AN ADVISORY SERVICES PANEL REPORT Springfield Virginia

Urban Land $ Institute Springfield Virginia

Strategies for Revitalization

May 21–26, 2006 An Advisory Services Panel Report

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

LI–the Urban Land Institute is a non- resented include developers, builders, property profit research and education organiza- owners, investors, architects, public officials, tion that promotes responsible leadership planners, real estate brokers, appraisers, attor- U in the use of land in order to enhance the neys, engineers, financiers, academics, students, total environment. and librarians. ULI relies heavily on the experience of its members. It is through member in- The Institute maintains a membership represent- volvement and information resources that ULI ing a broad spectrum of interests and sponsors a has been able to set standards of excellence in wide variety of educational programs and forums development practice. The Institute has long been to encourage an open exchange of ideas and shar- recognized as one of America’s most respected ing of experience. ULI initiates research that an- and widely quoted sources of objective informa- ticipates emerging land use trends and issues and tion on urban planning, growth, and development. proposes creative solutions based on that research; provides advisory services; and publishes This Advisory Services panel report is intended a wide variety of materials to disseminate infor- to further the objectives of the Institute and to mation on land use and development. make authoritative information generally available to those seeking knowledge in the field of Established in 1936, the Institute today has more urban land use. than 34,000 members and associates from 90 coun- tries, representing the entire spectrum of the land Richard M. Rosan use and development disciplines. Professionals rep- President

Cover photo © Virginia Department of Transportation.

2 An Advisory Services Panel Report About ULI Advisory Services

he goal of ULI’s Advisory Services Program pants in ULI’s five-day panel assignments are is to bring the finest expertise in the real able to make accurate assessments of a sponsor’s estate field to bear on complex land use plan- issues and to provide recommendations in a com- T ning and development projects, programs, pressed amount of time. and policies. Since 1947, this program has assem- bled well over 400 ULI-member teams to help A major strength of the program is ULI’s unique sponsors find creative, practical solutions for ability to draw on the knowledge and expertise of issues such as downtown redevelopment, land its members, including land developers and own- management strategies, evaluation of developers, public officials, academicians, representatives ment potential, growth management, community of financial institutions, and others. In fulfillment revitalization, brownfields redevelopment, mili- of the mission of the Urban Land Institute, this tary base reuse, provision of low-cost and afford- Advisory Services panel report is intended to able housing, and asset management strategies, provide objective advice that will promote the re- among other matters. A wide variety of public, sponsible use of land to enhance the environment. private, and nonprofit organizations have con- tracted for ULI’s Advisory Services. ULI Program Staff

Each panel team is composed of highly qualified William P. Kistler Executive Vice President, Exchange Group professionals who volunteer their time to ULI. They are chosen for their knowledge of the panel Thomas W. Eitler topic and screened to ensure their objectivity. Director, Advisory Services ULI’s interdisciplinary panel teams provide a Nicholas Gabel holistic look at development problems. A re- SeniorAssociate, Advisory Services spected ULI member who has previous panel experience chairs each panel. Carmen McCormick Panel Coordinator, Advisory Services The agenda for a five-day panel assignment is in- Yvonne Stanton tensive. It includes an in-depth briefing day com- Administrative Assistant posed of a tour of the site and meetings with sponsor representatives; a day of hour-long interviews Nancy H. Stewart Director, Book Program of typically 50 to 75 key community representatives; and two days of formulating recommenda- Laura Glassman, Publications Professionals LLC tions. Many long nights of discussion precede the Manuscript Editor panel’s conclusions. On the final day on site, the Betsy VanBuskirk panel makes an oral presentation of its findings Art Director and conclusions to the sponsor. A written report is Martha Loomis prepared and published. Desktop Publishing Specialist/Graphics

Because the sponsoring entities are responsible Craig Chapman for significant preparation before the panel’s visit, Director, Publishing Operations including sending extensive briefing materials to each member and arranging for the panel to meet with key local community members and stakeholders in the project under consideration, partici-

Springfield, Virginia, May 21–26, 2006 3 Acknowledgments

n behalf of the Urban Land Institute, the Marianne Gardner, Peter Braham, and St. Clair panel would like to thank Fairfax County Williams of the DPZ; Kathy Ichter of the DOT; for inviting it to assist in the redevelopment and Paula Sampson, Harry Swanson, Bob Fields, O efforts for Springfield. The panel would like and Bridgett Hill of the HCD. Finally, the panel to thank the Board of Supervisors, the Department would like to thank the more than 80 community of Planning and Zoning (DPZ), and the Fairfax members—including government officials, resi- County Department of Housing and Community dents, business leaders, neighborhood organiza- Development (HCD). The panel sends its thanks tions, and property owners—who volunteered particularly to Supervisor Dana Kauffman, whose their time, thoughts, and experiences during the interest and support for the greater Springfield interview process. Their insights provided valu- area has been exemplary. The panel also extends able information that was critical to the comple- its thanks to Supervisor Elaine McConnell and the tion of the panel’s recommendations. other elected and selected officials from Fairfax County who participated in the panel process. The panel wishes to thank Jim Zook, Barbara Byron,

4 An Advisory Services Panel Report Contents

ULI Panel and Project Staff 6

Foreword: The Panel’s Assignment 7 Market Potential 11 Planning and Design 15

Transportation 22 Implementation 30 Conclusion 40 About the Panel 41

Springfield, Virginia, May 21–26, 2006 5 ULI Panel and Project Staff

Panel Chair David Plummer & Associates, Inc. Coral Gables, Florida David L. Leininger Chief Financial Officer John Shumway City of Irving Principal Irving, Texas The Concord Group Newport Beach, California Panel Members Ross Tilghman Donald R. Bauer Director Owner/Founder Tilghman Group Bauer Planning and Seattle, Washington Environmental Service, Inc. Irvine, California ULI Project Director Daniel Brents Thomas W. Eitler Consultant Director, Advisory Services Houston, Texas David N. Goss ULI On-Site Coordinator Consultant Carmen McCormick Hertford, North Carolina Panel Coordinator Philip Hughes President Hughes Investments, Inc. Greenville, South Carolina

Michael J. Maxwell Managing Partner Maxwell + Partners LLC Miami Shores, Florida David S. Plummer President

6 An Advisory Services Panel Report Foreword: The Panel’s Assignment Coatesville 19 40 Chambersburg 94 West Chester 70 82 381 281 220 30 222 21 Uniontown 96 250 219 800 116 42 2 16 Bellmawr 70 60 79 74 472 316 88 81 37 Woodbury 295 78 119 PENNSYLVANIAhe Fairfax County Department of Planning Hanover PENNSYLVANIA 71 851 MARYLAND 77 78 16 93 and Zoning in conjunction with the Depart- OHIO NEW JERSEY 83 Baltimore Glassboro 7 ment of Housing and Community Develop- 543 K. 800 Winchester J TP 7 Delaware N 68 MARYLAND Annapolis Bay WEST VIRGINIA Reston DELAWARE Cumberland T ment asked ULI’s Advisory Services Pro- Front Royal Arlington Washington D.C. 68 40 97 Fairfax Alexandria 1 95 22 13 7 gram to organize a panel of experts that could 140 Manassas Springfield Elkton 35 78 40 93 help identify redevelopment opportunities and Fredericksburg Havre de Grace 60 identify and address issues of concern regarding Westminster 26 9 Aberdeen 33 transportation for the Springfield area. The 213 Chesapeake 13 2 KENTUCKY Bay 135 28 Martinsburg NEW JERSEY OHIO Richmond 49 55 7 panel’s recommendations consist of a series of VIRGINIA 40

550 7 physical, organizational, and administrative ac- Bridgeton 18 70 695 Newport News 213 79 tions to implement a vision for Springfield. The Virginia Beach 25 73 Norfolk 28 Atlantic 2 16 50 553 28 7 purpose of this ULI panel report is the rebirth of Ocean Springfield, Virginia, with an emphasis on creat- TENNESSEE NORTH CAROLINABaltimore 50 50 ing a vibrant, economically viable place with a mix 50 93 of uses and public plazas where people may enjoy Location map. 301 300 20 259 Winchester 15 41 16 270 95 7 19 living, shopping, working, and recreating. 32 47 42 MONTGOMERY 119 8 68 7 28 62 55 97 213 250 55 55 Summary of Key RecommendationsLOUDOUN 73 47 7 Regional map. 32 295 32 23 32 16 To help execute this rebirth, the panel has sug- 267 50 Annapolis 219 Reston 14 259 gested a series of physical and procedural im- 50 28 DELAWARE 35 50 50 WEST VIRGINIA 81 404 provementsFront R thatoyal will allow the Springfield area to 28 214 41 reach its full economic and civic potential. Key fea- Arlington 220 Washington D.C. 33 33 Fairfax 1 125 66 113 2 tures of the522 panel’s recommendation include: 73 Annandale 9 FAUQUIER 495 93 FAIRFAX Alexandria • A civic strategy of increased awareness and 210 Easton 404 125 Manassas Springfield action; 29 123 301 259 41 35 1 18 PRINCE WILLIAM 52 20 • A new development policy to attract high- 16 4 234 20 10 28 1 7 quality developments; 95 28 229 10 2 62 79 Cambridge 119 340 • A new town plan for the center of Springfield; 15 Background 26 42 231 68 • Better local road connections among17 all the 4 11 50 20 250 Springfield is located in northern Virginia at the 59 quadrants of the study area, including a new 2 3 32 52 juncture of Interstate 95 and the Capital Beltway 1 19 bridge on Backlick Road over Old Keene Mill 235 16 Road; approximately 20 miles south of Washington, D.C. Salisbury 152 42 33 10 219 64 3 This area evolved from the early 1950s through 92 39 • A plan and strategy for nonroad public improve- 7 Ftheredericksburg mid- to late 1970s with the conversion of green 32 ments; and 12 3 fields into low-density3 , single-family residential

39 • A marketing approach that plays to the areas and strip shopping and services. The area 3 41 Staunton strengths of the community522 and the trends in became a principal301 crossroads before the construc- 60 20 152 60 208 3 the marketplace. tion of I-95 and the Capital Beltway. 13 10 39 Waynesboro 202 32 119 77 250 Springfield, Virginia, May 21–26, 2006 7 Kentucky 52 7 207 17 39 175 81 17 460 41 20 64 40 64 3 29 6 360 44 200 402 30 63 402 10 6 311 3 3 114 16 6 30 15 10 220 20 3 23 311 60 52 219 13 30 16 10 122 24

60 80 VIRGINIA 5 43 360

460 16 460 64 20 24 17 11 100 421 10 24 5 24 83 63

460 43 10 122 40 80 40

119 16 95 40 35 8 40 501 19 40 40 40 40 15 58A 220 29 46 11 221 35 58A 16 71 47 1 19 21

360 92 58 58 58 85 70 46 35

58 168 49 33

70 258 63 33 31 91 8 52 158 25E Tennessee 81 67 158 11W 704 158 77 81 311 305 18 561 32 561 93 301 321 NORTH CAROLINA 501 17 23 87 49 33 601 15 92 401 561 13 107 421

19E 85 58 18 50 70 581 The Springfield interchange dominates the skyline in the study area.

As I-95 and the Capital Beltway evolved in the Bowl because it involves three interstates, has mid-1970s, Springfield’s location at the confluence two exits less than a half mile apart, has two un- of these arteries brought development of the connected roads going over or under one of the in- Springfield Mall, which elevated the area from terstates less than a half mile apart, and is further strictly neighborhood and community services to a complicated by the presence of a separate, re- regional shopping center. With the growth of de- versible high-occupancy-vehicle (HOV) lane pass- fense contracting from Fort Belvoir and the Pen- ing through the center of two of the interstates. tagon, Springfield’s residential, office, and hotel Major road projects have primarily concentrated market responded to accommodate demand. on moving traffic through Springfield, mostly at The continuing expansion of I-95 and the Capital the expense of local businesses. Beltway eventually turned what had been a posi- A suburb with a somewhat transient population tive condition for growth into a series of trans- and little local culture, what Springfield is and portation detriments for local businesses and how it fits into the larger suburban pattern of property owners. The almost continual construc- Fairfax County is difficult to explain to someone tion of ever more complex interchanges inhibited from outside the area. Military families are preva- new investment and eroded Springfield’s tradi- lent in the Springfield area because of its proxim- tional retail and service bases. Governmental solu- ity to nearby Fort Belvoir and the Pentagon. tions seemed to focus on solving present and fu- Springfield is characterized by a strip malls and ture regional traffic issues without considering retail plazas, stand-alone restaurants, and car how those solutions would affect the local neigh- dealerships. Some of them are quite old and have borhood and community retail and service centers. been remodeled repeatedly over the decades be- Springfield is dominated by the over half-billion- cause of their continuing economic viability. A pos- dollar Springfield interchange highway project. itive note is Springfield’s considerable popularity The interchange is popularly known as the Mixing for its affordable multiethnic cuisine, including

8 An Advisory Services Panel Report Chinese, Mexican, Afghan, Vietnamese, Thai, and Fort Belvoir Engineer Proving Ground (EPG)— Indian eateries. are less certain and required the panel to make various assumptions based on best available infor- Springfield’s emblematic destination point is the mation. The panel’s analysis makes clear that Springfield Mall, a large indoor shopping mall. It Springfield needs a serious planning effort and is typical of American shopping malls designed concentrated attention from the Board of Super- and built in the 1970s and remodeled periodically. visors if it is to reach its full economic, commu- The mall has a variety of stores, along with sev- nity, and civic potential. eral anchors, such as Macy’s and JC Penney, two sets of multiplex movie theaters, and a food court. The panel sees the Springfield redevelopment Springfield Mall is particularly popular with teen- area as two distinct zones: a regional center and a agers and the local Hispanic community. In recent town center. The regional center is located east of years, the mall has fallen behind other area malls I-95. Its large blocks of land are owned by a few in aesthetics and, to some degree, reputation. primarily institutional owners and include the shopping mall, office buildings, auto dealers, and The Assignment hotels, as well as big-box retail, multifamily housing, and entertainment uses. The area’s draw is The ULI panel met in Springfield for five days to regional in nature with patrons desiring goods and address a series of questions and concerns posed services available from national chains, big boxes, by Fairfax County. Two recent proposals to rede- and large entertainment venues. velop the older parts of Springfield have emerged. The first is the high-rise mixed-use development The town center is the west side of I-95, located called Midtown Springfield that fronts on I-95 in and around the community shopping area of generally on the location of the existing Spring- Springfield. This area draws patrons from the field Tower and Holiday Inn. The second is the immediate neighborhood and surrounding commu- renovation and rebuilding of the Springfield Mall nity for local goods and services. The large and di- as a mixed-use lifestyle center. Although the panel verse ethnic aspect of its shops, food, and restau- encourages most elements of KSI’s Midtown rants is perhaps its greatest untapped strength. Springfield development and the redevelopment Because the area is characterized by relatively of the Springfield Mall by Vornado, other potential small parcels owned by a large number of individ- economic drivers—such as the General Services uals, it will not emerge from its chrysalis all at Administration (GSA) site and Base Realignment once, but rather it will evolve over time through a and Closure (BRAC) proposal associated with the series of projects. The panel sees this area emerg- Existing retail in downtown Springfield includes many ethnic businesses.

Springfield, Virginia, May 21–26, 2006 9 ing as a traditional town center that becomes the retailing—mixing these vibrant ethnic restaurants, heart and soul of the Springfield community. food, and specialty stores with traditional neighborhood retailing and personal services. The panel The panel believes that Springfield has the poten- believes that the growing ethnic diversity pre- tial to reinvent itself as a distinct place within the sents a special opportunity to create a distinctive Washington metropolitan area and as one of the food-based marketplace, similar to that of Cham- area’s most affordable and desirable close-in com- blee, Georgia, that would attract customers from munities. Springfield is experiencing an influx of a the local area and ultimately become an excep- higher-income, ethnically diverse population of tional regional draw. east and west Asian and South American immi- grants. As the population mix has changed, so too has the nature of neighborhood and community

Springfield Plaza provides commuter parking for hundreds of cars.

10 An Advisory Services Panel Report Market Potential

he market potential for the Springfield area covering approximately 185 acres. This area is en- is strong. The panel took note of the basic visioned as serving both the town and regional market conditions in northern Virginia, com- centers within Springfield and comprises three T pared the Springfield area to similar areas subareas: North Old Keene Mill area, South Old in the region, and has identified some of the trends Keene Mill area, and North Old Franconia area lo- that should be leveraged to realize the economic cated east of the CBC. rebirth of the area. North Old Keene Mill. This area has approximately 110 acres and is situated in the northwest section Regional Context of the CBC, north of Old Keene Mill Road. Ap- With the completion of the massive reconstruction proximately 1.4 million square feet of commercial and expansion of the I-95/495 interchange project, space currently exists in this area, which is best Springfield is receiving new interest from residents described as older surface-parked shopping cen- seeking a shorter commute into Arlington and the ters, stand-alone banks, restaurants, garden District of Columbia, office users with government apartments, and older office buildings. The contracts, and commercial tenants wanting to serve Springdale/Richard Byrd Library is also located the increasing number of military and Department in this area. The development firm KSI is plan- of Defense clients based at Fort Belvoir. In the ning 1.24 million square feet of mixed-use develop- past decade, Springfield was not prepared to take ment on nine acres, with 968,000 square feet of advantage of these emerging business trends, so residential space, or about 800 apartment/condo- retail and office customers went elsewhere in the minium units; 87,000 square feet of retail; 40,000 metropolitan area. At that time, Springfield lacked square feet of office; a 160-room full-service hotel; good road access, available office space, and prox- and 6,000 square feet of civic uses. (For the pur- imity to clients. These circumstances have changed poses of this panel report, the ULI panel desig- recently, and the panel believes that the Spring- nated this area as the Northwest Quadrant.) field area is poised to capture much of the south South Old Keene Mill. This area has approximately Fairfax market. 60 acres and lies to the south of Old Keene Mill The study area consists of approximately 586 acres Road along both sides of Backlick Road and characterized primarily by industrial and retail Amherst Avenue. The area has approximately land use. Approximately 18 percent of the total 660,000 square feet of older retail and commercial land area is vacant. space, much of which is automotive related. This area was the most heavily affected by widening The study area has been described by Fairfax and realignment of Old Keene Mill Road, which County generally as separate areas: isolated access to the Springfield Plaza and Bland Avenue retail area. Fairfax County is considering • Springfield Community Business Center (CBC); a 1,000-car parking garage at Amherst and Old • Franconia/Springfield Transit Station; and Keene Mill to replace leased surfaced lots. (The ULI panel designated this area as the Southwest • Engineer Proving Ground. Quadrant.)

Community Business Center North Old Franconia. This is the smallest area, The Springfield CBC is located in the northwest with only 15 acres. This quadrant is located west quadrant of the study area, east and west of I-95, of I-95 between Commercial and Franconia roads

Springfield, Virginia, May 21–26, 2006 11 617 495 395

Quadrant map.

Northwest Northeast Road nconia ll Road Fra ne Mi Kee Old 644 Southwest Southeast Springfield Mall

GSA ld Park Site ngfie way pri -S nia nco Fra 95 d

a o

e l

s EPG Site i

and the northbound I-95 on-ramps. The area has present mall size to 2 million square feet. Plans approximately 440,000 square feet of commercial also call for 1 million square feet of office space in space characterized by hotels, a new banquet fa- towers on the edges of the mall; 2.8 million square cility, and older single office and retail uses. (The feet, or 2,400 units, of mid- to high-rise residential ULI panel designated this area as the Northeast apartments and condominiums; and a new 300- Quadrant.) room, full-service hotel. When complete, the total Franconia/Springfield Transit Station footage at the mall site will be approximately 4.58 million square feet. (The ULI panel designated The transit station is divided into the following this area as the Southeast Quadrant.) two distinct areas. South Transit Station Area. North Transit Station Area. This site is in the geo- This site is owned and graphic center of the Springfield Commercial Re- primarily occupied by the General Services Admin- vitalization District at the intersection of Frontier istration (GSA) with a small industrial park and Drive and Franconia Road. Primarily occupied by mid-rise multifamily housing on the fringes. Fair- Springfield Mall, the area has numerous big-box fax County’s Comprehensive Plan programs this tenants, including Home Depot, Barnes & Noble, area to accommodate a mix of land uses that, if Circuit City, and Bed Bath & Beyond. The mall is built, would total approximately 1.3 million square slated for a major renovation, repositioning, and feet allocated as follows: 1.1 million square feet for the addition of a lifestyle center, offices, residential research/industrial uses, 160,000 square feet for uses, and a hotel by its new owner, Vornado Re- hotel/conference center uses, 30,000 square feet alty Trust, a multibillion-dollar real estate invest- for office uses, and 10,000 square feet for retail. ment trust. Principally lifestyle oriented, 500,000 Other options include an ideal site for a medical- square feet of new retail space will increase the related use. GSA has been reluctant to relocate

12 An Advisory Services Panel Report its facilities to another site, which makes the time- Figure 1 line for eventual redevelopment of this site un- Comparable Mall Property Values known. (The ULI panel designated this area as the GSA site.) Assessed Value/Square Foot Engineer Proving Ground Office Retail The EPG is separated from the preceding areas Springfield $128 $173 and is situated to the east of the Newington Road/ Tyson’s Corner $185 $289 I-95 interchange. This facility is approximately 800 acres and is planned to accommodate approxi- Source: Fairfax County Department of Tax Administration, mately 6.1 million square feet, of which 3.5 million ULI Panel Briefing Book. square feet is planned for office use. All development on site, if it occurred, would be strictly for government use and most likely self-contained. side its boundaries. Only 1,800 persons, or 680 The panel felt that the topography and access is- households, live within the study area, with an av- sues would significantly limit the ability to use erage household income of $76,000. Ethnically, portions of the site for new buildings. Completion these households are approximately 50 percent of the Fairfax County Parkway by 2011 was also white, 14 percent African American, 22 percent questioned by the panel, but again, little informa- Asian, and 14 percent Hispanic. tion was available from the army and its consul- The demographics of the immediate area indicate tants at the time this panel was conducted. that demand is strong and income is growing. What is important to understand is that the GSA With the anticipated growth in population result- site and the EPG account for approximately two- ing from BRAC, incomes will continue to improve. thirds of the gross potential development of the This growth will place pressure on the older hous- total study area. The rest of the potential developing stock, likely increase pricing over time, and ment is to the north in the town and regional cen- will be a driver for increasing multifamily housing ters. Because the county does not control the na- units in the centers and fringes of the new town ture or the timing of the development of the GSA centers. and EPG sites, the panel recommends that the county seek a federal partnership to ensure that Information provided to the panel on Fairfax the infrastructure to accommodate the eventual County property assessments indicates that development of these sites is in place. Springfield Mall declined by 5.5 percent in assessed value between 2000 and 2005. The same information also indicated that assessments for Competitive Conditions neighborhood and community retail and service The study area’s competitive market area—the uses within the study area declined, but by 10.8 area in which similar areas compete against other percent, nearly double the decline of the mall over market areas—is defined as the Southeast Fairfax the same period. The study indicates that Spring- County market. field Mall is the county’s second-largest regional mall in terms of revenues, although assessed prop- Demand in Springfield already exists. It is strong erty values were below market for comparable re- and growing stronger. No question exists that gional malls (Figure 1). Springfield can support higher-quality and more specialized uses. According to the Fairfax County The study also noted that the average value per Tax Increment Financing (TIF) Study, Springfield square foot of in-line retail space at Springfield is one of the most affordable areas within one of Mall does not command rental rates comparable to the wealthiest counties in the nation. Population other Fairfax regional malls. The per foot value of of the study area is not currently a reliable predic- Springfield Mall is $77.47, or 33 percent less than tor, because virtually everyone who uses the the average of three comparable malls in Fairfax study area’s retail and other services resides out- County (Figure 2).

Springfield, Virginia, May 21–26, 2006 13 Figure 2 Competitive large-scale shopping, office parks, Comparable Retail Rental Rates and mixed-use centers are considered the primary competition to Springfield as a whole. Springfield Rent per enjoys the advantage of its location at the conflu- Mall Square Foot ence of major arterials, Metro, and regional train and bus lines. Once considered “far out,” its loca- Springfield Mall $157.48 tion is now “close in.” Although Springfield has Tyson’s Corner Center $215.69 significant competition from Tyson’s Corner, the Dulles area, and even communities farther away, Fair Oaks Mall $200.17 it has benefited from the growth of new centers to the south and east. Significant new competition is Tyson’s Corner $289.00 planned in the metropolitan area (Figure 3). Average without Springfield $234.95 The panel considers that the best way to capture Source: Fairfax County Department of Tax Administration, the growing affluent market and change the per- ULI Panel Briefing Book. ception of Springfield is to take what had been seen as problems and turn them into opportunities. The half-million cars that daily pass the study Barriers to entry for new regional malls and shop- area are potential patrons. The large and diverse ping centers are extremely high in the metropoli- ethnic population presents an opportunity to cre- tan area and have created a significant opportu- ate a shopping district that celebrates and concen- nity for redevelopment of the Springfield Mall by trates these commercial assets into a “marketplace” a well-capitalized owner with vision and experi- that is locally and regionally identifiable; however, ence. By leveraging off the adjacent power cen- the devil is in the details of implementation. ters, offices, hotels, and residential areas and adding additional density, activities, and market segments, the mall’s new owners can catalyze the creation of a highly definable and visible regional center. Springfield Mall is not only well located at the intersection of 500,000 daily passing vehicles, but also it can become the shopping locus for the surrounding residents.

Figure 3 New Mixed-Use Centers in the Washington, D.C., Area

Main Mixed Residential Retail Office Hotel Name Acres Street Use (Units) (Square Feet) (Square Feet) Rooms Madison Crescent 43 yes yes 200 124,000 250,000 120 Potomac Center 95 yes yes 433 650,000 200,000 Lansdowne Town Center 24 yes yes 207 188,000 700,000 Falls Church 22 yes yes 400 99,000 200,000 Midtown Springfield 9 yes yes 800 87,000 40,000 160

Source: City Center Update, City of Falls Church, Virginia, September 2005, and Costar Comps Professional, Spring 2006.

14 An Advisory Services Panel Report Planning and Design

urrently, Springfield exists as a place-name street, or in lots, and then walk. In either center but not as a place. It is unincorporated and they should be able to stroll down decorated has no recognizable boundaries, no compel- streets and sidewalks laced with benches, distinc- C ling history, and little authenticity. tive banners, kiosks, artworks of all kinds, gathering places with fountains and water features (the Creating a Sense of Place “springs” of Springfield), and trees—the fine details, spatial quality, and amenities that make Perhaps the most important element to create an places and create distinct identities. The town image that defines Springfield in the minds of pa- center should have a town square as its central trons and the region at large will be a strong iden- gathering place for civic celebrations, festivals, tity that brands Springfield as a special place in and programmed events that enliven it and re- the region. Most northern Virginia communities inforce the sense of Springfield as a distinctive generally have a similar appearance, feature the environment. same design elements, and use the same materials. Distinct architectural images are necessary to To be successful as retail locations, each center differentiate the regional center from the town must supply goods and services that are distinct center. Springfield should, as one of its organizing from those the other offers. The regional center principles, create its identity with strong visual should be limited to primarily regional-destination iconography, which the panel calls “by design and goods, services, and entertainment typically avail- with design.” The panel encourages the use of new able only from national retailers and service providers. In contrast, the town center should focus architectural icons and styles, especially for devel- its offerings on neighborhood and community goods opment in the regional center east of I-95. Use of and services typically available only from indepen- more “historical” themes, traditional spatial char- dent and small mom-and-pop retailers, ethnic food acteristics, and materials should be reserved to establishments, and personal service providers. create the form for the town center. Scale, density, and form should be the harmonizing elements with The panel sees a particular opportunity for Spring- the surrounding residential areas. field to celebrate its diversity by concentrating its many ethnic restaurants, food stores, and imported Access plays a key role in both the regional and specialty goods in the town center. Restaurants the town centers. The regional center will be and food markets should feature the multiethnic accessed primarily from regional highways and cuisines, styles, groceries, and specialty crafts transit, whereas the town center will be primarily and goods of the local populace. Sidewalk cafés accessed from surrounding neighborhoods by au- and coffee and tea shops as well as quiet bars, tomobiles, bikes, and pedestrians. Pedestrians galleries showcasing multiethnic arts and crafts, have only one opportunity to cross I-95—on Com- clothing boutiques, and specialty uses—as well merce at the center of Springfield. Pedestrian ac- as hardware stores, plant stores and nurseries, cess, while a goal, should be looked upon as prac- cleaners, and banks that support the neighbor- tical only within each center rather than between hood and community—should line the streets. them. After arrival at either center, a strong Such a concentration of uses would be similar pedestrian orientation is essential to reinforce the to a “Chinatown.” look and feel of being in special people places. Al- though most patrons to both centers will likely One of the best examples the panel found to arrive by car, they will park in garages, on the illustrate this idea was the transformation of

Springfield, Virginia, May 21–26, 2006 15 Springfield to become known as a regional place of excellence in which to do business and to host cultural gatherings, exhibits, and activities. The conference center should not compete with existing businesses but cater to corporate, civic, and cultural functions that are communitywide and regional in nature. More information about this approach is included in the Implementation section of this report.

Both the town and regional centers should contain a variety of for-sale and rental residential products, from upscale condominiums for empty nesters to lofts for young professionals, to multifloor apartments and townhomes that appeal to all segments of the local and regional market. Ground-level commercial space with living space above will appeal to those seeking active urban lifestyles. Be- Panelists Don Bauer and Chamblee, Georgia. That community was typified cause the population is aging, accommodation of Ross Tilghman on the by several strip centers that failed after a large seniors in immediate proximity to the centers tour. shift in the ethnic makeup of the area. Turning a should be planned. The centers should engage and problem into an opportunity, strip centers evolved embrace people of all cultures, heritages, and ages into a dense concentration of Asian restaurants, to be vital and to enjoy as gathering places. food markets, greengrocers, specialty goods, and If well planned, designed, and executed with de- crafts. Additional information, including strate- tail and high quality, the dynamic mix of uses and gies, demographic trends, and marketing, can be activities can create a heart and soul within an obtained from the ULI InfoPacket Series titled area that historically had no “there, there.” All of Ethnic Retail (No. 3002, July 2005). this change will take time and require the deter- Both centers must contain a common theme of mined cooperation of government and business. water to reinforce Springfield’s image of “springs,” Both leadership and certitude that government for which the original community was named. This will get it done in a quick, cooperative manner imagery should also be used in all communications. that transcends political administrations are es- Fountains and water features should be integral sential. With both the public and private sectors to pedestrian environments and visible to cars on investing millions of dollars in building and infra- local streets, the interstate, and public transit. In structure, both sectors should look at the revital- addition to incorporating water as art, Springfield ization as a marriage to which each brings one-half should be known as the only area that integrates of the relationship. Both sectors need to be com- large-scale public art in high-density development mitted to investing in the relationship so that it throughout both publicly and privately developed works well and lasts a long time. The panel hopes spaces. Art in all its forms engages residents and Fairfax County will take a proactive lead with visitors and is an icon of Springfield that lays the generous investment in time, land assembly, and foundation of the community as a place that cher- infrastructure and a new form-based approach to ishes a high-quality lifestyle of beauty and ideas. zoning that achieves excellence with all development partners by design and with design. A four-star conference center or perhaps a civic center needs to be woven into the community Overview and Context fabric. Such a use will stimulate and support redevelopment of the business environment to Although community involvement exists with higher-quality offices and hotels that will enable some revitalization efforts, the panel’s opinion is

16 An Advisory Services Panel Report that a civic vacuum remains, with little leadership, Branding organization, and participation from either resi- Commercial product branding has evolved over dents or merchants. From a spatial perspective, the last 200 years to a fine art. Everyone knows the development is fragmented, with disparate the Coca-Cola or Nike brand. Community brand- uses and property ownership as well as incom- ing is analogous to product branding as a process plete and incoherent circulation patterns. Devel- of creating the perception in the minds of the pub- opment has no shared architectural vocabulary lic that a product, or in this case the community, is or meaningful skyline and is characterized by a the best to serve a specific need and desires of an prevalence of hard surfaces and a complete lack individual or group. The goal is to evoke instant of visible natural areas and other community recognition of the benefits of the community in amenities, such as water features. Thus, attempts the public eye. to beautify and revitalize the “downtown” with The branding process must differentiate Spring- such things as pavers, lighting, and signage, al- field from every other retail concentration in the though well intentioned, still result in an area area. Principles of branding include establishing that continues to be featureless. and identifying the qualities of the community To redress these problems, the panel recommends using an “umbrella” concept. The umbrella con- changes that can unify the area and create a dis- cept establishes the overall feel and recognition tinct and attractive community. These changes in- within a master identity system, but it often include recommendations on governmental struc- cludes districts that are distinct and individual ture, leadership and responsibility, infrastructure, while continuing to reinforce the overall identity. branding and identity, and plan revisions. Each shopping neighborhood should be distinct and allow shoppers to determine where they are Development Objectives but bind them back to the overall theme. Signage, public art, advertising, wayfinding, and public The panel thinks the county has correctly identi- open space should all relate to the umbrella theme. fied the challenges facing this area. The objectives that follow are steps needed to address Branding is a specialized and complicated process. those challenges. It cannot be done on a shoestring budget by the lowest bidder in a field of local advertising com- • Unify the area. panies. It requires intense research, artistic apti- • Create a distinct and attractive community. tude, and sustainable funding. It also needs buy-in from the community that is going to use it in the • Develop coherent community circulation. long term. The panel suggests that the county research successful branding exercises and then ini- Development Principles and Guidelines tiate and implement the branding development process. The planning proposals (see Plan Essentials) ad- Landscaping Design dress how to develop continuity in circulation and land use throughout the study area. Remaining As noted earlier, the panel saw a complete lack of objectives are to unify the area and create an at- landscaping and water features within the study tractive community environment. area. Also, the paucity of public and private open space, public art, attractive hardscape, and ap- Elements that can be used to create a distinct pealing entry features affected the panel’s space identity and unify the disparate properties to perceptions and sense of proportion and scale. create a “sense of place” include (a) branding, The absence of these elements results in a lack of (b) landscaping, (c) wayfinding, (d) visual relation- congruency and a feeling of emptiness and leaves ships, (e) guidelines and controls, (f) public spaces Springfield undefined, so that a visitor cannot eas- and amenities, (g) pedestrian and nonvehicular ily tell if he or she is actually entering or leaving circulation, and (h) infrastructure. Springfield. To address this deficiency, the panel

Springfield, Virginia, May 21–26, 2006 17 Form-Based Codes

Form-based codes address the relationship between building facades and the public realm, the form and mass of buildings in relation to each other, and the scale and types of streets and blocks. The regulations and standards in form- based codes, presented in both diagrams and words, are keyed to a regulating plan that designates the appropriate form and scale (and, therefore, character) cial meaning for Springfield because the panel be- of development rather than distinctions only in land use types. This focus is in lieves visitors have great difficulty finding their contrast to conventional zoning, which addresses the segregation of land use way around the study area. types, permissible property uses, and the control of development intensity People who find themselves in unfamiliar environ- through simple numerical parameters (e.g., FAR, dwellings per acre, height ments need to know where they actually are in the limits, setbacks, parking ratios). Not to be confused with design guidelines or complex, the layout of the complex, and the loca- general statements of policy, form-based codes are regulatory, not advisory. tion of their destination so they can formulate Source: Definition of a Form-Based Code, June 27, 2006, Form-Based Codes Institute, their action plans. En route to their chosen desti- www.formbasedcodes.org/definition.html. nations, people are helped or hindered by the building’s architecture and signage. The physical environment, including the effect of how users recommends significant physical changes within perceive the wayfinding system, is extremely in- the study area. fluential in determining whether someone identi- fies the location positively and therefore returns Water Features. In addition to encouraging indi- or suggests that others visit the location. vidual private developers to incorporate fountains, ponds, and lakes within their developments, Wayfinding is not signage, although signage is an the county should undertake the analysis, plan- important part of wayfinding. Wayfinding strate- ning, and construction of a water features pro- gies should include identity signage, directional gram for public properties for all of Springfield. signage, vehicular and regulatory signage, banner These features should include simple fountains systems, boundary markers, pattern character, and urban streams or basins but could also include and maps. Wayfinding also includes a process of an iconic feature that would draw visitors and visual relationships, use of landmarks, and knowl- help establish the branding identity previously edge of site organization. The county has an excel- mentioned. By way of example, the panel suggests lent opportunity to create a consolidated and con- a water feature similar to the Crown Fountain in sistent wayfinding system on both sides of I-95 by Chicago or the Bellagio fountain in Las Vegas. encouraging land use applicants and property Public Art. Public art should be combined with owners to collaborate on a common theme. Future the water feature program as another method of revitalization efforts, including the public square building identity into Springfield. In numerous at Springfield Plaza and the redevelopment of the cases, municipalities have acquired public art GSA site, can incorporate the same system of through competition processes. All public open wayfinding. spaces and most private open space should include Guidelines and Controls public art. Public art could include elements of off- A fine balance always exists between encouraging site advertising, but, at a minimum, should be in- and requiring good design. The urban design cluded in all entryways and other common public guidelines for Springfield should include a healthy spaces, such as bus stops, crosswalks, and informal mix of building types, architecture, and signage gathering areas. The county should enforce stan- and streetscape elements. The county should im- dards for lighting, colors, and generalized content, mediately undertake a design guideline exercise but an arts forum or arts advisory council specific for Springfield. One way of implementing the to Springfield should determine and establish branding, landscaping, and wayfinding mentioned standards. in previous sections can be through a form-based Wayfinding code. Form-based codes are a method of regulat- Wayfinding is a process during which people must ing development to achieve a specific urban form. solve a variety of problems in architectural and Form-based codes create a predictable public urban spaces that involve both decision making realm by controlling primarily physical form, with (formulating an action plan) and decision execut- a lesser focus on land use, through city or county ing (implementing the plan). Wayfinding has spe- regulations (see box).

18 An Advisory Services Panel Report Although the county has no zoning control over Circulation should be used to activate open space, U.S. government properties, the federal govern- not just as a connection to essential uses. Bike- ment (GSA and army) should be encouraged to co- ways and bike lanes should be part of any new de- operate with the county on design, particularly at velopment, and the new bridge proposed for Back- locations with high visibility, such as the GSA site lick Road should provide convenient connectivity and EPG. between the Northwest and Southwest quad- Public Spaces and Amenities Program rants. Specific areas should be designated for bike storage (including lockers) at transit locations, the A significant piece of the urban and community mall, the town square, and all new private devel- fabric that is missing from Springfield is public opment within the confines of the study area. open space. The panel recommends a number of basic steps to improve public open space in Spring- field. These not only should be quantitative but Plan Essentials also should include all the qualitative aspects that Overall strategies for urban design should make open space the key factor in improving the social intercourse in a community. • Calm and reroute traffic to create pedestrian- friendly local streets; First, a town square should be created in the Northwest Quadrant. This square should be sub- • Incorporate public amenities and open spaces; stantial (approximately one to two acres in size) and should be designed as a primary gathering • Seize opportunities to improve and clarify ve- point as well as terminus or bookend of the new hicular and pedestrian circulation; street connecting Springfield Plaza with the KSI • Create developable land parcels; development. The space must be able to accommodate events, festivals, and celebrations. The • Improve street and pedestrian connections; square should be designed to accommodate sus- tained activities and should include such amenities • Use tall buildings to create a community skyline as a robust electrical connection system for per- identity; formances and water service for farmers markets, • Develop landscaping to soften and humanize the restroom facilities, and a substantial water fea- area; and ture. A centerpiece for the square should include a substantial structure, such as a band shell or • Create active streets with community character. bandstand-style gazebo. The square needs to be a “people place.” The adjacent development should Although each of the five districts in the study include a relocated and improved library. Uses area will carry its own design criteria, two areas that front on the square should be oriented in a are covered by this panel report. manner that reflects the square as a centerpiece Northwest Quadrant for the quadrant. Finally, new development in the The Northwest Quadrant should unite around area should be consistent with the intent of the two emblematic areas: the KSI Midtown devel- public square as the new center of Springfield. opment and the proposed town square in Spring- Additional public spaces should be located in each field Plaza. The two areas should be connected of the quadrants, including a substantial connec- by a new main street (currently Bland Avenue), tion across Loisdale Road from Springfield Mall. and a new bridge for Backlick Road over Keene Mill Road should be paired with the existing Pedestrian and Nonvehicular Circulation bridge over Amherst Avenue to form a couplet Key features of a successful pedestrian system are moving one-way traffic through the core area of continuity, sufficient sidewalk width, through the quadrant. streets, safety, and lighting. Where appropriate, separation should be provided between heavy The Midtown development should be dense and traffic corridors and pedestrian thoroughfares. urban and should transition along a new main

Springfield, Virginia, May 21–26, 2006 19

e a

o u

i A

r a

h m

Town Square A Suggested design for the Northwest Quadrant.

Midtown e Springfield venu A d n

New bridge over Old Keene Mill Road ill Road eene M Old K

street to the more villagelike town square. The di- bility factor across Amherst Avenue and Backlick viding line between urban and village should be Road along Bland Avenue. Finally, Bland Avenue the Amherst/Backlick couplet road. The scale and should be renamed with a more exhilarating and style of the town square should re-create a village stimulating moniker. or old town with abundant green space, water fea- Southeast Quadrant tures, and a connection through the old shopping center area to the Cumberland Avenue area and Vornado is proposing to reinvent Springfield Mall. single-family residential area beyond. Uses Although the panel was impressed with most of around the town square should include 14- to 16- the development changes proposed by Vornado, foot-tall ground-floor retail, second-floor office or more could be done to connect the site with the residential, and at least one civic use—such as the nearby commercial properties on Loisdale Road relocated public library, a band shell/gazebo, or a and more could be done on site to make the mall community center. The main street connection to work better. While the Vornado proposal will act midtown should include abundant green space, as a catalyst to other properties in the area rede- wide sidewalks, and retail uses. KSI’s Midtown velop, the county—through its previously men- Springfield proposal should include significant tioned branding, landscaping, and wayfinding ini- street-level activity. The panel believes the main tiative—should strengthen the boundary markers challenge to creating this new space is the walka- and entranceways with green space and civic art.

20 An Advisory Services Panel Report Additionally, a new civic center, or alternatively a conference center, should be considered for the of-

oad fice area across from the mall on Loisdale Road. A ia R ncon common complaint of suburban communities is Fra that residents, schools, and employers often have

to host their events (graduations, tournaments,

F r annual banquets, corporate meetings) outside the o n t ie community because of lack of appropriate facilities r D r iv within the community. Most hotels are reluctant e to construct meeting facilities that exceed 10,000 to 20,000 square feet of such space. Private entre- preneurs are similarly reluctant to offer such facilities. Springfield Mall

A properly designed and operated community civic complex, containing 50,000 to 100,000 square feet of space capable of accommodating events at- tended by 6,000 to 8,000 individuals, can be a tremendous asset for a community. If the architec- e v i r

D ture is distinguished and if the facility is properly e l

d located so it is integrated with other public and s i o e L riv D mall commercial facilities, the community complex can Spring be a source of continuing pride and use to a community. Although it would serve community interests, especially on the weekends, it would also be way ld Park capable of accommodating a wide variety of busi- pringfie onia–S ness groups and association meetings. An inter- Franc esting architectural design, with well-conceived facilities and access to interesting experiences (town centers, lifestyle retail, and visitor attrac- Suggested design for the tions) can be a compelling and sufficient reason Southeast Quadrant. for meeting planners to consider holding one- to three-day meetings in Springfield. These meet- Office buildings along Loisdale Road ings offer additional opportunities to showcase provide both redevelopment and Springfield in a new and different manner. This rehabilitation opportunities. community complex should be considered in addition and complementary to the existing banquet facility in the Northeast Quadrant. The panel believes that such a complex is appropriate for Springfield. Although costly to construct and operate, the concept should be discussed and debated. Such facilities are reemerging as a market niche. Some are being paired with adjacent hotels, and cross-management operating agreements are negotiated for operations of the complex.

Springfield, Virginia, May 21–26, 2006 21 Transportation

ransportation is normally a component of local streets, such as Loisdale, Franconia, and Old the planning and design recommendations in Keene Mill roads. Another forthcoming project most ULI Advisory Services panel reports. will connect Franconia/Springfield Parkway to T Springfield, however, presents so many sig- I-95 to and from the north. This connection will nificant transportation challenges that the panel allow some traffic now using Franconia/Old Keene felt strongly that transportation should stand Mill and Backlick roads to shift farther south, alone as a major topic. using I-95 and reducing through traffic in the core commercial area.

Context The panel’s transportation specialists agree that Springfield has contributed greatly to improving they would customarily plan a transportation sys- regional transportation by accommodating major tem to support proposed land uses. Roads, paths, highway and transit facilities. As a result, its resi- and transit can be quite flexible in adapting to specific land use requirements. In some cases, dents and businesses benefit from a high level of however—and Springfield is one of them—a access to other parts of Fairfax County, northern basic transportation network needs to be defined Virginia, and the District of Columbia. However, in advance to foster better-quality redevelop- the scale of transportation infrastructure over- ment. A large percentage of development in Fair- whelms portions of the local community. As the fax County has been fairly low density, involving early highway crossroads expanded, they con- new construction on greenfield sites. However, sumed land used by small-scale commercial devel- redevelopment in Springfield will undoubtedly be opments, severed existing connections between denser and more urban because of its location as neighborhoods, blocked potential connections, and a transportation hub, market demands, and exist- grew to become the dominant image of Spring- ing physical and land use constraints. Thus, even field. Springfield also suffered traffic congestion without knowing the specific land uses, the county as it funneled traffic to I-95 on local streets such needs to create a more efficient and effective as Backlick Road as alternate routes to reach the transportation network. I-495 Beltway. Springfield has shouldered more than its fair bur- Large interchanges, complex ramp systems, high den for the sake of regional transportation. Al- volumes of traffic, and fragmented streets create though not without benefit, the regional improve- substantial barriers to movement within the com- ments have come at a high cost to building and munity, especially for pedestrians and bicycles. Al- rebuilding the local community. The panel’s trans- though Springfield enjoys a high level of transit portation recommendations address ways of cap- service from Metro and Virginia Railway Express turing the benefits while also overcoming the im- (VRE) and their supporting bus routes, the trans- posed burdens. portation barriers complicate access to the Metro- rail station. The panel made a number of observations con- cerning the existing transportation network in Ongoing transportation projects are helping to im- the study area. Within the study area—with few prove highway operations. These in turn will ben- exceptions—area streets function as highways, efit local streets. The Springfield interchange major arterials, or driveways. Little difference ex- project, nearing completion, has already improved ists in terms of speed, design (width, landscaping, traffic flow on I-95 and has reduced backups on and lighting), or volume to distinguish one street

22 An Advisory Services Panel Report The Franconia/Springfield Metro station is a multi- modal transit center with passenger rail, Metro, bus, and vanpool service.

from another. Grade-separated and high-volume Auto dealerships line the roadways create major barriers in the middle of Amherst Avenue corridor. the community: I-95 sharply divides the east and west portions; Franconia Road’s “great wall” separates the north from the middle; and the Franconia/Springfield Parkway seals off the middle from the south (and the Metro station). Pedes- trian walkways are remote, sparse, and intimidat- ing. Many barriers are simply unwalkable. Bicycle paths and routes do not exist in many key areas. Drivers face many decisions about lane choice in order to navigate from east to west and from north to south. Discontinuous streets force multiple turns (the Amherst/Backlick transition from one-way to they create a poor image. They can and should be two-way flow is an example). better.

On those streets that are continuous, name The panel was fascinated with the commuter changes diminish their continuity (Franconia/Old “slug” process, a quasi-formal carpool system op- Keene Mill, or Loisdale/Commerce). This system erating throughout most of the Washington, D.C., complicates signage and creates confusion. With area. The slug system allows drivers to take ad- the exception of the Amherst Bridge, streets, vantage of the HOV lanes by picking up “slugs,” walls, overpasses, and stations are harsh, barren, or passengers, in an ad hoc fashion. This process and unattractive. Given their dominant presence, has been operating successfully in Springfield for

Springfield, Virginia, May 21–26, 2006 23 Commuters crossing a term, as the study area develops, the county will dangerous section of Old need to revisit this possibility, especially south of Keene Mill Road on their the Franconia-Springfield Parkway near EPG. way to the “slug” line. Because of the heavy use of the Metrorail system in peak periods, the Washington Metropolitan Area Transit Authority (WMATA) should seri- ously consider adding more Springfield-related commuter bus service to maximize the areawide advantages associated with the existing HOV network serving the community. The quality of VRE commuter-rail service to and from the study area could be vastly improved if a dedicated rail right- of-way could be acquired from CSX and property more than 30 years. Although the slug concept is was available for a new station site. well accepted and effective in encouraging HOV use within Springfield, the lack of control of Transportation Principles pedestrian movements across arterial streets between official park-ride facilities and unofficial Given its observations, the panel recommends slug pickup sites creates a major safety issue. these principles to guide development of the transportation system: The current plan to build a commuter parking facility on the south side of Old Keene Mill Road is a • Create a hierarchy of streets to serve both local very sound idea that the panel encourages. The and regional trips, using all modes of travel. “level of service” rankings of the major arterial • Increase continuity and connectivity of local streets within the study area, especially in peak streets. periods, are generally poor—typically E or F. Be- cause major changes in this street network are • Maximize opportunities for HOV and non- generally physically impossible or difficult to auto use. achieve and the study area will become more urban in the future, the county will have to contin- • Provide signage to improve wayfinding and uously manage this situation to support desired local identity. new development initiatives. The Metrorail sta- • Focus on appropriate services for identified tion is the study area’s most important transporta- transit markets. tion facility/opportunity and its use must be continuously promoted and encouraged. • Improve appearance of transportation facilities (roads and transit)—they can and should be at- The growth of the interstate highway network in the tractive features. study area has had serious negative development- related effects over the past decade. However, with Furthermore, Metrorail and VRE service are the completion of the Springfield interchange proj- important for residents heading out of, and for ect, Fairfax County must take maximum advan- employees heading into, Springfield. Such ser- tage of the improved operation of the interstate vice is also important for hotel guests with busi- system to attract new residents and to market ness in Washington, D.C., according to local hotel aggressively the new Springfield brand/image to operators. Metro’s regional experience shows interstate users. that in suburban areas such as Springfield, residential land use tends to make the greatest use The panel evaluated several bridge-crossing op- of transit—more so than offices. tions for I-95 to accommodate improved east-west circulation. The panel concluded that while such Achieving high levels of rail use among residents crossings were not a high priority in the short requires that housing be located within one-half

24 An Advisory Services Panel Report mile of the station, and preferably within one- tions on Amherst, creating even longer backups quarter mile. Similarly, offices must be located than occur today. within a short walk (or shuttle ride) of the station to achieve 10 percent or more transit use. The one-way scheme may provoke controversy in Pedestrian walks linking nearby development principle, but the seriousness of the quadrant’s with transit stations should be ample, convenient, traffic circulation problems warrants its careful and safe. Locations farther away can be expected examination. Accordingly, the panel recommends to attain lower transit use, assuming reasonable that the county undertake local traffic modeling to bus connections. determine potential demands more precisely and to test the recommendations. This model should In addition to proximity to transit, paid parking at provide sufficient detail on local streets to provide the worksite is frequently a major determinant of meaningful results. The recommended “couplet” transit use. Where parking costs more than tran- of one-way bridges would also serve the following sit fares, transit use tends to be high, and where purposes: parking costs less than fares or is free, transit use is low. • Increase connectivity between the Northwest and Southwest quadrants; Travel Demand from New Development • Add needed capacity without having to widen The Springfield Mall and Midtown projects pro- streets; posed for Springfield could create 1 million square feet of new office space, more than 500,000 square • Increase continuity on Amherst and Backlick, feet of new retail, 160 new hotel rooms, and 3,200 which are already one-way streets north of the new housing units. Market opportunities appear study area, eliminating the forced turns at strong for additional mixed-use development. On Cumberland Ave; the basis of these projections, the panel recommends the following for transportation. • Reduce turning conflicts and simplify signal timing—this in turn reduces wait time for Northwest Quadrant pedestrians (e.g., pedestrians often wait more This quadrant contains several key arterial road- than two minutes to cross Amherst today); and ways, as well as a confusing local roadway network that needs to be modified to serve new develop- • Offer two bike lanes connecting north and ments. The recent enhancements to Commerce south. Street as part of the Springfield interchange proj- The estimated cost of this project is $5 million to ect will help facilitate the movement of morning $6 million in 2006 dollars. peak traffic to I-495 North from Old Keene Mill/ Franconia Road. Commerce Street also provides Additionally, the panel recommends a new grid of high-quality loop road operation on the northern local streets to serve the Northwest Quadrant. edge of the quadrant. These new streets would:

The panel’s major recommendation is to build a • Better distribute traffic from arterial streets to second bridge over Old Keene Mill Road on Back- local streets to reach new homes, shops, and of- lick Road and for Backlick and Amherst to oper- fices, helping to separate through traffic from ate as one-way streets through the commercial local traffic; area. Although a one-way system has been a poor solution in many communities, the panel believes • Create enhanced pedestrian circulation; that the Northwest Quadrant will need additional street capacity to support potential development. • Support mixed-use development by creating Without extra connections, too much demand is more-accessible vehicular and pedestrian likely to be concentrated at one or two intersec- routes; and

Springfield, Virginia, May 21–26, 2006 25 The GSA warehouse is strategically located adjacent to the Metro station.

• Enhance transit access by giving shuttle/circu- Southeast Quadrant lator buses greater proximity to the sources of The transportation system enhancements in the demand in homes and offices. Southeast Quadrant are primarily focused on improving the local arterial street system to provide Southwest Quadrant more of a grid pattern and better direct connec- Transportation improvements proposed in the tions between the peripheral areas surrounding Southwest Quadrant are similar to those proposed Springfield Mall and the mall. The bulk of the spe- for the Northwest Quadrant, including continua- cific roadway improvements should be finalized tion of the one-way bridge-couplet operation to as the new mall area is revitalized. However, as the current point of intersection of Amherst Ave- part of this revitalization process, making ade- nue and Backlick Road, south of Old Keene Mill quate provisions for facilitating improved pedes- Road, and modifications to the local street net- trian, bicycle, and shuttle/circulator bus circulation is important. work to improve east-west traffic flows within the quadrant. The major change will require moving GSA Site the Springfield United Methodist Church parking The transportation-related opportunities associ- lot from the west side to the east side of the build- ated with this site are directly related to its prox- ing and purchasing some commercial properties imity to the Metrorail/VRE facility; however, the along Amherst Avenue. current difficulty in accessing the facility from a security and environmental perspective limits fu- In addition, the panel recommends providing the ture use potential. Hence, the provision of high- proposed commuter garage on the Circuit City quality vehicular (auto/shuttle bus), pedestrian, site, with applicable access considerations. and bicycle connections to GSA and the Metro

26 An Advisory Services Panel Report must be given priority. This connection can be ronmental issues within the parkway right-of- provided primarily by extending Frontier Drive way have been resolved. south to the Loop Road within the transit facility site. This connection, most likely a four-lane di- • Extension of Metrorail. To maximize the usage vided roadway, will have to be designed to prop- of Metrorail by EPG employees, the panel rec- erly cross the existing stormwater retention area. ommends that the Metrorail system be ex- tended south, in the existing railroad right-of- In addition, separated pedestrian and bicycle ac- way, to an area adjacent to Fairfax County commodations should be provided on this roadway Parkway. The inclusion of a parking garage with extension. at least a 5,000-space capacity, which will also As the Frontier Drive extension enters the serve commuters coming from the south and Metrorail/VRE station area, a short portion of going to other locations in the region, would be the existing roadway will have to be converted appropriate. The panel recognizes that this from a one-way to a two-way operation; additional process is a complicated regional project and right-of-way appears adequate to accommodate this will hinge on the final plans proposed by the enhancement. In addition, a traffic signal will need U.S. Army. to be placed at a T-intersection with the Metrorail • Shuttle-bus service. The various entities to be loop roadway to accommodate left turns to the located within the EPG need to develop a pro- Metrorail/VRE facility. No Frontier Road trips gram to collectively provide shuttle-bus service should be routed through this critical Metrorail/ between the new Metrorail station and applica- VRE internal road system. ble buildings within the EPG. The missing section of the planned Loop Road on the GSA site should be completed as soon as possi- Areawide Public Transit ble. As the proposed site development occurs, the Recommendations capacity of this Loop Road will have to be increased (probably to four lanes) to accommodate The panel makes the following recommendations the resulting increased vehicular traffic. with respect to transit. Short Term: Shuttle/Circulation Bus Services Engineer Proving Ground Currently, WMATA, Fairfax County, and the Transportation Association of Greater Springfield When the scale and scope of the EPG program as provide relatively extensive collector and shuttle- a result of BRAC is known, the following trans- bus services within the Springfield study area. As portation initiatives should be undertaken: new developments are built within the study area, • Completion of Fairfax County Parkway. Cur- Fairfax County will have to evaluate how these rent plans for the design of the remaining two- services should be modified to better serve new mile section of the Fairfax County Parkway and markets that will be generated by these develop- proposed interchange(s) with EPG will need to ments. At some point, these modifications will re- be revisited to adequately reflect the new esti- quire additions to current bus fleets. Hence, ade- mated volumes of vehicles to be generated. quate lead time will be required to make sure These estimates should assume that approxi- funds are available to purchase the necessary mately 15 percent of the employees will use equipment and provide the additional services. public transit. In addition, assuming that the Suggested areawide shuttle/circulation services number of projected employees will be quite include the following: high—up to 18,000—at least two entrances to EPG should be provided, one off Backlick Road • Between Southeast Quadrant and Metrorail and the other directly connected to the park- station. Within the quadrant, adequate bus way. Construction of the remaining parkway stops need to be provided to serve mall patrons section should begin as soon as the current envi- as well as new office and residential complexes.

Springfield, Virginia, May 21–26, 2006 27 A separate shuttle service should be considered design should be developed for this circulator con- to serve existing and proposed developments cept as part of the Station Area Vision Plan Scope east of Frontier Road, south of Spring Mall of Services for the Franconia/Springfield Metro- Road, and west of Loisdale Road. rail Station recently proposed by WMATA.

• Between Northwest Quadrant mixed-use facili- To facilitate high-quality service, these circulators ties and the Metrorail station. Service is needed should operate in an exclusive right-of-way to here primarily during peak rush periods, and avoid being delayed by the extensive surface traf- between the Northwest Quadrant and the mall fic within the study area. The proposed Phase 1 during midday periods. circulator alignment would link the Metrorail sta- • Between the GSA site and the Metrorail station, tion with the Southeast Quadrant, primarily the using the proposed new Frontier Road exten- mall. The panel recommends, at a minimum, that sion. In the early years, this service would pri- the circulator must be in the Center Road align- marily serve the community college and exist- ment. Moreover, the panel strongly recommends ing residential developments. However, as the that no additional commuter parking be provided development vision for this GSA site becomes within the Southeast Quadrant as part of the cir- reality, the level of service will need to be in- culator concept. The primary objective of the cir- creased substantially to serve new residential culator is to make this quadrant a major destina- and office-related markets. tion attraction for transit users as well as to provide high-quality access to Metrorail for future For a circulator bus system to work properly, the quadrant residents. system should include the following characteristics: The proposed Phase 2 circulator alignment would • Short, reliable service headways that match link the Metrorail station with the GSA site when Metrorail schedules for those shuttles serving the Metrorail station; this site achieves a critical mass of residential and office development. • Smaller vehicles with easy access and that are more maneuverable than standard transit At this time, the panel does not envision that de- buses; mand would be sufficient to justify a circulator extension to the Northwest Quadrant. Nevertheless, • Free fares; this situation should be continuously monitored as the various proposed developments in this quad- • Frequent stops; rant are completed. • Well-maintained vehicles;

• Friendly and polite drivers; and Areawide Roadway Recommendations The following areawide roadway enhancements • No outside advertising on buses. need to be initiated as soon as possible to ensure Because of the unknown nature of the EPG, this acceptable future levels of service on study area potential market should be continuously evalu- roadways: ated by the Fairfax County Department of Trans- portation. • Commerce Street exit ramp to I-495 North. This improvement is scheduled to be completed by Long Term: Springfield Bus Circulator summer 2006 as part of the Springfield Inter- To maximize public transit use to, from, and change project. within the Springfield study area and to provide premium circulator bus service, the panel recom- • Franconia-Springfield Parkway single- mends that exclusive bus lanes be considered for occupancy-vehicle ramps to I-95. Final design the Southeast Quadrant and GSA site street net- for these ramps has been completed, and when works. As a first step, a sketch-level preliminary constructed, should relieve traffic flows on

28 An Advisory Services Panel Report north-south arterial streets in the study area— manage the increased traffic volumes that will especially Backlick Road. be generated by the development initiatives recommended by the panel. • Widening of Loisdale Road north of the Fairfax County Parkway. As the EPG and south transit Areawide Pedestrian/Bicycle station area sites develop, the two-lane portion of Loisdale Road north of the parkway will need Circulation Recommendations to be widened to four lanes to accommodate in- As stated previously, the majority of enhanced creased traffic volumes. pedestrian circulation opportunities are within the • Extension of Frontier Drive south to intersec- various development districts. The complex nation with Loisdale Road north of the Fairfax ture of the arterial street network and the relatively long distances between districts preclude County Parkway. The alignment of this exten- an effective areawide pedestrian circulation net- sion would be parallel to the existing railroad work. Wherever possible, however, high-quality right-of way and may require the acquisition of pedestrian accommodations need to be provided additional right-of-way. However, the proposed or enhanced between the Metrorail station and south transit station area development scenario the Southeast Quadrant and the GSA site. will require this new north-south arterial roadway to accommodate projected traffic growth. Recommended bicycle network improvements include the following: • More park-ride facilities. To reduce growing peak-period traffic volumes in the study area, • Striping bike lanes on Amherst/Backlick roads additional park-ride facilities to serve commuter (reconfiguration of traffic lanes will create room buses and car/van pools should be provided for bike lanes); wherever possible. The proposed new park-ride facility on Backlick Road, north of the fire sta- • Reviewing opportunities to restripe other arte- tion, is a good example and should be con- rial streets to include bike lanes; and structed as soon as possible. • Including bike lanes on new arterial streets • Enhanced directional signage. The roadway wherever possible. network within the study area is very complex The transportation improvements outlined here and especially confusing to visitors. Hence, the are based on the panel’s expertise and the best panel strongly recommends that Fairfax County available information obtained by the panel in undertake a comprehensive program to design summer 2006. The cost of such regional improve- and implement special directional signage, using ments should be borne by the federal government a new study area logo, to inform people of de- in conjunction with BRAC actions. sired travel paths to major attractions within the area.

• Transportation demand management (TDM). Fairfax County needs to continue to give high priority to an effective TDM program to help

Springfield, Virginia, May 21–26, 2006 29 Implementation

pringfield has the opportunity to signifi- • A visioning process to create a master plan for cantly improve its future and to better con- future growth; trol planning for its destiny; however, the S county must first take appropriate steps to • A marketing strategy; and implement a coordinated strategy to achieve the • A major investment in nonroad public improve- high-quality developments that Springfield desires. ments such as landscaping, open space creation, public art, and pedestrian connections. Springfield began as a suburban, postwar bedroom community benefiting from its proximity to Washington, D.C., and nearby military and gov- Civic Leadership Issues ernmental institutions. Over the years, Spring- Civic leadership happens in a variety of ways, but field has been significantly affected in a negative it often revolves around one entity that can act as manner by the continued expansion of the Wash- the primary advocate for the community. The civic ington metropolitan area and its need for wider leadership for Springfield should be an active and through roads and highways that serve the contin- visible organization that can use its influence to uing population growth to the south. Although persuade both the private and public sectors to co- high-quality developments are scattered through- operate in a common plan for the rebirth of the out the greater region, the older residential and community. commercial developments at the main intersec- Create a Dedicated Community Governance tions in Springfield seem to have prevented any Structure significant new developments from locating there and improving the tax base, as well as rejuvenat- Over the course of the interview and information- ing the community. gathering process, the panel became aware that no organization or full-time staff is dedicated to Because of its great location with multiple trans- the development and redevelopment of the portation options, Springfield is now on the verge Springfield community. Although any number of of a development renaissance. How this renewal is agencies, organizations, and individuals are in- managed will affect not only the immediate future volved in the affairs of Springfield, it is not the of Springfield, but perhaps more important, man- priority of any one group or person. agement of the first major new redevelopments Springfield is not an incorporated city, and as only will directly affect the type and quality of future one modest-sized bedroom community of many developments. The increasing demand to locate in within Fairfax County, the area is hindered by the Springfield is best demonstrated by the current lack of a sense of local “ownership” and the result- interest in two major redevelopments, the KSI ing civic pride commonly found in other similar- project and the mall project. To properly address sized communities. In terms of both public and the many aspects of this great opportunity, the private ownership, well-established leadership panel recommends that Fairfax County initiate: and “city elders” solely focused on the betterment • A civic strategy of increased leadership, aware- of Springfield are clearly lacking. No mayor, no ness, and action; staff, and no major private or corporate benefactors are in place to constantly focus on the issues • A new development policy to capture high- of improving Springfield. This situation needs quality developments; to change.

30 An Advisory Services Panel Report The absence of a local government entity, with a Implement a Community Action Plan to Promote mayor and city council and the associated local Civic Pride services, such as libraries, parks and recreation, Civic pride for the citizens of Springfield in gen- police, fire protection, planning and zoning, build- eral can be improved by having local civic groups ing inspection, convention and visitors bureau, and commercial organizations implement a series and so on, has created a clear void of community- of relatively simple policies and programs, includ- based organizations and citizen volunteers. The ing the following: usual mix of advisory boards supporting parks, libraries, convention and visitors bureau, planning, • Rediscover Springfield’s history and celebrate and even school board is simply not available. Par- its past. Do this often and consistently (at ticipation on such boards and committees allows a Springfield Days, school initiatives, merchant community to benefit from the input of a broad contests, and special events). base of community leaders and build a solid base • Identify a logo or symbol that reflects Spring- of individuals dedicated to the interests of the field. Use it often and everywhere. local community. Essentially, these community organizations are a training ground for future lead- • Nurture and recognize citizen benefactors for ers and community advocates and a community support of civic projects. Seek out new projects suffers a great void if they do not exist at all. As a for civic improvement annually. consequence, a local area is left to rely on ad hoc community initiatives and a variety of nonap- • Create common communitywide improve- pointed and sometimes nonsanctioned individuals ments. These could include a flower box pro- to assume the mantle of leadership. The results of gram for commercial shop windows and facade such an environment are at best uneven and occa- improvement programs. (The Interservice Club sionally problematic. Council may coordinate new ideas.)

The panel recognizes the difficulty of addressing • Establish a local, effective programming plan this sensitive issue of civic pride and leadership to support special events. In addition to Spring- and intends to focus on the future and the positive field Days, consider adding special events such benefits these solutions will bring instead of re- as a July 4 celebration and fireworks, Christmas flecting on or guessing why it occurred. The panel Parade, Cinco de Mayo celebration, high school understands incorporation as a city, and the re- graduations, and a series of special events sulting increased taxes, is not a favorable sce- unique to Springfield. nario, especially because the area is already a “donor” community, paying in more taxes than are • Establish performance guidelines and review returned for community improvements. Although for new improvements. This will create a sense incorporation as a city typically generates numer- of pride in new developments. These improve- ous leadership opportunities and civic pride, other ments could include attractive, iconic architec- ways exist to foster leadership in Springfield that tural design on high-rise buildings; fountains will hasten and facilitate improved economic de- placed throughout the redevelopment area; uni- velopment. form “cool” lighting standards; specially designed transit and maintenance vehicles; and The panel encourages Fairfax County to give improved “welcome” monument and signage. some careful consideration to this problem. Sev- eral of the recommendations in the panel’s report • Develop civic facilities that inspire citizens’ address aspects of the issue. Perhaps the imple- sense of pride. Such facilities could include an mentation of each of them will, in the aggregate, iconic water feature to reflect “SPRINGfield” in resolve the matter. (Community Development Au- a highly visible location, a new library with out- thorities, or CDAs, however, are typically not ex- standing architectural attraction, or a new civic pected to be the vehicle that provides overall com- building with special architectural features visi- munity direction and governance.) ble to all.

Springfield, Virginia, May 21–26, 2006 31 Establish a “Leadership Springfield” Program An appropriate development initiative for Spring- In addition, the panel recommends Springfield field will capture its share of the future waves of consider implementing a special program designed development that spread out from Washington specifically to mold future leaders. Given the ap- and that have often passed over or around Spring- parent absence of leadership development struc- field in the past. Many redevelopment possibilities tures within the Springfield community, another exist because of the older style of development type of community-based organization may be re- that makes up a large part of the central district. quired to directly address leadership develop- Aging strip centers close to major intersections ment. A common program seen in many commu- have created seas of asphalt that have much nities is a leadership orientation program. It is higher and better uses today. Springfield should commonly sponsored by the local chamber of com- enact a development plan to implement a best merce, but not necessarily. Emerging leaders practices policy so it can now capture cutting-edge within the community are invited to participate in developments that embody the best planning and a yearlong series of meetings and events that in- architectural ideas. If implemented properly, this clude sessions with the county executives and pro- civic-minded focus will help improve Springfield gram directors, discussions with corporate execu- to a new level of desirability, well ahead of its sis- tives whose firms have a presence in the local ter communities in the area, and revitalize the community, meetings with real estate developers community as well as preserve and improve prop- and bankers investing in the local area, and orien- erty values. tation sessions with local arts and cultural organi- Consider Appropriate Corporate Structure zations and local advocacy groups. In the current instance, specific sessions with key military and An organizational structure that would appear es- government agencies with a major presence in the pecially appropriate is a Community Development local area would be included. Authority. The entity would most likely be funded through the CDA vehicle. Under Virginia law, The mere fact that the panel is suggesting a Lead- legal authority exists for such an entity, and ership Springfield program is instructive. Given precedent exists within the state for using that the absence of a local city government structure authority. Guidelines for forming such an entity that organically allows local leadership to emerge, are clearly outlined within the legislation. A CDA such a program takes on greater importance. is an independent legal entity with a separately constituted board of directors and a dedicated Economic Development Strategy funding source. As an unfortunate consequence of the inherent The panel has been advised that most of the bene- structure of local governance in Virginia, limited fits of a tax increment financing arrangement can county and state resources for community im- be achieved through a CDA, while avoiding some provement are spread thin over a large and grow- of the limitations of a TIF. Most notably, a CDA ing area, perhaps favoring other communities with can issue debt that does not become a full-faith- higher profiles than Springfield’s. Fairfax County and-credit obligation of the issuing government, provides caring politicians and concerned staff therefore not reducing general government debt who understandably must spend their time and ef- capacity. The panel was further advised that the fort in many other places. Unintentionally, Spring- bond market is increasingly comfortable with CDA field has missed opportunities in the past to better bonds, thus reducing the cost of issuance and the position itself to take advantage of various plan- recurring cost caused by interest rate differentials ning and development opportunities. The panel between such bonds and general obligation debt. recommends the establishment of a new commu- Moreover, the CDA is apparently capable of con- nity development strategy focused specifically on structing programs of work and terms and condi- Springfield with a qualified individual to lead this tions of financing and repayment that are flexible new initiative. and adapted to the specific needs of the project.

32 An Advisory Services Panel Report A properly constituted entity, with a good board Funds from the CDA should be geared toward of directors and proper funding, that has a good one specific improvement. These improvements local government contractual arrangement with include the new bridge over Old Keene Mill Road; Fairfax County, is most likely to provide a devel- the new Town Square and the supporting pedes- opment management platform that can be sus- trian system; and the landscape, hardscape, and tained through the critical early years of the wayfinding systems to link the revitalizations initiative. together.

Without regard to the actual amount of project Begin a Visioning Process to Create a funds that would be administered by the CDA, the Master Plan independent legal status of the entity will prove As observed repeatedly, Springfield has a partic- useful to the board and the development director ular history mired by an overgrowth of roads, but in addressing program stakeholders, including the it may soon reemerge with the fulfillment of pro- county, the private developers, the local property posed projects and the potential for many other owners, and the local area residents. Clarity of high-quality new developments. Visioning the purpose and specification of distinct geographic future and creating a detailed master plan are boundaries will make clear the mission of the en- necessary. tity and the subjects it can appropriately address. No open greenfields are available near the trans- The CDA will become an obvious and easily acces- portation hubs—where new development wants sible forum for the development community to to locate—to accommodate free-flowing mega- seek out in regard to Springfield development developments. These areas have long been de- matters. Because of the current local leadership veloped, and the general vision now is entirely on vacuum, the CDA may need to assume a promi- redevelopment of older areas. The panel under- nent role in leadership development. stands Springfield’s often-subdivided landscape has created the necessity for potential developers In addition, the CDA might need to serve as the or- to spend years trying to accumulate the sizable ganization vehicle through which a true community- tract that a major development requires today. based visioning process is undertaken and the re- Developers must plan a large endeavor to justify sults implemented. Again, given the absence of the time, trouble, and expense of working through local community governance structures, the need these obstacles. The land must be accumulated at for developing a clear and contemporary vision for extremely high costs, plus holding costs, and the Springfield is immediate. risks taken are without any certainty that zoning, proffering, and permitting will allow for an eco- The CDA should approach the development op- nomically successful project. And all this prepara- portunities in Springfield from the perspective of tion time and expense is in addition to the very a master developer. In other words, the entity real market risks of another 9/11, an economic should evaluate the specific development oppor- downturn, and the potential of general overbuild- tunities associated with various areas of the local ing in this market area. market, such as the Northwest Quadrant, the Springfield Mall area, the GSA site, and the EPG. A sense of urgency should prevail. Much has been The CDA should approach individual developers written lately of the fall of the condominium mar- who possess the background and qualifications ket, and office demand is weakening nationwide. needed and establish ongoing relationships to gen- Remaining an older bedroom community was not erate awareness, interest, and ultimate invest- the desire of anyone interviewed. Nor did the ment in these areas. The economic incentives and panel find additional big-box retail as the main de- other inducements the CDA has available (public/ sire of the people it interviewed. Mixed-use devel- private projects, direct development funding, opments were often mentioned as highly desirable grants) should be presented to these groups and and seem to be the product of choice of those in- continually updated and modified to address the terviewed, and the panel fully concurs. The issue changing situation within the marketplace. of small available parcel size and lack of inventory

Springfield, Virginia, May 21–26, 2006 33 emerges as a significant impediment to high-quality delivered as an example of its best ideas as to how mixed-use projects. Such projects typically need the community may consider planning its future. several acres of land to create the critical mass The panel recognizes working with existing own- and scale that justifies a decision to begin con- ers to implement any plan is important, and not all struction. To help create the greatest potential for will be pleased or cooperative, but this process is attracting these desired projects, the panel recom- the reality of change. Frequent, direct, and honest mends Springfield consider revisiting its existing communications among all parties will greatly redevelopment plan with the objective of creating help this challenging process. more fertile ground for sizable mixed-use projects to locate in the areas most beneficial to redevelop- Externally, the master plan will be a valuable tool ing Springfield. in the work to seek out and attract superior developments and win them over to a revitalized com- The community must come together as a whole munity with sites ready for development in a sup- to decide and agree on its common vision for the portive environment. The fact that this ULI future, and then those concepts can be accurately advisory panel has been convened in Springfield reflected in the master plan. The visioning pro- demonstrates the strong desire to do more than cess must be well publicized and all-inclusive. just sit and wait for the next developer to knock After everyone has had an opportunity to under- on the door with any plan in hand. Springfield can stand the process and been afforded the chance form its own master plan and create the market- to be heard in this visioning process, then the mas- ing materials and support personnel to execute a ter plan can emerge to reflect the desires of the proactive strategy in planning, marketing, and community. funding.

The panel wishes to emphasize that although As important as having the correct physical char- mixed-use development would be its professional acteristics in each new project is, creating the cor- recommendation, this decision lies entirely within rect process and procedures to make it all possible the purview of the local community residents and is equally important. To help create and imple- their elected officials. It is their community and ment much-needed new procedures, the panel rec- their decision alone. After the panel’s interviews ommends Springfield initiate a model program to with more than 80 people, the panel has proceeded successfully implement the objectives. on the basis that high-quality mixed-use developments are desirable in Springfield, and its proposed Recruit a Full-Time Development Team master plan generally reflects that assumption. for Springfield As has been previously noted, the Springfield This special community has special needs. With a community does not have a dedicated develop- good master plan to guide it and the appropriate ment professional or team focused exclusively on professionals to assist it, Springfield has the economic and community development initiatives chance literally to shape its own future. It will in the Springfield area. Given the level of develop- need to be bold in adhering to its plan. If it decides ment activity under consideration and given the to work toward attracting mixed-use projects, as- scope of development that is likely to ultimately sembling underused properties to create a mar- occur at the EPG and GSA sites, an abundance of ketable site will require strong leadership. A rede- work needs to be overseen by an accomplished development plan in any built-out community is velopment professional and a small but effective expected to encounter some tough choices, and pressing forward may be hard at times. Often the support staff. desirability and success of the finished develop- The charge for this position is relatively straight- ment is in direct proportion to the difficulty of the forward. The individual needs to be planning preparation beforehand. The panel encourages Springfield to hang tough in the hard • The development “point person” for the Spring- times and keep focused on the overall goal. The field community, serving as the liaison among panel’s suggested master plan is conceptual and the public and private sector agencies and indi-

34 An Advisory Services Panel Report viduals that are actively pursuing development understand the entire development process from projects in the area; the private sector viewpoint and be ready and capable of assisting the developer through every • The “go-to person” for accurate, timely, and rel- governmental approval process quickly and re- evant development information on the local sponsively. This go-to person must be, in essence, market, including good maps, information on “Springfield’s developer,” acting on the behalf of discrete market segments (residential for sale, Springfield while assisting the developer’s project multifamily rental, office, retail, and hospital- to reach timely completion. His or her knowledge ity), ownership data, and access to robust Geo- and competencies should include the following: graphic Information Systems (GIS) capabilities;

• The promoter and advocate of strategic devel- • Must personally know details of each potential opment opportunities within the community; land site, with ownership, survey, topography, and pricing, and relevant purchase information, and must market this knowledge effectively to high- • The manager of the economic incentive process quality-oriented local, regional, national, and infor the area, including structuring and negotiat- ternational developers. ing economic incentive offers, overseeing programs such as a CDA and securing and distrib- • Must know access issues, utility capacities, uting bond financing secured under its auspices, telecommunications, and all general infrastruc- and facilitating developer incentive applications ture information and assist with letters of con- to county agencies. firmation to developers from all service providers and government entities (in the event Although the charge is not difficult to understand, any service is not available, must assist in ob- the performance of the duties is by no means easy, taining it or finding a suitable alternative). nor is it easy to recruit the appropriate person with the necessary qualifications—especially be- • Must be empowered and actively help create cause of the high level of access this position needs high-quality sites for development or redevel- to function effectively. opment in accordance with an approved master plan, including land assembly of underused, va- The individual in the position must be known to cant, or closed properties. Specifically, with pro- have easy access and the “ear of” elected officials, fessional help, a master plan must be estab- senior real estate development executives, archi- lished for the entire redevelopment area, tects, engineers, planners, and commercial bro- identifying those parcels that are underused or kers. This level of access suggests someone who has been in the general area for some period of vacant. This person must assist in efforts to ac- time, who has a high level of credibility, and who is cumulate the property to create attractive de- nonthreatening to appointed staff. velopment sites. Once cleared, if an immediate opportunity is not in the pipeline, a site may be Establishing such a role is even more important used on an interim basis for shared ride or slug because of the current absence of a broad base of parking until an appropriate project materializes. local development leadership. Given the various audiences this position must address, placing the • Must know all requirements and provide one- position within a to-be-established independent stop information permitting with all forms and development corporation, such as the CDA previ- schedules for zoning and complete construction ously described, is an appropriate consideration. review and approval. Attract High-Quality Developers • Must create and provide a simplified flow-sheet Springfield’s point person must recognize that the diagram showing zoning review, architectural real estate developer is the “client” as Springfield review, and approval process. Although all pro- seeks out the best potential opportunities to im- cedures should have a rapid turnaround, highly prove its future. In this regard, this person must desirable projects—such as qualified mixed-use

Springfield, Virginia, May 21–26, 2006 35 projects—may justify a faster response with The substantial amount of funding that a CDA greater leeway for approval. may be capable of generating through incremental tax revenues justifies the inclusion of a financial • Should review zoning if consideration is given to position whose responsibilities would be to sup- permissive mixed-use overlay zoning or elimi- port the CDA board and executive director in ad- nating the multitude of zoning classifications al- ministering project fund applications, awards, and together, in favor of a more generalized zoning. progress payments, as well as actively participat- • Should work with the county to implement a ing in the detailed and time-consuming deal struc- zoning and development streamlining program ture negotiations associated with complex devel- that encourages high-quality mixed-use development projects. opments with a fast “time to market” turn- The panel feels that because of the particular tim- around. ing of currently proposed developments and the • Must work to create incentives for desired proj- need for an immediate master plan and marketing ects and have the authority to make timely, def- materials, this team may not justify a long-term inite commitments, especially for appropriate commitment. Immediate assistance is recom- mixed-use projects and projects generally im- mended to help land the KSI and Springfield Mall proving the civic character of the Springfield redevelopment projects. These two projects are community. vital to jump-start high-quality private redevelopment in the entire area, and even more critical for The panel strongly recommends that the develop- appropriately redeveloping the “heart” of Spring- ment team be fully authorized and given the pol- field. In all positions, consideration may be given icy tools and personnel assistance as necessary to to establishing time limits on employment con- attract high-quality developments as described. tracts, or outsourcing for specific periods of time, With the position comes the understanding of all in line with a clear and realistic timetable for pro- parties that the goal is to help facilitate, not im- ducing the desired results. pede, high-quality development by maintaining an inventory of available sites, promoting/making use The panel is quick to note that the recommenda- of flexibility in mixed-use developments, and giv- tion to establish some dedicated staff for the pur- ing authority to offer real incentives that will at- pose of local economic development purposes is tract desirable development. This market is very not a call for a high-cost and unaccountable over- competitive; being able to market, invite, and as- head department. A talented manager can achieve sist high-quality projects that will be an asset to considerable visibility for the community and in- the economic, social, and aesthetic needs of the fluence important development decisions and community is very important. transactions without the need for a large staff of development professionals. Much, if not most, of Limit Development Team to a Select Few the actual work assignments can be outsourced to A number of transportation projects are under- area development specialists and service way and proposed. Given the complexity associ- providers. ated with the integration of regional and local serving systems, the addition of a full-time trans- A Marketing Plan portation engineer to the team has merit. This person could be an extremely valuable informa- The image identifying Springfield is presently tion resource to the participating agencies and the being defined, in the main, by outside individuals developers attempting to understand how these and entities. A review of available published ma- systems affect the development project they are terials does not provide much insight into a vision considering. Not uncommonly, state and federal and an aspiration for the future of Springfield. funding support are obtained for transportation This situation is not uncommon for a community, planning initiatives. Such grants might fully offset especially if the community came into being as one the costs of this position. or a series of subdivision developments. But it is

36 An Advisory Services Panel Report always preferable for the community itself to pre- • What is the product? Being able to enumerate sent its vision and aspirations. what is available to procure (development parcels, buildings, recreational services, afford- Springfield is in transition and aspires to introduce able homes, great neighborhoods, and great fundamentally different forms of development and schools) is important. Of special importance is create different experiences. Therefore, establish- the ability to demonstrate that the products, ing what these aspirations are is especially impor- even though similar to products in other com- tant, so they can be effectively communicated. munities, are made better by virtue of their lo- Accepting that Springfield is poised to prepare cation in the subject community. and present a new vision and a new set of aspira- Adhering to the type of information framework tions, the marketing of these messages to the outlined is important in the marketing of a com- broader development community can begin in munity. If the community representatives are un- earnest. Given the amount of development activity currently under consideration, time is of the able to provide cogent, coherent answers to the essence. points listed, outside interests cannot reasonably be expected to do better. Managing the image of a On one level, marketing entails the familiar tasks community and the manner in which this image is of design and production of attractive collateral presented is a key responsibility of the leadership materials, active participation in key networking of the community. events and meetings, and direct mailing to tar- geted prospects. However, these initiatives are The overall approach is to establish a sense of often ineffective. place for Springfield. If the effect is to establish a certain gravitas within the northern Virginia re- Establishing a marketing message for an estab- tail, office, and restaurant market, then the ap- lished community is similar, in many ways, to de- proach will have been successful. veloping a marketing message for a new master- An Argument for a Marketing Center planned community. The materials must address the following overall aspects: Asking commercial brokers where they meet a prospect who is going to tour the area is always • Where in the world is this community? All good instructive. Usually, the location is a hotel, restau- marketing maps show the community in the rant, or country club that has nice drive-up appeal middle of the market. In this instance, a 15-mile and is pleasant and attractively decorated. When radius map with Springfield in the middle would the answer differs and is, instead, a location such demonstrate how many attractions and facilities as a conventional coffee shop or a franchise restau- are nearby. rant, then concluding that the community is being • What is the “big idea”? Although inelegantly introduced through an image quite common and put, the point is obviously the importance of often undistinguishable from similar places in any being able to succinctly state the important number of other communities is reasonable. In overarching idea that is associated with the other words, a location that is unlikely to be mem- community (for example, Silicon Valley, Gate- orable. The message is, of course, that nothing way to the West, Athens of America). special exists to suggest as a meeting point.

• Who is behind it? Namely, how credible is the Springfield currently suffers in this regard. Al- promoter (in this case the local community) and though some wonderful meeting places may exist is it likely to be able to accomplish what it is ad- in three to five years with the proposed develop- vertising? In the case of a community aspiring ment at the Mall and Midtown, currently a void to bigger and better projects, including the sub- exists. Thus, an argument can be made that the stantial, credible, private partners that are community needs to consider developing a well- going to assist in making the dream a reality be- located, well-appointed real estate marketing comes important. center to introduce the brokerage and develop-

Springfield, Virginia, May 21–26, 2006 37 ment community to a fresh view of the Springfield munities in which ULI panels serve, attracting opportunity. the interest of several qualified development organizations is not the major need. The introduction of a marketing center can be an energizing project that creates renewed enthusi- Rather, in the near term Springfield leadership asm among local property owners. Done well, needs to concentrate on facilitating the develop- much goodwill and positive recognition are to be ment activity currently underway. The KSI and gained from the creation of such a facility. This Vornado projects represent hundreds of millions project would be especially helpful in the next of dollars of new investment of the precise type three to five years, when no completed projects the community and Fairfax County indicate they would yet be available to tour. desire. Neither of these initiatives is completely Multipurpose Public Assembly Facility negotiated and difficulties could easily emerge that could slow or derail them altogether. The first On a grander scale, Springfield may want to con- priority, therefore, is to demonstrate a genuine sider a multipurpose public assembly facility to both serve the community and attract hospitality commitment to the consummation of these deals. business to the community. As noted earlier, a fa- GSA Site. Panel members were impressed, as cility with highly adaptable space from 50,000 to were virtually all other planners and developers, 100,000 square feet, if properly designed architec- with the development potential associated with turally, would be a symbolic and recognizable fea- the nearly 70-acre GSA warehouse site. Located ture that would take advantage of regional high- on a site nearly contiguous to the Metro station way access, the mall amenities and visitation, and and near a major intersection of I-95, the parcel easy access from the Metro station. If the hospital has to be included in any development plan. It is is located on the GSA site, it could serve the med- an outstanding development opportunity. The ical community as a location for conferences and panel believes that the propinquity to the Metro exhibitions. The panel’s observation is that such a station, the mall, and the Northern Virginia Com- complex might be quite appropriate for Spring- munity College Medical Education campus makes field. Although costly to construct and operate, the location perfect for relocation of the army hos- the concept should be discussed and debated. Such pital that is currently being considered for the facilities are reemerging as a market niche. Some EPG and the even more remote main base at Fort are being paired with adjacent hotels, and cross- Belvoir. management operating agreements are negotiated for operation of the complex. Although the site will ultimately become available The proposed CDA board of directors should take for development, the panel was advised by numer- up this type of project. It should be evaluated in ous individuals that near-term prospects for active the context of the vision statement and commu- redevelopment of the parcel are remote. GSA has nity objectives that have been developed. Finally, been approached any number of times about relo- the financial cost/benefits should be analyzed and cation and has indicated limited interest, espe- then a determination made if such a complex cially without an alternative and suitable site and should be underwritten, at least in part, by pro- a mechanism to finance the relocation and new ceeds of CDA bond issue. construction. Addressing the Development Opportunities The local Springfield development leadership within Springfield team should be actively involved in nurturing this The Springfield community has the good fortune opportunity. A way through the maze will eventu- of being in a robust local economy, with strong ally be identified. The leadership team could play local development firms and with the additional a vital role in facilitating and expediting this possi- and more important benefit of a substantial bility. If the team could simply become the point of amount of developer interest in project develop- contact between the GSA and the local commu- ments of significance. Therefore, unlike some com- nity, a great deal might be gained in regard to the

38 An Advisory Services Panel Report ability to establish and maintain a dialogue about in the ULI stakeholder interviews, even though future site redevelopment. they were invited.

Nevertheless, active programming and site devel- Nonetheless, a great deal of serious planning and opment planning are not appropriate without analysis is obviously occurring at the present GSA’s support. Therefore, planning discussions time. Consultants’ reports and subsequent staff about this site should be limited to preparation of recommendations are due out by fall 2006. Assum- development scale assessments to assist planning ing the additional need for review and evaluation agencies in ascertaining the amount of new de- at higher levels, six to 12 months more may elapse mands that will ultimately be generated when before the military’s intent and development pro- reuse actually occurs. gram are clear. Any proposal that includes relocat- ing personnel and missions to EPG will need to be EPG. The development status of the EPG can be accompanied by significant off-site infrastructure best stated by quoting several of the members of a improvements, including roads and utilities. group currently evaluating the site: “It’s all up in the air!” The conflicting information that emerged The Springfield development leadership must about the status of development plans, access to track the decision-making process closely. To the the interior of the parcel, total amount of develop- extent possible, they should seek and get a place ment likely to occur, and the nature of such devel- at the planning table as a participant in the mili- opment (for example, secured versus unsecured, tary’s committee of community leaders. Like the GSA opportunity, when the development decisions all military, mixed use with provisions for contrac- are finalized, the opportunities they will afford the tor offices) makes providing conclusions and rec- Springfield community are considerable and need ommendations an unproductive exercise. Even to be understood. within the panel, a consensus could not be developed whether the EPG site was likely to be developed as suggested by the army. Although the in- terviewees from the National Geospatial Agency and the army medical agencies (likely tenants of the EPG) were helpful and encouraging of planning cooperation, Fort Belvoir officials who are leading the relocation options did not participate

Springfield, Virginia, May 21–26, 2006 39 Conclusion

ork needs to be done in Springfield, im- a single decision made within the agency could mediately, in the near term, and in the suddenly and abruptly change the situation en- mid to long term. Fortunately, the chal- tirely. As the panel noted, GSA could be a good lo- W lenges are spread across a span of years, cation for the army’s proposed hospital. Finally, thus permitting the leadership team to prioritize any proposals that significantly increase traffic its efforts and carefully allocate resources. The should be accompanied by a means to pay for county should focus its efforts by quadrant and en- transportation improvements. gage the community to determine specific needs. Although large and exciting development projects Physically, the county should plan to make a vari- are under consideration, they are not reality. The ety of improvements. In the Northwest Quadrant, county must never lose sight of the fact that any the proposed street “couplet,” acquisition and con- number of situations could occur that could cause struction of the town square, and connections be- these projects to be curtailed. Constant vigilance tween developments should take priority. In the is demanded of the Springfield leadership team Southwest Quadrant, the construction of the com- as well as a willingness to devote the seemingly muter parking lot and the street “couplet” con- sometimes endless hours to work through dilem- struction should be completed. In the Southeast mas that will inevitably emerge as these projects Quadrant, the connections should be strengthened get closer to actual construction and development. between the office parcels east of Loisdale Road and the new mall improvements. The panel has recommended a number of steps that will help make Springfield a destination, not In the immediate future, attention must be given just a place to pass through. The time has come to creating a CDA or CDA-type entity and hiring for the county to implement an approach that will associated staff members, conducting a commu- allow Springfield to confront its future and take nity visioning process, and implementing a near- its place among the other destinations of north- term marketing plan and program, including a ern Virginia. marketing center. Although the GSA and EPG projects are more distant, their scale and potential impact require that some time be devoted to them beginning im- mediately. In regard to the GSA site in particular,

40 An Advisory Services Panel Report About the Panel

David L. Leininger DFW airport, where he served as the vice president and general manager of the Las Colinas Panel Chair Association. Irving, Texas He began his career in the public sector in 1971. Leininger joined the city of Irving, Texas, in June During the period 1971–1978 he was employed by 2003, and he serves as its chief financial officer. In the city of Dallas in a variety of capacities, includ- that capacity, he oversees the departments of Fi- ing budget director, assistant director of housing nancial Services, the Irving Visitors and Conven- and urban rehabilitation and director of economic tion Bureau, Information Technology, and the Las Colinas Tax Increment district. development. During the period 1974–1976, he was the fiscal services administrator for the city of He also serves as staff coordinator of the redevel- Garland and served as chairman of the finance opment planning for Texas Stadium, current home committee of the Texas Municipal Power Pool. of the Dallas Cowboys. The stadium area, at the nexus of three limited expressway freeways, will Leininger is a contributing author of Golf Course be served by a new light-rail line connecting the Development in Residential Communities, pub- Dallas/Fort Worth (DFW) International Airport lished by the Urban Land Institute (ULI). He is a and downtown Dallas. In addition, all three of the full member of ULI and serves as treasurer of the interchanges serving the 400,000 vehicles passing North Texas District Council. He has served on through daily will be reconstructed by 2012. four Advisory Services panels previously.

Before joining the city of Irving, Leininger was associated with Economics Research Associates Donald R. Bauer (ERA), where he served as senior vice president Irvine, California and director of the firm’s Golf and Recreation Real Estate strategic business unit. In this capacity he Bauer is owner and founder of Bauer Planning coordinated the activities of ERA industry practi- and Environmental Service, Inc. With more than tioners throughout the firm. 28 years of experience in urban and regional planning, he has expertise in strategic planning, eco- Over the course of his career, Leininger has been nomics, and design for new communities and associated with a number of private sector firms. large-scale development programs. His emphasis During his tenure at ClubCorp International from on the quality of life, environmental integrity, and 1986 until 1996, he served in a variety of capacities, including chairman and chief executive officer long-term economic value and return of new de- for ClubCorp Realty and managing director, New velopments has resulted in a number of national Business Development, Europe. and international projects.

From 1983 to 1985 he was associated with Triland Bauer’s experience includes residential villages International, the Dallas developer of Valley and commercial complexes for The Irvine Com- Ranch in Irving. He held a number of positions, in- pany; large mixed-use projects in Baltimore, cluding executive vice president and chief operat- Washington, D.C., Miami, Fort Lauderdale, Dal- ing officer. Prior to Triland he was associated with las, Orlando, and Denver; new towns such as the the Las Colinas development, a 6,500-acre master- Woodlands, Texas; and resort communities, includ- planned development located between Dallas and ing Ventana Canyon in Tucson and the Cojo-

Springfield, Virginia, May 21–26, 2006 41 Jalama Ranch in Santa Barbara. His international David N. Goss work includes projects in Indonesia; the summer national capital of Saudi Arabia; the new national Hertford, North Carolina capital of Nigeria; Colombia; China; Kao Shung, In 2005, Goss retired and moved to North Car- Taiwan; and the Bahamas. olina where he is presently a part-time economic development consultant to Perquimans County. Bauer is a member of the American Planning As- sociation. Between 1992 and 1996, he was ULI Prior to retirement, Goss was the senior director, District Council coordinator for Orange County, transportation and infrastructure, for the Greater California. He studied sculpture and architecture Cleveland Partnership. In that capacity he man- at the University of Oregon and participated in an aged a regional development/transportation pro- exchange program at the University of Florence, gram that identified, prioritized, and facilitated Italy. He is a frequent university guest lecturer. strategic regional infrastructure investments that supported northeast Ohio’s physical development Daniel Brents agenda. Houston, Texas Goss has also served as the vice president, Eco- nomic Development for the Gateway Economic Brents recently retired as a principal with Development Corporation—the not-for-profit en- Gensler, where he led the firmwide planning and tity responsible for the construction of Jacobs urban design practice. Recent projects include the Field and the Gund Arena, and as the executive di- design of hotels, convention centers, mixed-use rector of Clinitec, Inc.—a wholly owned, for-profit centers, and educational campuses in the United subsidiary of the Cleveland Clinic Foundation. In States and abroad. He now consults on selected the latter position, he managed the Cleveland projects. Clinic’s real estate interests, identified and pur- sued new health care business opportunities, and Previously, Brents was the vice president of archi- provided general management for the clinic’s for- tecture and planning for Disney’s real estate de- profit ventures and technology transfer programs. velopment group in France at Disneyland Paris, responsible for negotiations with French authori- Goss has 11 years of management experience in ties and the development of the 4,800-acre, the public transit industry and was an original $4.5 billion resort and mixed-use project. member of the Transportation Review Advisory Council of the Ohio Department of Transportation. Brents was the Houston Sports Authority’s development coordinator for the $250 million downtown Philip Hughes Minute Maid ballpark. He has been a consultant to Ross Perot Jr.’s Hillwood Development Corpora- Greenville, South Carolina tion on multiple projects. Previous experience in- Hughes is president of Hughes Investments, Inc., cludes Wintergreen, a 15,000-acre resort in Vir- a commercial real estate development firm estab- ginia; South Shore Harbour, a 1,500-acre resort lished in 1990. His development experience, from south of Houston; Sony Center in Berlin; and the Alabama to Virginia, has included the develop- Philippines National Centennial Expo. ment, ownership, and management of retail shopping centers, office buildings, industrial facilities, Brents has served on eight ULI Advisory Ser- apartments, and golf course and residential devel- vices panels. He is a registered architect in Texas, opment. Maryland, and Florida; a Fellow in the American Institute of Architects; and a member of the Hughes Investments, Inc., specializes in commer- American Institute of Certified Planners. He has cial projects and land accumulation to support a bachelor’s degree in architecture and a master’s them. Recent development projects include degree in urban design. mixed-use projects that blend traditional uses

42 An Advisory Services Panel Report with new urbanist design. Sample projects include medical offices, clinics, and residential care facili- RiverPlace, Chanticleer, and CenterPointe, all in ties, and leading the development of luxury homes South Carolina. Other developments Hughes has on infill sites in Miami’s Upper East Side. Maxwell’s undertaken include a downtown Greenville office work has been honored throughout his career building for the National Bank of South Carolina with awards for historic preservation, innovative in the central business district along with a 12- industrial buildings, and outstanding renovation story, 256,000-square-foot, mixed-use project in- projects. cluding office, retail, and residential uses, as well as four other central business district offices. He holds a BA from the University of Texas at Austin, where he studied architecture and city Hughes received a degree in political science from planning, and received a master of planning de- Duke University. He earned his MBA and law degree from the University of Virginia, with special- grees from the University of South Carolina. izations in real estate and urban design. Maxwell began his career with a Texas homebuilder; has Michael J. Maxwell held positions in government; was vice president of Codina Development, leading the initial devel- Miami Shores, Florida opment of the award-winning $400 million Beacon Center in Miami; advised institutions and govern- Maxwell is founder and managing partner of ments; worked out loan portfolios; and partnered Maxwell + Partners LLC, a real estate develop- in developing Caribbean hotels and luxury homes. ment, project management, and investment advi- A skilled and effective communicator, he is known sory firm. Over the course of his career, he has for his organizational and leadership expertise. built a reputation of successful accomplishments in leading real estate organizations and planning Maxwell’s professional affiliations include the and developing land, homes, retail, office, indus- Urban Land Institute, where he serves on the Ex- trial, and resort properties. As an adviser and ecutive Committee of the Florida/Caribbean Dis- project manager he has worked out, restructured, trict Council as vice-chair of membership. He is a and strategically repositioned over $500 million in Florida-licensed real estate and mortgage broker real estate assets for corporate, private, and insti- and holds the prestigious AICP designation from tutional investors. the American Institute of Certified Planners. He is a board and executive committee member of the Involved in real estate development for more than Greater Miami Urban League and is founding 30 years, Maxwell founded Maxwell + Partners in chairman of New Urban Development LLC, the 1992 to assist lenders and investors in restructur- affordable housing development arm of the Urban ing loans and assets with strategic planning, due League. diligence, asset management, marketing, financial planning, capitalization, and mergers and acquisi- A graduate of Leadership Miami and former ex- tion services. Advisory clients include investment ecutive committee member, Maxwell has served bankers, banks, savings and loans, life insurance on numerous community boards in various capaci- companies, brokers, and private investors as well ties. He served as an adjunct professor of Florida as governments. His work ranges from complex International University’s Graduate School of environmental negotiations, establishing and lead- Business in real estate development and manage- ing successful real estate development and finan- ment and is a guest speaker on issues of urban cial service firms, to restructuring companies and development. assets and leading mergers and acquisitions. Maxwell is an expert witness in real estate and David S. Plummer development issues in state and federal courts. Coral Gables, Florida Maxwell has built Maxwell + Partners into a niche developer, project manager, and adviser. His most Plummer founded David Plummer and Associates recent work includes developing and repositioning in 1978. The firm provides a wide variety of engi-

Springfield, Virginia, May 21–26, 2006 43 neering services with emphasis on traffic and John Shumway roadway design. His engineering career spans more than 35 years and includes some of the most Newport Beach, California significant projects in Florida. Shumway is a principal with the Concord Group, which has offices in Newport Beach and San Fran- Plummer’s public engineering experience involves cisco, California, and Las Vegas, Nevada. The local, county, and state jurisdictions where he pio- Concord Group is a real estate advisory firm pro- neered studies of street protection systems to re- viding strategic advice and analysis for land use duce crime and traffic. He was affiliated with the issues in the development of residential, commer- Criminal Justice Institute in South Florida and cial office, retail, and industrial projects. The com- promotes close cooperation between law enforce- pany’s broad range of clients includes land devel- ment and traffic engineering. opers, homebuilders, institutional investors, and family landowners as well as public agencies and In 2004 Plummer founded, and now administers, universities throughout the nation. The Transportation Exchange at Florida Atlantic University. The exchange provides training in a Shumway has extensive experience, spanning 20 variety of transportation subjects to practicing en- years, in the evaluation and analysis of both resi- gineers and planners. The programs include tran- dential and commercial properties. He has partici- sit, traffic operations, and transportation planning. pated in numerous engagements that focused on The programs are creditable toward the continu- the optimum mix of land uses that would ensure ing education requirements of Florida’s Regis- timely absorption of the property and bring enhanced land value to the landowner. tered Engineers and the ITE Professional Traffic Operation Engineers License. Shumway’s professional affiliations include the National Association of Home Builders, the Build- Formerly, Plummer was the assistant director of ing Industry Association, the National Association engineering at the Traffic Institute at Northwest- of Industrial and Office Parks, and the Urban ern University, Evanston, Illinois. While in that Land Institute. He is a frequent guest lecturer be- position he developed and published materials re- fore the professional organizations, University of lated to capital improvements for transit, guide- California, Irvine and Los Angeles, classes, as well lines for driveway design, intersection capacity as other academic groups. Shumway has also spo- analysis, and traffic accident reconstruction. ken overseas, including a recent lecture to a group of key Japanese homebuilders interested in learn- In addition to Northwestern University, previous ing strategies to expand market penetration in a employment included the California Department downsizing economy. of Transportation and the Illinois Department of Transportation. He was a graduate of the training Shumway is a graduate of the University of Ore- programs of both public organizations, which in- gon with a degree in business/economics. He is cluded planning, traffic engineering, design, mate- very active in local community and civic groups. rial testing, and construction. Ross Tilghman Plummer is involved in professional committee service. He was a member of the Coral Gables Seattle, Washington Planning and Zoning Board, Dade County Impact Tilghman heads up the Tilghman Group, a division Fee Committee, and a member of the NW Dade/ of Leora Consulting Group, providing real estate SW Broward Planning Committee. In Florida he planning services. He brings 20 years of urban has been involved in the Florida Supreme Court planning experience, including serving as execu- Transportation Training, the Criminal Justice In- tive director of a downtown business improve- stitute, and committees of the Florida Depart- ment district. He provides transportation-related ment of Community Affairs. revenue projections, market studies, planning,

44 An Advisory Services Panel Report and development strategies to government, not- For the last five years, Tilghman has been work- for-profit, and private sector clients facing real es- ing with the city of Tacoma, Washington, to ad- tate development challenges. His projects typi- dress its downtown parking needs and the parking cally involve downtown revitalization, academic plan for the city’s new convention center. He pro- and institutional campus planning, historic district vided the revenue forecasts used to issue parking redevelopment, mixed-use projects, special event revenue debt. access, and parking. Tilghman also served three years as director of a Frequently working with nationally recognized downtown business improvement district in Illi- planning teams, Tilghman recently has detailed nois. He oversaw maintenance, facade improve- transportation requirements for downtown mas- ments, parking, and upper-story redevelopment ter plans for Evansville, Indiana; Natchez, Missis- efforts in concert with Main Street redevelopment sippi; St. Louis, Missouri; Green Bay, Wisconsin; principles. He successfully authored a $1.9 million and Parker, Colorado. He has provided parking grant to fund a streetscape construction project studies to determine future demands and market completed in 2002. requirements for Savannah, Georgia; Portland, Oregon; Sioux City, Iowa; and Olympia, Washing- Tilghman frequently participates in national re- ton. He conducted transit market studies in Den- source panels assisting communities with develop- ver and Los Angeles. ment questions. Recent assignments include ULI Advisory Services panels in St. Louis, Los Ange- Tilghman has also specialized in transportation les, Fort Lauderdale, and Port St. Lucie, Florida; planning for state capital campuses, working with Mayor’s Institute on City Design teams in St. Washington, Iowa, and Minnesota to improve Louis and Cincinnati; an AIA R/UDAT team in their access and parking programs. Additionally, San Angelo, Texas; and Ohio Design Assistance he has completed special event and recreation Teams in three Ohio communities. area transportation plans for San Diego’s Balboa Park; Joe Robbie Stadium in Miami, Florida; the Tilghman received an AB, history, Washington Iowa Events Center in Des Moines; Stones’ River University, St. Louis, Missouri, and an MA, geog- National Battlefield, Murfreesboro, Tennessee; raphy, University of Washington, Seattle. Shreveport Riverfront, Louisiana; and Vicksburg, Mississippi’s Downtown and Riverfront.

Springfield, Virginia, May 21–26, 2006 45