projected costs for the developer were also presented in both papers. Group A projected a cost of close to $96 million in order to complete the development, while Group B projected a cost of close to $450 million. Both put brownfield remediation costs in the area of $10 million.

i Table of contents

Public Surveys & Stakeholder Interviews 38 Introduction 1 PHASE TWO - GROUP A PHASE ONE National Plans - Milwaukee Riverfront 2 Plan Overview - Team A Site Plans and Elevations 47 National Plans - North End 3 Summary of the Design Elements 51 Local and Regional Plans 4 Themes Synopsis 52 Existing Regulatory Conditions and Ownership 7 LEED ND 53 Zoning, Existing Use and Cleveland 2020 Citywide Plan 8 Area Highest and Best Use 55

Parcel Ownership 9 SWOT Analysis 57

Physical Conditions 13 Remediation & Construction Costs 58

Existing Conditions Summary - Transportation 18 Project Specific Remediation & Development Construction Costs 59 Existing Conditions Summary: Brownfield Analysis 19 Total Cost/Rent Analysis 60 History of the Scranton Peninsula 22 Carter Riverfront Center for Innovation in Demographics 30 Manufacturing and Cooperatives 63

Demographics - Homelessness and Housing Needs 34 Arts and Culture 67

Demographics - Crime 35 Green Space and Recreation 71

Demographics - Culture 37 Transportation 74

PHASE TWO - GROUP B Plan Overview - Team B Site Plans and Elevations 81

Executive Summary 88

Multi - Modal Connections and Place-Making 90

Graffiti Park 93

Carter Townhomes 95

Mixed-Use District 96

River’s Bend Apartments 100

Finances 101

Urban Campground 105

Public Funds Targeting Brownfield Cleanup 107

Funding From Local Foundations 115

Conclusion 119

Acknowledgements 120 Introduction

It is likely that John Malvin, of the early 19th century, canal boat captain, The above work will be presented in Cleveland civic leader and one of the first African Americans to live in the section known as Phase 1. Cleveland, floated on a boat down the Cuyahoga River. The odds are that he went past the land that became known as Scranton Peninsula. It is easy to Concurrent to the work done in imagine that he saw great possibilities for that land and for all of Cleveland. Phase 1, an extensive survey of It was a time of the new canals, while Cleveland was growing and becoming random near west side pedestrians a gateway to the west for people and gateway to the east for raw materials. and targeted stakeholders was conducted. The results of this can be Today, our group of thirteen students enrolled in UST 611 Planning Studio, found in the section labeled Public Cleveland State University’s Master of Urban Planning, Design and Surveys and Stakeholder Interviews. Development’s capstone class, also see great possibilities for that same peninsula. In 2015, Scranton Peninsula has gone through extensive wear Next, the 13 students broke up into two separate groups and prepared two and tear and is left with close to 80 acres of polluted and worn down land different development plans for the site. The plans had many elements in Most of it an unoccupied brownfield, and only a few business are left to common, such as the smart growth philosophy of dense development and occupy a few rundown buildings. mixed use (containing residential, retail, commercial, and office), environmental concern, and appreciation of the environs and the Our class, which met during the spring semester of 2015 and was led by two surrounding Cuyahoga River. Differences included an urban campground, a senior Levin College instructors, prepared a detailed paper regarding graffiti park and an in-depth review of available funding sources in Group potential redevelopment of the area in Cleveland, OH that is currently B’s plan, while Group A’s included a center promoting cooperatives and known as the Scranton Peninsula. Forest City Enterprises is the private cutting edge supply chain processes, an artist live-work co-op apartment and majority share owner for the vast majority of the 80 plus acre property that reuse of one of the buildings to create a recreation-art center. is adjacent to downtown. They acted as the client of the class. The above work will be presented in two parts in the Phase 2 section, each Before we as a class could propose what will be, we had to research and self-contained and each section preceded by Site Plans and concept examine the context of the site: what was and what is currently at this land drawings. Group A, consisting of Alethea Ganaway, Steven Kanner, adjacent to the heart of downtown. We broke up into five small subgroups Nathaniel Neider, Julie Quinn, Julia Schnell, and Xin Xu, present their and did a thorough review of the history, current physical conditions, current vision for the redevelopment of Scranton Peninsula into Carter Riverfront. zoning regulations & uses, current ownership, demographics, culture, current local and regional plans for the area, and brownfields risks associated with the site and surrounding area. The class named the The members of Group B, Ayden Ergun, Rachel Gruic, Timothy Holcomb, development project the Carter Riverfront: Reimagining the Scranton Brandon Isner, William Jones, Megan Shockey and Kessa Turnbull will then Peninsula in honor of the first European American settler in the area. present their conceptualization.

1 Phase 1 Review of National plans - Milwaukee Riverfront

The key to Milwaukee’s current boom in housing and mixed use development along its riverfront is a public investment that began in 1997. The Milwaukee RiverWalk was a major upgrade to the Milwaukee River which winds its way through Milwaukee most dense urban core.1 The initial upgrades that made the riverfront into the Milwaukee RiverWalk were fairly standard public investment projects that included new walking paths, better pedestrian access of bridges, and lighting. Since this investment, the riverfront, which the RiverWalk partially makes up, has seen 150% increase in Fair market value and an added revenue of $540 Million. In order to understand the investment that has occurred along the riverfront we looked at a view key developments, all of which would not be possible without the initial investment that was made over 15 years ago.2

The

1!http://www.jsonline.com/news/milwaukee/riverwalk7condo7developments7transformed7milwaukee7riverfront7b9948754z17262244291.html)

2!http://www.jsonline.com/news/milwaukee/riverwalk7condo7developments7transformed7milwaukee7riverfront7b9948754z17262244291.html)

2 National plans - NORTH END / DOMUS / REED STREET

REED STREET YARD NORTH END Most of the riverfront development in Milwaukee is residential and retail, however one of the most interesting recent projects, The development, on the outskirts of Milwaukee core central Reed Street Yards, will be the offices of the water technology business district, is a major project by the Mandel Group. The business initiative. The core of the project will include a strong multifamily development occupies 2.4 acres and stands at six research, development, and industrial component centered on stories tall. The 168 unit development connects to the water filtration technology. By project completion will include RiverWalk, 400 feet of which the developer has extended. The 8 buildings and over 1 million sq. ft. of new office and research $50 million project also includes 30,000 sq. ft of retail, facilities. Reed Street Yards includes a 1,040 ft. extension of the 3 intended for a grocer. RiverWalk. DOMUS When compared to other Great Lakes cities, Milwaukee is Similar to the North End making huge strides along their riverfront. The projects development The Domus highlighted here are only a fraction of previous projects, as well development, in Milwaukee as future projects that are currently in their nascent stages. It is Third Ward District. Built on top not a stretch to say that what has occurred along Milwaukee’s of a former industrial site, and urban riverfront would not have been possible if not for the currently a surface parking lot, original investment made by the city in 1997. This original Domus has the distinct investment, as well as the city’s RiverWalk extension advantage of riverfront real requirement for developers, demonstrates how cities can create estate, while also serving as an encourage riverfront development. extension to an already thriving Warehouse District full of restaurant and retail. The 130 unit development, which also includes retail, includes a 450 ft. extension of the Milwaukee RiverWalk. 4

3 (http://urbanmilwaukee.com/2015/02/20/freshwater-mecca-milwaukees-extraordinary-freshwater-future/?utm_source=Urban +Milwaukee&utm_campaign=c2feb7498c-RSS_EMAIL_CAMPAIGN&utm_medium=email&utm_term=0_fa7240869f-c2feb7498c-51384977

4 (http://urbanmilwaukee.com/2015/02/20/freshwater-mecca-milwaukees-extraordinary-freshwater-future/?utm_source=Urban +Milwaukee&utm_campaign=c2feb7498c-RSS_EMAIL_CAMPAIGN&utm_medium=email&utm_term=0_fa7240869f-c2feb7498c-51384977

3 LOCAL & REGIONAL PLANS

We reviewed several plans relating to the Scranton Peninsula plans, ranging from connecting already existing neighborhoods extending from 1992 to current day. Some of them are distinct such as the Flats and Steelyard Commons to planned plans in their concise PDFs while others are websites that are developments like Canal Basin Park. They also sought to updated periodically and thus do not have distinct starts and provide many different methods of transportation ranging from ends to their plans. The first thing we did was determine a traditional methods like driving, walking, and biking to transit number of common themes across the plans in order to methods like buses, trains, and trolleys, to unique modes like determine how each plan approached them directly. sky rides and water taxis. The plans wanted to focus on the transportation being sustainable and equitable and providing The first theme was Parks, Open Space, Outdoor Recreation, methods for residents throughout Cleveland to be able to access and Trails. This was anything to do with outdoor recreation, green space and the waterfront in an environmentally conscious green space, open space, walking, biking, etc. Most plans manner. focused around having green space along the perimeter of Scranton Peninsula as well as increasing the amount of green The fourth theme was Neighborhood Development, Retail, and space available through clustered development and pocket Industry. This was the traditional form of development centered parks. Many plans also focused on sustainability features such around revenue-producing buildings, either separate from as green infrastructure and complete streets. housing or combined with it. The plans all called for mixed-use developments focusing on employment centers for local The second theme was Lake and Riverfront Development and development districts and using the transportation infrastructure Access. This was any goal to either make it easier to access to connect disadvantaged residents with new employment Lake Erie or the Cuyahoga River or to focus development opportunities. While the plans varied in their innovativeness, along them and utilize them as assets rather than putting the none of them were looking at just traditional style back of development towards the water as Cleveland has developments but instead sought to provide a “wow factor” traditionally done. All of the plans mentioned the need for the through the enhancement of the area’s cultural significance and bulkheads to be repaired as well as made narrower and more customized developments that would attract people from ecologically beneficial whenever possible. Several plans also throughout the region and beyond. They also called for a suggested piers, bridges, boardwalks, or connector trails in balance between housing and business while using the order to provide access to residents to actually be able to get peninsula as a catalyst for surrounding developments. down to the waterfront and use the unique water system as a method of place-making. The fifth and final theme was Funding and Support. This was less of a theme in its own right but more occupied with trying The third theme was Connections and Transportation. This to find how much things cost when possible and listing any focused on connections between different developments and funding sources that were mentioned in order to provide neighborhoods as well as connections between different guidelines for both costs and funding for our planned transportation systems such as walking, biking, bus, and trains, development. The plans all were funded or planned on being as well as more unique forms of transportation such as water funded through public-private partnerships. The City of taxis or a sky ride. Connectivity was a huge theme across all the

4 Cleveland, Cuyahoga County, and federal grants were common REVIEW OF PLANS public partners as well as the Metroparks. The Cleveland Foundation and George Gund Foundations were also strongly • Towpath Trail Extension Plan involved. Geis Companies and First Interstate were important • The Towpath in Cleveland private partners. • Cleveland SkyLift Plan • Cleveland Gateway Redevelopment Plan To conclude, we found that the most important aspect of • Birding in Ohio development was to focus on connections between • The Towpath Trail Study neighborhoods and developments in order to get the maximum • How Do We Move into the Future Plan utilization of assets. The plans reviewed determined that going • Canal Basin Park: Schematic Plan Development forward with our own Carter Riverfront plan, it is essential to • Canal Basic District Plan maintain a healthy balance of land uses. Sustainability should • North Cuyahoga Valley Corridor Study and Plan be a primary component, while focusing particularly on • The Waterfront District Plan increasing residential density to economically support desired • The Waterfront District Regional Plan amenities. Finally, we must promote balanced transportation • Irishtown Greenway: A Strategic Plan for the Flats West infrastructure across all modes of travel in order to provide Bank equitable access to green spaces and the riverfront for • Flats Forward marginalized populations so that our development provides • Wendy Park Plan help to those who need it most, rather than those who already • Detroit Ave. East Development Plan have the ability to live the life they choose. • Byway Improvement Plan - Ohio City • Valley Views Homes Hope VI Plan • Flats East Bank • Historic Warehouse District Master Plan • Linking the Corridor • Ohio & Erie Canalway: America’s Byway Management Plan

5 Example of Timeline

6 existing regulatory conditions & ownership

The Scranton Peninsula, located along the Cuyahoga River in the flats, is the home of some of the most spectacular views of downtown and yet is one of the most underutilized pieces of land within the city of Cleveland. Currently, the land houses many dilapidated buildings and the telltale signs of a manufacturing past. The regulatory conditions of the Scranton Peninsula reflect its manufacturing heritage. The landowners, deed transfer history, zoning, and existing use all reflect the industrial character of the land, however the future is undetermined and Cleveland’s 2020 Citywide plan shows indications of the potential this land has. This existing regulatory existing conditions and land ownership report will serve to identify the current state of the land as it pertains to Zoning, Existing Use, and current ownership through breaking down the land parcel by parcel. The current conditions may signify a need for regulatory change at the city level, and may also identifying in land acquisition issues as developers consider the peninsula.

7 ZONING, existing use & CLEVELAND 2020 CITYWIDE PLAN

The ZONING that exists throughout the Scranton As Cleveland looks towards the future, and development Peninsula is General Industry. The City of Cleveland’s Code of opportunities arise for the Scranton Peninsula, it must be noted Ordinances for General Industry is found in TITLE VII: Zoning that aspects of the peninsula's industrial past will remain. The Code, Chapter 345 - Industrial Districts, which outlines the railroad for example, is reflected in the 2020 Citywide Plan specific uses allowed in a General Industry zoned area. Similar zoning scheme for this area. Cleveland’s sees the future of this to Semi-Industry, General Industry districts allow the same uses area as Mixed Use: Residential with Recreational Space with the addition of loading platforms for trucking and bordering the river. The expansion of the Tow-Path Trail and shipping, dusty material storage, open wrecking and storage, future Lake Link Trail both strive towards this future vision. and other characteristics of an industrial district with room to The question remains how the regulatory Code will change as move towards more heavy industrial uses.. Most important to development takes place. note in the code is that it specifically eliminates the possibility of constructing any housing as the zoning currently stands: “...no dwelling house, row house or multiple dwelling, and no building or Institutional H Occupancy Classification, shall be located within two hundred (200) feet of the boundary line of an adjoining General or Unrestricted Industry District, and no existing building within two hundred (200) feet of such boundary line shall be converted or altered to any such use...” While the Board of Zoning Appeals has the ability to grant exceptions, and development prospect that would include residence would require the rezoning of the entire peninsula.

The City of Cleveland’s intended use of the Scranton Peninsula is General Industry, which the current Existing Use supports through light industry and heavy industry uses. However, there is a large portion of Industrial Vacant Land that exists along the western edge of the peninsula. Of note is the institutional use on the north-eastern edge which is a City of Cleveland ﬁre station. Also along the eastern border of the peninsula the towpath trail has expanded and previously vacant land is now green space, although not reﬂected on the GIS map. The railroad that splits the peninsula down the is active and services the other industrial areas along the Cuyahoga.

8 PARCEL OWNERSHIP

The ownership of Scranton Peninsula is mostly held by Forest City Enterprises through subsidiaries it owns. The Flats Industrial Rail Road owns parcels that run through the peninsula that allow rail cars to access industrial sites in the ﬂats. The City of Cleveland owns parcels that connect the Carter Road lift bridge and another lift bridge to the eastern bank of Cuyahoga River. The North Cuyahoga Valley Corridor owns the land that the recently completed section of the Towpath is located. The land on the slope that transitions between Duck Island and the Scranton Peninsula was owned by Westbank Development but was recently transferred to Parkworks, Inc. Lastly, the Cleveland Electric Illuminating Company owns a very small parcel of land on the eastern bank of the site.

9 OWNERSHIP BY AREA

The substantial majority of square footage on the peninsula is owned by Forest City with the rest of the land holders owning signiﬁcant but much smaller total square footage.

10 Land use

The lion’s share of the current land use on the peninsula is industrial vacant land. There is a notable portion of land area that qualiﬁes or a charitable exemption. This is most likely the park land that the towpath is located on. The rest of the uses are a conﬂuence of various industrial ones. It should be noted that a large portion of the land did not have a land use code recorded in the public records. That said, there is little chance for wide deviation in land use on the Scranton Peninsula given its largely vacant, industrial state.

11 sum of parcel size gis

land use map

12 physical conditions

Examining physical conditions is important to consider when redeveloping on existing infrastructures on a site. The purpose of property condition assessment is to observe and report on the physical conditions of the subject properties and to provide professional recommendations regarding future issues including ﬁnancial risk or liability. Site conditions and improvements are important to carefully examine in order to sufﬁciently get the best use of the site.

Identifying physical conditions will help to identify physical needs that may need to be taken into consideration when redeveloping a site. Such physical needs to examine are any repairs, replacements and any signiﬁcant maintenance items that should be done immediately and over a period of time. After carefully understanding why it is important to evaluate physical conditions of a site and what to examine, a list of questions has been developed.

13 general site questions

What is the general existing infrastructure? • Sewer Do most of the streets have sidewalks? If yes, what are the • Most buildings are run down and are not ADA conditions? compliant • Hard to tell during the winter time if there are sidewalks • Paved streets throughout the site. From what I can tell, there are • Bridges sidewalks and are in MAJOR need of repair. • Retaining walls • Street lights What is the overall conditions of the roads? • Signs • Most of the streets were in fair condition. Chances are • Fences they will need to repaved and or inﬁlled because there are many potholes and possible other issues “beneath” What is the presence or absence of functions businesses & the surface. Also, the roads will need to be clearly industrial facilities? marked. • Light industrial Overall condition of landscape? Are there any public spaces, if so, what are the conditions? • The overall condition of the landscape, although hard to • No public space (except Towpath) determine in the middle of winter, can be still recognized as “unorganized” and “overgrown” (based What is the noise level in various parts of Scranton off of Google Earth images - pictures were taken June Peninsula? 2014). Agriculture is growing over the vacant buildings • On Scranton Road - Not extremely loud, however, there and are seeping into the cracks and growing over other is a bit of noise pollution due to the highway near by infrastructure. A lot of maintenance will need to be • On Carter Road - low to non noise pollution done.

What is the general amount of movement of traffic? Are most of the buildings occupied or vacant? • Scranton Road - Moderately busy • Most buildings are vacant and will need a lot of internal • Carter Road - low vehicular traffic and external updating if renovation is necessary. Some buildings that are not vacant do appear externally as What is the overall conditions of the buildings? vacant. • Run-down • Needs repair and or torn down Do the buildings seem accessible to people with disabilities - • Needs renovations ramped, street level • Many of the buildings have a lot of graffiti entries, etc? Are they boarded-up or vacant storefronts? • Doing a windshield analysis, entails just driving slowly

14 and making notes and comments about the current • While there was no chances of me asking those who are condition of what is being observed. Based off of this driving through Scranton Peninsula to ﬁnd out why they type of survey, it would appear that most of the are driving through this area. However, it would appear buildings are not ADA compliant as far as accessibility most people main purpose of driving through this area is to the “main entrance” of a building. to reach a certain building.

Most if not all the buildings are boarded-up storefronts. Are building facades and storefronts attractive and *Note* Most of the buildings do not have a well deﬁned welcoming? front or side entrance. • There is potential for industrial reuse, which may be the • It was hard to determine as a visitor where to enter and easiest and cheapest way to redevelop this site. where to park. However, any other uses (residential, commercial, mix- use) would most likely not ﬁt in with a “new approach” PUBLIC SPACES to this site. Also, most of the facades are not very Are there any public spaces where people can gather? Are welcoming for many reasons: it is hard to determine they well kept? where the entrance was, signs are not clearly located, • No - given the history of the site, the response is to be the facades are not very aesthetically pleasing and most expected. were not very accessible.

Are there seating areas? Are the streets and sidewalks relatively clean? • No - given the history of the site, the response is to be • Hard to determine during the winter time. Looking at expected. Google Earth images, most of the sidewalks and streets were relatively free of trash/litter.

STREETSCAPE Are there trash cans throughout the site? • No - given the history of the site, the response is to be Are there trees and plants, attractive design, cafes or food expected. vendors or other features meant to encourage people to use the space? Is there outdoor seating? • There isn’t very many things that will attract people to • No - given the history of the site, the response is to be utilize this site in past due to its previous land use, expected. however, the river and possible riverfront access will deﬁnitely bring a lot of people to use the space.

Who uses these spaces?

15 STREET USE LAND USE Are there people on the streets at most times of the day? In How much open space is there? the evening? How late? • There is a lot of open space • No. Do major roads or railroad tracks divide neighborhoods, or Do they interact with one another? are they on the edges ofthe community? • No. • The railroad cuts into Carter road. It doesn’t give a sense of division on the peninsula. However, the river Are streets and sidewalks well lit at night? does make it feel exclusive. • Did not go at night, however, from the amount of street lights, it seems to be lit well enough for the current land use. TRAFFIC

How heavy is traffic in Scranton Peninsula? SIGNS • Scranton Road: Moderately busy What languages are business signs? • Carter Road: Not as heavily trafficked as Scranton Road • English Is it mostly commercial and industrial - vans trucks, etc. - Are there traffic signs? If so, are they informative? or mostly private cars? • Yes: Bike lane, stop signs, speed limit, advertisement, • Mostly commercial and industrial with about 25% of building signs. They were informative for the given the traffic being private cars situation. Is there much bicycle lanes? Are there signs directing people to various parts of the site • Yes (downtown, museums, highways, etc.)? Are there bike racks in many places? • No • No

INDUSTRY What kinds of industry exist in the community? Does it seem to be causing pollution? • Check Brownﬁelds. the Motor building omits some sort of scent

16 OTHER GENERAL QUESTIONS TO ENVIRONMENTAL QUALITY CONSIDER How much usable green space is there and is it scattered What are the community’s outstanding assets? throughout the community? • Cuyahoga River, amount of space, view of downtown, • See brownﬁeld section surrounding infrastructure (Bridges), exclusivity

Is there smog or haze? What seem to be the community’s biggest challenges? • Nothing visible • Run down buildings, infrastructure and landscape. Exclusivity, location from highway, view of the Does the air smell of smoke, garbage, car exhaust, highway chemicals, industrial waste, etc? • Car exhaust What is the most striking element about the community? • The view: infrastructure, downtown Cleveland and Does the water in streams, ponds, lakes, etc. seem riverfront reasonable clear? • Hard to determine during the winter Are you struck by the aesthetic quality of the community, either positively or negatively - i.e., is it particularly beautiful or particularly ugly? COMMUNITY SAFETY • I was personally struck by the aesthetic quality of the community in a negative way. After making my Where are police and ﬁre stations located? observations of the entire peninsula, I can see the • There is a ﬁre station located at the corner of Carter and potential of the area. There are many things this Scranton Roads, however, it is not active or staffed for peninsula has to offer that we should take advantage. It land-based response; only for water rescue. will cost a lot of money and will take a lot of effort, however, if designed and developed right, the peninsula Are they in good repair? will have a great affect on Cleveland and surrounding • Seems to be communities.

Is the community well-lit at night? • It seems to have enough street lights for the given area. However, should this site be put to a different land use, it will be necessary to add more lighting.

17 EXISTING CONDITIONS SUMMARY: TRANSPORTATION

road size. The bridge’s trafﬁc count was 4,679 average cars per STREET WIDTH, NON-CAR day - a low level of trafﬁc for an urban area (NOACA.org).5 INFRASTRUCTURE The condition of the street widths is divided approximately at the point of intersection with the railroad tracks. According to a TRANSIT LINES rough measurement of an aerial view (using Google Maps), Carter Rd. and Scranton Rd. - are between 55 and 70 feet wide There are not transit lines of any mode (bus, train BRT) on this at any given point on the north-east side . Each road has only site. NOACA’s GIS record of transit lines in the area shows one travel lane in each direction, and a sidewalk on only one routes traveling above the peninsula on the Lorain-Carnegie side of the street. The sidewalk on Scranton ends at Girard St., Bridge and through Ohio City via Abbey Ave. (NOACA.org). and Carter Rd’s sidewalk ends at the train tracks. On the south- According to RTA’s strategic plan, this area is considered a west side of the train tracks, Carter Road is only 30 ft., and low-propensity area for transit (RideRTA.org).67 similarly has only one travel lane in each direction. However, there is no pedestrian infrastructure on this section of Carter carter road bridge Road. As of its most recent inspection (which took place in 2013), this For bikers, there is one shallow in the southbound lane of structure was rated ‘satisfactory’ and received a 93/100 from the Scranton Rd. The Towpath trail runs along Scranton Rd. as an Ohio Department of Transportation (BridgeHunter.com).6 off-road path until the point where Scranton and Carter Roads Capital project funding for this structure was recommended to meet. There is no cycling infrastructure on Carter Rd. the Ohio Public Works Commission by the Cuyahoga County Planning Commission in January 2015. Further details on the TRAFFIC volumes extent of this maintenance were unavailable, but the recommended grant was for nearly $4.5 million of a $6.3 million According to NOACA’s GIS portal, Scranton Rd. sees about dollar project cost (DOPWIC 2015).7 3766 cars per day. The Carter Rd. bridge has a level of service B, which is an amount not approaching full capacity for the

5 “NOACA GIS Portal” Northeast Ohio Areawide Coordinating Agency. http://gis.noaca.org/ﬂexviewers/gisportal/

6“Re: Imagine RTA - RTA Strategic Plan 2010-2020”. Greater Cleveland Regional Transit Agency. http://www.riderta.com/strategicplan

7 District One Public Works Integrating Committee (DOPWIC). “Program Year 2015 Recommended Projects” Cuyahoga County Planning Commission. January 2015. http://planning.co.cuyahoga.oh.us/dopwic/15awards.html

18 Existing conditions summary: brownfield analysis

Phase I Assessment

25 historic Sanborn maps were analyzed during the Phase 1 environmental assessment. Several contaminating land uses were identiﬁed contributing to potential Brownﬁeld contamination of between 20-40 acres. Contaminating land uses include the following: foundries, freight depots, lumber yards, machine shops, coal yards, paint companies, mills, metal fabrication shops, auto/truck repair depots, ore yards, forge shops, stamping shops, and auto lacquer spray shops.

Clean up cost is estimated at between $1.7-27.9m for the entire peninsula depending on how extensive the contamination is and what type of land use is going to be developed on top of the remediated land. (June 27, 2012 Project No. 0559.02.01 Prepared by Maul Foster & Alongi, Inc. E. D. Hovee & Company, LLC ECO Northwest Redevelopment Economics). Development financing atop brownfield sites usually require an additional 15-40% above and beyond total development costs, however most developers aim for between 10-15% beyond total development costs (Simons, 2015). Typically properties that are contaminated but have been ‘cleaned’ still sell for 15-20% less than market value (Simons, 2015). Clean up standards are designated by the Environmental Protection Agency and developers wishing to proceed with development on a brownfield site need to obtain the following legal documents: NFA (no further action, CNTS (certificate not to sue), and a SMOA (state memorandum of understanding Ðlocal, state, and federal). Scranton!Peninsula!Phase!1!assessment!(Neider,!2015).

19 Historic firms with potentially environmentally contaminating activities on the peninsula include: Variety Iron Works, Dresser Lumber Shed and Storage, Rhodes and Co. Coal Yard, Norway Bolt Works, Riverside Foundry Works, R.J. Hayes and Co. Foundry Facing and Plumbago Works, Lindsley and Co. Coal Yard, Hotchkiss and Co. Bolt Works, The Republic Steel Corp. Upson Works, River Furnace Dept. Ore Yard, Cleveland Facing Mill Co., Young and Harrington Coal Co., N.Y.P. & O. R. R. Oil Depot, Bohm and Stuhr Lumber Yard (fire damaged), A. G. Miller and Co. Coal Yard, Woodhill and Sons Iron Works, Standard Paint Co., Cleveland Storage Co., Cleveland Wheel Foundry, River Furnace and Dock Co., Schwartzenberg and Brothers and Co. Scrap Iron Yard, J. Hayes and Co. Scrap Iron, Deleware and Hudson Canal Co., The Upson Nut Co., The Cuyahoga Coal Co. Coal Yard, The Smeed Box Co., The J.D. Smith Foundry Supply Co., Smith Facing and Supply Co., and The Cleveland Wheel and Foundry Co.. Sample Sanborn map, Scranton Peninsula, Phase I environmental assessment. Several information requests regarding access to information regarding underground utilities such as water, sewer, gas, BROWNFIELD Phase II electrical, phone and fiber optics were made to municipal various municipal departments at City of Cleveland, Cleveland The Phase II environmental assessment commissioned by the City Councilman Joe Cimperman, as well as private developer client, Forest City, confirmed worst fears uncovered during the Forest City Inc. Information was not forthcoming as security Phase I environmental assessment. Nearly all of the peninsula concerns from the Department of Homeland Security were is contaminated (close to 60 acres of contamination). The site cited, however Forest City Inc. representative James was divided into several zones of varying sizes, ranging from Martynowski noted that according to his knowledge, buried zones A to L. Areas of the peninsula left unexamined during the utilities ran underground, directly under Scranton Rd. Phase II environmental assessment include, the south portion of Anecdotally, the owner of Riverfront Yacht Sales at the east end the peninsula already remediated by the Cleveland Metroparks of the peninsula, complained of brown water, recurring for the Towpath trail, as well as easements along the Flats electrical brown-outs and phone systems in constant need of Industrial Rail line and land owned by the City of Cleveland repair. that the Carter Rd. Bridge fronts onto. Clean up costs for all 60 acres including clearing and disposal of soil to a two food depth totaling 193,600 cubic yards, total an excavation cost of roughly $2.9m on the low end and $5.8m on the high end.

20 Placement of premium fill on all 60 acres of contaminated land would total $9.6m on the low end and $14.5m on the high end. Total costs for a complete excavation to a two foot depth and premium fill placement over the entire site equals between $12.5m to $20.3m not including ongoing monitoring and maintenance costs (U.S. EPA). It should be noted that these costs will be significantly lowered by simply capping contaminated land in place where possible (Clearing: $5,000 to $7,500 per acre , 1” Sub-base: $2.50 to $7.00 per square yard, 1.5” Surface: $12.00 to $20.00 per square yard, Swale: $15.00 to $25.00 per linear foot), however due to the high cost of remediation as well as ongoing maintenance expenses, development must take into consideration alternative site layouts that allow less expensive options which can significantly reduce remediation costs such as capping in place (Asphalt or Concrete). Both remediation solutions include: Site clearing, equipment mobilization, initial surface compaction, design and engineering, surface preparation, cap layer placement, edge drainage swale, preparation, irrigation system, and on-going monitoring and maintenance.

21 History of the scranton peninsula

8,000’ thick at Cleveland. It retreated about 12,500 years ago Geological history changing Ohio’s topography to what we know today. The glacier’s footprint left debris (or till, “500 feet in the Much of the following information is gleamed from a brief Cuyahoga Valley,”11), the most fertile stretching from southeast section of geological history included in G. Knepper’s “Ohio Ohio to just south of Cuyahoga County. and Its People” (1997).8 Ohio’s geological history is intimately connected to today’s physical, cultural and social life that we Cleveland’s winding river, the Cuyahoga, was formed about know today in Greater Cleveland. 11,000 to 13,000 years ago by retreat of the glaciers.12 Sitting under an enormous body of water hundreds of millions The Encyclopedia of Cleveland History website, notes the of years ago (“Lake Maumee, an ancient lake much larger than importance of iron, petroleum by-products and salt to the local the present Lake Erie.”9) has left a landscape of pulsating e c o n o m y . landscape and minerals in Ohio. The Silurian period (about Postglacial “kettle” 440 million years ago) left rock salt deposits that are currently lakes had deposits underneath Cleveland and Painesville. Until these deposits of bog iron. Open were discovered, early settlers imported salt from New Orleans. mining was used to exploit these The Devonian Period (419 to 358 million years ago) brought us resources while the limestone which eventually was “quarried from Columbus to Cuyahoga ﬂats 10 Kelley’s Island” became the center In more recent geological time the great glaciers descended and of production from retreated into Ohio for the previous few hundred thousand 1837-1859. The years. (See Glacial Map of Ohio) The last great glacial demand of iron by movement was the Wisconsin Glacier. Entering about 25,000 the Union forces years ago it was estimated to cover 2/3 of the state (everywhere during the Civil except Southwest Ohio) and the ice was thought to have been War virtually

8 Knepper, G. (1997). Ohio and Its People, Kent, Ohio: Kent State University Press

9 Ibid., 4

10 Ibid., 2 Picture(Source:((Accessed,(3/2/15,(h6p://www.buckeyegold.com/gold.htm

11 Ibid., 3

12 Friends of the Crooked River, History of the Cuyahoga River website. Accessed 3/27/15, http://www.grc.nasa.gov/WWW/k-12/fenlewis/History.html

22 exhausted the ore deposits. While “Lake and Ashtabula county The Archaic People, who supplanted the above Paleo- furnaces became archeological sites, those in Cleveland became Indian People, were hunters, consumed freshwater a focus of the Great Lakes iron industry.”13 clams and gatherers (berries, roots, etc.), lasted until 1,000 BCE. They were followed by the Adena, and th By the mid-19 century there was a Pennsylvania petroleum then Hopewell (mostly in Southeastern Ohio). boom that led to a short ﬂurry of petroleum drilling in the Greater Cleveland area. This in turn led to natural gas ﬁeld The Fort Ancient came after 1,000 ACE to Southern drilling in Rockport Twp (1883), Kamms and Berea (1905-07), Ohio, while the sedentary and agriculturally minded Lakewood (1913) and West Park (1914). By the 1930s, the last Whittlesey Focus (often confused with Erie to the east) one was tapped in the Denison-Harvard district. settled in Northern Ohio. (See Late Woodland The natural gas exploration led to a discovery of salt brine. Cultures) They “may have fallen victim European diseases or European guns in the hands of invading “By 1944 Union (Morton) Salt Co. opened a deep-shaft mine Iroquois from the east.”15 near Lake Shore Blvd. and E. 65th St., which went down into several levels of this Salina formation. Since 1957 large salt mines at Whiskey Island have been operated by Akzo Nobel Salt, Inc.”14 first peoples history

G. Knepper’s history of Ohio continues with the story of its first settlers - Native American Indians - whose ancestors were thought to be the Paleo-Indian People, present as early as 13,000 years Before the Common Era (BCE). It is theorized that they migrated perhaps 20,000 years ago during last Ice Age over the Bering Strait. Late Woodland Cultures, Central Ohio (600-1200 ACE) Picture Source: Ohio History Central website, accessed 3/26/15, http:// www.ohiohistorycentral.org/w/Late_Woodland_Cultures?rec=1281

13 Encyclopedia of Cleveland History, The, website. Geology & Natural Resources website, accessed 3/26/15, http://ech.case.edu/cgi/article.pl?id=GNR

14!Ibid.

15!Knepper,!G.!(1997).!Ohio%and%Its%People,!Kent,!Ohio:!Kent!State!University!Press,!13

23 The great Iroquois Confederacy, often lauded as the Trader purchased 23 horseload of peltry from the few predecessors of modern American democracy, destroyed Indians then hunting on [the Cuyahoga] River.”18 tribes “from the northern Great Lakes to the Ohio River although they established no settlements in Ohio until It is unlikely that “historic Indian population of Ohio the 1740s.”16 Subsequently Mingoes (which included ever exceeded 20,000 persons...”19 Senecas, Cayugas, Mohawks and more) located along the Cuyahoga River in the 1740s for a bit.

About this time, the 1740s, Wyndot (as known by the European american history English or Huron as known by the French), came east from Detroit to trade with English at Cuyahoga River. 1796 Not wanting to be outmaneuvered by the English, the French sent a trader to open a post at the same river to Moses Cleaveland is hired by the Connecticut Land Company try and draw their trade back. Consequently 2,500 to explore land that they had just bought.20 Cleaveland is Wyandots, Mingoes and Ottowas were drawn there.17 surveyed and established by Moses Cleaveland and party.21 October 18 all but 4 of the settlers moved, by Thanksgiving By 1750 few Indians remained there. In 1785, another party member left. “Moravian missionary John Heckewelder reported: “a

16!Ibid.,!14

17!Ibid.,!14

18!Ibid.,!18

19!Ibid.,!18

20!Ibid.,'4.

21!Ma+hew'Lee'Grabski,'Cleveland’s(Flats'(Charleston,'SC:'Arcadia,'2005).

24 1797 1819 By May the remaining settlers from Cleaveland’s original party The 90-mile section of the Erie Canal was opened. left the area. 22 Lorenzo Carter was the first permanent white Clevelanders and Ohio Legislature lobbied to get the Ohio Ð settler.23 The Land Company in Connecticut awarded parcels Erie Canal. Many Irish and German immigrants came from of land to people who could move there.24 Initially the first New York to dig the Canal. Irish settled into shanties on the settlers had an agreement with the Indians at Buffalo and west side of the river, known as Irishbend, Germans lived in the Conneaut that confined them to the Cuyahoga River.25 Superior, Garden, and Lorain Street neighborhoods.28 1803 1820s February 18, Ohio became a state. This changed the settler’s People were moving further away from away from the swamps ability to trade freely with Canada. They must abide by federal of the Cuyahoga.29 regulations.26 1827 1805 Joel Scranton opened a dry goods, grocery, leather, and Through a treaty, the Indians reluctantly relinquish the region of machine cards store, J. Scranton & Co.30 Cleveland.27

22!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'6.

23!Grabski,'Cleveland’s(Flats,'7.

24!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'6.

25!Harry'S'Blackburn,'The(Viaduct:(The(East(and(West(Sides(Are(Bound(Together(by(Spans(of(Iron(and(of(Stone'(Cleveland,'Ohio,'1916),'3.

26!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'9.

27!Blackburn,'The(Viaduct:(The(East(and(West(Sides(Are(Bound(Together(by(Spans(of(Iron(and(of(Stone,'3.

28!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'18.

29!Grabski,'Cleveland’s(Flats,'7.

30!Ibid.

25 1828 1854 Joel Scranton married Irene Hickox Scranton on June 27. City of Ohio and City of Cleveland consolidated to the City of Cleveland 1833 1858 Joel Scranton sold his store and purchased the “Scranton Flats”, a parcel of land west of the Cuyahoga River and operated a Joel Scranton died unexpectedly from apoplexy. farm on the land, along what became Scranton Avenue. Other 1860s business were located along Scranton’s farm and made his property more valuable. The area known as the Angle was home to many Irish immigrants, located on a hill between the old channel of the 1830s Cuyahoga River to the north and Detroit Avenue. By the 1900s Completion of the Ohio and Erie Canal. many Irish began to move out. By the late 1930s the city needed low—cost housing and replaced the ramshackle homes 1847 of the Angle Irish. Modern apartment buildings were built with Joel Scranton’s land parcel termed the Scranton Flats. The the help from the Public Works Administration. building of the Cleveland-Pittsburgh railroad began (later 1863 Pennsylvania). The firm of Andrews and Clark Company built its first oil 1840-1850s refinery.31 Area became business and sporting center; includes shooting 1870 contest and circus. The central business district was concentrated in the West Sixth 1853 Street Flats area outward. By the 1900 the business district had Detroit Street Bridge (Barrel Bridge) completed, built by the expanded east to Public Square along Superior and Euclid and Cleveland and Mahoning Railroad to transport iron ore from beyond Millionaires’ Row. Manufacturing, transportation, and Whiskey Island docks. No longer in use. wholesale operations remained in the old district. Other business that needed face-to-face interaction, such as retail,

31!Ibid.,'9.

26 finance, and services were in the new business district.32 The 1906 Sherwin and Williams Company built their manufacturing Thomas Ferry and W.C. North founded The Ferry Cap & Set company in the flats.33 Screw Company at 2151 Scranton Road, located in the Flats. 1878 By 1908 it was the only bolt manufacturer left in the Flats with 450 employees. 37 Superior Viaduct opened in December: Cleveland’s first high- level bridge.34 1910 1893 Cleveland’s population was 560,663, the 6th largest in the nation. Cleveland had a large influx of immigrants, many who By the end of 1893 Cleveland had 20 moveable bridges that came alone with the hope of bringing their families later. crossed the Cuyahoga: 10 carried pedestrians and vehicles, the other 10 carried railroads. 35 1913 1901 Mid-March of that year was Ohio’s worst flood. Between heavy rain and snow-fall Lake Erie rose four feet.38 Center Street Bridge was built by the King Bridge Company, only remaining swing bridge.36

32!Thomas'F'Campbell,'Edward'M'Miggins,'and'Western'Reserve'Historical'Society,'The(Birth(of(Modern(Cleveland,(1865P1930'(Cleveland;'London;'Cranbury,'NJ:' Western'Reserve'Historical'Society ;'Associated'University'Presses,'1988),'45.

33!Alan'DePetro,'Historical(Highlights:(History(of(the(Flats'(River’s'Bend'Parks'Corp,'1988),'11.

34!Michael'Rotman,'“Superior'Viaduct,”'Cleveland(Historical,'accessed'February'21,'2015,'h+p://clevelandhistorical.org/items/show/65#.VOfwAS5x0lJ.

35!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'82.

36!SchaBnger,'Cleveland’s(Flats(on(Tour,'45.

37!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'87.

38!Alan'DePetro,'Historical(Highlights:(History(of(the(Flats'(River’s'Bend'Parks'Corp,'1988).

27 1920 Republic Steel buys the Corrigan McKinney steelworks. Viaduct closed.39 Mid-1920s Cleveland took action to control 1935 air pollution.40 Lakeview Terrance, public housing built under the Public 1930s Works Administration, began construction on 22 acres of land west of the river at the mouth of the Cuyahoga overlooking During the Great Depression, shanty towns, or Hoovervilles Whiskey Island.44 were located throughout Cleveland, including in the Flats.41 1939 1932 Valleyview Homes built on 75 acres of land on the bluff below Lorain-Carnegie bridge completed.42 Walworth Run.45 1933 1940s The Cleveland Metropolitan Housing Authority was Eighty percent of the the ships sailing on the Great Lakes are established.43 controlled by Clevelanders.46 More than half of the nation’s 1935 population and Canada lived within 500 miles of Cleveland.47

39!Grabski,'Cleveland’s(Flats,'14.

40!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'98.

41!Grabski,'Cleveland’s(Flats,'19.

42!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'101.

43!Ibid.,'100.

44!Ibid.,'101.

45!Ibid.

46!Ibid.,'103.

47!Ibid.

28 1947 1970s Sherwin-Williams solvent extraction plant was built.48 Many businesses on Old River Road closed and eventually reopened in the 1980s as trendy bars. 1951 1976 Cuyahoga River catches on fire.49 Cleveland Heritage Park was presented to the city as a public 1952 park and museum as part of the Bicentennial. There is a replica Cuyahoga River catches on fire again near Jefferson and West of an early log cabin. Third Street. 1981 1959 With matching funds from the Ohio Department of Natural The opening of the St. Lawrence Seaway, September 7, Resources, Heritage Park II was created. provided economic growth to the Flats which provided access 1984 to raw materials and facilitated the movement of finished goods to foreign markets.50 Westbank Development publicized plans to build public parks, bicycle paths, footpaths, private housing, and retail. Grove 1960s Court Condominiums was the first project completed. Increased in the number of ocean-going foreign vessels via the 1996 St. Lawrence. Rapid line from Tower City to the Flats was completed. 1969 2005 June 22, the last time that the Cuyahoga River burned due to the dumping of fuel. Occasionally hot coals would fall into the Plans started to revitalize Cleveland Flats East Bank. river igniting a fire. 2011 Flats Forward CDC formed.

48!Grabski,'Cleveland’s(Flats,'41.

49!Ibid.,'52.

50!Lawrence'and'SchaBnger,'Cleveland’s(Flats,'108.

29 Demographics

Having knowledge of the demographics of the surrounding area for a commercial development, or the competing housing stock of a potential development site is important. Before in the area if the development has a residential component. determining what type of information to collect, it is first vital The population history is important to highlight in both the to note what population is important to get the data on. For this census tract and neighborhood populations to have some project, most of the data is collected on the census tract level, background on the area. By looking at the table below, one can which is Census Tract 1042.00, which mainly identifies with tell that, like most of the City of Cleveland, population has the Tremont Neighborhood. There are also highlights of dropped significantly in the census tract since 1950. The area information in the neighborhood scale for the Cleveland has become more diverse since 1950, when the tract was neighborhood in which the Carter Riverfront is in, known as the primarily consisting of white families. While the majority of the Cuyahoga Valley (see map below). There is also some analysis population still classifies as white, roughly 34 percent of the of homelessness, housing burdens and crime done at the City of population is classified as African American. Another important Cleveland level. factor seen in the table below is that a majority of the population in the census tract are young adults, followed by middle Ð aged residents. The population demographics is important information for nearby consumers of potential commercial and retail aspects of a development.

The signiﬁcant data series included in this project are: population through the decades, data on the education and labor force of census and neighborhood populations, poverty and income history by census tract, and current housing statistics The population history is important to highlight in both the for the neighborhood and census tracts. All of this information census tract and neighborhood populations to have some will be useful to help decide which types of developments can background on the area. By looking at the table above, one can do well on a site, such as the education of possible employees tell that, like most of the City of Cleveland, population has

30 dropped significantly in the census tract since 1950. The area Neighborhood population shows similar results, in that a has become more diverse since 1950, when the tract was majority of the population had less than an Associate’s Degree; primarily consisting of white families. While the majority of the however, this population group does not have the same spike in population still classifies as white, there is roughly 34 percent Bachelor’s Degrees that the census tract shows. African Americans residing in the census tract. Another There is other significant information regarding the education important factor seen in the table above is that a majority of the of residents, which is the type of school attended by primary population in the census tract are young adults, followed by school aged children. The Cuyahoga Valley neighborhood has middle Ð aged residents. The population demographics is 75 percent of its primary student residents enrolled in public important information for nearby consumers of potential schools, while census tract 1042, that contains Carter commercial and retail aspects of a development. Riverfront, has 100 percent of its K Ð 12 students enrolled in public schools. This information could come in handy when determining potential residential developments that market to families. The final pieces of information that should be considered in regards to education and labor force are the unemployment rate and the modes of transportation that residents use to get to and from work. In the census tract, there is a 12 percent unemployment rate among the residents, while the Cuyahoga Valley neighborhood has a 33 percent unemployment rate. The table below shows more detailed information on how residents get to work, showing the primary mode of transportation for both the neighborhood and census tract is driving, with over 70 While the population demographics will give vital information percent for both populations. While more than 70 percent of on the potential customers for retail developments, it is also residents drive to work, it is important to note that in the census important to know the educational attainment levels and labor tract, 25 percent of households had no car. The second most force statistics for the census tract and neighborhood in order to popular way for residents to get to and from work in the census determine if there are potential knowledgeable and educated tract was public transportation, with 15 percent. This is of great employees surrounding the area. The census tract information importance for this development considering there are currently showed that a majority of the residents had less an Associate’s no public transportation routes that go through the Scranton Degree; however, there was a spike in residents over 25 holding peninsula. a Bachelor’s Degree, as seen in the graphs above. The

31 signiﬁcant increase in median household and median family incomes between 2000 and 2010. However, the 2010 median incomes are still drastically less than the 1970 incomes for the same census tract. Even with the nearly 65 percent increase in median income from 2000 to 2010, 2010 still showed a high poverty rate of just over 32 percent. Poverty!&!Income!Information!(Census!Tract!1042.00)

Year Median) Median) Percent)Living) Similar to having background information and history on the Household) Family) population of the general area, it is important to have some Below) Income)(2010) Income)(2010) history and knowledge of the poverty levels surrounding a Poverty potential new development. Current income is important to USD) USD) know if the development is potentially retail, restaurant or 2010 31,544.00 20,139.00 37 another service that relies on consumers. General income 2000 19,012.00 12,571.00 43 information from the Census Tract area is provided in the table 1970 48,240.00 34,465.92 20 below. General highlights of this information include the 1950 N/a 14,294.09 N/a signiﬁcant increase in median household and median family Sources:!1950!U.S.!Census,!1970!U.S.!Census,!NEOCANDO incomes between 2000 and 2010. However, the 2010 median incomes are still drastically less than the 1970 incomes for the same census tract. Even with the nearly 65 percent increase in The ﬁnal category that is important to note regarding future median income from 2000 to 2010, 2010 still showed a high development of vacant land is current housing statistics. This poverty rate of just over 32 percent. information is especially important for potential new housing Similar to having background information and history on the developments. Such efforts should seek out what type of population of the general area, it is important to have some housing is currently in the area in order to know the history and knowledge of the poverty levels surrounding a composition (single - family, high - rise apartments, etc.) of potential new development. Current income is important to housing stock for those looking to move to the neighborhood know if the development is potentially retail, restaurant or and/or if most nearby residents are renters or homeowners. It is another service that relies on consumers. General income also important to note the number or percentage of new housing information from the Census Tract area is provided in the table in the area, because this will be the most valuable housing and below. General highlights of this information include the can help give an estimate of what a new build will sell for in

32 the area. The table below shows the home ownership in 2010 for both the Cuyahoga Valley neighborhood and the 1042.00 census tract. Important housing takeaways include the fact that over 50 percent of residents Ð for both the neighborhood and census tract levels Ð are renters. Additional important housing statistics for both levels of residents includes the fact that the majority of housing stock was built before 1939, and 70 percent of Cuyahoga Valley Neighborhood housing and 66 percent of the 1042.00 census tract housing was built before that year. This means that much of the housing stock is older. In fact, only 3 percent (as of the 2010 census) of the Neighborhood housing has been built since the year 2000. The census tract studied showed no new housing since 1979, again, as of the 2010 census. There is a moderate amount of single family housing in both the census tract (with 24 percent of the housing stock) and neighborhood of Cuyahoga Valley (with 32 percent). The high Ð rise apartments were a close second with 30 percent of the neighborhood housing stock classifying in that category. A different pattern is shown in the census tract study in that 42 percent of the housing stock classiﬁed as “small apartment complexes” meaning 3 Ð 9 unit buildings. Housing statistics are important to note in the case that a residential development is being considered to know what the current housing stock offers its residents.

33 Demographics - homelessness & housing needs

The following statistics are from the City of Cleveland, the household income being the typically accepted tipping Department of Community Development Consolidated Plan point of excessive housing costs.) 2013-14. In 2013 there were 2,122 homeless people in For those households making between 30 and 50% of median Cleveland. Of that, 272 were chronically homeless and 405 income, there are 16,574 with housing burdens greater than severely mentally ill, while 615 were classified as chronic 30%. (See Table Above) substance abuser. They found 313 veterans among the homeless.51 According to the same Cleveland Consolidated Plan 2013-14 the available fair market rents of 0, 1, 2 and even 3+ bedroom While Cleveland faces a units come close to matching what would be the affordable rate gap of only 295 units of (30% of income) for those families with incomes at 50% of the “permanent supportive MFI. housing for [the] homeless,” the housing If one looks closer though, there appears to be a major flaw in burden on families with the figures that are used for the above analysis. The housing is quite consolidated plan is obviously using the higher Cuyahoga significant. County figure of $41,347 for the median income (2010). This county figure give us rates closes to the “Rents Affordable at For households with 30%...” figures in the Table above. But if one were to use the income up to 50% of the MFI for just the City of Cleveland, where the MFI is just median family income $25,977 a (MFI; of Cuyahoga different picture County, $41,347) is quite is painted. An significant. affordable rate Of the 110,660 homes in Cleveland that are occupied (owned or for those making rented) or vacant (for sale) there are 34,826 household making 5 0 % o f less than or equal to 30% of the median family income who Cleveland’s MHI have a housing cost burden of greater 30% (Thirty percent of is just $325. 52

51!City!of!Cleveland,!Department!of!Community!Development!Consolidated!Plan!2013714

52!2010!Median!Household!income!from!the!2010!American!Community!Survey,!Census!Bureau![as!reported!in!Exner,!R.!(2011)!Cleveland.com,!“Median! income!and!poverty!rates!for!each!U.S.!state,!metro!area,!county!and!city”![9/22/11],!accessed!3/31/15!from!web,!http://www.cleveland.com/ datacentral/index.ssf/2011/09/median_income_and_poverty_rate.html?appSession=487501139924535])!!

34 Demographics - crime (Cleveland & census tract)

Police planning for new developments (such as those being Declining Criminal Offenses contemplated for the Scranton Peninsula) in Cleveland is largely reactionary, and furthermore supervisors do not make significant use of the statistical analysis department that is available to them. At least according to one Cleveland Police Detective familiar with the statistical analysis department. This same source notes that the Police Force is shrinking (from about 2,500 sworn officers when the officer first joined the force to about half that now. Because of shrinking Cleveland population and funding, community policing also has shrunk, down to zero.53 And the biggest concern in the city now: theft from and of autos. In regards to the Flats area and W. 25th St., the source noted that there used to be an overtime patrol in the Flats West Bank until 2002. And although W. 25th has grown, they don’t Census Tract (1042), which encompasses the Scranton have more violent crimes. The source cautioned to look out for Peninsula, has a population of 1,443 (2010). The Peninsula more opportunity crimes (i.e. purse snatchings, etc.) as itself has virtually no one living there. The City of Cleveland’s population increases in the area.54 2010 population was close to 397,000. With such a small sample size for the census tract it is difficult to parse any From 2006 to 2009 criminal offenses recorded by the Cleveland meaningful information regarding the crime statistics found in Police in the city of Cleveland dropped 13.8%. It is likely that the table below. the primary reason for this is the continuing dramatic declining population of the last few decades for Cleveland. The only One statistical analysis that could deserve further examination crime category that increased, and that was insignificant, was is the comparison of Part I Crimes (“includes all violent and homicide: from 119 to 120 (.8%). 55 (See Table Below) property crimes,” Cleveland Police Department.) between Census Tract1042 and Cleveland. The census rate per 100,000 people (13,103) is almost twice that of all of Cleveland (7,438).

53Kanner Informational Interview with Police Detective, 2/28/15

54!Ibid.

55!NEO!CANDO!website.!accessed,!2'6'15,!http://neocando71.case.edu/cdoutput/p239806551.pdf!

35 Keep in mind, in real numbers for Census Tract 1042 that that Larceny-thefts, auto thefts and arson rates for Census Tract translates to 189 recorded crimes, while for Cleveland it is 1042 also outnumber the City of Cleveland’s. Perhaps this can 29,516. It is likely that the above disparity is made up in large be ascribed to the rise of so-called “opportunity crimes” as part by property crimes. mentioned by the interview source above. Part II crimes (which “include[s] simple assaults, forgery, fraud, receiving stolen property, vandalism, weapons violations, prostitution, sex offenses, drug violations, family offenses, DUI, liquor violations, disorderly conduct, kidnapping, and all other offenses”) have rates per 100,000 that are comparatively closer for Census Tract 1042 and Cleveland.56 (See Tables Below)

56!Ibid.

36 Demographics - Culture

There are numerous amenities in the surrounding Ohio City and Tremont neighborhoods. There are at least 14 primary schools, a full service grocery store (Dave’s), numerous restaurants, art galleries, cemeteries, convenience stores and the nationally known Westside Market. In addition, numerous non-motorized trails have already been installed or our proposed. Lake Erie is within a few miles but is hard to access by non-motorized or motorized vehicle transportation. The river, which surrounds the Scranton Peninsula is home to multiple species of birds and ﬁsh, is the recreational home of rowers and boaters and serves as the transportation conduit for large freighters bringing supplies to industries along the river. Finally, there are a score or more scattered Land Bank sites within a couple of miles to the West.

37 PUBLIC SURVEYS & STAKEHOLDER INTERVIEWS

General Public Surveys Surveys were conducted in order to determine current perceptions and needs around Scranton Peninsula. The surveys were given outside of the West Side Market, Rivergate Park, and Merwin’s Wharf. They were submitted to and given approval by the Institutional Review Board (IRB), then were conducted from March through April, 2015. Each student signed up for different times from 9am to 7pm. All respondents were offered a takeaway document at the time of the survey if they wanted more information on the project. Students Peninsula, particularly public transportation that doesn’t require attempted to distribute their surveys evenly across both times owning a car. and locations in order to ensure the greatest diversity of When asked “If the Scranton Peninsula was developed, how respondents. important would the following beneﬁts be to you?” There were 108 total respondents that completed the survey. Of respondents felt that spurring waterfront restoration and these 108 respondents, each person had the option to decline to cleanup was the most important of the eight options (93). answer any question they felt uncomfortable answering. The Linking to neighborhood parks, Metroparks, and Cuyahoga questions focused on what people would like to see done with Valley National Park (79), promoting health and wellness the peninsula and what they don’t like about it currently. Most through exercise (77) and providing a safe and green alternative questions either allowed respondents to choose as many options route to commute to work (75) were the next most important as they wanted or were asked with a 3-point Likert scale option to answer, such as “oppose”, “neutral”, or “support”. 37 respondents arrived by driving alone and 29 arrived by bus. (These numbers add up to more than 108 because some people came by a variety of transportation methods and so were counted in more than one category). However, when asked how they would like to get to Scranton Peninsula in the future 43 wanted to continue to drive alone, 31 wanted to be able to arrive by bus, and 26 by bicycle. This suggests a high demand for alternative forms of transportation for the Scranton

38 beneﬁts. People also felt that it was very important to have a transportation build on the peninsula as well as the homeless shelter or some other type of housing available for the development providing jobs and parking. homeless. One respondent also wanted to suggest that the In order to determine what citizens may want to see in terms of peninsula be modeled after Chicago’s bicycle amenities and development on the peninsula the survey asked respondents to parks as well as the Lakefront Trail. say if they would support, oppose, or were neutral towards The amenities that would most inﬂuence people to visit various development options. People most want to see Scranton Peninsula more often are Parks and Recreation (84) Scranton Peninsula redeveloped with Parks and Recreation by a large lead followed by Shopping and Dining (65) and Areas (96 supported), Small Specialty Store (83 supported), Easier Access (53). This is an important piece of information and Tourist Attractions (75 supported). Respondents least for the developer and for us as planners because private entities wanted to see Large Department Stores (56 against), Outdoor/ often prefer not to include green space since it doesn’t produce Industrial Storage Facilities (46 against) and Light Industry (37 income, but this shows that there is a huge demand for it, and against) developed on the peninsula. so in order to get people to come to the peninsula for the When asking people what safety precautions are most important when deciding whether or not to visit somewhere like the Flats, the majority of respondents felt that lighting was the most important feature (83).There was a prioritization on making the peninsula safe for kids as well as trying to improve it with the most effective methods for the least cause. Some

income generating activities, we need to have recreational space available. People again suggested that they would like to see the peninsula have affordable housing. There was also the suggestion of live concerts and local or international music. People wanted to see more signage, restrooms, and public

39 Neighborhood Retail and Improved Road Quality (51) were all clustered together behind that. The only ones that didn’t have a wide range of support were a School (29), Large Grocery Store (38), and High End Housing (33). While one person felt that it was too soon to even begin considering the residential potential until other development had occurred first, the others were suggestions that we hadn’t included in the survey were restricting it to only mom and pop style businesses as well as placing an explicit focus on safety in numbers. This would suggest that not only should the peninsula focus on programmed events in order to draw people to it in the first place, but in order to overcome the perception of danger there will need to be a conscious attempt to making it so that there are events Housing(Status Number Percent programmed at all Own 37 34% hours in order to Rent 63 58% encourage a healthy Live(Rent8Free 7 6% night life so that Homeless 1 1% there are always focused on wanting to see safety measures implemented before Total 108 people around. they even considered it and having the peninsula be a self- contained neighborhood with employment and groceries within We also asked “What it as well as the residential. features would most make you consider living on the Scranton Peninsula if it were redeveloped into a The survey concluded with demographics questions of neighborhood” in order to determine what it would take for residence, age, education, housing type, and employment people to consider living in an area that has traditionally been information. This is useful to determine who the survey was industrial and commercial rather than residential. 73 people given to, and how comprehensive it was to distribute the survey answered that they would want to see Affordable Housing but at the selected sites. 51 respondents specified they were from a Outdoor Trails (59), Green Space (58), Transit Access (52), and

40 Cleveland zip code with the rest being from the outlying suburbs. Respondents had a relatively equal age distribution with the exception of people 65 and older who made up 8%. Younger than that however, the highest group was 45-54 year olds with 23% and the lowest group was 55-64 year olds with 14% of the respondents. Slightly less than half the respondents (46%) had at least a Bachelor’s degree with only 5% of respondents not having graduated high school. 20% of respondents had at least some college experience and a majority (62%) had at least a two year degree. The majority (58%) of respondents were renters with 34% of them owning their own home. The most common monthly rent or mortgage payment was $400-$799 a month, with the next largest being $0-$399 a month, showing employed, or some other combination of ﬁtting in multiple that the majority of our respondents were on the lower end of categories.) Out of those who were employed and chose to the income range. Despite this, the majority of our respondents respond, 54 of them worked in the business sector, 15 of them were employed full time (54) and only 27 were not doing work in the nonproﬁt sector, and 9 of them in the government sector. of any sort, voluntarily or not. (There are more than 108 responses because some people were both students and The survey concluded with an open-ended question for people to add whatever comments they felt they hadn’t been able to emphasize earlier in the survey or just wanted to add. Out Education*Level Number Percent of the nine people who chose to comment, four of them <*High*School 5 5% emphasized the importance of recreation, either by adding bike High*School*Graduate*or*Equivalency 14 13% Some*College,*no*Degree 22 20% Associates*or*2*Year*Degree 17 16% Bachelor's*or*4*Year*Degree 29 27% Graduate*or*Professional*Degree 21 19% Total 108

41 paths or space for dirt bikes, or the importance of balancing in our project. This phase of the plan was also conducted under different types of recreation so that no one ruins the experience the stringent guidelines of Cleveland State University’s Internal of the others. Two other people wanted to once again Review Board which directed us to provide for the emphasize the need for affordable, diverse, and inclusive dissemination, collection, and information received in a manner housing on the peninsula and one person wanted to express consistent with IRB protocols. To this end, signed released their support for small local retail rather than another Crocker forms were given and collected from each interviewee detailing our various retention and dissemination methods as well as the Park or Legacy Village. scope and detail of the project.

In order to organize and understand the various opinions and viewpoints that relate to our project that class developed a set of eight comprehensive questions that would hopefully illicit a Stakeholder Interviews meaningful and telling response from our interviews. These questions encompassed the various advantages and In any planning endeavor there are bound to be differing disadvantages of developing the Scranton Peninsula ranging opinions on how to best approach a given project. While a from its past successes and failures to the potential success and consensus must eventually be reached, the road to this end pitfalls of future development options. point is filled with a diverse amount of opinions and suggestions on how to accomplish the end product. This has To begin with, we wanted to see how many people were aware also been the case in regards to our approach to the Scranton of the two most detailed plans for the Scranton Peninsula and Peninsula project. For this phase of the project our class so asked: “What are your thoughts on the Canal Basin identified a myriad of local stakeholders, including public District and/or the Flats Forward Plans?” While there were officials, businesses owners, non-profit and advocacy groups as only two respondents who had not heard of either of these well as planning professionals. plans, in general all of our stakeholders felt extremely positive about these plans. The most beneficial criteria that they saw While it may be impossible to fit in the viewpoints of every was that all the plans worked together rather than each of them available stakeholder, we have done our best to reach out to and reinventing the wheel each time a new group expressed interest conduct primary interviews with a number of actors whose in the Scranton Peninsula. While a few of our stakeholders influence not only reaches beyond this individual project and/or were worried that these plans were not involving business and those who have been involved with the varieties of planning industry stakeholders in the planning process enough, the processes that have been being undertaken on the Scranton majority felt quite positive that the plans were doing an Peninsula for decades. To that end over 30 stakeholders were excellent job of balancing transportation modes, infrastructure contacted with a total of 18 interviewees agreeing to take part

42 Accessibility was actually the most controversial topic because while some people felt that it had improved greatly, others felt that it was still the reason the other successes hadn’t made as big an impact.

In order to utilize the experience of our stakeholders in not only implementing successful projects but having been in the ﬁeld long enough to determine common threads of failure across redevelopment projects, we wanted to ask them for advice regarding avoiding any mistakes we could. In order to specify this for the fact that the Flats had a successful past but failed since then, we asked: “Given the past issues with Cleveland’s development in the Flats and along the river, what do you think we can do differently this time to ensure long term success?” Almost every one of our stakeholders emphasized that a balanced mix of uses would be essential in order to Picture: Julia Schnell promote a successful development because single use districts investments, stormwater management, and were no longer economically feasible, particularly since the the overall productiveness of the peninsula. entertainment dominated use was responsible for the peninsula’s previous decline. Parking was a controversial issue Following our question about awareness of these plans, because while some people felt that it needed to be restricted in respondents were directly asked about their opinions regarding order to provide more space for other uses, others felt that it how the redevelopment of the Flats has been successful so far: was essential to provide adequate parking throughout the “What elements have been most important in the peninsula in order to avoid the frustrations of Ohio City. One regeneration of the Flats thus far?” The biggest successes business owner who had been there through the rise and fall of were considered to be the public-private partnerships that had the Flats pointed out that one crucial difference needed to be so successfully developed other areas of the Flats, particularly reinvesting proﬁts into the physical improvements of the the Flats East Bank project, the successful planning processes district before the area began to decline and people stopped between many different groups, and the cleaning of the coming to see any improvements that were even made. This Cuyahoga River. Several stakeholders also pointed out that the tied into a common perception that any development would peninsula is surrounded by some of the most successful have to work consciously to defeat decades of perceptions that neighborhoods in Cleveland like Ohio City and Tremont and the area was unsafe, and therefore would need to make it feel that Flats East Bank promises to become another one. not only adequately safe but actively safe.

43 While we had conducted both primary research through our surveying of the general public and secondary research through our phase one research on the market area characteristics, we wanted to directly ask our stakeholders for their advice on the development since we knew many of them had been thinking about it for decades. Therefore, we asked them directly: “What types of developments do you think would have the strongest market demand on Scranton Peninsula?” Literally every single stakeholder suggested that it needed to be a mixed use area. While not everyone was suggesting that it needed to be mixed use within individual areas, although the great majority were, no one wanted to see the entire district be any one use. Most people wanted to see at least some residential built on the peninsula, although on the other hand a couple people felt strongly that housing either shouldn’t be built at all or should be built later in the phasing process in order to give the district time to become attractive to potential residents. On Picture: Julia Schnell the other hand, some people felt strongly that housing needed to being able to go through but instead stalling be built immediately because otherwise there would be no one either due to a lack of commitment on Forest to support the building of retail. While there were a couple of City’s part, too much red tape, or just a general dying of people who felt that retail wouldn’t be successful, the majority enthusiasm across the planning agencies. of people felt that retail was essential to build at some point because it was the only land use that could both attract people Several stakeholders were worried about various aspects of the to both visit and live on the peninsula. triple bottom line goal (economics, environment and equity), either the development not being environmentally sustainable, We followed up on this in order to get advice on things that our anyone other than the rich being able to afford to live there, or advisors could specifically suggest avoiding: “What are your it not being profitable. top concerns in regard to future development of the Scranton Peninsula?” The main worry was making access to For any plan to be successful there must be recognition of the the peninsula adequate to support any type of land use, elements that go into creating the underlying fabric of a although the total cost of the project wasn’t far behind. Several community. With this in mind we asked our stakeholders: “Are stakeholders were worried about the development actually there any specific infrastructure improvements that need to

44 be made to support development?” There was unified public investment should play in the Scranton Peninsula agreement that all the infrastructure needs to be upgraded. The development?” Literally every stakeholder felt that as a roads need to be totally redone, the bulkheads strengthened, minimum tax increment financing was necessary in order to utilities replaced, bridges repaired, etc. No one thought that any make the infrastructure upgrades and brownfield remediation infrastructure that have to occur before any development can even begin even Picture: Julia Schnell on the remotely feasible. In general, people felt that it was not only peninsula was necessary but right for a large portion of the project to be working and funded through public money since this is such a crucial business development for both the city of Cleveland and Cuyahoga owners gave County. All stakeholders who mentioned public-private h a r r o w i n g partnerships felt that they were essential for the process to work stories of since there was no way that either side could come up with brown water enough money for this development process to move forward and electrical on their own. brownouts occurring on a As a class it was very important to us to promote the triple regular basis. bottom line throughout the development, and so to wrap up our People also interviews we asked our stakeholders their explicit advice on felt that the how to achieve this: “How can we ensure social equity and transportation infrastructure in particular needed to not only be environmental sustainability in the Scranton Peninsula repaired but expanded in order to provide access via more development?” This was the hardest question for people to modes of transportation and more ways on and off the answer with the largest number of interviewees declining to peninsula. One stakeholder also suggested incorporating public give an answer or feeling that it was either too early or not the art into the infrastructure in order to not only make it more place of the developer and that they therefore had no say in the attractive but also open more sources of funding and attract matter. Those who did comment largely focused either on more interest towards the peninsula. making proportions of the housing affordable for all classes of people, not just the federal definition of affordable, or ensuring While as a class we felt that public investment in private that access to the riverfront was regained for all Clevelanders, ventures was a necessary component, since the real estate not just those who paid for the peninsula either through living market in Cleveland is barely strong enough to manage purely there or paying for parking or businesses. The next most private developments in the top areas and certainly not on the common method was ensuring a balanced transportation system Scranton Peninsula, we wanted to ensure that there was nothing in order to ensure that there were plenty of ways to get to the we might have failed to consider: “What role do you think peninsula even for those families that don’t own a car.

45 All photos: Julie Schnell 46 PLAN OVERVIEW - group a

Site Plans and Elevations

50 Group A - PLAN OVERVIEW

SUMMARY OF THE DESIGN ELEMENTS & LAYOUT

Carter Riverfront is a destination community for local retail on the first floor, artist workspaces on the second floor, Cleveland residents and tourists alike offering diverse and and residential units on the third floor to act as lofted live-work inclusive housing options, a manufacturing innovation and co- units for local artists. The buildings will operate as a limited operative office park, waterway boardwalk and ample green equity cooperative so the artists will have a lasting stake in the spaces, a community arts and recreation center, and a small area. Four of the buildings will open out onto a boardwalk retail district along the Towpath Trail. Located along the banks along the Cuyahoga River and the opposite four will face of the Cuyahoga River at the Scranton Peninsula in the Flats, Scranton Road. Eight separate buildings were constructed to Carter Riverfront encompasses both urban and natural elements give an alleyway feel. The artists that live above the retail and will be designed according to LEED’s principles for spaces will decorate the buildings’ walls. neighborhood development. Modern two-bedroom and three-bedroom luxury homes will Three sides of the peninsula will soon feature bike and line the northern side of the Cuyahoga River the river facing the pedestrian paths, connecting people to both the river and the Columbus Peninsula, perfectly positioned to enjoy the vibrant lake. A central art park will bring together residents of the and expanding rowing community at Rivergate Park and the community and anchor the new neighborhood while exposing proposed youth rowing center, The Foundry. Luxury homes visitors to sculptures and art installations from local artists. will also be clustered along Scranton Road with easy access to Paying homage to the industrial legacy of the area, a light the Cleveland Foundation Centennial Trail. The Bessemer, a manufacturing innovation and cooperative center (the Carter 59-unit luxury apartment complex, will face the planned Canal Riverfront Center for Innovation in Manufacturing and Basin Park with views of Tower City and the Foundry rowing Cooperatives) will bring needed employment to the club. neighborhood, inspired in part by President Obama’s recent visit to Cleveland’s Global Center for Health Innovation in All of the developments will be constructed in three phases. March. The first phase will consist of The Steelworks mixed-income apartments, luxury houses on Carter, and The Republic mixed- A mixed-income apartment community, The Steelworks, will use art lofts. In the second phase, the West Flats Arts & offer 123 1, 2, and 3-bedroom units and overlook the new art Recreation Center will replace the old Smeed family box park and retail district. The Steelworks will feature both company building and construction will begin on the market-rate and affordable rents and take advantage of Low manufacturing innovation park. Finally, in the third phase, Income Housing Tax Credits. construction will begin on the cluster homes along Scranton Road and luxury apartments at The Bessemer. Depending on Closest to the river on the eastern bank of the peninsula, 8 the speed of construction and leasing, phases may overlap to three-story mixed-use buildings called The Republic will offer meet demand.

51 THEMES SYNOPSIS

“Life is one big road with lots of signs. So when you’re riding • A reasonable rate of return for the developers, investors through the ruts, don't complicate your mind. Flee from hate, and managers of the properties in the community; mischief and jealousy. Don't bury your thoughts, put your • An attractive community for both single and family vision to reality. Wake Up and Live!” Bob Marley 1 households wishing to live here;

The Scranton Peninsula, the slate for the proposed Carter • An innovative work environment that allows Riverfront Development, has its share of ruts and rough roads. employment opportunities for both high-tech and low- The Peninsula has a history of industry, business and grime. It tech workers at both high-end and livable income has left its mark both environmentally (with numerous ranges; brownfields and a polluted river) and politically (inertia • A community that fosters cooperativeness through problems typical of a “Legacy” city beset with a long history of encouraged and deliberate neighborhood interaction and decline, along with recent sparks and pockets of rebirth seen cooperative housing and business models; throughout the city). • A place where innovative high- and low-tech practices are sought in regards to energy use and promoting a Just as poet and musician Bob Marley prescribes a vision clean environment; grounded in principles (“flee from hate, mischief and jealousy”) • An area that interacts, appreciates and makes use of the so too does the Carter Riverfront Development. As part of our Cuyahoga River in an enjoyable and environmentally efforts at redevelopment of the Scranton Peninsula into the sustainable fashion Carter Riverfront we will ground our vision in principals that • An area that has an ample percentage of open and non- will take into account the financial, environmental and equity built upon space--One that encourages considerable tree principles of urban development. coverage; • An inclusive community that welcomes low, medium We seek to create an area that will include the following and high-income people, of all backgrounds, to live, attributes for visitors, workers and residents: work and play.

• An area that is aesthetically and artistically innovative, exciting, and inviting; • A neighborhood where everyone feel safe and secure; • A neighborhood that strives to meet LEED-ND standards;

1!BrainyQuote,. 'Bob Marley Quotes At Brainyquote'. N.p., 2015. Web. 30 Apr. 2015.

52 LEED ND

The turn of the century called for innovations in building neighborhoods, a major component of LEED-ND, are defined construction and energy efficiency, but both the public and as communities with a discernible center, and housing within 5 private sectors needed a framework to guide their often-costly minutes of this center. They have mixed-use building types and decisions to foster sustainability. Thus, the Leadership in purpose, and connected, narrow, and walkable streets and Energy and Environmental Design (LEED) certification was pathways.2 born in the early 2000s. Soon, thousands of developers worldwide were competing to have designations up to LEED The Carter Riverfront development will make extensive use of Platinum, the highest level of environmental achievement. alternative energy sources such as photo-voltaic panels. Prices for the installation of PV arrays have continued to drop at very In 2010, under the administration of the U.S. Green Building fast rates over the last few decades. The environmental impacts Council and other private non-profit co-sponsors--Natural (both positive and negative) of large-scale solar energy projects Resources Defense Council and the Congress for the New correlate directly to the size of the project. Although unlike Urbanism--a more sophisticated standard for environmental fossil fuels, solar power emits no carbon dioxide and are concern and certification was rolled out. LEED-Neighborhood usually silent, they do depend on the sun for energy and Development (LEED-ND) sought to take the best of Smart indirectly use fossil fuels during the manufacturing process. Growth’s concern with density and place, New Urbanism’s However, the overall net environmental impact of Solar PV is concern with form, and the environmental movement’s positive. traditional need for less pollution and more efficient energy use and roll it into one certification package. Group A’s goal is to develop to LEED-ND standards and seek eventual certification. Below are some of the key strategies The LEED-ND process looks beyond individual buildings organized by LEED-ND into three basic sections to achieve toward a more comprehensive critique of how these structures LEED-ND certification and status and how the Carter are in relationship to their surrounding neighborhood. It looks Riverfront proposed development compares to meets the at proper scale (human), access (by bike, walk, transit and car), challenges. pollution and impact, among other criteria (NRDC). LEED- ND broadens the scope of sustainable thinking.

According to leading practitioners of the New Urbanist movement, A. Duany and E. Platerl-Zyberk, traditional

2 Natural Resource Defenses Council (NRDC). (n.d.). A Citizen’s Guide to LEED for Neighborhood Development: How to Tell if Development is Smart and Green, accessed 4/22/15, http://www.nrdc.org/cities/smartgrowth/leed.asp.

53 Examples)of)Solar)Roofs) over)Parking)Lots)

picture source: http://inhabitat.com/solar-forest- charging-system-for-parking-lots

picture source: http://www.basinandarrangewatch. org/Solar-TheSolution.html

picture source: http://www.nature.org/photos-and- video/mojave-solar-photo-gallery.xml

54 area highest and best use

development. The Highest and Best Use Table acts as a guide for what should be built on each portion of the peninsula.

Quadrant 1, located on the Carter Road side of the peninsula west of the Flats Industrial Railroad reported light industry (21) as the highest use, followed by ofﬁce (11) and parking lot (8). Possible contamination from dirty soil dumped on the land is a concern as well as visibility and access to the site. However, the Carter Road side of the peninsula offers greater river views, which could yield high returns for residential development down the road.

Quadrant 2, the smallest of the four, is also along Carter Road, but to the east of the Flats Industrial Railroad. Due to its more secluded location along the peninsula with unobstructed riverfront view shed, green space (16), luxury housing (14), and apartments (13) are the highest ranked uses. A Highest and Best Use Table scores a number of possible land uses for a site by various characteristics to determine the Quadrant 3 is bounded by Carter Road to the North and highest value land use shall the land be developed or improved. between the river and Scranton Road with spectacular views of Scranton Peninsula was divided into four quadrants by existing Downtown Cleveland and accessibility to the riverfront and the boundaries: Scranton and Carter Roads and the Flats Industrial Towpath Trail. The area ranked highest for retail (16), Railroad. restaurants (14), and apartments (13).

Each quadrant was tested for eleven possible uses: apartments, Quadrant 4 inhabits the rest of the land west of Carter Road and townhouses, luxury housing, ofﬁce, light industry, restaurant, north of Scranton Road. It is the largest of the four quadrants parking lot, supermarket, recreation center, retail, and green and the most visible from the new Cleveland Foundation space. All land uses were then ranked according to the Centennial Trail. It will act as a major linkage to the eventual collective score on 18 questions relating to access, competition, Canal Basin Park and contains the only salvageable building in workforce, demographics, and aesthetics. Each characteristic the development. The area ranks the highest for a recreation was scored from positive to negative inﬂuence on the land use center (14), townhouses (13), and apartments (13). from 2 to -2, with 0 being neutral. All scores were tallied and the highest three uses were ranked and considered for

56 swot analysis

The SWOT analysis is a common planner’s tool used to assess an area. It stands for Strengths, Weaknesses, Opportunities & Threats and was used to evaluate the current Scranton Peninsula. The table on the right explains how some of the challenges will be met.

57 Remediation and construction costs

Brownfield remediation costs were conducted using specifications prescribed by Forest City Inc. based on the Construction and development costs were derived from three preliminary findings in the Phase II Environmental Analysis. sources. Fee simple single family residential costs were based All cost data was provided by the U.S. EPA’s Brownfield on industry standard costs per square foot at noted by Engineering Controls report. Remediation costs for all homebuildingsmart.com. Construction costs for the Carter Commercial Buildings as well as all parking lots were Riverfront Center for Innovation in Manufacturing and calculated using mean cleaning costs, mean 1” sub-base costs, Cooperation were given by a local real estate development firm mean 1.5” surface costs, and mean swale costs provided by the interviewed for this project. All other development costs were U.S. EPA. All residential and green space remediation costs derived using 2012 RS Means data and inflated at 3% annually were calculated using low end estimates for 3’ removal and 3’ for 3 years. of fill provided by the U.S. EPA.

58 Project Specific Remediation and Development/ Construction Costs

The Republic mixed-use retail and live-work artists lofts remediation cost of $535,808. Total Development costs for the development consists of 8 total buildings totaling 156,000 cluster home project equal $13,977,600. Total remediation and square feet. Also included in the development is a 78,300 development costs for the cluster home project equal square foot parking lot and approximately 46.440 square feet of $14,513,408. boardwalk fronting the Cuyahoga River. Remediation costs for the site total $663,949. Development Costs for the project total The Steelworks, a mixed-income apartments community, $12,046,222. Total remediation and development costs equal consists of 4 buildings at 8,641 square feet each, totaling $12,680,171. 138,272 square feet of mixed income apartment housing. Remediation costs for the project total $62,414. Development The proposed luxury home development along Carter Road costs total 6,928,484. Total remediation and development costs includes 32 homes totaling 76,800 square feet of living space equal $6,990,898. resting on 188,871 square feet of fee simple lots and 180,480 square feet of green space. Remediation for the site (including The West Flats Recreation & Arts Education Center will reside the expansion of the Towpath Trail) equaled $2,667,535. Total in the newly renovated Smeed Box Company building on development costs equaled $15,360,000. Total development Scranton Road. The building, totaling 43,580 square feet, incurs and remediation costs equaled $18,027.535. no remediation costs. Total development costs of the recreation center equal $3,313,712. Public parking on the peninsula of The Research Institution consisted of three buildings totaling 78,459 square feet costs $191,248 to remediate and construct. 134,948 square feet. 157,664 square feet of parking is included And, 458,821 square feet of green space is remediated at a cost along with 446,535 square feet of green space. Remediation of $3,313,712 in order to be used as a park. costs totaled $3,938,236. Development costs totaled 21,591,680, bringing total remediation and development costs to $25,529,916.

The Bessemer luxury apartments consist of 6 buildings totaling 75,468 square feet. 29,357 square feet of parking is included along with 217,663 square feet of green space. Remediation costs totaled $1,780,140. Development costs totaled $4,532,768. Total remediation and development costs equaled $6,312,908. Thirty-two cluster homes will be constructed along Scranton Road totaling 69,888 square feet of living space with a site

59 TOTAL COST

Remediation costs for the entire site equaled $11,507,038. Development costs for the entire site equaled $80,942,464. Total remediation and development costs equal $95,954,462. Brownﬁeld remediation costs equal roughly 12% of the total development costs.

RESIDENTIAL

Current Building Supply

There are 17 structures on the Scranton Peninsula. Most notably, there is an 8,000 square foot Fire Station located on the Southeast corner of the peninsula, currently used only for boat operations and in good condition. According to a Fire Station #21 source, there are no plans to fully staff the station and add a pumper in the foreseeable future. At some point the City of Cleveland should determine if it would be more advantageous to the neighborhood and the city to repurpose the building (to a bar/restaurant/dancehall for example) or have it remain mostly empty. Most of the other buildings have been used for industrial purposes and are not suited for ofﬁce or residential renovation. Only the two- story industrial building located at 1854 Scranton Road will be reused. The building is approximately 26,000 square feet with 4,000 square feet currently occupied by American Ironworks, according to CoStar. The building will be renovated into a recreation and arts education center. The other 16 buildings needing to be demolished total over 157,000 square feet not including parking lots.

60 residential market and rent analysis

The residential market analysis was performed on 160 properties within a one-mile radius of the Scranton Peninsula project must compete with other projects for funds, whereas using CoStar real estate analysis software that tracks lease, grantees of the 4% tax credit do not have to compete but must vacancy, and rent information. The analysis was performed for fund at least 50% of development costs with tax-exempt bonds. each housing type—mixed-income apartments, luxury The units must be rented according to predetermined apartments, artist live/work spaces, and townhouses. All of the maximums and tenants must earn under 50-60% of the area apartments will be rented, whereas the houses will be built and median income. sold. A survey of all 7,100 units within the one-mile radius shows an overall vacancy rate of 4.1%, with 543 new units For the luxury apartment residential analysis, only buildings coming online within the year. Studio asking rent averaged within one-mile with a four-star rating were considered, $679, and one through three bedroom apartments averaged including properties such as Flats East Bank and The Ivory on monthly rents of $941, $1,513, and $1,817 respectively. Euclid. Thirteen multi-family apartment buildings were considered, showing an average rent per square foot of $1.51 The mixed-income apartments, The Steelworks, will be located and a 6% vacancy. The 2014 fourth quarter report from the in Quadrant 4 along Carter Road in the new Steelworks Downtown Cleveland Alliance (DCA) reported the market-rate apartment building. An analysis of 46 multi-family rental residential occupancy at a staggering high rate of 97.8 percent, apartments within one mile of the peninsula shows the average with The Nine fully leased. DCA cited rents at $1.20 average rent per square foot to be $1.10 with a 4% vacancy rate of the and predicts a growing urban population expanding from a approximate 5,800 units. Apartments were included from the current downtown resident population of 13,278 to more than Downtown Cleveland, Ohio City, and Tremont submarkets. 23,000 in 2018. There are currently 14 known projects planned The mixed-income apartments will provide needed residential or under construction. There is still room in the market for density lacking from the urban neighborhoods up the hill, as more multi-family housing, but the quicker to market, the safer well as being inclusive to all socioeconomic backgrounds in a the investment during such a booming time in Downtown prime location along the river. Cleveland and the surrounding neighborhoods.3 We predict charging between $1.50 and $2.00 a square foot for rent at The To qualify for either a 9% or 4% Low Income Housing Tax Bessemer luxury apartments. Credit (LIHTC) on the eligible construction cost of the building either 40% of the property must be set aside for families at or The artist live-work loft units at the Republic will provide below 60% of the area’s median income, or at least 20% of the unique creative spaces on the second floor of a newly property must be set aside for families at or below 50% of the constructed mixed-used building, with residential units on the area’s median income. To receive a 9% credit, the floor above. Retail will fill the lower, ground level units just off

3!Downtown!Cleveland!Alliance.!2014%4Q%Market%Update.!2014.!Web.!13!APR.!2015

61 of the Towpath Trail and proposed boardwalk. These units will For-sale luxury homes will be added along both Carter Road bring much needed inspired space for local artists to create in and cluster homes will be constructed along Scranton Road. A and thrive among peers, while giving them unrivaled views of sales analysis of ﬁve recently sold townhouse properties in both the Cuyahoga River and Cleveland skyline. Leases will be Ohio City, Tremont, and Downtown revealed an average sales tied between the live and workspaces so that the artists that live price per square foot of $123.74, with prices ranging from in the building are also guaranteed a creative space. There are $428,700 for a newly constructed townhouse in Ohio City to 21 live/work creative spaces within a one-mile radius, $207,500 for a slightly older recently renovated townhouse also averaging $8.59 per square foot. The 3 Downtown Cleveland in Ohio City. The ﬁnal sales price will depend on the quality of Alliance,. 2014 4Q Market Update. 2014. Web. 13 Apr. construction and demand, but we feel comfortable asking at buildings will be owned and operated as a limited equity least $180.00 per square foot for each home, putting the cooperative with each artist having one equal share in the townhouses in the $400,000 and up range. Townhouses on the cooperative corporation. The Republic will be a co-op in order Carter Road side of the peninsula facing the Columbus to give the artists an equity stake in the community they are Peninsula will pay a premium as the view of the river is better. supporting and helping to build. We do not want artists to be Cluster homes on the Scranton Road side of the peninsula will priced-out and forced to move. pay a premium based on the position of the house and its size.

The retail portion on the ﬁrst ﬂoors of the Republic buildings will be separate from the artist lofts. We hope to sign a grocery store, some art galleries, and other needed amenities in leases. A rental analysis of ten retail properties within one mile of the peninsula reveals an average rent per square foot of $10.88. Rents ranged from $9.50 a square foot to $12.00 a square foot.

62 carter riverfront center for innovation in

manufacturing and cooperatives The Carter Riverfront Center for Innovation in Manufacturing state matching grants while seeking institutional support from and Cooperatives (CRCIMC) aims to be the premier destination partners such as Cuyahoga Community College, Cleveland for research, education, and the development of cutting edge, State University, and Case Western Reserve University. industry standard setting systems related to supply chain Speciﬁcally, the Center plans to engage Cuyahoga Community management, and cooperative concepts, including worker College’s Additive Manufacturing Program, Cleveland State training, within the City, State, and Region. We plan to bring University’s Department of Operations and Supply Chain together academicians from the three leading area colleges and Management Certiﬁcate Program, and Case Western Reserve universities, to facilitate the operation at the CRCIMC. They University’s Think Box Institute for Collaboration and will manage supply research and practice cooperative ventures Innovation. including: small business R&D and incubation (both cooperatives and non-cooperatives); innovative supply chain management R&D (both cooperatives and non-cooperatives); and worker/member own and controlled businesses, industries, and residential projects.

There will be three buildings that make up the CRCIMC, located in Quadrant 1. One of the Center buildings, on the east side of the map, will host the above mentioned Research & Development projects, the Center for Cooperatives (CFC), lab space and other office space. The other two building will be built on spec and be held for lower tech cooperative business ventures. For real-life examples of possible cooperative ventures and businesses see the figure below. Cooperative Ventures Examples (Also, see the US Federation of Worker Cooperatives website for an extensive list of worker cooperatives, https://www.usworker.coop/find-a-worker-coop). It is anticipated that the three buildings that make up the The CRCIMC will also house a Center for Cooperatives (CFC). CRCIMC will house both high-wage/high-tech and medium- The aforementioned educational institutions will cooperatively wage/low-tech workers. staff, fund and manage the CFC. The CFC will produce scholarly research alongside active community engagement in The CRCIMC intends to pursue over $500 million in public/ the Carter Riverfront Development and the Greater Cleveland private partnership funding through competitive federal and Region vis-a-vis promotion of cooperative ventures in housing, food and business. In particular, they will be able to act as

63 next generation manufacturing: resources for the artist work/live co-op buildings and business cooperatives proposed for Carter Riverfront. (See the The Ohio Manufacturing Extension Partnership (MEP) University of Wisconsin-Madison Center for Cooperatives for a Program has been working with specialized non-profits since good example of a university affiliated cooperative center, 2004 in order to provide low-cost business and technical http://www.uwcc.wisc.edu/). solutions to small and medium sized manufacturers. Cleveland’s member affiliate, MAGNET, has been serving in It is our belief that workforce development is one of the highest this capacity locally since 1984. Due to Scranton Peninsula’s and best uses of this property. Workforce development partners location and manufacturing history, partnering with MAGNET such as Employment Connection, Evergreen Corp and to include next generation manufacturing in the Carter Cuyahoga Community College have a strategic opportunity to Riverfront Development makes sense as Cleveland positions grow in one of the most dynamic economic locations in the itself as a national leader in manufacturing innovation. region as they continue to fulfill their mission while enhancing one of the most severely neglected cities in the country. President Obama recently announced in Cleveland’s MAGNET office the availability of nearly $500 million in public-private Together the above partners, along with public and private investments in order to strengthen manufacturing in the United entities such as MAGNET (Manufacturing Advocacy & States. Local firms and institutions are in a perfect position to Growth Network of Cleveland)--specializing in manufacturing compete for federal dollars for any of the three initiatives that supply chain management for small firms--and Advanced the President targeted. These include the advanced textile Textile focused manufacturing institute competition led by the Department of Defense (DOD), the 12-state MEP competition Solutions--specializing in next generation textiles (i.e. military aimed at small manufacturers, or the Supply Chain Innovation grade equipment)--form the core of the planned research, Initiative focused on building public-private partnerships to development, and other activities occurring inside the Carter strengthen small American manufacturers. Riverfront Center for Innovation in Manufacturing and Cooperatives.

64 cooperatives: a new economic model for cleveland

The modern western cooperative movement can be traced to the The Republic artist live-work lofts will function as a limited early 19th century Rochdale Cooperative. Core principals such equity cooperative. This means that when buying a as voluntary and open membership, democratic member membership share in the co-op, members cannot sell them at control, and cooperation among cooperatives were adopted by market rates when exiting at a later time. Limited equity shares weavers who banded together to buy weaving materials and are usually sold to incoming members at a price adjusted for the food at cost. These co-op principals were replicated around the rate of inflation. This method allows the housing costs to stay world and many of the 1960s and 1970s member and worker accessible and affordable. owned co-ops in the United States and trace their philosophical roots back to the movement from England.4 CRCIMC will offer exciting opportunities for a variety of creative business ventures that lend themselves to the worker Cooperatives offer many advantages. For businesses they can cooperative model. “provide competition, reduce costs and provide services that profit-driven companies might reject as unprofitable.”5 Worker cooperatives have had a strong presence in food production, processing and sales, but have more recently started appearing in the technology and home care sectors.

For housing cooperatives, such as the artist live-work space planned at the northern end of the peninsula, there are considerable advantages. These include typically lowered tax assessments, democratic control of the facility, untaxed reserve payments, and the right to control the type of membership admitted into the co-op.6

Picture(Source:((Government(of(the(Republic( of(Trinidad(and(Tobago(website,(h=p:// www.molsmed.gov.=/ CooperaAvesIYC2012Awards/tabid/456/ 4 Cultivate.coop. accessed on the web, 4/26/15, http://cultivate.coop/wiki/Rochdale_Principles Default.aspx(

5!Chron. Small Business. The Advantages of a Cooperative business, accessed on the web, 4/26/15, http://smallbusiness.chron.com/advantages-cooperative- business-23592.html

6 SF Gate. The Advantages of Cooperative Housing, accessed on the web, 3/15/15, http://homeguides.sfgate.com/advantages-cooperative-housing-51443.html!

65 indoor urban gardens: example # 1 of a potential worker co-op business for crcimc

Incorporating indoor urban gardens into the CRCIMC present The ability to completely control the environment and produce another viable business opportunity for the site. Combining 365 days a year is luring business-minded entrepreneurs into renewable energy with local produce grown by urban residents, the market, while government and university grants are paving using models such as Plant Chicago, Eco Spirit run by the the way to pilot this innovative technique. Business Squamish Nation in Vancouver BC, or Big Box Farms in relationships already established by Green City Growers could Brooklyn, NY, is often thought to be the wave of the future. also be supplemented and strengthened through the innovative practice of indoor urban gardening. Although urban agriculture has largely been limited to non- proﬁts, school groups and restaurants, the market is changing. For-proﬁt agribusinesses can thrive on the rising demand within city centers for safe, organic and locally grown food. With innovations in technology, energy consumption to run these indoor farms could be reduced by as much as 40 to 60 percent.

health care [circle of life caregiver cooperative]: example #2

of a potential worker co-op business for the crcimc Circle of Life Caregiver Cooperative was conceived in 2007 in probationary period and have opted to become members of the Bellingham, Washington by resident Jo Ann McNerthney as she cooperative. Circle of Life’s stated mission is “to provide looked for caregivers to help care for her father. After a quality in-home care services with compassion and respect for process that included receiving two grants from the our clients by empowering our caregivers through teamwork Cooperative Development Foundation, the group developed a and ownership of the business”.7 This is an example of the type business plan, development of by-laws policies and procedures, of cooperative that could occupy space at the CRCIMC campus as well as becoming bonded and insured. and train and develop workforce.

In 2009, the cooperative began operations after receiving licensing from Washington State’s Department of Health. Today over 50 caregivers have progressed past their

7 Circle of Life, accessed on the web, 4/26/15, HTTP://www.circleoﬂife.coop/

66 cuyahoga county food policy coalition [cccfpc]: an example of

a potential innovative partner for the crcimc Cuyahoga County Food Policy Coalition was formed in order Convening organizations include The Ohio State University to promote a “just, equitable, healthy, and sustainable food Extension and Healthy Neighborhoods Prevention Research system in the City of Cleveland, Cuyahoga County, and Center. CCCFPC is primarily staffed and organized by Northeast Ohio.” Its stated goals are to “advance a food members of The Ohio State University Extension. Its mission security system development agenda at the City and County is primarily research and advocacy based, and it could ﬁt in level so residents have better access to fresh, healthy, and well as either a partner or model for the Carter Riverfront affordable food”; promote advocacy efforts aimed at creating Center for Innovation in Manufacturing and Cooperatives. relationships and “cross learning” from various members of the food system; lower barriers to new market opportunities for local entrepreneurs and businesses; and focus on research based decision making which assesses local and regional food systems in order to guide policies and programs.8

arts and culture

“For artists, the Rust Belt can provide access to affordable During the course of exploring possible land uses for this space, a strong and supportive arts and cultural sector, project, the advice and mentorship from a local non-profit that professional development and networking opportunities and studies and advises the arts and culture sector in Cleveland has outlets for engagement in community affairs. While the debate remained invaluable. The non-profit researches and analyzes will undoubtedly continue over what components are needed to how Rust Belt Cities can overcome great adversity and harness bring the Rust Belt back from decline, it is evident that artists a creative core of artists and civic leaders to build communities have a significant role to play in renewing industrial cities and and enhance a neighborhood’s texture. The 2008 publication positioning them for future success, moving the region from “From Rust Belt to Artist Belt: Challenged and Opportunities in Rust Belt to Artist Belt.” Rust Belt Cities” explains that the Rust Belt is full of viable The Community Partnership for Arts & Culture9 assets for artists—low cost of living, abundant space, spacious industrial sites, natural surroundings, such as Lake Erie and the

8 Cleveland-Cuyahoga Count Food Policy Coalition, accessed on the web 4/26/15

9!Community Partnership for Arts & Culture,. From Rust Belt To Artist Belt: Challenges And Opportunities In Rust Belt Cities. Cleveland, OH: N.p., 2008. Web. 30 Apr. 2015.

67 Cuyahoga River, active redevelopment efforts, and a high quality arts and culture sector. The Scranton Peninsula has unrivaled access to all of these amenities, along with the added advantage of being able to build a new neighborhood from the ground up.

Future redevelopment should take note of the value an arts and culture-focused neighborhood can bring to the already rich historical fabric of the Flats. Cleveland has witnessed rebirth is areas once thought dead through positive enhancements in arts, placemaking, entertainment, culture, and dining. Whether it’s the third Friday of the month at an open house at the 78th Street Studios in the Detroit Shoreway Neighborhood, exploring the hip Waterloo Arts District in Collinwood, or attending the ever- popular Art Walk in Tremont, invitations to engage with Cleveland’s creative community are numerous. Involved community leaders have learned that neighborhoods are more than just houses, schools, and district boundaries. Neighborhoods are given identity by their unique offerings in arts, culture, and entertainment, but in a more abstract way, how they invite people in to stay.

Learning from the lessons of Cleveland’s recent Urban Renaissance, arts and culture can leave a sizeable and lasting impact on the recognition and legacy of the area. Carter Riverfront will incorporate and encourage art from the beginning of the project to have lasting and uniﬁed impact on all 80 acres of the peninsula. Carter Riverfront will engage and celebrate artists in the Carter Riverfront Community Art Park, inspire and support artistic explorations in the Arts & Education Enrichment Center, and offer a special place of residence within a community of peers in The Republic live-work collaborative.

68 carter community art park

“Art can capture beauty; art can convey whimsy. Art can be the busy epicenter of downtown to the non-proﬁt Gateway commercial or personal, trendy or traditional, introspective or Foundation to build a public and unenclosed park that outward-looking. Art can also inspire collective action—even if acknowledged its unique location just a half a mile from the that action is as simple as making us more aware of the Mississippi River. The designers worked to create a diversity consequences of our daily actions.” of spaces and experiences with playful art sculptures and The Community Partnership for Arts & Culture10 interactive water features. Now, City Garden attracts visitors from across the metro area and is a revered must-see for Carter Riverfront will bridge socio-economic divides by tourists. inviting neighbors to share in a one-of-a-kind vibrant and urban art park right in their backyard. Carter Art Park will feature The Scranton Peninsula mirrors this story in many ways, from large sculptures and modern art installations, as well as unique the resurgence in urban living and the need for more public water and lighting elements, and sustainable landscaping green spaces, to the storied history of the land. Carter Art Park design, all from local artists. We believe artists should be will seamlessly merge art into all aspects of the design. In involved from the beginning to learn about the unique texture CPAC’s report “When Artists Break Ground” about the and history of the land, and to collaborate on how to best transformation of Collinwood through the Waterloo Art District engage the public with meaningful and approachable art. a major takeaway was how crucial engaging artists in the Children and adults alike will have a unique place to meet and process from the beginning is to the success of project. A staff relax. member is quoted, “Rather than thinking about artists as an add-on, I’d encourage community development organizations Carter Art Park is inspired by City Garden in Downtown St. to sit down with their strategic plans and full list of all of their Louis, Missouri, an urban park in the center of the city that is community priorities and think creatively about the roles artists home to an impressive 24 sculptures, 102-fountain spray plaza, might play.”11 and 55 meter long pool with a cascading waterfall. In 2006, St. Louis was experiencing a similar boon in downtown living as We cannot say for certain what the art will look like because the more and more warehouses and industrial buildings were entire process of building on Scranton Peninsula will be guided turned into upscale lofts and apartments. The City needed a along the way from talented landscaping artists like Dru public park space to accommodate all of the new residents. In McKeown and Mimi Kato, and other celebrated and soon-to- 2007, the Board of Aldermen agreed to lend 2.9 acres of land at be-discovered artists in the area, with further input from other

10 Cleveland State Maxine Goodman Levin College of Urban Affairs,. Forming Cleveland: A Visual Arts, Craft And Design Industry Study: Full Report. Cleveland, OH: N.p., 2014. Web. 30 Apr. 2015.

11 Community Partnership for Arts and Culture., When Artists Break Ground, 2014., accessed from the web

69 artistic non-proﬁts and small businesses across Cleveland. The artists who call Carter Riverfront home should shape how the neighborhood interacts with all elements of the peninsula, from enhancing walkways and buildings with murals and installing an interactive feature in the Art Park, to teaching classes at the Arts & Education Center and sharing art and cultural events in the community gallery.

the west flats arts and education center

“Collaborative efforts are essential to enhancing the regional It is important to note the balance a network of arts and culture- consumer base through art neighborhoods and should include focused neighborhoods can bring to the greater Cleveland area. participation in youth educational programs that develop People come from far and wide to explore University Circle’s young residents’ taste for art; provide business advice to vast wealth of arts and culture assets. Carter Riverfront is not artists; and coordinate regional artists on art events, shows, meant to compete with such an integral part of Cleveland’s community days, and other affairs.” history. Instead, just simply inviting artists into the new The Community Partnership for Arts & Culture development will plant a seed from the beginning that art can be everywhere and enjoyed by everyone. The West Flats Arts & Education Center, sharing space with the community recreation center in the renovated Smeed Box Company building detailed below, is an inspired learning space for local artists to share their talents and skills with the community, come together and collaborate, and showcase their work to the public. The existing two-story warehouse along Scranton Road will allow for a public space to workout, take classes, and come together as a community. The Arts & Education Center will feature modern and open rooms that will suit any art medium so they can easily transition from class to class. Now, artists do not have to have their own studio to open up their passions to others. Various arts non-proﬁts from across Northeast Ohio can also participate in the space, making it truly cross-collaborative.

70 green space and recreation

green space

Neighborhoods are comprised of more than just houses and Washington DC highlights the best of the city while benefiting residents. Many popular urban neighborhoods are also known the local residents and businesses. Accompanied by for their immersive and creative green spaces just as much as programmed events like neighborhood food fairs and culture their unique culture: Central Park in New York; Millennium festivals, the proposed cherry blossoms along the river will Park in Chicago; Green Lake Park in Seattle, and many more. undoubtedly create a fantastic experience for visitors and residents alike. Green space is vital to a neighborhood and is an important aspect in retaining and attracting residents to a community. It helps to enhance the beauty and quality of place as well as enrich the quality of life for its residents. There are numerous health benefits associated with access to green space. Linkages to green space, such as gardens and parks, have been associated with positive health impacts by reducing pressure from the stresses of urban life. In addition, green spaces provide numerous environmental benefits through improved air and water quality and preserved biodiversity. A network of green space that includes protected natural lands and other vegetated areas is essential to providing a healthy and sustainable living environment for humans, wildlife, and plants.

Whether you live or work in the Carter Riverfront, residents, employees and visitors can easily access green spaces within a short walk. Carter Art Park, in the center of the neighborhood, provides a place to relax and come together. Green space along the river offers a relaxing spot for pedestrians and bicyclists to play and unwind. We also propose to plant Cherry Blossom trees along the perimeter of the peninsula, inspired by Washington DC. The national Cherry Blossom Festival in

71 Boardwalk

A new 3,500 square foot wooden boardwalk will be constructed along the northern end of the peninsula that will allow members of the public to access and enjoy the riverfront and shop in the attached retail district. By orienting the mixed-use buildings toward the waterfront, the boardwalk will act as a ‘front yard’ for the co-op and retail spaces and encourage slow pedestrian trafﬁc by storefronts off of the Towpath Trail. By incorporating basic lighting into the design, we can transform both the waterfront and commercial spaces at night. If water taxi services are eventually extended to this section of the river, the boardwalk will see far more foot trafﬁc and business. Having restaurants and a small grocery store to support the neighborhood is key to the success of the mixed-use development. The boardwalk is estimated to cost $55 per square foot for a 10-foot wide boardwalk. This puts the total boardwalk project at approximately $1.9 million.

the west flats recreation & arts education center The Smeed Box Company building is a 43,000 square feet The other half of the building will host studios for artists as industrial structure with an architecturally interesting and well as community art classes. There is strong potential for historically relevant façade located along Scranton Rd. Because partnership with industrial arts organizations such as Soulcraft of the building’s large size, industrial design and central Woodshop, Flux Metal Arts, and the metalwork job-training location, it is well suited for a conversion into a community program of Lutheran Metropolitan Ministries. The restored center. Half the building will be built into a recreation facility building will also serve as a visual connection to the industrial that will be operated by the City of Cleveland. The next nearest past of the area. Though the interior will be modernized, the city recreation center is Zone Rec Center on W. 65th St. For a exterior will maintain as much of its current character as city with such a cold climate as Cleveland, creating indoor possible during the conservation process, including painted recreation spaces is essential to promoting communities that are exterior signage from earlier businesses. The Smeed Box healthy and active year-round. Company was established in the 1860s by Fayette Smeed, a Civil War veteran 12. In 1901, when Smeed retired to Brooklyn,

12 Find A Grave. (2011). Fayette Smeed. Retrieved from http://www.findagrave.com/cgi-bin/fg.cgi?page=gr&GRid=78158338

72 the company was bought by William Ellenberger, a lumber neighboring areas of northern Tremont, Ohio City and Duck businessman13. The company itself has since closed, but space Island. within the building is currently owned by Forest City Enterprises and occupied by Sherwin Williams and Gelner Engineering.

The estimated cost for renovation of the building is just over $3.13 million. This is primarily related to the repair of the roof, making the building ADA accessible, and rebuilding the interior to suit the new uses. Other costs include masonry repointing, fresh paint and window replacement. Windows would also be replaced in the rear of the building where they are presently bricked in, allowing for natural lighting to enter the space while preserving the memorable façade. It is unlikely that this building would be eligible for inclusion in the National Register for Historic Buildings. This makes it ineligible for Historic Preservation Tax Credits, a common ﬁnancial mechanism for historic building restoration. Because the project is intended to be operated by the City of Cleveland, the city can apply for a Section 108 loan through HUD that can assist with the renovation costs14. There may also be the potential to partner with the George Gund Foundation as part of their commitment to encouraging LEED development and promoting environmentally beneﬁcial projects. This renovation is a perfect opportunity for Forest City to work with the City of Cleveland and community foundations to create an asset for the new neighborhood growing at the Carter Riverfront as well as the

13 Coates, William R. (1924). A History of Cuyahoga County and the City of Cleveland: Volume III. Chicago: The American Historical Society. p 21. Retrieved from http://digitalcase.case.edu:9000/fedora/get/ksl:coahis02/coahis02.pdf

14 HUD Exchange (2014). Section 108 Program Eligibility Requirements. US Department of Housing and Urban Development. Retrieved from https://www.hudexchange.info/section-108/section-108-program-eligibility-requirements/

73 Transportation

Transit access

RTA is unlikely to serve this area with its own route due in part to its proximity to existing transit investments and future water transit projects. The Settlers Landing and Tower City rapid stations are within a short walking distance of the development, as are many bus routes, so providing transit access becomes an issue of improving pedestrian access between Carter Riverfront

74 Carter Riverfront Public Transit Locations and the east bank of the ﬂats. Once pedestrians reach the downtown connectors, they will be able to access many points of interest inside and outside the city, including attractions along the lakefront such as Browns Stadium.

The proposed Carter Riverfront is striving to be a community with accessible public transit for residents and pedestrians looking to connect with nearby neighborhoods and Downtown Cleveland.

Major transit stations adjacent to the north side of the Carter Riverfront are Tower City-Public Square and Settlers Landing Station.

The Settlers Landing Station is located at the corner of W 10th St and W Superior Ave. Both the green line and the blue line pass through this stop that provides access from downtown Cleveland to Shaker Heights. Within a short walking distance from the Settlers Landing Station, residents can easily access Tower City Center. Tower City is the main hub of the RTA rail service.

It is hoped that by the conclusion of the project Phase 3, there will be sufﬁcient neighborhood density and political will to accommodate a number of bus stops throughout the Carter Riverfront.

75 Proposed sidewalk and access improvements

To craft Carter Riverfront into a pedestrian-friendly community, some minor pedestrian improvements along the entrance of the peninsula should be considered. The intersection between Carter and Canal Roads is an important entrance connecting Carter Riverfront to the public transit hub downtown and at Settlers Landing Station. Adding clear signage and improved crosswalks can strengthen pedestrian safety and enhance the walkability of this critical entrance.

Proposed Intersection of Proposed Crosswalk Improvement Canal & Carter

76 Proposed Access Enhancements

77 Driving and parking

The current issue of oversized lane widths in this area would be addressed partly by moving some pedestrian traffic to a boardwalk along the river, turning the front of the buildings away from the road and rendering Scranton and the northern section of Carter more like alleyways and truck routes than main streets. Parking spaces at the commercial site would line Carter Rd. and residential parking would be placed on the first floor of each building with the living space above. However, the excess road capacity for the low level of traffic in the area means that sidewalks can also be extended to narrow the lanes. By defining driving lanes and limiting them to 12 ft., the street will undergo what is referred to as a ‘road diet’, a treatment that makes drivers less likely to speed while also allowing continued truck traffic. This will create a safer environment for pedestrians and cyclists.

78 bike and pedestrian access

In accordance with the City of Cleveland’s Complete and Green Streets policy, the rebuilding of the roads will include a road Bike & Pedestrian Trail Map diet to slow trafﬁc and improve pedestrian access. Sidewalks will be built and expanded and crosswalks repainted at intersections. Sidewalks along Scranton and Carter Rd. will range between 6’ (on Carter Rd. along the northwest side of the peninsula) and 23’ of multimodal space (on Scranton Rd).

Ensuring pedestrian access becomes difﬁcult on the narrower stretches of Carter Rd., as the current road width does not allow for 12’ lanes with wide sidewalks. To ensure equity of access for all users, driving lane widths must be narrowed to 10’ for this section of the road. In wider stretches, the lack of need for turn lanes makes much wider sidewalks possible. Food vendors may make use of this space, and there will be ample opportunity for seating as well as use by pedestrians along with cyclists too young to ride on the street. Pedestrian-level lighting and way-ﬁnding signage will also be installed along sidewalks. A 0.8 mile project of this variety can be expected to cost $1.5 million.

79 The Towpath Trail is a major asset to this site. The section of the trail that runs along the southeastern edge of the peninsula is separated from nearby neighborhoods and the central business district. In order to enhance the momentum of the trail, we must connect it to downtown and encourage users to visit commercial spaces along the riverfront boardwalk. At the western end of the peninsula, the boardwalk will also connect to the Cleveland Foundation Centennial Trail. The proposed Towpath and boardwalk convergence opens up great riverfront views of downtown to bicyclists and pedestrians and offers unique dining and shopping experiences as a new destination hot spot.

The overpass bridge on Carnegie Avenue undermines the pedestrian and bicyclist experience and creates perceived barriers between Carter Riverfront and nearby destinations. We suggest adding stairs in both directions in the future as the development progresses, although this is outside of the peninsula and would need to be coordinated with a variety of actors, namely the City of Cleveland. ADA accessibility issues would also need to be part of the discourse on this issues. This improvement offers the opportunity to enhance the connectivity to the Carter Riverfront and creates a sense of bikeway continuity. Bicycling can be encouraged through a designated bikeway extension from the existing bikeway on Carnegie Ave to further connect to Downtown Cleveland and Tremont neighborhoods.

80 PLAN OVERVIEW - group b

Site Plans and Elevations

81 82 83 84 85 86 87 Group b - PLAN OVERVIEW Executive summary

Before we had begun our planning process at all, Group B and only use surface lots to provide smaller distances for the knew that we wanted to provide a development that would do disabled. far more than simply provide a development to take up space. We wanted it to design a development that could emphasize the The third goal, which is perhaps most important in Cleveland, unique location of Scranton Peninsula, its long history, and our was to provide social equity. A major component of this was the class’s passion for developments that truly provide good to the decision to make as much of the waterfront accessible to the world. Because of this we knew that it was absolutely crucial to public as possible since Cleveland has a tradition of building clearly define goals for our development. with its back to the water. To further this end the first decision we made was to have a boardwalk going around all three sides The first goal was of course for it to be economically of the peninsula in order to ensure that private develops would prosperous. While Cleveland has been showing signs of new not be able to make it legally or practically (through lack of life in recent years, it is not such an economic engine that any access) inaccessible by people who do not live there. We also development can be built simply to provide good; it must also sought to make as much of the housing affordable as possible provide tax revenue. While we are not so naïve as to believe while providing access to the peninsula via many different that any development would be built if did not stand a good modes of transportation rather than only being able to chance of being profitable, we were also emphatic that this one conveniently access the peninsula via car. measure of success was not enough. Our final goal was to provide connectivity to the surrounding The second goal was to provide environmental sustainability neighborhoods. This was the hardest goal to accomplish for the long term. We thought of this not only in terms of because the peninsula is notoriously difficult to access being designing buildings to be more energy efficient or providing surrounded by water with two of the tree bridges out of service. larger allocations of green space but also to be resilient against We did the best we could with providing additional roads as climate change and most importantly to be a worthwhile many additional bike, pedestrian, and transit lines and development for the long term. We not only repaired the recommending the repair of the bridges. However, we still feel bulkheads but also made them green, sought to make our green that in the future when the city and the development are proven space active through stormwater management techniques, and and more profitable, it would be prudent to seek out additional oriented as many of our buildings as we could to take forms of access either through a ferry system or a sky ride. advantage of passive solar. One of our major goals was to As a component of the class, we also had to seek to eliminate as much surface parking as possible since we are of differentiate ourselves from the other group. We initially the opinion that Cleveland has scarred its downtown fabric thought that this would be difficult as most of us had the same through the existence of so much surface parking. We sought to goals for the development going in. However, we eventually have the great majority of the parking within a central garage were able to differentiate our development by the creation of a research and development center that would not only provide

88 an economic center for the peninsula and a large source of high Similarly, the street network map (shown below) also shows wage employment. how barren the peninsula is and sheds additional light on why access and connectivity are such big issues for the new The ﬁgure ground below shows the building footprints of the development. You can see that there are only currently two buildings on the Scranton Peninsula compared to the areas roads on and off the peninsula with one bridge. If the other around it. What it really emphasizes is just how vacant the bridges were repaired there would be at least some more access, peninsula really is. It really highlights just how vacant the but as it is there is only one bridge. This means that if the property is which explains why this is such an exciting development was built with standard development styles and development proposal. The chance to be able to build a large the main mode of transportation continued to be cars there scale development this close to the downtown of an established would be major issues of congestion. That means that dealing city is absolutely unheard of. Yet this map shows that we are with the issues of access and connectivity are absolutely crucial truly working with a blank slate here. Even the buildings that if there is going to be any chance of being a successful do appear on the map will simply need to be demolished since development in this area. It has to be made to work though they have been allowed to degrade signiﬁcantly, have structural because Cleveland’s backyard is too valuable to waste. issues, and aren’t in good enough shape to be worth rehabilitating. It also shows just how unique the geography of this location is since even without any outlines you can clearly see just where the river is and how it wraps around the entire peninsula.

The importance of public access to the Carter Riverfront should be made a priority. Despite the fact that we are creating a new

89 multi-modal connections and place - making

The importance of public access to the Carter Riverfront should take advantage of the successes surrounding it, but be made a priority. Despite the fact that we are creating a new infrastructure upgrades are necessary in order for full neighborhood of sorts, the project intends to make sure that the integration to happen. Carter Riverfront is both connected to other Cleveland neighborhoods and accessible to residents from around the Potential for connection of bike metro area. The location and existing infrastructure makes trails connections to the Carter Riverfront common sense, but infrastructure and place making investments need to be made in A key opportunity in connecting the Carter Riverfront (now Scranton order to introduce the Carter Riverfront to the rest of the Peninsula) to the surrounding neighborhoods, and the region at large, community. is utilizing the trail infrastructure that either currently exists, or is currently being built. The two key trails are the Towpath extension The key elements in achieving this are: (in blue), and the Lake Link trail (in red). With connections to the ﬂats, and the Cleveland Metro Area, these trails use the proposed • Improvements and Enhancements to existing roads Carter Riverfront as a sort of crossroads to the urban core of the • A new Bike/Pedestrian trail connecting nearby Cleveland metropolitan area. neighborhoods to existing trails. • A public green space along the trail that attacks residents through it’s proximity to the river and existing non-natural placemaking element. • A public boardwalk meant for new residents as well as visitors.

connecting near west side / downtown to carter riverfront

Currently, the Scranton Peninsula seems disconnected from both Downtown and the neighborhoods on the near West Side, which surround it, despite existing roads. Connections to the thriving areas of Downtown, Ohio City, Duck Island, and the signiﬁcant re-development surrounding MetroHealth main campus. The Scranton Peninsula is geographically positioned to Photo courtesy of The Trust For Public Land

90 By taking advantage of the planned trail routes the Carter connectivity around the Carter Riverfront, a short urban bike Riverfront could be the nexus of millions of dollars of and pedestrian trail is necessary. At one end, the trail comes at investment in trail infrastructure. As the map indicates, he the intersection of Columbus and Carter Road. After traveling trails that the Carter Riverfront serves as the nexus for, provide along the banks of the Cuyahoga River, the trial take a short jog connections to the most important assets that the urban core of over to Carter Road, eventually connecting to the Carter Road Cleveland has to offer. Bridge. Not only does this provide connections to the Lake Link and the Towpath extension, it also serves as a connection between Downtown and thriving near West neighborhoods. The Lake Link and the Towpath trail extension are valuable assets that are greatly enhancing the city dweller’s access to parks, the riverfront, and the lakefront. In order to further connect the surrounding neighborhoods and create a sense of connectivity around the Carter Riverfront, a short urban bike and pedestrian trail is necessary. At one end, the trail comes at the intersection of Columbus and Carter Road. After traveling along the banks of the Cuyahoga River, the trial take a short jog over to Carter Road, eventually connecting to the Carter Road Bridge. Not only does this provide connections to the Lake Link and the Towpath extension, it also serves as a connection between Downtown and thriving near West neighborhoods.

Photo courtesy of The Trust For Public Land

The Lake Link and the Towpath trail extension are valuable assets that are greatly enhancing the city dweller’s access to parks, the riverfront, and the lakefront. In order to further connect the surrounding neighborhoods and create a sense of provided by CityArchRiver - St. Louis 91 Proposed bike path along the West bank

The proposed path would provide accommodations for both bike and pedestrian users. With an emphasis on the urban bicyclist and urban stroller, it would provide 10 feet of two-way bike path and 8 feet of pedestrian space. With green space on one side and the river on the other, the trail would serve as both a connection and an attraction to the Carter Riverfront.

92 Graffiti park

In order to take advantage of the location and place-making elements, we propose the creation of Grafﬁti Park. The park, which will be accessible to the public through improved existing roads and a bike and pedestrian trail, will rely on open green space near the Cuyahoga River, perfect for picnicking or soccer.

Brandon I. An important asset of the existing Scranton Peninsula site is the abundance of potentially undeveloped green space. While it doesn’t make sense to turn the entire area into an 80 acre park, the Carter Riverfront needs strategically placed green space in order to capitalize on it’s proximity to the Cuyahoga River and the Cleveland urban landscape. The westernmost section of the Peninsula is bounded by a large retaining while on the East and Brandon I. the Cuyahoga River on the West. The Carter Riverfront proposal recognizes this as an opportunity for green space that Often times the unexpected could become a key asset in is available to Carter Riverfront residents as well as visitors. creating an urban destination. Many cities have seen tourism attracted to existing grafﬁti art; luckily some of Cleveland’s most impressive street art exist on the proposed Carter Riverfront. By turning this section of the peninsula into an open green space we are creating a space that could lure residents to a long forgotten stretch of land. Overtime this park could be a region-wide destination. It should be noted that by creating this park, we are playing on existing assets that the current Scranton Peninsula already holds claim to.

93 improvements of existing roads

Brandon I. The cross section above depicts improved Carter Road with the proposed townhomes on the eastern portion and the graffiti wall on the western portion. The Scranton Road portion (pictured below) provides The stretch of Carter Road, From Columbus Road to the Carter accommodations of R&D traffic with basic road improvements Road Bridge, is not in line with the proposed urban and the addition of sidewalks. The focus is different from that development of the Carter Riverfront. In order to the serve of the more urban Carter Road in that it is intended for office future residents, as well as visitors to the Riverfront, a redesign worker and industrial traffic. of this stretch of Carter Road is necessary. This half mile stretch of road should be enhanced in order to welcome all forms of traffic from surrounding neighborhoods as well as truck traffic that currently exist. Taking advantage of the ditch that currently existing on the Westside, infill could widen Carter Road in order to accommodate sidewalks, a two- way bike path, and 12 feet of two-lane traffic.

94 carter townhomes

In the spirit of creating true mixed-use districts, it was decided Cleveland region. That growth has not been witnessed for some to design a district of single and two-family townhomes, and to time. attract larger households that prefer more space than an apartment can provide. The bluff is an area, set aside from the Housing Starts - Cleveland Metro main shopping district that provides such residences. by Year Despite being densely zoned, the lots provide spacious homes, 600 a rear courtyard, and garages for motor vehicle parking. The front of the houses are situated directly off the sidewalk, with 450 stairs heading right to the front door. The majority of the homes are single-family, though there are some that boast first floor 300 apartment, sometimes called a mother-in-law suite or an 150 English basement. This is meant to provide an extra source of income for homebuyers, or to provide extra space for larger 0 families, without sacrificing privacy. This is especially valuable 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 for families that are taking care of an elder who still wishes to To further the case, a study was performed on the amount of maintain a level of independence. housing in the Cleveland Metro Region that had been constructed since the year 2000. This was accompanied by the Located on one of the higher points of the Carter Riverfront, same studies on the State of Ohio and on the United States as a the homes of The Bluff will have stunning views of the river, whole. The results below point toward new home construction the industrial flats and the Cleveland skyline. The natural drama in Cleveland being well behind the larger peers. Given that the of an urban industrial area and the river will be a desired real estate market within Cleveland is running at a high level as feature, similar to the newer-built homes in Tremont and in of late, this is an issue that should be corrected. Detroit-Shoreway. The location will provide unparalleled convenience as residents will be within walking distance of Cleveland’s central business district, shopping, restaurants, yet near the expressway for those with reverse commutes. A market exists for single and two-family housing at the Carter Riverfront. Below is a chart that displays the amount of single- family housing starts, by year, in the Cleveland Metro area. Watching the line, it is clear where the Great Recession began to affect new home construction. However, it has yet to rebound, despite an influx of new residents to the Downtown

95 mixed-use district

Mixed& Use& Zoning& |& Mixed& use& zoning& sets& standards& for& zoning variances. Additionally, developers find it the& blending& of& residential,& commercial,& cultural,& difficult to develop within city cores due to the institutional,& and& where& appropriate,& industrial& uses.& restrictive regulations. High-density development that is Mixed&use&zoning&is&generally&closely&linked&to&increased& close to public transportation is what makes density,& which& allows& for& more& compact& development.& communities vibrant and livable. It has become clear Higher&densities&increase&landAuse&efBiciency&and&housing& that developing modern, mixed-use districts is good for variety& while& reducing& energy& consumption& and& redeveloping cities. So, in recent times, cities such as transportation&costs.&The&mixedAuse&buildings&that&result& Cleveland have developed zoning overlays to particular can&help&strengthen&or&establish&neighborhood&character& districts where they hope to redevelop with new housing and&encourage&walking&and&bicycling.1& and economy-boosting businesses.2 a time existed when single-use the Cleveland planning zoning was appropriate for commission has target the urban areas scranton peninsula for mixed- used development At the turn of the 20th Century, industrial manufacturing Accommodating housing, retail, office, and industrial plants and waste-generating facilities were detrimental uses are all suggested for the area. Our master plan fills for nearby residential and commercial areas, and were three of those needs, while adding a fourth, with later found responsible for negative effects on heath for extensive expansion of the recreational area of the people. The United States has transitioned from an peninsula. The site is specifically written into the industrial to a more service-based economy, with Connecting Cleveland Citywide 2020 Plan as either an industrial plants under strict pollution controls that are economic development-based or a housing-based mixed primarily located outside the city cores. In recent times, use plan. those same zoning principles that were meant to protect human health and welfare have become somewhat obsolete. Developing “complete streets” with multiple land uses on a single parcel are hard to develop without

1 American Planning Association. (2006). PAS Quicknotes : Zoning for Mixed Uses. Chicago: American Planning Association.

2 American Planning Association. (2006). PAS Quicknotes : Zoning for Mixed Uses. Chicago: American Planning Association.

96 several of our stakeholder interviews unearthed nearly identical sentiment Already within the Flats, several separate land uses exist, line the riverfront walk. A parking garage would be located and manage to co-exist and cooperate. It would be sensible between two of the mixed-use structures, capable of holding a to continue this trend on the Scranton Peninsula, to create sufﬁcient amount of cars for the entire shopping and restaurant district, and for visitors of the recreational areas on the a district with several different uses to create a true Live- peninsula. Work-Play environment. As one stakeholder mentioned, Downtown Cleveland has recently experienced an in- migration of residents “not seen in my 25 years in Cleveland.” It was suggested that any plan for the Scranton Peninsula should be sure to build upon the successes of the Flats East Bank project. This means not just creating a shopping district or an ofﬁce park, but to create a true 24-7 environment where residents of the peninsula become stakeholders in the project, just as the business owners and recreational visitors do. Fortunately, as one stakeholder said, “never has the Scranton Peninsula been so ripe for opportunity.”

The carter riverfront photo&courtesy&of&KSK&Architects,&Philadelphia) project is a once-in-a-lifetime opportunity Building “H” is the largest proposed building on the peninsula, a four-story structure housing approximately 172,000 sq. ft. of The Carter Riverfront project is a once-in-a-lifetime apartments and retail. The retail segment of the building fronts opportunity to perform urban inﬁll development within the City Scranton Boulevard, Scranton Road, and Carter Road. The of Cleveland. While our plan features several different types of apartments are positioned around the periphery of the building, development within the separate districts on Scranton with N/NW, W/SW or S/SE views. Residents would be able to Peninsula, the Northeast area has been targeted for mixed-use take full advantage of views with balconies and terraces on the development, as per the City of Cleveland’s suggestion, majority of the units. comprising of street-level retail shops and restaurants with rental apartments above. One strip of single-story retail would

97 and three ﬂoors of apartments above, for a total of four stories. Special care was taken to create enough space between the buildings to allow for maximum light and views from the buildings in the interior.

Photo&courtesy&of&Envision&Utah Building “J” is the triangular-shaped structure that tips the “triangle” block in the center of the peninsula. It contains about 65,000 square feet, with retail on the first floor and apartments above. The retail segment of this structure fronts Scranton Road and Carter Road, with the above apartments having either N/ NW or S/SE views. As is the case in Building H, many of the apartment homes will feature balconies to take full advantage of river and city views. Photo&courtesy&of&OMNIPLAN,&from&bizjournals.com) The above is a concept shot of Building B, the proposed retail A multi-level parking deck is situated between buildings H and structure that would line the riverfront. It contains large J, which also allows for delivery doors at the back of both windows, and large entry doors that can be opened up to buildings. The deck contains 325 spaces, which is adequate for sidewalk patios. Retail tenants such as restaurants, brewpubs, the amount of retail that is located on the peninsula. This wine bars, and juice bars would be pursued to fill the spaces. structure is accessed by a service road that runs between the This structure would total almost 30,000 sq. ft. and would have back ends of buildings H and J. street access on one side of the building, for a drop off/potential On the northern edge of the peninsula, four buildings create a valet zone, and would open to the riverfront walk on the other. space of waterfront living and recreating. Three of the buildings Large outdoor seating areas would bloom every spring on the are modeled after the other mixed-use structures within the waterfront, a far too infrequent dining experience in Cleveland. development, with restaurant and retail space on the first floors

98 The structures of the Northeast portion of the Carter Riverfront were carefully thought out utilizing all of the tools available to the project team.

Those include public interviews, stakeholder interviews, current market data, recommendations from the Cleveland Planning Commission, and recommendations from the American Planning Association. We feel as if these buildings

(Vista&Q&A&Photo&courtesy&of&Garrett&Gourlay,&Architect) containing homes, storefront retail, and apartments will be the centerpiece in creating a true live-work-play environment. Along with the other segments of the Carter Riverfront plan, Building A is a residential/retail mixed-use structure that also the Scranton Peninsula will very quickly become a prime contains a limited number of covered parking spaces. At just destination for the City of Cleveland. over 81,000 sq. ft., the building would contain around 50-60 residential units and about 10,000 sq. ft. of retail/restaurant space. Building C would be slightly larger at just over 87,000 sq. ft., with retail, a small covered garage and approximately 50-60 residential units and about 10,000 sq. ft. of retail/ restaurant space, and Building D, the ﬁnal structure of the four- building set, is approximately 53,700 sq. ft., and would contain about 5-7,000 sq. ft. of retail/restaurant space. All three of the buildings would exhibit the same architectural styles, as exhibited above.

99 river’ s bend apartments

Buildings E and F, named the River’s Bend Apartments, are Given their unparalleled location, the buildings are planned as envisioned as purely residential apartment buildings. These upscale properties. Comparable properties include units apartment buildings make use of the waterfront property along averaging 1,000 square feet for a one bedroom apartment and the Cuyahoga River coupled with superb views of the 1,500 square feet for a two bedroom apartment. Each unit will Downtown Cleveland. While the buildings will be built as include a private outdoor balcony and rooftop access. apartment buildings, due to present market conditions, they may be converted to condominiums if the market supports such a venture. physical attributes of the site

(Source:&Dimit&Architects)

Buildings E and F are built adjacent to the Flats Industrial Railroad to the southwest and the Carter Road bridge to the northeast. A substantial public right of way (“ROW”) is planned for the space between the buildings. The ROW would allow for automobile access and on street parking. The buildings are set back from Carter Road to create a natural buffer from the trafﬁc on the peninsula. (Source:&Dimit&Architects)

100 Finances

This portion of the Carter Riverfront Plan will provide some estimates regarding costs, revenues, and financial feasibility for the developments being proposed. Although there are many variables that will affect the feasibility of a project, this analysis aims to give a general estimate of expected financial figures.

! !

101 Methodology

The RS Means Quickcost Estimator generated the constructions costs per square foot for the commercial real estate.3 This tool estimates total construction cost based on the type of building being built, the total square footage, and the zip code the project will be constructed in. After entering these values, the total project cost was generated using data from Q3 of 2012. This total project cost was then divided by square footage of each building to get the estimated per square foot cost. The per square foot cost was then adjusted for inflation using the United States Labor Department’s Bureau of Labor Statistics “CPI Inflation Calculator” to get a 2015 estimate.4 This value was then multiplied by the total square footage of the project to get the estimate seen above. A developer with experience building similar projects provided the construction costs per square foot for the research park. A local CBRE researcher provided rent per square foot estimates. An online tool called the “Cost to Build Calculator” generated the construction costs per square foot for the townhouses.5 This tool requires one to enter the square footage and type of finishes and layouts to estimate a total construction cost. Here, selections congruent with higher end market demands were entered for the finishes and layouts for the town houses. This total project cost was then divided by each townhouses’ square footage to get a cost per square foot.

3&http://www.rsmeans.com/calculator/index.asp?specialUser=FSONL

4&http://www.bls.gov/data/inBlation_calculator.htm

5&http://costtobuild.net/calculator.html

102 revenues

For the per square foot rental a property researcher at the CBRE Cleveland ofﬁce provided estimates. Per square foot rental a developer who manages a similar project provided estimates for the research park.

* Regarding Urban Campground: please see page 102

103 Financial feasibility

FEASIBILITY FEASIBILITY Luxury Apartments Research Park Gross Revenue $4,041,749.76 Gross Revenue $2,404,800.00 Loss Allowance & Vacancy (5%) -$202,087.49 Loss Allowance & Vacancy (5%) -$120,240.00 Effective Gross Revenue $3,839,662.27 Effective Gross Revenue $2,284,560.00 Operating Costs (35%) -$1,414,612.42 Operating Costs (35%) -$841,680.00 Net Operating Income $2,425,049.86 Net Operating Income $1,442,880.00 Value $37,063,027.36 Value $19,238,400.00 Cap Rate 6.54% Cap Rate 7.50%

FEASIBILITY FEASIBILITY Mixed Use Parking Lots Gross Revenue $14,805,862.40 Gross Revenue $1,262,415.36 Loss Allowance & Vacancy (5%) -$740,293.12 Loss Allowance & Vacancy (5%) -$63,120.77 Effective Gross Revenue $14,065,569.28 Effective Gross Revenue $1,199,294.59 Operating Costs (35%) -$5,182,051.84 Operating Costs (35%) -$441,845.38 Net Operating Income $8,883,517.44 Net Operating Income $757,449.22 Value $143,085,864.52 Value $10,325,809.40 Cap Rate 6.21% Cap Rate 7.34%

FEASIBILITY FEASIBILITY Mixed Use II *Urban Campground Gross Revenue $17,116,128.00 Gross Revenue $974,550.00 Loss Allowance & Vacancy (5%) -$855,806.40 Loss Allowance & Vacancy (5%) -$48,727.50 Effective Gross Revenue $16,260,321.60 Effective Gross Revenue $925,822.50 Operating Costs (35%) -$5,990,644.80 Operating Costs (35%) -$341,092.50 Net Operating Income $10,269,676.80 Net Operating Income $584,730.00 Value $154,862,922.56 Value $1,158,000.00 Cap Rate 6.63% Cap Rate 50.49%

*See page 102

104 urban campground

As& Stevenson& describes& to& the& Observer:& "You'll&wake& up& within the United States in 2013. Those persons combined for the& next& morning.& Your& friends& have& just& Binished& their& 597,700,000 days of camping over that same time period. normal& rounds& at& bars,& a& few& reruns& of& late& night& TV.& Certainly there is a market for a campground within Cleveland. They'll& ask,& 'Hey,& what& did& you& do& last& night?”& (Alberts,& Most certainly there is a market for a campground at the 2013)6& endpoint of the Towpath Trail, which has only four other campsites along it.7 The Towpath Trail is truly one of Northeast Ohio’s true amenities. Stretching approximately 100 miles along The economic input of the outdoor industry is staggering. It has the former Erie Canal, from New Philadelphia to been estimated that 6.1 million jobs in the U.S. are created by, Cleveland’s waterfront, the path provides a quality of and approximately $646 billion annually is spent within, the recreational activities rarely seen within an urbanized outdoor recreation industry. This benefits the local economy, area. In the near future, Cleveland will have visitors pumping tax dollars into the local government. To put this in from all over the country, riding into the city on their perspective, Americans spend about half that for bicycles or on foot, eager to explore all the treasures pharmaceuticals ($331 billion annually) and slightly over half that Cleveland has to offer. for motor vehicles and parts ($340 billion annually). Specifically by segment, U.S. outdoor enthusiasts spend $143.4 billion on camping, $81.3 billion on bicycling, and $80.6 billion on trail-sports annually. It is clear that there is an economic benefit to providing facilities for outdoor recreation, especially when they are joined together, with potential cross- over business.8 Another positive to the outdoor industry, specifically the camping industry, is that it appears to be recession-proof. Throughout the Great Recession, the camping industry Picture&courtesy&of&Moonshine&&&Mayhem remained fairly stable, across all segments. Backyard camping Where will these visitors stay? Many in hotels, for sure. refers to those that camp within ¼ mile of their home or However, in 2013 over 40 million Americans went camping vehicle, while all camping is a combination of all three types,

6 Alberts, H. R. (2013, June 12). Artist Runs Rooftop Camp-Outs, This Weekend And Beyond. Retrieved April 22, 2015,.

7 American Planning Association. (2006). PAS Quicknotes : Zoning for Mixed Uses. Chicago: American Planning Association.

8 City of Cleveland Planning Commission. (2007). Connecting Cleveland Citywide 2020 Plan. Cleveland: City of Cleveland.

105 and displayed as a percentage of all persons within the U.S. course insulated and heated for year-round use. The RV sites Given the large population within Cuyahoga County and the will be similar to standard RV sites seen throughout the country. City of Cleveland, it appears that the Urban Campground would not lack for prospective visitors. U.S. Campers, Annually by Count and % 40.00 16% 30.00 15% 20.00 14% 10.00 13% 0.00 12% Picture&courtesy&of&Moonshine&&&Mayhem 2007 2008 2009 2010 2011 2012 2013 Persons (M) Would this concept work within Cleveland? We believe so. Source:&The&Outdoor&Foundation,&2014 According to a 2014 report by Destination Cleveland, tourism All Camping Backyard Camping is on the rise, moving from 15.6 million visitors in 2012 to 16.2 RV Camping Backpacking The Urban Campground will be positioned within Graffiti Park, million visitors in 2013.These tourists generated an estimated on the West Bank of the Scranton Peninsula. It will consist of $7.4 billion for the local economy, while supporting just over 40 tent sites, 20 cabins, and four RV sites. Each tent site will be 63,000 local jobs. It is only logical that provided the facilities; reasonably secluded from each other, all outfitted with a power visitors would choose camping over hotels in some cases. source with USB hookups for recharging devices. Those in the Given the location of the Urban Campground, it would not only tent sites will have access to the lodge house, which will be the outdoors that the visitors would be enjoying. Campers contain restroom facilities, lockers, and a great room with fireplace. The cabins will come courtesy of Tumbleweed Tiny would certainly be able to hike, bike, and cook out, but also Houses, a nationally known builder of modern micro-housing. visit Cleveland’s world-class theaters, museums, the West Side Each cabin contains its own kitchen and bathroom, and are of Market, the sport arenas, and all of the other wonderful attractions within our city9.

9 Kramer, J. (2014, May). Destination Cleveland Reports Tourism Increase in 2013. Retrieved April 25, 2015, from Destination Cleveland.

106 Public funds targeting brownfield cleanup

Brown&ield+Remediation+Funding+Help+(total+costs:+ Development costs add up quickly when taking into account $10,890,000)* costs for land acquisition, cleanup of brownfields, planning, Funder Name Maximum+ Requirement consulting, materials, labor, and everything else that goes into Amount s developing a large acreage site. As mentioned in the Phase I write-up about other local plans, it is vital that private and Federal+EPA Revolving&Loan& $200,000 max.&3&total& Fund&Grant sites&per&year& public entities come together to help see a project get planned for&borrower and fully implemented. Such a concept has already started to Federal+EPA Revolving&Loan& $1&million& 20%&match& take place, as The State of Ohio has funded parts of the Fund environmental analysis for Phase I and/or Phase II of locating no&A&low& 5&year&loan where the brownfield contamination is and how extensive interest cleanup has to be. However, partnerships like these have to JobsOhio Revitalization& $1&million Create&20+& continue if Carter Riverfront is to be developed to the full- Grant jobs extent that our plan lays out. Public entities can help to fund JobsOhio Revitalization& $500K&A&$5& Create&20+& projects through grants, low-interest loans, tax credits, or even Loan million jobs& by partnering with a private organization to apply for public or 10A15&year& private funding. The East Flats Bank development, which will loan include an “18-story office tower, retail, restaurants, Ohio+Water+ OWDA&loan $5&million& 10&year&loan entertainment venues, a boutique Aloft hotel, a riverfront Development+ boardwalk and 14 acres of parks and green space” when Authority 2%&or&less& interest finished, incorporated over 30 sources of capital.10 Similar to the development of the Carter Riverfront, the East Flats bank State+of+Ohio Ohio&BrownBield& $5&million& 10&year&loan Fund consisted of acres of brownfields that had to be cleaned before below&market& construction could begin. These brownfield cleanup costs add interest up to be a significant portion of a project and could defer a *&Based&on&$5&sq&ft&with&a&2,718,000&sq.&ft&area&of¬& project from being started - or finished. It is vital that public remediated&land& and nonprofit organizations step in and help fill the gaps to help

10&Nancy,&L.,&&&Maureen,&H.&(2010,&December&21).&Flats&East&Bank&project&secures&Binancing;&Construction&to&begin&this&week.&Retrieved&April&12,&2015,&from&http://Blatseast.com/wpAcontent/ uploads/2013/06/FlatsAEastABankAprojectAsecuresABinancing.pdf

107 stop urban sprawl, and keep urban pockets from being fiscal year. The final requirement for these loans is that they are underutilized. used to clean up brownfield sites with nearly all costs, apart from administrative costs, eligible.12 While cleaning the toxins from this 80-acre site is a In 2005, the EPA helped fund a project in Pennsylvania development cost that will add up quickly, there are many that is quite similar to the Carter Riverfront proposal we have public grants and low-interest loans that are available to help created. This Pennsylvanian project, known as “Riverfront with the cleanup costs. We were told that all 80-some acres are South Bensalem” is located in Bensalem, Pennsylvania and contaminated and that remediation require digging between 2 - consists of a 45 acre site. Through a $200,000 grant and a 4 feet down, and replace the bad soil with clean topsoil, $975,000 EPA Revolving Loan Fund (RLF), the developers depending on the area. It will cost roughly $10,890,000 to clean were able to afford cleanup costs and turn the former industrial up the whole site, before any development can even begin. brownfield into a mixed-use development. This Riverfront South plan contains “housing, office and retail space, Federal environmental restaurants and green space,” all of which is included in our protection agency Carter Riverfront Plan, in addition to a Research & Development Center. Part of the success in being awarded the grant was due to the ability of the full development to “create The& Federal& EPA& is& one& source& of& funding& that& can& help& with& cleanup&costs.&They&will&provide&up&to&$200,000&for&cleanup&on&a& jobs, increase tax revenues, and serve as a catalyst to return project.11&The&Revolving&Loan&Fund&grant&goes&in&hand&with&the& other brownfields in the area to productive use.” All of these Revolving Loan Fund that is also provided through the EPA. statements are true for the Carter Riverfront development as The Revolving Loan Fund can provide up to $1 million, with well. This is why we believe that applying for this grant - and certain restrictions. A minimum of 60% of what is given from the EPA RLF - will be an important step in securing public the EPA must be implemented as a five - year no-cost or low- funds.13 cost loan that is then put back into the RLF. The borrower through a contribution of labor, materials, money, or services must match another 20% of the money borrowed. A borrower is not able to accept funding for more than three sites in a single

11&Cleanup&Grants.&(2014,&April&18).&Retrieved&April&18,&2015,&from&http://www.epa.gov/brownBields/cleanup_grants.htm

12&EPA&BrownBields&Revolving&Loan&Fund,&Grants:&Interested&in&Applying&for&Funding?&(2009,&August&1).&Retrieved&April&12,&2015,&from&http://www.epa.gov/brownBields/grant_info/rlf/ rlf_factsheet.pdf

13&BrownBields&at&a&Glance:&Riverfront&South.&(2010,&July&1).&Retrieved&April&12,&2015,&from&http://www.epa.gov/brownBields/success/bensalem_pa.pdf

108 jobsohio Another brownfield cleanup funding opportunity for a site like can cover between 20 and 75 percent of eligible costs. The the Carter Riverfront is through the State of Ohio. JobsOhio repayment will begin either when revitalization is scheduled to Revitalization Program offers low-interest loans, grants to help finish or when the building becomes occupied. The payment with funding gaps, and to eligible sites that create or retain 20 length is between ten and fifteen years. These state loans and grants are a great opportunity for projects where demolition and cleanup costs of brownfield sites make the project impossible or The&East&Flats&bank&development,&which&is& nearly impossible to complete without funding help. similar&in&size&and&geography,&incorporated&over& 30&sources&of&capital&to&complete. Ohio brownfield fund Similar to the JobsOhio fund that is available to developers for brownfield cleanup costs, the State of Ohio offers the Ohio or more jobs. Between the possible restaurants, retail shops, Brownfield Fund. This below-market-rate loan of up to $5 and Research & Development (R&D) site, it is likely for these million for environmental cleanup is similar to the JobsOhio jobs to be created. While many of the restaurant and retail loan in that it has a ten year payback plan. The advantage of shops will potentially not pay high enough wages to make this this loan, however, is that there is no correlation to the number site a funding priority, the R&D component will either retain - of jobs retained or created for receiving this loan. Therefore, or hopefully create - enough new jobs at a good pay high this loan would be beneficial for phases of the development that enough wages qualify for funding cleanup. Eligible costs that do not focus on job creation. Phase I of our project includes this loan can help cover include demolition of old standing development aspects that are more for the overall neighborhood buildings, environmental remediation, removal and disposal of than on jobs, including road improvements, bike and walking waste, and site preparation. The R&D facility is scheduled to be paths along Graffiti Park, Graffiti Park itself, the urban a part of Phase II of this project, so this might be the best time campground, 200+ townhomes, and a watershed/water to apply for the grant or loan. The JobsOhio Revitalization retention area. Since these developments will not create jobs directly, it’ll be important to look into affordable loans for the “Public&investment&is&important”&A& expensive cleanup costs of these projects. The only requirement for this state loan is that the borrower shows that they are able Stakeholder&Interview to pay back the loan, which Forest City, or any other developer owning this land, would be able to do. Grant Fund offers grants up to $1 million to help fill the gaps that are created due to the high cleanup costs associated with brownfield developments. The loan amount, which can be created without a gap, can range from $500,000 and $5 million,

109 Public Funds Targeting Ohio water development Environmental authority Developments Another state loan that is available to developers for cleanup “Parks of all sizes play an important role in preserving and costs of brownﬁeld sites is through the Ohio Water supporting healthy environments. A network of parks and open Development Authority. Similar to the JobsOhio loan, this spaces that include protected natural lands, ecological funding can be used both for demolition and environmental reserves, wetlands, and other green areas is critical to cleanup costs of preparing the site for development. Loans of providing healthy habitats for humans, wildlife, and plants in up to $5 million are available for projects with below - market these densely built places.” rate loans of 2% or less interest through the state. The repayment of this loan is over a ten year period, which is City Parks Alliance15 similar to the One of our goals with the neighborhood creation of the JobsOhio loan. The pros of this loan include not having to Carter Riverfront development is to create public green space match loaned funds, a quick turnaround (the full process of for current residents of the city. The City of Cleveland has a applying for and receiving the loan is 2 - 3 months), and the long history of physical barriers keeping residents from fact that the loan program is not limited to commercial and accessing the waterfronts, including both the Cuyahoga River industrial properties. One potential con to this loan, which does and Lake Erie. Many of the parks, such as Edgewater, were not make a difference for this project, is that the funds cannot poorly taken care of until the Cleveland Metroparks recently be used for acquisition costs. Since Forest City Enterprises took them over. To accomplish our goal of increased public already owns this property, there are no acquisition costs water access and increased public green space, we’ve created a involved in this development. This loan would be a great public boardwalk and buffer along the edge of the river so no funding opportunity for demolition and cleanup costs involved private developments blocked the river views or access. We in phase I of this project, considering there are no requirements also added to the 11-acre park that was created along the about jobs being created or retained to obtain this low-interest Towpath Trail recently by adding Grafﬁti Park, complete with a state loan.14 bike path of its own along the west end of the development site. However, parks and public space do not create direct revenue, making public funding and partnerships a must in order to help leverage the deep costs of creating (and maintaining) a park. One such funder in Ohio is the Community Loan Fund, which awards low interest loans with a ten year payback period. This loan can be used for construction and equipment costs of the

14&OWDA&BrownBield&Loan&Program.&Lecture&conducted&from&Ohio&Development&Services&Agency.&Retrieved&April&12,&2015,&from&http://development.ohio.gov/cleanohio/ BrownBieldRevitalization/Documents/BLP_Presentation.pdf&.

15&Environmental&Value.&City&Parks&Alliance.&Retrieved&April&12,&2015,&from&http://www.cityparksalliance.org/whyAurbanAparksAmatter/environmentalAvalue

110 project. The goal of this fund is to help “stimulate and sustain assuring that funds will be available if our project is started in community development and increase access to capital for low the next couple of years. The Cuyahoga River is listed as a income areas.”16 “Continued Area of Concern” in the GLRI Action Plan II.18 While the Cuyahoga River is not listed as an area that is to be Recreational trails “delisted” - essentially cleared as clean - in Phase II, it is a program water source that is labeled “continued area of concern” and should get some attention and help from the GLRI funding The Recreational Trails Program grant through the Ohio during Phase II of clearing water streams that connect to the Department of Natural Resources is another possible funding Great Lakes. One type of project that GLRI considers a priority opportunity for the park development on Carter Riverfront. The is that of urban watersheds in order to help reduce the toxic riverfront bike trail on the far west side of the development runoffs that many of these areas contain. Phase I of our would be a great potential project to receive this funding. In FY development project includes creating a stormwater 2013, projects received between $20,000 and $200,000 of containment area, complete with local plants and a water funding through this grant program. For-profit organizations are retainment area to help reduce the amount of toxic runoff that unable to apply for this grant; however, part of our plan would go into the Cuyahoga River. Part of this project would proposes that Graffiti Park - and the bike path along the edge of include replacing the current bulkheads along the development the park and the river - being owned and maintained by the site to make them more stable and a better habitat for the fish. Cleveland Metroparks. The Metroparks, being a nonprofit There are multiple alternatives to incorporating the wildlife organization is eligible to apply for the Recreational Trails habitat features while also preventing landslides in the Program grant.17 bulkhead section of Phase II.

great lakes restoration A similar project, which entailed restoring wildlife initiative habitat, received funding in 2010. The Ohio EPA received a $1.5M grant over a two year period for a project titled The Great Lakes Restoration Initiative was created in 2010 to Ashtabula River Area of Concern Habitat Restoration. This continue and expand on efforts to clean, protect, and restore the project received funding to rehabilitate the ﬁsh and wildlife world’s largest fresh water source, the Great Lakes. Phase II of habitat of the Ashtabula River. Approximately 1,400 ft. of ﬁsh this plan started this year and will continue through 2019, habitat shelves were installed in the river to help with wildlife

16&Community&Loan&Fund.&WSOS&Community&Action.&Retrieved&April&12,&2015&from&http://www.wsos.org/program_details.php?id=41

17&Grants&from&the&Ohio&Department&of&Natural&Resources.&Ohio&Department&of&Natural&Resources.&Retrieved&April&12,&2015&from&http://ohiodnr.gov/grants

18&Great&Lakes&Restoration&Initiative:&Action&Plan&II.&(2014,&September&1).&Retrieved&April&12,&2015,&from&http://greatlakesrestoration.us/actionplan/pdfs/glriAactionAplanA2.pdf

111 city of Cleveland tax abatements problems, including: “degraded fish populations, degraded benthos, and loss of fish habitat.”19 Public funding opportunities are not limited to the federal and state level, as there are often many possible funding roadwork development 629 possibilities through the county and city as well. For instance, the City of Cleveland has a tax abatement program through its Another large cost of developing this site that does not bring in community development department. The mission of the direct money to the developer is that of the road improvements community development department is: that are needed on the Carter Riverfront. The current road “We& are& committed& to& improving& the& quality& of& life& in& the& City& of& conditions include two main roads (Scranton and Carter) which Cleveland& by& strengthening& our& neighborhoods& through& successful& have no sidewalks, large potholes, and are in bad shape. These housing& rehabilitation& efforts,& commercial& rehabilitation& efforts,& new& two roads that go along the perimeter of the peninsula will be housing&construction,&homeownership,&and&community&focused&human& updated with sidewalks, bike lanes, and repaving for a smooth services.”21& surface and safe drive for automobiles. These improvements will cost around $9 million to complete. While these overall The Rivers’ Bend Apartments help to fulfill the city’s mission repairs and road extension are important, they will not generate by expanding on the neighborhood that Carter Riverfront will revenue directly. Grants for road improvements are available be, once fully developed. These apartments will fit the through the State of Ohio with the Roadwork Development 629 description of a structure eligible for a tax abatement because grant. This grant could be used to obtain $1,000 per job created the apartments will be leased out (apart from the townhomes in the development site and $500 per job retained, not including that will be sold to the owners). Tax abatement structures have retail jobs.20 With an estimated 296 jobs in the R & D building, to be built to Cleveland’s green building standards. One way to there will be potential for $148,000 to $296,000 in funding for meet these standards is to meet the Enterprise Green criteria, the road, depending on if these jobs are retained or new. which is a relatively cost-effective way for incorporating some green standards into a building. More detailed information on what an Enterprise Community “green” structure entails can be

19&Cassell,&P.&(Director)&Environmental&Protection&Agency&GLRI&Projects.&Lecture&conducted&from&U.S.&EPA,&.

20&Grants:&Roadwork&Development&(629)&Account.&(n.d.).&Retrieved&April&28,&2015,&from&http://www.clermontcountyohio.biz/StateofOhioRoadworkDevelopment629Account.pdf

21&City&of&Cleveland&::&Tax&Abatement.&(n.d.).&Retrieved&April&12,&2015,&from&http://portal.clevelandAoh.gov/CityofCleveland/Home/Government/CityAgencies/CommunityDevelopment/ TaxAbatement

112 found in their “2015 Enterprise Green Communities Criteria” traditional and more flexible financing options than handbook.22 Tax abatements allow the developer offer rents conventional financing, including below market interest rates without passing on the cost of the taxes to the renters. Since the and underwriting terms. This financing option comes in handy land where the Rivers’ Bend Apartments are going is currently when conventional financing does not cover the entire project. nearly vacant with overgrown grass, this will save the 18 This is highly possible for this project due to the many costs developer (and potentially the future residents if savings are associated with the brownfield site, including environmental passed on) money. After placing the riverfront apartments on cleanup, demolition, and leveling of the uneven site. this land, the taxes will certainly be a lot higher than what the property is worth before the buildings go up. By saving 15 years of these increased taxes, the developer will have more MULTIFAMILY HOUSING BONDS incentive to build the property. The city wins as well because they have a new development to attract residents to the city, and Cuyahoga County offers a tax-exempt bond program to help after 15 years, the developer will be required to pay the market lower the high costs of development for certain projects that rate taxes on the property. help to serve a public purpose. There are three types of projects that benefit from this funding option through Cuyahoga County. The only relevant project on the Carter Riverfront would be the NEW MARKET TAX CREDIT multi-family housing. The Rivers’ Bend Apartments are two multi-family housing buildings that are to be built on the Carter The New Market Tax Credit is a federal incentive that is Riverfront. This bond can be used for new construction of available to developers creating new markets within low- multi-family housing, which is what the Rivers’ Bend income areas. The Carter Riverfront development site falls Apartments will be. Funding costs that can be included in this within census tract 1042.00, which had a poverty rate of 37% as bond are “construction financing, legal, audit, bond of the 2010 census (found in demographics section of this underwriting and issuance costs, replacement reserves and paper). To meet the requirement of a project being in a “low- settlement costs.” There is a non-refundable fee of $1,000 to income area,” the urban census tract must have a poverty rate apply for this bond through the County; however, that cost of 20% (there are different requirements for rural areas). The would be more than worth it if this project were chosen as a mission of this tax incentive is to benefit communities with bond-funded development. “newly created construction and permanent jobs, improved access to goods and services and new recreation and entertainment options.” The developer benefits through non-

22&(&2EKGA4E0FDDEAKA0AKA: (&KA=/GAC((&?FDAK:KAFED:AEEK:G:AK:AK:.K?-P-KKG, EKGAFDDEAKFDCKCKAC1FECF:=.?AC-&&)&&&&&=52A2/4FDDAK-8:AK

113 Tapping into private sources of grant funding is an important way to help bring project costs and bring a better chance of completion. The Cleveland Foundation and The George Gund Foundation are two prominent sources of foundation funding that should be considered if looking for outside funding sources. Looking at past grantees and projects that received money is a good way for an organization to determine if possible funding is available.

114 FUNDING FROM LOCAL FOUNDATIONS

THE CLEVELAND FOUNDATION start-up companies, entrepreneurship and business growth would be fulﬁlled. The Carter Riverfront is just outside of the The Cleveland Foundation offers several categories that their Downtown-area of Cleveland. By turning this vacant land into grant recipients fall under, including arts and culture, economic a successful neighborhood, Cleveland’s core will be stronger, development, education, environment, health, human services, helping the city as a whole. A similar project, that was provided neighborhoods and housing, and philanthropic sector. Priorities funding in a neighborhood a little further outside of Downtown are given to six distinct areas, including education, than the Carter Riverfront, was Phase II of the Uptown project, neighborhoods, human services, arts & culture, economic located in University Circle. This project received $2 million development, and Greater University Circle. Through this through the Village Capital Corp. to help produce this project, project, one priority and two grant categories stick out as which created jobs through the new bowling alley, apartment possible ways that this plan can receive funding through The complex, and food and retail shops.24 An R & D development Cleveland Foundation. On The Cleveland Foundation website, would provide high paying jobs to residents of the Greater it states that priority is given to economic projects, deﬁned as: Cleveland area, with the potential of nearly 300 jobs through The&Cleveland&Foundation&believes&Cleveland’s&economy&can&thrive&and& this one 120,240 square foot building. There is potential to be& sustainable& and& globally& connected.& Our& funding& strategy& promotes& receive funding from The Cleveland Foundation for the Bive& priorities:& innovation& and& entrepreneurship,& business& growth,& development of this unique structure. 16& industry&clusters,&globalization,&and&a&healthy&core&city. Another category of funding that The Cleveland In 2013, The Cleveland Foundation gave nearly $4.2 million to Foundation includes in its grants each year is that of the economic development projects (note: 2014 grants were only environment. In 2013, The Cleveland Foundation gave nearly available through March 2014).23 Many parts of our project $1.6 million to environmental projects and programs in the implement those economic development priorities of The Greater Cleveland area. While this is far less money than the Cleveland Foundation. The research and development center economic development category, which is seen as a priority, the would promote innovation and business growth in a new space environmental category still receives an adequate amount of that is designated for R & D jobs that have been expanding in money each year, which this development should attempt to tap Cleveland. Whether these jobs are expanding a current into. Similar projects that The Cleveland Foundation has company, like Sherwin Williams, or building space for new funded in the past include $200,000 for capacity building for

23&Cleveland&Foundation&A&Connecting&Donors&and&Meaningful&Causes.&(n.d.).&Retrieved&April&12,&2015,&from&http://www.clevelandfoundation.org/grants/searchAgrants/? organization_alpha=&organization=&organization_search=Choose+Alphabetically+Above%2C+or+Type+Organization +Name&start_year=2013&end_year=2013&min_amount=0&max_amount=10000000&program_area=&view=list&sort=year&search=Search

24&Jarboe&McFee,&The&Plain&Dealer,&M.&(2013,&May&29).&Uptown&project&picks&up&Corner&Alley,&Potbelly&as&tenants,&Cleveland&International&Fund&as&lender.&Retrieved&April&12,&2015,&from&http:// www.cleveland.com/business/index.ssf/2013/05/uptown_project_picks_up_corner.html

115 Cleveland Lakefront parks which was given to the Cleveland Park, the added bike path, and the addition of the boardwalk. Metroparks in 2013. The Cleveland Metroparks is a possible By adding the boardwalk and Grafﬁti Park, the entire riverfront partner for the riverfront park known as Grafﬁti Park. This plan of Carter Riverfront will be public space. This helps to assure is very feasible in that the Cleveland Metroparks was already equity in that the space will not be reserved just for the people involved in the successful towpath trail addition on the far east who live on the site and along the waterfront. It would be worth side of the site. it to have the Metroparks apply for a grant between $50,000 - $100,000 from Gund to help with costs of cleaning up and creating the public greenspace on Carter Riverfront.

THE GEORGE GUND FOUNDATION THE KELVIN AND ELEANOR SMITH FOUNDATION The George Gund Foundation is another large private provider The final non-profit grant giver that the developer and its of grants in the Cleveland area. Similar to the Cleveland partners should consider applying for is that of The Kelvin and Foundation, the Gund Foundation awards grants in a few Eleanor Smith Foundation. This family foundation gave over specific categories of projects. These grant priority categories $7.8 million in FY 2013 according to the Foundation Center, include: arts, economic development, education, environment, which puts them up there as one of the most generous human services, and special commitments. In 2014, the Gund foundations in Cleveland. Under their “strategic priorities and Foundation gave Beyond Pesticides $100,000 over two years to types of support,” this foundation lists the following categories “create sustainable lawns, landscapes, and public projects.”25 as priorities: arts and culture, economic development, Graffiti Park and the boardwalk alongside the Cuyahoga River education, environment, health, and human services.26 The that surrounds the peninsula is both important to the website also mentions their emphasis on projects and environment and the public. The plan for this part of the project organizations located in northeast Ohio, where the Carter is to partner with the Cleveland Metroparks to help build and Riverfront development is located. While their website does not maintain the waterfront park. Graffiti Park will be cleaned up, contain information about past organizations or specific helping the environment through rainwater that goes through projects that they have granted money to, it is important to note this land and into the Cuyahoga River and by creating acres of the environment and economic development categories in their more green space throughout the near - downtown area. It is strategic priorities. As with the foundations mentioned above, estimated to cost $22 million for the remediation of Graffiti

25&The&George&Gund&Foundation.&(n.d.).&Retrieved&April&12,&2015,&from&http://gundfoundation.org/grantsAawarded/searchAgrantsAarchives/? Prgarea=environment&Grantee=&strDte=2010&endDte=2015&k=1

26&The&Kelvin&and&Eleanor&Smith&Foundation.&(n.d.).&Retrieved&April&12,&2015,&from&http://www.kesmithfoundation.org/strategicpriorities.html

116 the water retention area, Graffiti Park and other public space along the riverfront, rehabbing the bulkheads, and the R&D center, all fit within these two priority categories. Non-profit foundations like The Cleveland Foundation, the George Gund Foundation, and The Kelvin and Eleanor Smith Foundation, are all excellent resources for small nonprofits and large projects to tap into at a time of need. To help receive grants from these organizations, it would be best to partner with influential local nonprofits, such as the Cleveland Metroparks. Funding from these organizations can be a great way to help fill the financial gap that will likely occur in this development and would be best implemented by targeting a different foundation through each phase of the whole project.

117 118 Conclusion

Cleveland’s “backyard,” the Scranton Peninsula, is ripe acceptable limits for the type of grand developments for conversion to a Carter Riverfront type development. envisioned for this property. Numerous plans throughout the years have considered the question of how to develop the property that sits For Group B, the clean-up costs are less than 2.5% of kitty-corner, across the river and from the behind Public the prescribed $450,000,000 cost of investment for their Square and Tower City. Major hindrances include development. For Group A, clean-up costs are a much limited and confusing access to the site and an hundred more substantial portion of the approximately y e a r s o f $96,000,000 investment cost that they envision. industrial Team A pollution that Whichever route is taken, it is almost certain that a will lead to public-private partnership would likely be required to excessive make the project feasible. There are numerous public m a n d a t e d programs to assist with the brownfield remediation, park b r o w n fi e l d and green space enhancement and development of r e m e d i a t i o n mixed use/income housing, retail, commercial and costs. office space that can be taken advantage of.

But as was shown in this paper, numerous conditions We are optimistic that, notwithstanding a phase 3 are aligning themselves to make the present time brownﬁeld assessment making development of the type perhaps the most serious push for development on the proposed entirely impossible, that development will Peninsula in decades. Population is growing downtown move forward in short order. for the ﬁrst time in decades. Housing prices are soaring in surrounding neighborhoods such as Ohio City and Team B Tremont. Environmental safety and appreciation has never been higher in our society at large. Carter Riverfront is poised to happen.

Both Groups A & B estimated brownﬁeld remediation costs in the neighborhood of $10 million. While at ﬁrst blush that may seem cost prohibitive, it may be within

119 Acknowledgements

Thanks to each of our fellow members of the Planning Studio. program at CSU. This includes Dr. Ned Hill, Dean of the We came together, struggling at times, collaborating mostly, College, Dr. Dennis Keating, Chair of the program and the and pursued a vision of a redeveloped site that would be part of various secretaries, advisors and cleaning staff who made our a vibrant, economic and equitable Greater Cleveland. stay here more enjoyable.

Thanks to our family and friends who tolerated our long hours Finally, thanks to the people, who for hundreds of years have away from home while we worked on this class. lived around the Cuyahoga River, and have struggled, worked and planned to make their urban communities better places for Thanks to our professors, Mr. James Kastelic and Dr. Wendy everyone. Kellogg who kept cool heads when things got turbulent and were a wealth of knowledge and expertise about all things urban. Their friendly smiles and demeanors were quite welcoming.

Thanks, to James P. Martynowski, Director of Planning and Construction at Forest City Land Group and his organization, Forest City Enterprises, for offering support as a client for this project.

Thanks also to the myriad of speakers and interview stakeholders who volunteered their time to help us better understand the complexity, history and politics of the area.

Thanks to Professor Norm Krumholz who introduced us and inspired us to Urban and Equity Planning. He is as solid a foundation for the MUPDD program as any glacier that helped form the Scranton Peninsula 13,000 years ago.

Thanks to all of the staff and faculty in Levin College of Urban Affairs for offering knowledge and support during our MUPDD

120