AN ADVISORY SERVICES PANEL REPORT San Bernardino California

Urban Land $ Institute

San Bernardino California Crossroads of the Southwest

June 24–29, 2007 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

he mission of the Urban Land Institute is to • Sustaining a diverse global network of local provide leadership in the responsible use of practice and advisory efforts that address cur- land and in creating and sustaining thriving rent and future challenges. T communities worldwide. ULI is committed to Established in 1936, the Institute today has more • Bringing together leaders from across the fields than 38,000 members from 90 countries, represent- of real estate and land use policy to exchange ing the entire spectrum of the land use and develop- best practices and serve community needs; ment disciplines. Professionals represented include developers, builders, property owners, investors, • Fostering collaboration within and beyond architects, public officials, planners, real estate ULI’s membership through mentoring, dia- brokers, appraisers, attorneys, engineers, financiers, logue, and problem solving; academics, students, and librarians. ULI relies • Exploring issues of urbanization, conservation, heavily on the experience of its members. It is regeneration, land use, capital formation, and through member involvement and information sustainable development; resources that ULI has been able to set standards of excellence in development practice. The Insti- • Advancing land use policies and design prac- tute has long been recognized as one of the world’s tices that respect the uniqueness of both built most respected and widely quoted sources of ob- and natural environments; jective information on urban planning, growth, and development. • Sharing knowledge through education, applied research, publishing, and electronic media; and

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Cover photo courtesy of San Bernardino Economic Develop- ment Agency.

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 develop- ers, public officials, academics, representatives of ment potential, growth management, community financial institutions, and others. In fulfillment of revitalization, brownfields redevelopment, mili- 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 Marta V. Goldsmith Senior Vice President, Community 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 Cary Sheih holistic look at development problems. A re- Senior Associate, Advisory Services spected ULI member who has previous panel Matthew Rader experience chairs each panel. Senior Associate, Advisory Services The agenda for a five-day panel assignment is in- Carmen McCormick tensive. It includes an in-depth briefing day com- Panel Coordinator, Advisory Services posed of a tour of the site and meetings with spon- Romana Kerns sor representatives; a day of hour-long interviews Administrative Assistant, Advisory Services of typically 50 to 75 key community representa- Nancy H. Stewart tives; and two days of formulating recommenda- Director, Book Program tions. Many long nights of discussion precede the panel’s conclusions. On the final day on site, the Laura Glassman, Publications Professionals LLC panel makes an oral presentation of its findings Manuscript Editor and conclusions to the sponsor. A written report is Betsy VanBuskirk prepared and published. Art Director

Because the sponsoring entities are responsible Martha Loomis Desktop Publishing Specialist/Graphics for significant preparation before the panel’s visit, including sending extensive briefing materials to Kim Rusch each member and arranging for the panel to meet Graphics with key local community members and stake- Craig Chapman holders in the project under consideration, partici- Director, Publishing Operations

San Bernardino, California, June 24–29, 2007 3 Acknowledgments

n behalf of the Urban Land Institute, the of Supervisors for their dedication to revitalizing panel extends its thanks to the city and downtown San Bernardino. The panel is grateful county of San Bernardino for convening a to June Durr, Don Gee, Emil Marzullo, Jim Morris, O panel to recommend strategies for revital- Maggie Pacheco, and Colin Strange for their hard izing downtown San Bernardino. The panel would work in preparing for the panel. Finally, the panel also like to express its appreciation to the City would like to thank the many community mem- Council, the Board of Supervisors, and the San bers who shared their expertise during the inter- Bernardino Economic Development Agency. view process. The panel sends special thanks to Mayor Patrick J. Morris and Chairman Paul Biane of the Board

4 An Advisory Services Panel Report Contents

ULI Panel and Project Staff 6

Foreword: The Panel’s Assignment 7 Market Analysis 11 Planning and Urban Design 17

Development Strategies 20 Implementation 30 Conclusion 36 About the Panel 37

San Bernardino, California, June 24–29, 2007 5 ULI Panel and Project Staff

Panel Chair Sue Southon Principal William H. Hudnut III Strategic Planning Services Senior Resident Fellow/Joseph C. Canizaro Bloomfield Hills, Michigan Chair for Public Policy ULI–the Urban Land Institute Nathan Watson Washington, D.C. President Watson Developments Panel Members New Orleans, Louisiana Agnes Artemel ULI Project Director President Artemel & Associates, Inc. Michael Pawlukiewicz Alexandria, Virginia Senior Research Director, Asia Daniel Brents Houston, Texas ULI On-Site Coordinator Carmen McCormick Christine M. Burdick Panel Coordinator President Tampa Downtown Partnership Tampa, Florida Richard F. Galehouse Principal Sasaki Associates, Inc. Watertown, Massachusetts

Richard T. Reinhard Deputy Executive Director Downtown DC BID Washington, D.C. John Shumway Principal The Concord Group Newport Beach, California

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

Location map. he city of San Bernardino is located in the OREGON IDAHO San Bernardino Valley, about 65 miles east of the city of Los Angeles. The valley is at T the base of the San Bernardino Mountains in Southern California. The city of San Bernardino CALIFORNIA and San Bernardino County are part of the “Inland NEVADA Empire,” which is a geographic area generally U defined as the area inland from Los Angeles and Sacramento Orange counties and encompassing all of River- San Francisco side and San Bernardino counties. The Inland San Jose

Empire is a fast-growing, major economic force Fresno within Southern California and the nation with a current population of more than 4 million and fore- casted population growth of an additional 2 million Bakersfield by 2020.

P San Bernardino A Los Angeles Once a thriving central business district (CBD) C I F Long Beach I C Irvine and center of government activity for the region, O A C E A surrounded by middle-class residential neighbor- N San Diego hoods, San Bernardino’s downtown has declined MEXICO over the past 20 years. The downtown area is still a major employment center but has declined in naming it Fort San Bernardino. The community vitality because of the prevalence of marginal or thrived, and in 1854 the city of San Bernardino failed businesses, commercial vacancies, decen- was officially incorporated. The population at the tralized government offices, and predominantly time was 1,200, 900 of whom were Mormons. In substandard housing stock. Although unsubstan- 1857, Brigham Young recalled his Mormons to tiated by crime statistics, the general public per- Salt Lake City, but in the six short years that the ception is that downtown San Bernardino is un- Mormons had been in San Bernardino, they estab- safe because of empty streets, vacant storefronts, lished schools, stores, and a plan for the city’s and blighted conditions. streets that is still reflected in San Bernardino’s street grid. History of San Bernardino In the latter part of the 19th century, the Santa When Spanish missionaries first settled in the Fe, the Union Pacific, and the Southern Pacific region, they chose the fertile valley at the foot railroads all converged on the city, making it the of a mountain range as an outpost for their travels hub of their Southern California operations. When throughout the California territory preaching to the Santa Fe Railway established a transconti- the various Indian tribes. In 1819, the mission- nental link in 1886, the already prosperous valley aries established Rancho San Bernardino. exploded. Settlers flocked from the East, and the In 1851, a company of about 500 Mormons arrived population doubled—from 6,150 in 1900 to 12,779 in the valley. The Mormons purchased 35,000 acres in 1910, the year that the San Bernardino Cham- of Rancho San Bernardino and built a stockade, ber of Commerce was first organized.

San Bernardino, California, June 24–29, 2007 7 3

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SAN BERNARDINO Regional map. 58 58

14 138 Lancaster 40 247 V Palmdale 18 LOS ANGELES 138 Santa Clarita 15 247 Valley O Glendale 215 Pasadena San Bernardino T 30 62 Los Angeles Inglewood Riverside 62 15 10 RIVERSIDE Anaheim Torrance Corona 55 L Long Beach 5 Santa Ana 405 Irvine Huntington Beach ORANGE Costa Mesa 74

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In its heyday, from the 1920s to the 1980s, the cen- State Route 210 serve the transportation needs of tral business district included major shopping op- the city and the region. portunities; service businesses, such as barbers The downtown core thrived until the 1980s and and salons; banks and insurance companies; car7 has since been in decline. The events that precipi- dealerships; restaurants; public and private schools; tated the downtown decline are complex and in and, most prominently, government offices. As the some cases regional in nature. They include the seat of San Bernardino County government, the closing of Norton Air Force Base (AFB), with downtown area was home to city, county, state, and the loss of 10,000 jobs over a five-year period; the federal government offices and service centers. construction of Interstate 15 from Ontario to the Cajon Pass, which directed Los Angeles traffic Rich water resources and a strategic location at away from San Bernardino to Ontario; the loss the crossroads of two of the three major railways of the Kaiser Steel plant in Fontana, which cost into Southern California made the city of San the manufacturing jobs of several thousand of Bernardino the economic hub of the Inland Em- San Bernardino Valley residents; the relocation pire. The railroads all had facilities within or close of a major maintenance facility for the Atchison, to the downtown core. Rail lines crossed many Topeka and Santa Fe Railway from San Bernar- areas of downtown from the San Bernardino depot dino to the Midwest, with a loss of about 2,000 jobs; area on their course to industrial or agricultural and the development of the Hospitality Lane area sites in the east San Bernardino Valley, the Los south of downtown and adjacent to Interstate 10, Angeles basin to the west, or areas farther north which drew shoppers and businesses out of down- and east. town San Bernardino. Finally, the real estate re- cession of the 1990s resulted in substantial deval- U.S. Route 66, extending from Chicago to Los An- uation of property. geles, runs through San Bernardino. This famous “mother road” was the major transport route for The Study Area logistics and regional migration into California for almost 40 years. Today, Route 66 is mostly a rem- The Downtown District Focus Area defined for nant of the past, and Interstates 10 and 15 with this study is bounded by Interstate 215 (I-215) to

8 An Advisory Services Panel Report Baseline Street

Study area.

9th Street

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A SSECCOMBEECCOMBE y d a a LAKE e t t t LAKE t W e e e h e e e e a e w r r r r r t t t r t o r e S S S S i r S A H G E D 5th Street 5th Street

CCOUNTY CCOMPLEX Court Street

To Santa Fe Depot CCAROUSAROUSELEL MALLALL 3rd Street

2nd Street 2nd Street

Rialto Avenue e u n e v A n a

BALL m BALL r e t

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Mill Street

Key: Downtown Central Business District

the west, Waterman Avenue to the east, Baseline of-way of the proposed light rail extension to Red- Street to the north, and Mill Street to the south. lands (see study area map). Within that downtown focus area, the central business district is historically defined as bounded The Panel’s Assignment by I-215 in the west, Sierra Way in the east, 5th The panel was asked to recommend strategies, Street to the north, and Rialto Avenue to the policies, and actions for the city and the county to south. For the purpose of this study, the CBD ex- pursue with respect to land use, transportation, tends to just south of Rialto Avenue, to the right- lifestyle, urban design, commerce, and govern-

San Bernardino, California, June 24–29, 2007 9 ment that will bring vitality and economic well- • Extend the linear park system to embrace being back to San Bernardino’s central business close-in neighborhoods. Include safe pedestrian district. In addition, the panel was asked to pre- ways and bike trails to facilitate access to down- scribe clear proposals for implementing its recom- town. mendations. • Continue revitalization of the surrounding near- downtown residential neighborhoods with code Summary of Recommendations enforcement, infill housing, and streetscape im- The following briefly summarizes the recommen- provements. dations that the body of the report describes in • Relocate the proposed site of the Arrowhead more detail: Credit Union corporate headquarters closer to • Engage the citizens of San Bernardino in the downtown, adjacent to the north side of the process of envisioning and developing the fu- Arrowhead Credit Union Park. ture of the downtown. • Locate only a bus stop at the intermodal bus • Take steps to clean and maintain the downtown transfer center site and not the bus transfer area and enhance the aesthetics of the streets station. with plantings and other amenities. • Designate an arts and entertainment district • Increase police patrolling to reverse the percep- that encompasses the existing theaters and his- tion of insecurity and danger. toric buildings on E Street and buildings along Court and 4th streets. • Attract people to the downtown through special events and other sorts of regular and frequent • Redevelop the area to the north of the study programming. area, bounded by 6th and 9th streets and G and D streets, to create an Education Park. • Establish a Business Improvement District (BID) to take on the long-term management of • Partner with private sector business leaders the downtown environment. and developers so the city and county become known as a development-friendly community. • Develop the San Bernardino County Govern- ment Center as a campus on the existing 36- • Hire a chief development officer (champion), ei- acre site between North Arrowhead Avenue ther on staff or as a consultant, whose job is to and North Sierra Way. ensure that downtown development projects stay on track and on time. • Clear the site of the existing Carousel Mall, and restore the city’s historic street grid through • Adopt and enforce design standards and guide- the site. lines to ensure an appealing downtown environment. • Redevelop the site of the Carousel Mall as a contemporary mixed-use urban village with • Invest public funds in the revitalization process. supporting retail, office, and residential uses. • Celebrate the waters of the city of San Bernardino by creating a linear park and stream system that restores existing natural streams previously diverted to underground pipes or culverts. Extend canals and fountains beyond the natural systems to provide cool “green pedestrian streets” for residents to walk or bike downtown.

10 An Advisory Services Panel Report Market Analysis

he city of San Bernardino serves as a county and logistics activities. It connects California’s seat and governmental center for San Ber- coastal ports with cities such as Albuquerque, nardino County. The city’s excellent freeway New Mexico; Kansas City, Missouri; and Chicago, T system, rail terminals, and abundance of Illinois. The city hosts the Burlington Northern groundwater were instrumental in its once being Santa Fe Railroad’s intermodal yard, the Yellow a thriving business center for the Inland Empire Freight Systems’ cross-docking trucking center, region of Southern California. Historically, the and Pacific Motor Trucking. Large warehousing city has numerous associations with Hollywood operations are under development next to the San movie stars as well as with the westward expan- Bernardino International Airport, including those sion of the United States. The city has suffered in for Stater Bros. grocery stores, Mattel, Medline, recent years, however, as it lost jobs and housing Pep Boys, and Kohl’s. The city’s Hospitality Lane stock and as the downtown deteriorated. district is home to new Class A office space, big- box retailers, restaurants, and hotels. The city’s The regional economy is strong and growing, and location at the junction of the I-10 and I-215 free- San Bernardino is well positioned to capture a share ways positions it at a key focal point of the Inland of that growth. Unfortunately, downtown has not Empire region. been successful, despite some major investments by the city. Repositioning downtown to capture The area is home to California State University, a portion of the regional market will take some San Bernardino, and San Bernardino Valley Col- effort but is entirely possible. lege as well as the St. Bernardine Medical Center, San Bernardino Community Hospital, and the Regional Economy Robert H. Ballard Rehabilitation Hospital. The national economic slowdown is currently af- With a once-thriving downtown, San Bernardino fecting Southern California. The UCLA Anderson has been hit hard in the last two decades, expe- Forecast says the national economy is close to riencing the consecutive loss of major employers, recessionary conditions, with real gross domestic such as Norton AFB (10,000 jobs) and a major product growth of 1.8 percent for 2007; growth is railroad maintenance facility with about 2,000 jobs; forecast to return to a more normal 3 percent by the recession of the 1990s; and the migration of mid-2008. The housing sector, however, will con- downtown employers to the Hospitality Lane dis- tinue to be weak for some time, causing a slow- trict. The loss of Kaiser Steel at Fontana, Califor- down in consumer spending and affecting the nia, also affected San Bernardino because many retail sector. Homebuilders have slowed construc- Kaiser employees lived in the city. tion plans because potential homebuyers are hav- ing a harder time qualifying for mortgages. Because of the job losses and the economic down- turn, many homeowners either sold out or lost The Inland Empire is a growing region, with a their homes through foreclosure. This situation population of more than 4 million and an economy led to deterioration of the housing stock, an in- with 1.25 million jobs. crease in investor ownership rather than individ- ual homeownership, and an increase in rental The Economy of the City housing. The city’s location close to the Cajon and San From 1998 to 2004, San Bernardino’s economy Gorgonio passes has made it a center for railroad grew by 26,217 jobs—a 37 percent increase—to

San Bernardino, California, June 24–29, 2007 11 97,139. This upswing represents a recovery from ley Municipal Water District. City Hall is also a the loss of more than 9,200 jobs after the closure major employer downtown. of Norton AFB. Government was both the largest and the fastest-growing employment sector, reach- San Bernardino city has 958,500 square feet of ing close to 20,000 jobs in 2004. Other significant Class A office space, 1.8 million square feet of sectors were retail (16,000 jobs) and education Class B space, and 550,000 square feet of Class C (13,200 jobs). The city’s average payroll per job space. CoStar Realty Information reports that was $35,705 in 2004, higher than for the Inland downtown San Bernardino contains 127 office Empire overall ($32,097). Government jobs aver- buildings and 2.22 million square feet of office aged $49,076 in 2004, demonstrating the impor- space, numbers that have held constant since at tance of the government sector. least 1996. This space includes all classes as well as some space in nonoffice buildings, such as the San Bernardino’s retail sector is highlighted by the 1 million-square-foot Inland Center Mall. The Carousel Mall and the Mervyns space. Some space Carousel Mall in the CBD is in steep decline and in these buildings is leased to public sector tenants, nearly closed; current tenants include several including two county agencies. office users rather than retailers. The new Hospi- No new buildings have been built since 1998, when tality Lane area contains a restaurant row as well 7,000 square feet were added to the inventory. An- as a number of big-box retailers. The Highland nual net absorption is low to negative. Avenue shopping district offers Wal-Mart, Ross, and Mervyns. Retail sales from 1998 to 2005 in- Historical vacancy rates hit a high of 17.1 percent creased at an annual rate of 7.6 percent, faster in the third quarter of 2004 but came down steadily than in California as a whole. Per capita sales have throughout 2005 and 2006, although they are creep- also increased faster than inflation since 1998. Nev- ing up again, reaching 8.6 percent in the first quar- ertheless, in 2005 San Bernardino ranked below ter of 2007. CBD rents are considerably lower than Ontario, Temecula, Victorville, Loma Linda, Colton, regional rents, currently averaging $16.27 per and Riverside in per capita sales. square foot per year. The automotive sector has a very large share of the city’s overall retail sales, followed by service, Retail uses in the CBD include the Fairview industrial, lumber, and logistics firms. Department Ford dealership, Stater Bros. grocery store, the stores, general merchandise stores and small re- 20-screen cinema, and several auto-oriented busi- tailers, and the restaurant sector were smaller nesses. Of the 31 food-service establishments, only components of the retail sector. one is a full-service restaurant; the rest are lim- ited, mostly offering breakfast and lunch service. The downtown area claimed a Ford dealership, gas stations, minimarts, and fast-food establish- ments, primarily along Baseline Street. The CBD Commercial Market in the CBD had almost no shopper-oriented stores but does Downtown San Bernardino’s office space is marked have several auto-oriented businesses. by a few older buildings, several of which appear to be empty. The office space is scattered between The Economy of the CBD E Street and Mountain View Avenue, primarily Downtown functions as a governmental center, north of Rialto to about 10th Street. Property hosting the federal Internal Revenue Service and owners report that their tenants are primarily Department of Homeland Security, the Mexican small firms (with two to four employees), such consulate, a 14-story office building for the Cali- as accountants. San Bernardino’s office space is fornia Department of Transportation (Caltrans), among the least expensive in the region, averag- San Bernardino County administrative offices and ing $15.50 per square foot per year in the down- courts, the San Bernardino Associated Govern- town and $21.36 per square foot per year in the ments, and the offices of the San Bernardino Val- Hospitality Lane area.

12 An Advisory Services Panel Report No new office construction has taken place in the middle ground, and Redlands has the highest CBD; San Bernardino’s office demand is being price ranges. captured by other areas, primarily Hospitality Office Lane and areas closer to the airport. One promis- ing opportunity is Arrowhead Credit Union’s in- CoStar defines the Inland Empire as two markets, terest in building an operations center just south east and west, that contain 46.7 million square feet of downtown. of office space in 3,298 class A, B, and C buildings. The Inland Empire west market, including the air- Downtown San Bernardino has steadily lost retail port, San Bernardino West, and San Bernardino and restaurant uses. The Carousel Mall is largely North, totals 14.8 million square feet. The vacancy empty or underused, with ground-floor space rate in the first quarter of 2007 was reported at rented to public sector tenants. Despite the large 7 percent for the Inland Empire west, down from numbers of public sector workers in the area, down- a high of almost 11 percent in the fourth quarter town restaurants have for the most part closed of 2004. From mid-2003 to early 2007, 264 office because of lack of evening and weekend business. buildings were added for a total of 2.4 million square feet. In the first quarter of 2007, 75 build- Downtown San Bernardino offers only the 230-room ings were under construction, for a total of 1.77 Clarion (formerly Radisson) Hotel and a small million square feet. Holiday Inn Express. The Clarion also advertises a convention center, which consists of a 19,000- In the comparable market of the Inland Empire square-foot ballroom and ten small meeting rooms. east, which includes Riverside, the most recent vacancy rate was 10 percent, the highest level San Bernardino is within 30 minutes of 22 public since the first quarter of 2001. From mid-2003 to and private colleges with 158,000 students. Al- early 2007, 277 office buildings were added for a though not in the CBD, California State Univer- total of 4.6 million square feet. In the first quarter sity, San Bernardino, and San Bernardino Com- of 2007, 148 buildings were under construction, for munity College are significant players in San a total of 3.74 million square feet. Bernardino’s economy, with 16,400 and 12,600 students, respectively. Quoted rent rates increased rapidly in both mar- kets. Inland Empire west increased from $17.74 The county of San Bernardino occupies 671,400 to $24.61 per square foot per year, and the Inland square feet on a 36-acre site that includes the Empire east increased from $18.43 to $25.81 per County Government Center and Courthouse. The square foot per year. county also leases space in locations in the CBD. According to a 2004 Gensler study, the county Retail owns 40 buildings in the city totaling 1.4 million New shopping centers are being built throughout square feet and leases 766,000 square feet in 49 the region, most notably in Redlands, as well as privately owned buildings. Additional public sec- in Riverside and other communities. These shop- tor space is found in the Caltrans Building, and ping centers offer easy access, new stores, na- the city of San Bernardino occupies the City Hall tional brands, and a pleasant environment. They building and the police headquarters. provide a center of attraction that continues to divert the middle class away from downtown Commercial Market: Regional Trends San Bernardino. Commercial demand in the Inland Empire contin- Hospitality ues to grow, spurred by an eastward expansion The region is not known for hosting major conven- from Los Angeles and Long Beach and the avail- tions or conferences, and the hotel sector is proba- ability of large tracts of land at reasonable prices. bly underbuilt. A number of historic hotels exist, San Bernardino and its satellite cities such as such as the Mission Inn in Riverside, and when Fontana represent the low price points in the the Lake Arrowhead Resort reopens, it will refo- Inland Empire. Ontario and Riverside occupy a cus attention on San Bernardino.

San Bernardino, California, June 24–29, 2007 13 Industrial Market: Regional Trends The general impression is of vacant buildings sur- rounded by large surface parking lots. This situa- The Inland Empire absorbed almost 21 million tion has led to a widespread perception that down- square feet of industrial space in four quarters town has crime and that no one wants to live spanning 2005–2006. The region’s transportation there. Consequently, no one does. infrastructure, available land, and low space and labor costs are able to serve the growing demand Nevertheless, San Bernardino has many advan- to support international trade through the ports of tages: a Mediterranean climate, beautiful scenery, Los Angeles and Long Beach. San Bernardino is and ample water resources make it a standout benefiting from the boom in demand for industrial location in Southern California. It has numerous and logistics space. It is supporting that demand area attractions: California Theater, Lake Arrow- through the recent runway expansion at San head Resort, Sturges Center for the Fine Arts, Bernardino International Airport and Hillwood’s San Manuel Indian Bingo and Casino (Highland), construction of logistical and warehouse space and the San Bernardino County Museum. near the airport. In the year ending March 2006, The National Orange Show and Route 66 Rendez- San Bernardino absorbed 17 million square feet of vous inject some temporary excitement to the area. industrial space. Although industrial space trans- A Renaissance Fair had been held in the spring lates to fewer jobs per square foot than other months but has relocated. sectors, it is nevertheless a strong force in San Bernardino’s economy. The city has a 5,000-seat stadium for the Inland Empire Sixty-Sixers baseball team. The city hosts Education the nationally televised Western Region Little League Championship that draws teams from The presence of several universities and colleges several western states. The city also hosts presti- in the region is a positive factor. Many will seek to gious soccer tournaments, such as the U.S. Soccer expand, and the possibility exists of attracting a Club’s Region E Championship, and offers 17 soc- downtown or branch campus to San Bernardino. cer fields in its soccer complex.

Government Extensive transportation facilities, including a comprehensive network of freeways and two San Bernardino County is conducting studies for mountain passes, favor San Bernardino as a expansion of its facilities. It requires 450,000 square business location. feet of office space and more than 3,000 parking Regional demand is strong too, but San Bernard- spaces. A new courthouse has been approved with ino’s downtown is not capturing any of that de- more than 30 courtrooms in 351,000 square feet; mand. Instead, Hospitality Lane has become the additional courtrooms are to be retained in ex- center of economic activity for the office and re- isting space. tail sectors, as has the area near the airport for the industrial sector. Shopping center develop- Improving the Competitiveness of the ment is taking place in Redlands and Riverside, CBD as well as other surrounding communities such as Rancho Cucamonga, Ontario, Fontana, Banning, What is holding the CBD back? Despite strong re- and Beaumont. gional demand in all sectors of the economy, the San Bernardino CBD has consistently lost busi- Downtown San Bernardino must be repositioned nesses, buildings, and people in the last 20 years. to capture the available regional demand. Meeting Although the city has implemented a number of this goal will require an exciting new plan for down- projects and has acquired blighted properties, town that capitalizes on San Bernardino’s strengths business closures continue unabated. The CBD is and the back-to-the-city movement now evident now largely devoid of appealing shops and restau- throughout the United States, as well as specific rants. Downtown also has very little housing. initiatives to overcome negative perceptions.

14 An Advisory Services Panel Report Residential Market whom would likely work in Los Angeles County and the Inland Empire area. A prospect exists San Bernardino’s population is growing; in 2006, that 312 new residential units will be built around it reached 202,000, comprising 60,000 households. Seccombe Lake. The city is the second largest of the Inland Em- pire’s communities. San Bernardino is considered Residential Demand in San Bernardino the center of an 850,000-person market that in- Residential construction and existing home sales cludes the communities of Colton, Fontana, Grand have slowed in the last six months because of a Terrace, Highland, Loma Linda, Redlands, Rialto, nationwide pullback in the housing sector. Re- and Yucaipa. gional growth patterns indicate that demand In 2005, the city’s median income was reported should resume in the next year. In the foothills as $38,470. Almost 56 percent of the city’s resi- and in neighborhoods outside the downtown, San dents classify themselves as Hispanic, above the Bernardino should continue to experience hous- 47.5 percent reported in 1990, and higher than the ing growth. 44 percent share in San Bernardino County. The Residential Demand in the CBD population tends to be young, with 60.2 percent At present, no demand exists for residential uses of residents under 35 years of age in 2005. Only 15.3 percent of the population was over 55. Only downtown. Downtown has acquired a negative about 46.9 percent of the population is in prime image. In the absence of shops and restaurants, homebuying age, 25 to 64. little attracts residents. The public sector office workers prefer to live elsewhere and commute The greater downtown has 4,077 households, of to the CBD. which 42 percent have incomes under $15,000; an- other 20.1 percent have incomes between $15,000 Nevertheless, downtown has the potential to be a and $25,000. The CBD has only 309 households. superior residential location. The back-to-the-city movement is strong and can be tapped as part of a Compared with Los Angeles and the coastal com- coordinated development plan for a large part of munities, San Bernardino offers the option of downtown. Redevelopment of the Carousel Mall in single-family homes at a reasonable price. In the an urban mixed-use form including residential is first quarter of 2006, the city’s median price for essential to revitalizing downtown. existing homes was $313,300. Interestingly, until the housing boom that started in 2001, existing Creating residential demand in downtown will home prices rarely exceeded $100,000. New require efforts at many levels: homes in the foothills command much higher prices, and because much of new home construc- • Overcoming the perception that downtown is tion has been in such areas, the city’s median new dangerous; home price reached $505,000 in 2006, lower than • Providing a desirable environment in which to in Rancho Cucamonga but higher than in River- side or Ontario. live, including shopping and entertainment op- portunities and green open space; and New home sales reached 700 units in 2003, a his- torical high, and have decreased since, although • Working with a developer who is entrepreneur- the housing boom was not over. In 2007, new home ial, well financed, and able to take on a large absorption has slowed dramatically. mixed-use project.

Downtown San Bernardino has few housing units The current population of San Bernardino is not and only small new construction projects. ANR necessarily the target market for new housing has built the Meadowbrook project on the edge of development. To revitalize the CBD, San Ber- downtown. LNR purchased the Carousel Mall and nardino will have to attract a middle-class popula- proposed to build 500–700 residential units aimed tion downtown. To the extent that these new resi- at young families, singles, and couples, many of dents can be homeowners rather than renters, the

San Bernardino, California, June 24–29, 2007 15 downtown will benefit, because homeowners have Market Timing a greater stake in the appearance of their property. Currently, no market demand exists downtown New residential construction in downtown should other than that of the public sector. Putting in be aimed at key market segments, such as young place the elements that will lead to creation of de- singles who like a more-urban lifestyle; two-income mand will take a year or more. During that time, couples who are not afraid of density and who are the housing market should regain strength and attracted by mixed uses, lots of activities, transit be poised to deliver. availability, and a beautiful setting; and people whose children are no longer in school and who Even when redevelopment begins, however, it can now feel free to live in a more-urban housing will take some time to overcome the elements that product. Other segments of interest would be peo- have been holding back downtown. Development ple in arts-related occupations and college and uni- will start slowly at first, and as investors gain con- versity students. A variety of building types and fidence in the downtown, development, sales, and densities will be required to meet the needs of leasing will begin to take off. When San Bernardino’s these diverse residents. A mixed-use approach CBD has reached a threshold of interest, drawing that provides quality retail and restaurants, en- people from outside the city in the evenings and tertainment options, open space, and urban style weekends, the CBD’s desirability will increase and amenities is necessary. further development proposals will be initiated by numerous private sector actors with less and less The housing products for these segments would city intervention. be townhouse, stacked flats, condominiums of various types, and upscale apartments. The new population of downtown will look for vibrancy and activity in their surroundings. Thus, a compre- hensively planned approach to providing housing centered on the focal points of an arts and enter- tainment district with links to rail and bus rapid- transit transportation alternatives and close to quality retail and restaurant venues is essential.

16 An Advisory Services Panel Report Planning and Urban Design

lanning and design should be based on rec- something like the front porch of San Bernard- ognizing the assets and resources of a com- ino where citizens can find a common meeting munity and seeing how they can be brought ground and an environment for civic activities. P to bear on its problems and issues. San Bernardino certainly has problems and issues of • Provide an alternative contemporary urban life- long standing; nevertheless, the assets that down- style complementing San Bernardino’s existing town San Bernardino can assemble to resolve its traditional neighborhoods. The back-to-the-city problems and build a solid future are impressive. movement is a strong trend across the country Among the assets that the panel has recognized in cities of every size. San Bernardino must take are the following: advantage of this phenomenon to bring people • San Bernardino has an extraordinary history back into the downtown. and the historical resources to prove it. Among these are several historic buildings, some desig- Urban Design Concept nated and some not, and the street grid laid out by the Mormons in the 19th century. To facilitate the accomplishment of these goals, the city should adopt the following urban design • An extraordinary unrealized opportunity is pre- concepts: sent in the natural streams and watercourses, many of which have been channelized or buried. • Create an urban, mixed-use, pedestrian-friendly • Extensive surface parking serves as a land bank live/work urban core. Use this principle to at- until this potentially valuable land can be devel- tract projects closer to the core to enhance oped or redeveloped. The panel suggests that walkability and access to the center. the City Hall parking lot, for example, could one day become a town square or green space in • Celebrate the city of San Bernardino’s distinctive which people can congregate and socialize. abundance of water and thermal resources by creating a linear park system—enhanced with • The city has spectacular mountain views along water features—that reaches out to the adjoin- the north-south axis. The Mormon grid on which ing neighborhoods, providing “green pedestrian they city was planned can be used to focus at- streets” for residents to reach downtown. tention on landmarks such as historic buildings. San Bernardino should Goals celebrate its abundant water resources as a The planning and design team focused on three symbol of the city’s goals in attempting to envision the revitalization rebirth. Waterways and of downtown San Bernardino: fountains can be extended • Develop an urban environment that supports beyond the natural sys- activities such as government, and arts and en- tems to provide cool tertainment that function best consolidated in “green pedestrian streets” an urban center. for residents to walk or bike downtown. • Provide a social and civic hub for all of San Ber- nardino’s citizens. Make the downtown into

San Bernardino, California, June 24–29, 2007 17 EEDUCATDUCATIONION 7th Street e

PARK u 215 PARK n e v

A SSECCOECCOMBEMBE y d a

a LLAKEAKE t t t e W e e e h a e e e r r r r w t t t r o e S S S r i r S H D G A 5th Street t e e r t

S CCOUNOUNTYTY E CCOMPOMPLEXLEX Court Street CCAROAROUSELUSEL MMALLALL 3rd Street To Santa Fe Depot 2nd Street

Rialto Avenue e u n e v A n a

BBALLALL m r e PPARKARK t a W

Key: Light Rail Extension to Redlands Downtown Area Boundary Water Features Bus Rapid Transit Key Nodes

Land use strategy. M Planning and Urban Design should be constructed to be visible from the Recommendations freeway. The accompanying land use strategy map identi- • Clear the site of the existing Carousel Mall and fies the key components of the panel’s plan and restore the city’s historic street grid through the site. Restoring the grid will improve connec- strategy for downtown. The circle is a ten-minute tivity and ease pedestrian movement through- walk centered on the intersection of E Street and out the community. Court Street. The panel urges that continued revi- talization and renewal efforts also be targeted at • Redevelop the site of the Carousel Mall as a the near-downtown neighborhoods. Every city contemporary, mixed-use urban village with needs strong, economically diverse communities supporting retail, office, and residential uses. close to downtown. This type of urban environment will be attrac- tive to empty nesters, students, young adults, Other recommendations illustrated on this map commuters tired of dealing with congested are the following: highways, and seniors.

• Develop the San Bernardino County Govern- • Celebrate the waters of the city of San Ber- ment Center as a campus (“County Complex”) nardino by creating a linear park and stream on the existing 36-acre site between North system that reaches out to the adjoining down- Arrowhead Avenue and North Sierra Way. The town neighborhoods and by restoring existing system of waterways and streams should be natural streams that had previously been di- brought through the campus to enhance it. An verted to underground pipes or culverts. Ex- iconic landmark, such as a clock tower or spire, tend canals and fountains beyond the natural

18 An Advisory Services Panel Report systems to provide cool, green pedestrian streets that replaces the unproductive and underperform- for residents to walk or bike downtown. ing asset that the mall is.

• Extend the linear park system to embrace The panel suggests building on this scheme to close-in neighborhoods. Include safe pedes- complete restoration of the grid. Furthermore, trian ways and bike trails to facilitate access the community green concept should be extended to downtown. Bike trails can be extended south beyond the site to connect other neighborhoods to meet other bike trails that extend across and serve a larger purpose than simply enhancing Southern California. a development project (see development strategy map). Finally, the residential densities proposed • Continue revitalization of the surrounding by LNR must be higher, so that the entire project near-downtown residential neighborhoods with will have about 700 units. code enforcement, infill housing, and street- scape improvements. The original grid established by the Mormons ex- tends throughout the San Bernardino area and be- • Relocate the Arrowhead Credit Union corpo- yond. The panel recommends that the city con- rate headquarters closer to downtown, adjacent sider prioritizing the streets on the grid so that to the north side of Arrowhead Credit Union some will serve to move traffic while others will Park. serve primarily to provide a safe, quiet, and pleas- ant experience for pedestrians downtown. • Locate the intermodal bus transfer center in a different location so that the E Street Metro- Illustrative Plan link station will be more attractive for transit- oriented development. The development strategy map illustrates the overlay of the linear green system on the street • Designate an arts and entertainment district grid to show a comprehensive system of move- that embraces the existing theaters, historic ment that offers choices of ways to get around buildings on E Street, and buildings along the city. In addition, in the east is the system of Court and 4th streets. This district would also lakes, trails, and parks that link the neighborhoods be a good place for restaurants and other types and beyond. This green system should be linked of after-show entertainment. through the new county campus and extended • Redevelop the area to the north of the study area, into areas that are now used only for parking. The network of green space should be extended onto bounded by 6th and 9th streets and G and D E Street. E Street will become the center of activ- streets, to create an Education Park, as proposed. ity in the new downtown. E Street will be the cor- ridor for the bus rapid transit, and it should proba- Design Strategies bly be the retail center for downtown, too.

Here, the panel focuses on a vision of what San The green system should be extended across the Bernardino can become that is comprehensive, freeway and into the neighborhoods to the west of long term, sustainable, and coordinated. To build the downtown the vision, the panel began with the LNR proposal for redevelopment of the Carousel Mall site. LNR Finally, the plan shows a new gateway to down- proposes to partially restore the original street town San Bernardino at I-215 and 3rd Street, grid through the site and introduce a community framed by two parks. The gateway will celebrate green to create a sense of place as well as a loca- the rebirth of San Bernardino and leave an im- tion for people to assemble and connect with one pression of green, water, and pride in a wonderful another. This kind of meeting place creates com- place to live. munity and a sense of belonging in the urban vil- lage. Finally, by linking the grid with the green space, the LNR plan creates a space with identity

San Bernardino, California, June 24–29, 2007 19 Development Strategies

ingle development projects set down here landmarks are created within view of the 250,000 and there in downtown San Bernardino are automobiles passing by daily. The image of San not likely to slow the spiraling disintegra- Bernardino will be transformed with a vibrant S tion of this once-thriving city center. The center in a highly visible location. regional draw a city center should command, the developer and investor attention that should be Uniqueness realistic, and the pride and identity a community Great cities have unique qualities and features not should enjoy in its downtown will not happen in easily replicated by shopping centers and boringly San Bernardino in its present state. In addition, similar strip developments, bland suburban office the city’s inner-ring suburbs similarly suffer from buildings, and condominium blocks that are two disinvestment, blight, and low-income demograph- exits away from the CBD. Pasadena has its Cali- ics. Attention must be focused on all these prob- fornia Mission–style architecture, Beverly Hills lems, but the revitalization of San Bernardino be- has its glitz, and San Bernardino’s downtown gins with its heart—the downtown! needs to capitalize on its special attribute—a city built above an endowment of water in a desertlike Downtown San Bernardino Needs a environment. Features highlighting the city’s rich Grand Vision resource of underground geothermal water should be incorporated in key public spaces, including Far-reaching action is required to change the dynamics of San Bernardino’s downtown. The primary interstate entrances and civic spaces. establishment of a grand vision that conceives of Safety the central business district as an attractive place The measure of San Bernardino downtown’s suc- to live, work, and play will begin the process of cess will in large part result from the change in change. The vision must include the characteris- perception of how safe it is to live in and visit tics that will make the CBD successful. These are the area. Higher densities of residential develop- well known and are found in successful down- towns everywhere. ment will make public spaces, including streets and parks, feel safer as more people frequent the area Vitality and make use of the existing and future amenities. The downtown should be a lively, active place from Defensible design of streets and buildings will re- early in the morning as people leave their homes inforce safe environments. and arrive for work and through the day and eve- ning when streets and sidewalks fill with residents Significant Strengths and Strategic and workers walking, dining, and meeting. Res- taurants and entertainment destinations should Advantages activate the streets on weeknights and weekends. The downtown district of San Bernardino has Visibility significant strengths upon which to build a vital San Bernardino’s downtown should be visible and downtown core. At present, a number of opportu- welcoming from the expanding I-215 freeway. nities exist, which, if taken together, can provide Downtown’s draw in a region dominated by auto- the catalyst for significant redevelopment of the mobile travel will be increased as high-quality new downtown. The following sections discuss some of development, accessible public space, and civic these opportunities.

20 An Advisory Services Panel Report Development strategy.

7th Street e

215 u n e v A y d a a e t t t t W e e e h e e e e a e w r r r r r t t t t o r r S S S e S r i A S E D G H 5th Street

Court Street

3rd Street

2nd Street

Rialto Avenue

Key: Green Space Housing/Retail/Office Mixed Use Light Rail Extension to Redlands Water Features County Offices Bus Rapid Transit Mill Street Housing/Retail/ Metrolink Extension/Light Rail Office Mixed Use B AssembledC Large Parcels of Land Abundant Natural Resources The city government has had the foresight to The city is blessed with spectacular views of the identify and acquire a number of large tracts of San Bernardino Mountains. Unlike many of the land within the target area. By controlling this communities in the region, San Bernardino has land, the city will be able to both encourage devel- plentiful natural water sources lying just beneath opment and influence the form that investment the surface. This natural bounty provides the chance to create an urban environment inter- will take. spersed with distinctive water features, such as Inexpensive Land with High-Value Potential small lakes and streams. San Bernardino’s current land values are more af- Transit Hub fordable than are many of its suburban neighbors’. The Metrolink extension coupled with the pro- Within the context of a growing population base in posed E Street transit corridor, linking the down- the region, this situation affords the city the op- town with the universities and neighborhoods portunity to attract new investment that will yield both north and south, makes the downtown a nat- high value with lower development costs. ural location for entertainment venues and restau-

San Bernardino, California, June 24–29, 2007 21 rants. The new transit lines will also assist the city though this view is not borne out by statistics, in attracting a resident population—young profes- which show the downtown as an area relatively sionals who seek an urban environment and empty free of crime, the perception hampers the city’s ef- nesters who will enjoy the amenities of downtown forts to market the area and its attractions. Com- living and the convenience of transportation ac- munity leaders express skepticism that the down- cess, enhanced by attractive green space. town can be transformed into a vibrant, attractive Downtown Employment Center place to work, play, and live. Downtown has a weekday population of more Code Enforcement and Blight than 15,000, creating a customer base for restau- Some view current code enforcement efforts as rants and retail. Attracting additional business insufficient to create an attractive urban environ- downtown will continue to increase the demand ment. Cleanup is needed around the downtown for goods and services convenient to downtown buildings. Moreover, a scrap yard with inadequate employers. screening sits at one of the major gateways to downtown. Development Challenges Centralized Social Services Downtown Downtown San Bernardino has significant chal- To lure investment, visitors, and residents to the lenges to overcome before it can achieve its goals downtown area, the city would be well served in of revitalization and prosperity. The panel believes decentralizing the social services and ex-offender that many of these challenges can be conquered programs currently located downtown. Placing by realignment of resources to take advantage of these services strategically throughout the com- the opportunities presented by downtown’s loca- munity will make the services more accessible to tional advantages. those who need them. Lack of Downtown Residents Development Opportunities The lack of a “24/7” resident population down- town makes attracting and retaining retail and Many important areas of development have poten- restaurant establishments difficult. Most cannot tial and will ultimately contribute greatly to the survive on lunchtime traffic only, and with the loss downtown renaissance. Several pressing develop- of many downtown restaurants in recent years, ment opportunities, however, are of such size that, downtown employees have fewer reasons to ven- if thoughtfully integrated, they will redirect mar- ture downtown during their lunch hour or before ket forces to downtown San Bernardino. These and after work. signature projects are the redevelopment of the No Consistent Marketing Program Carousel Mall and the creation of a County Gov- ernment Campus. Many people view downtown as a place “with noth- ing to do.” Although in the past the city has spon- Carousel Mall sored concerts and outdoor events downtown, A large-scale comprehensive redevelopment of drawing large numbers of attendees, much of this the Carousel Mall area is needed because it is one activity has decreased in recent years. The Route 66 of the two largest elements of the downtown’s re- Rendezvous is the largest event centered down- naissance. The panel recommends that the site be town; it draws hundreds of thousands of visitors developed to its fullest potential as a mixed-use from throughout the United States. Recently, the residential and retail development. This develop- Operation Phoenix Foundation has initiated down- ment provides the means of establishing a down- town concerts and events. This type of program- town population sufficient to attract additional ming and events should be an important priority. retail and services and to serve as a catalyst for Negative Perceptions new investment. A perception exists that the downtown is plagued The panel has reviewed the development plans with crime problems and unsafe after dark. Al- submitted by the mall owner—LNR—and has

22 An Advisory Services Panel Report Attract projects down- town. Enhance walkability and access to the center by creating an urban, mixed-use, pedestrian- friendly live/work urban environment, such as this street in Victoria Gardens at Rancho Cucamonga.

considered the future market for activity at this new retail at this location. The design of the blocks site. The panel’s findings are as follows: should allow for stores that are 90 feet deep. To ensure that the ends of the retail centers are acti- New Residential Community. Residential density of vated and provide an active street facade that 25–55 units per acre should be included over much continues from the interstate frontage and into of the site. Phasing should match market de- the new urban village, the end retail units should mand but should start with sufficient critical mass be 120 feet deep. to create a feeling of neighborhood. Housing types should include street-facing residential units These areas will abut the existing Fairview Ford wrapping parking garages with a market- facility. The Ford dealership is an excellent con- determined mix of stacked townhouses, flats, and tributor to city’s tax revenues, and care should be lofts. At minimum, 700 units should be included taken to minimize the effect of the dealership’s on the site. The location of these units will be be- large surface lots on the entrance to the down- tween 2nd and 4th streets, and between G Street town at both 2nd and 3rd streets. and the existing buildings facing E Street. Most of San Bernardino’s downtown retail is va- Retail. Regional town center retail should be de- cant, making the case for new retail based on the veloped along the interstate, allowing easy access existing market difficult. Yet only a couple of by auto from around the region. Integration of the decades ago a variety of restaurants and shops retail into the new residential community located served both local residents and daytime workers. to the east is vital, thus creating a pedestrian- With the addition of residents with higher dispos- friendly retail experience. Together, the interstate able incomes as well as dramatically improved in- access and exposure, and the “safe” adjacent uses terstate access to the region, the inclusion of new will bolster the market support for substantial retail can be achieved.

San Bernardino, California, June 24–29, 2007 23 An important and distinc- tive aspect of downtown San Bernardino is the his- toric building stock. The courthouse is an obvious example of an essential, unique, and historic building, but others are also deserving of preser- vation, like this one on West Court Street.

Hotel. An opportunity for a good downtown hotel also provide a vista from the interstate all the way will exist in the midst of the redeveloped mall to the old courthouse, one of San Bernardino’s his- area. Located near the retail area, and the arts toric treasures. and entertainment area near 4th Street and the extension of F Street, this hotel could contain ap- Court Street Extension. The extension of Court proximately 250 rooms. Street to the west will require the demolition of the city parking structure and the J.C. Penney Street Grid. The city should reintroduce the exist- buildings. These structures are obsolete with no ing street grid to the area, with F and G streets architectural value. As obstacles to the plan for a continuing in their original north-south direction pedestrian-scale, interconnected downtown, these and Court and 3rd streets reintroduced through buildings should be acquired by the city’s Eco- the site from E Street to the future interstate nomic Development Agency (EDA) and included frontage road. This introduction will create walka- in the overall mixed-use development. ble blocks, reduce the potential for overly large buildings and surface parking lots, and create con- Historic Buildings. An important and unique as- nections to important feeder roads such as 2nd pect of downtown San Bernardino is the historic and 5th streets, E Street, and the future inter- building stock. The courthouse and U.S. post of- state frontage road. The extension of Court fice are obvious examples of essential historic Street, in particular, will create city blocks 270 buildings. In addition, three historic buildings feet deep, similar to the blocks between E Street exist on the Carousel Mall blocks: the Harris and the courthouse, resulting in relatively short building, the Andreson building, and the Wool- walks from the residential development to the worth store. These buildings need not be acquired neighborhood shopping center and the arts and for the success of the Carousel Mall redevelop- entertainment district. The street’s extension will ment; however, they should be preserved and

24 An Advisory Services Panel Report placed in service with compatible uses. The Wool- mark easily viewed from the I-215 interchange worth building will have new vitality in the new and serve as an attraction for the county campus. community and could serve as a drugstore conver- sion or another retail use. The Andreson building County Courthouse. The new county courthouse, is a handsome structure, with opportunity for con- which received final funding approval from the version to residential use or for lease to small of- state legislature, will provide a new home for the fice users, expanding on its existing occupancy. judiciary, relieving existing space shortages. The Either use is consistent with the overall plan for State Administrative Office of the Courts will own redevelopment. New market tax credits could be and manage this project. The historic old court- used to help provide equity for the adaptive use. house building will continue to provide some civil court functions, and the remainder will be con- The Harris building is an imposing structure that verted to additional administrative offices for the provides an excellent opportunity for adaptive use court. as lofts or office space or even a destination geo- County Clerk and Land Records. A number of years thermal spa. Ground-floor retail would be an ex- ago the County Hall of Records moved to Hospi- cellent fit for this building in particular. Although tality Lane. This move has both restricted ease of the reciprocal easement agreement encumbering access to those records and resulted in the reloca- these buildings complicates site control for the tion of numerous title companies and surveyors larger project, the panel is confident that the ex- who reference these records in the course of daily traordinary value to be created by this project will business. With the redevelopment of the County encourage the owners to cooperate with the proj- Government Campus, these departments can be ect’s objectives. returned to downtown. County Government Campus Justice Center. Consideration has been given to lo- The panel strongly recommends the creation of a cating the county jail next to the new courthouse. County Government Campus downtown. The The panel supports this option as a means for the county campus has the potential to create a mar- county to manage justice functions more efficiently. quis destination and anchor the revitalization of The panel further recommends that the site for the downtown. The proposed 36-acre site cur- the jail be west, rather than east, of the new court- rently houses the Board of Supervisors, historic house site, south of the 303 building. This location courthouse, county administrative office, district allows the new courthouse to act as a buffer be- attorney, assessor, treasurer/tax collector, Land tween the jail and the residential neighborhoods Use Services Department, public health annex, to the east. The panel also supports the reloca- and other government offices. The expansion of tion of the Sheriff’s Department to the Justice the campus will allow the county to centralize fur- Center site. ther functions currently housed at other locations in the city and county. The County Government Iconic Tower. An iconic landmark visible from the Campus will not only create an attractive environ- freeway, such as a clock tower or spire, should be ment for county employees and visitors, but it will constructed. It should not be an office tower but also serve to enhance downtown’s redevelopment. rather a special landmark structure.

Green Space and Water Amenities. The site as pro- Office Space. The relocation of the Hall of Records posed is large enough to allow the origin of a se- as well as the court expansion can be used by the ries of greenways and water amenities that would city to encourage the relocation to downtown of- then continue to weave through the downtown fices of attorneys, title companies, surveyors, and and end at the city’s gateway to I-215 (see devel- others having regular business with the county. opment strategy map). Small streams linking The Economic Development Agency should begin small ponds with walking paths and plantings to quantify new demand for office space, work would create a showplace for visitors to the with local office building owners to identify exist- county offices. A large spire can provide a land- ing vacancies, and assist in marketing downtown

San Bernardino, California, June 24–29, 2007 25 locations to office users as well as office building to the new residential development areas, its con- developers. The agency may also wish to consider nection to the rail lines to Los Angeles and the providing incentives to spur the repopulation of coast, and its potential connections to Redlands. downtown office space. This facility will provide future residents the op- portunity to travel conveniently and inexpensively Retail and Restaurants to employment centers in and around Los Angeles The location of additional county staff downtown and to the beaches on weekends—all while avoid- provides more potential consumers of goods and ing congested highways. services for downtown businesses. Currently, lit- tle retail and few restaurants exist downtown. To Yet more should be done to connect this nexus to lure businesses to locate downtown will require the downtown and to capitalize on its location to a concerted effort on the part of the EDA to de- spur new development. Offices located near this velop and implement a retail and restaurant strat- point will provide a convenient location for work- egy. It could involve marketing support, low-inter- ers who commute and a competitive advantage to est loans, and downtown events. businesses in attracting and retaining employees. A recent survey of corporate leaders in Atlanta Downtown Housing indicated overwhelmingly that congestion was the With the development of attractive, affordable biggest obstacle to further business growth in the housing downtown—for both sale and rent—the area. Increasingly, Inland Empire workers are panel believes that the downtown will attract a choosing their jobs based on their commuting time. sizable resident population. The potential market The panel endorses Arrowhead Credit Union’s for this housing includes young professionals as decision to relocate its offices near downtown on well as empty nesters. With the initiation of rail property just south of the new baseball stadium. service from Redlands to Los Angeles, the city The panel recommends, however, that the county, may be able to attract young professionals making the city, and Arrowhead executives develop the their first home purchase who work in the greater planned offices directly adjacent to the station. Los Angeles area. The panel believes this location will do more to Other Opportunities Downtown stimulate downtown redevelopment and will ulti- In addition to the Carousel Mall redevelopment mately be a more beneficial location. The panel and the new County Government Campus, the urges that the city expedite the process of provid- city should pursue several other significant devel- ing permits for the building program to facilitate opment opportunities with support from its gov- the change. ernmental partners and the business community. Should the credit union offices be successfully lo- cated adjacent to or integrated with the station, Transit-Oriented Development and the the proposed soccer fields could be built on the Arrowhead Credit Union south side of the baseball stadium on the site orig- inally proposed for the Arrowhead Credit Union The proposed multimodal facility at the intersec- offices. In either case, an effort should be made to tion of Rialto Avenue and E Street provides an create not just a station project but a place of ac- excellent opportunity for development around tivity, and attention should be paid to the scale transit. Developing near transit and offering the and design of the environment and its pedestrian opportunity to use light and heavy rail or bus connections. The city should exploit fully opportu- rapid transit promotes a better quality of life for nities to leverage the station project with addi- the Inland Empire resident who either works in tional development. Major public investments like San Bernardino but lives elsewhere in the region transit can increase property values and create or lives in San Bernardino and works farther opportunities for community building. Because of west. The panel endorses the construction of the the enormous potential to increase real estate multimodal facility at this location because of its value, generate jobs, and increase tax revenues, excellent location for walking (1,200 feet) relative the city should link planning around transit with

26 An Advisory Services Panel Report economic development. Transit projects with ris building for conversion to gallery and live/work thoughtfully planned routes and station locations space. This use would be highly compatible with can set the stage for significant private develop- the concept of an arts and entertainment district ment: the careful coordination of transit and de- and would no doubt draw additional university velopment is critical so that each can optimally students to the area. enhance the other. Education Park Bus Transfer Station The education community in San Bernardino is a Although the panel endorses the multimodal major employer with pent-up expansion needs. transfer station location and concept, it urges the The Education Park proposed to the north of the county to locate only a bus stop there and not the study area in the area bounded by 6th and 9th bus transfer station. The transfer station would be streets and G and D streets could help meet those better accommodated elsewhere. Locating the bus expansion needs in an efficient and cost-effective transfer station at a different place will create bet- manner while also introducing jobs to the down- ter transit options for the users while eliminating town area to stimulate the revitalization. the negative impact of a high-intensity bus trans- fer station, where as many as 28 buses and several Development Opportunities Adjacent to hundred passengers could be concentrated. Trans- Downtown fer stations could crowd the amount of land avail- able for development and make the place too noisy In addition to the projects and opportunities dis- for some uses. cussed previously, the panel would like to high- light activity in the areas immediately adjacent to Arts, Entertainment, and Restaurant downtown, which can leverage development in the downtown core. District South of 2nd Street Court Street and 4th Street are ripe for redevel- The downtown renaissance, the concentration of opment as an arts, entertainment, and restaurant county offices, and enhanced interstate access will district. Several historically significant buildings result in new potential for office development. on Court Street east of E Street should be pre- Many businesses that have a historic relationship served and used as restaurants or venues for live to downtown San Bernardino have relocated be- entertainment. This district theme carries over to cause of its decline. With new government anchors 4th Street where the historic California Theater and private sector development activity, the re- provides an anchor for the development of more turn of offices to the CBD is inevitable. Much of restaurants and galleries. the now-vacant office space will find tenants, but new Class A office space will be needed to attract The panel recommends that the currently vacant the return of businesses to the CBD. site at the northwest corner of E Street and 4th Street be considered for an outdoor venue with an The panel believes that the areas of existing office open arcade, courtyard, and gazebo. It could be an buildings to the west of the County Government excellent place to relocate the carousel from the Campus will increase occupancy. New office con- mall, creating an icon to mark the entertainment struction may eventually replace the existing out- district. The site could then be used as a venue for dated retail concepts along 2nd Street and Rialto before- and after-theater events, community con- Avenue, between G and E streets, while the block certs, and gatherings celebrating the city’s rich closest to the interstate may be well suited to a ethnic and cultural heritage—much as San Anto- mix of retail and office uses. nio has done. South of the Study Area The art department of California State University, A number of underused properties exist toward San Bernardino, is interested in acquiring the Har- Hospitality Way along E Street. Although these

San Bernardino, California, June 24–29, 2007 27 areas should not be a high priority for the city end, both the county and city may wish to ex- EDA’s effort, planning for this important connec- plore employer-assisted housing programs for tion to the successful Hospitality Way should com- their employees. Several urban areas have used plement downtown growth. In particular, the large this program successfully to both attract em- underused Orange Show property and other de- ployees and support development of owner- clining retail sites provide future opportunities occupied urban housing options. for redevelopment. • American Sports University: American Sports West of I-215 University (ASU) brings a unique asset to down- The new interchange alignments will provide bet- town as well as the potential for new customers ter access to the west side of I-215. This change is for downtown retail and restaurant establish- long overdue and will provide important down- ments. The city should support efforts to grow town edge development opportunities on the west ASU’s student body. If, for any reason, ASU side of the freeway, south of the rail yard. This decides to sell the historic Fox Theater facility, development edge should be envisioned for high- the city should ensure that the theater is pre- quality development that will enhance the experi- served and encourage its adaptive use as an ence of entering the downtown. Uses developed in entertainment venue. this corridor should be complementary to down- town uses. • Neighborhood-Serving Retail: The Stater Bros. North of the Study Area Market on 5th Street between F and G streets can be the anchor for a neighborhood-serving The panel suggests that the northern portion of retail development that will become increas- the project area be devoted to creation of an arts, ingly prominent as the residential population entertainment, and restaurant district, interspersed with mid-rise housing. People from throughout the downtown increases. region can be attracted to the area on evenings • Housing for Seniors: The existing housing de- and weekends by enhancing the existing ameni- velopment for seniors at 4th and G streets will ties with new venues and appealing open spaces. be joined by a 90-unit housing project for se- Conversely, the growth of a resident population in niors funded largely through the U.S. Depart- the downtown area will bolster the health of the ment of Housing and Urban Development. The restaurants and entertainment venues. Other sig- city was able to leverage $600,000 to create this nificant projects in this area include the following: $10 million project. The goal of the developers is • Renaissance Park: This mixed-use development to create a town center for seniors on the north between 5th and 7th streets at North Sierra side of downtown. Way on Seccombe Lake has the potential to add mixed-density residential options to the down- • Mixed-Income Housing: Directly to the north of town housing mix, providing viable housing op- the projects serving seniors, the city has ac- tions for government workers and others who quired the balance of the block. It intends to de- prefer to avoid long commutes to work. The molish the remaining blighted structures, sell a proposed development will include a community portion of the site to a housing developer, and center, a pool, 38,000 square feet of retail, and facilitate the construction of new workforce 14,000 square feet of restaurant space. housing on the balance of the property.

• County Government Campus: The County Gov- West of the Study Area and First-Ring Neighborhoods ernment Campus, discussed in detail in the pre- vious section, can be a significant catalyst to the The historic train depot and commuter rail lines reinvigoration of downtown. Numerous Man- located west of I-215 are valuable assets that pro- power, Inc., studies suggest that stable housing, vide the opportunity to connect the east side di- close to employment, increases worker reten- rectly to the west side through an extension of 3rd tion and decreases absenteeism. Toward this Street. Connecting in this way also facilitates ac-

28 An Advisory Services Panel Report cess for neighborhood residents to the employ- • Promoting the elimination of blight; ment center at the airport. • Increasing code enforcement, with a focus on In addition to making the planned improvements landlords with substandard properties; to the La Placita retail center adjacent to the • Providing owner-occupied housing rehabilita- historic depot restoration, the city must address tion assistance; the needs of the neighborhoods immediately adja- • Promoting infill housing on vacant sites; and cent to this retail center and other* neighbor- hoods close to the downtown core by taking the • Supporting neighborhood-serving retail following actions: development.

San Bernardino, California, June 24–29, 2007 29 Implementation

he panel proposes a level of new public and least a bilingual website; bilingual press packets; private sector activity and investment in PowerPoint presentations; mounted display boards; downtown San Bernardino that the city has and community group handouts with illustrations, T not seen for many years. Compared with the maps, succinct project descriptions, and descrip- past two decades of downtown disinvestment and tions of the benefits the plan will provide to all decline, the amount seems enormous, even un- parts of the community. achievable. Nevertheless, compared with the pro- The website should provide an easy mechanism jected growth of people, jobs, and investment in for receiving community feedback and input, or the Inland Empire region, the amount is modest. written input can be solicited at presentations The panel suggests that with smart planning and made to neighborhood and community groups, consistent, disciplined stewardship, downtown service organizations, and churches. Public service San Bernardino will become vital again by claim- announcements, regular press briefings, and posi- ing its share of the growth of the Inland Empire. tive media coverage of development plans can Implementing this ambitious agenda will require serve to keep community stakeholders informed collaboration between the executive and legisla- as redevelopment progresses. tive branches of the city of San Bernardino, be- tween the city and county of San Bernardino, Cleanup among local governments and the state of Califor- The most obvious sign of disinvestment in down- nia, and between the public and private sectors in town San Bernardino is the lack of cleaning and the region. It also will require a consistent effort maintenance. Luckily, these items are also the eas- to encourage citizen participation from people of iest to address and make the most dramatic state- different ages, ethnicities, and income levels, not ment of positive change. only in the city but also throughout the county. In short, the revitalization of downtown San Ber- Immediate action must be taken to trim the trees; nardino requires that a number of different indi- weed sidewalk cracks; weed, plant, and maintain viduals, groups, organizations, and sectors pull flowerpots and planting areas; clean and repair together for the common good of the city, the fountains; police litter; clean, repair, or remove county, and the region. streetscape elements; repair and clean windows at street level; remove graffiti and improperly placed Community Input posters and advertising banners; clean and repair street lamps; enforce sign regulations as well as Enlightened county and city leadership initiated all code enforcement infractions; pressure wash all this planning effort because San Bernardino is a public sidewalks and walkways; and establish a city with an ailing “heart,” and when the heart is regular schedule for routine trash pickup, wash- ailing, the body suffers. ing, and cleaning. Privately owned properties should be required to clean and maintain their in- In order to reverse the community’s psychological dividual buildings and public spaces. and intellectual disinvestment in downtown San Bernardino, the solicitation of input from citizens As the redevelopment progresses and the pro- is the most imperative implementation step. This posed business improvement district is estab- step can and should involve immediate development lished, evolving cleaning and maintenance re- of a presentation package of this plan, including at quirements will be addressed.

30 An Advisory Services Panel Report Public Safety Although the current statistics show a drop in crime in downtown San Bernardino, a significant factor in the decline of the community’s use of and visitation to downtown San Bernardino is the per- ception of insecurity and danger. In addition to maintaining a clean and orderly environment, the city should take other measures immediately to provide a sense of safety and comfort to people visiting downtown. Working with the police de- partment, the city should take steps to increase proactive patrolling of downtown streets. The pre- ferred method of policing downtown should be on horseback, on bicycle, on Segways, or on foot, which gives police the ability to interact with peo- ple on the street. The police department may wish to use the existing municipal enforcement officers or reassign other officers.

Although the presence of homeless individuals has decreased because of the relocation of the Salvation Army facility, the homeless outreach detail of the In areas where development is slow to occur, Downtowns are viewed as police department and existing service providers sometimes a good short-term strategy is to attract common ground that should monitor that population regularly. Enforce- people through special events and other sorts of belongs to everyone. A ment of existing state penal codes should be vigor- regular programming. This strategy is especially good short-term strategy ous to discourage panhandling and other types of useful in downtown areas, because downtown for bringing people down- solicitation in downtown, including prostitution. often is viewed as “common ground” that belongs town is through special to every group in the city. (Moreover, as the county events and other sorts of The city can evaluate the adequacy of lighting in- seat, in some ways, downtown San Bernardino regular programming. tensity at night, which should be increased if nec- should be viewed as common ground for all in essary. Property owners should be required to il- the county.) luminate dark areas around their sites. Some special events bring people who will shop As events and activities increase in downtown, during the event at downtown stores and restau- promotional efforts should include building aware- rants. More often, special events serve to acquaint ness of the comfortable and safe experience that people with downtown who otherwise may not downtown provides. As the redevelopment pro- visit at all. Sometimes, an entire new generation gresses and the proposed BID is established, can be introduced to a downtown in a positive way evolving security and safety requirements should through being attracted to special events. be addressed. Several interviewees referred to the Route 66 Rendezvous as being the four days when down- Programming town San Bernardino is at its most vital. The Route 66 Rendezvous brings 500,000 people to In the panel’s interviews, everyone agreed that downtown from San Bernardino County, the rest downtown San Bernardino suffers from a bad of the Inland Empire, and beyond. image. A key question is how to shift the image from being a place that is “dirty, dangerous, and Although holding events in downtown San Bernard- dull” to one that is “clean, safe, and friendly.” ino 365 days a year may be impractical, downtown

San Bernardino, California, June 24–29, 2007 31 could benefit from many more events than it cur- this goal, it must smooth the development process rently hosts. The panel was pleased to learn that, by understanding and responding to the needs of on July 4, downtown San Bernardino will host a developers for timely, clear, consistent, and pre- downtown Independence Day parade, followed by dictable regulations and approval procedures. The fireworks at Arrowhead Credit Union Park. panel encourages establishment of a “one-stop shop” for expediting approvals and permitting and Down the highway in Riverside, the Downtown proposes assignment of a project ombudsman to Riverside Association sponsors a number of events, shepherd large or critical developments to ensure including a weekly farmers market, a weekly con- a predictable timeline for developments. cert series, and seasonal events. Other downtown organizations throughout the country have The renaissance of downtown San Bernardino re- brought other events to their downtowns, includ- quires new attention to design and aesthetic con- ing the following: siderations. The panel suggests that existing zon- ing and code regulations be reviewed, particularly • Other holiday events; as they pertain to the public realm and building • Children’s events; exteriors. Design standards and guidelines should be established to ensure an appealing environ- • Ethnic festivals; ment downtown. A design review process would then need to be part of the approval and permit- • Arts and crafts fairs; ting process.

• “Taste” events, featuring restaurants from the Downtown should be designated a special district region; and with flexibility in regulations so that changes in • Three-on-three basketball tournaments, such as the street grid, parking requirements, setbacks, Hoop-It-Up or the Gus Macker Tournament. open-space requirements, and other facets of the urban design plan can be accommodated. Within Such events need to be conceived and managed this district, projects would conform to the estab- professionally, and programmed for and marketed lished design guidelines, and permit processing to specific target audiences. Security must be would be expedited. heightened and sponsors solicited from local busi- nesses and from national consumer-oriented cor- Financing porations. Volunteers need to be recruited and the news media attracted. For economic, historic, and social reasons, the re- vitalization of the center of San Bernardino is vital After a regular program of special events is in- to the ongoing viability of the whole city. The com- stituted, the leadership of downtown San Ber- munity must understand this need for change and nardino should consider a broader branding and support creative approaches to providing financial image campaign. assistance to get the revitalization started.

Development Guidelines and Process Many recommendations of this report will require a significant amount of public and private money. With the dramatic redevelopment plans proposed, The private development community is easily dis- the city will become a partner with private sector suaded from pursuing center-city projects because business leaders and developers. It should facili- of lack of experience, fear of insufficient financial tate their efforts citywide, but particularly in ac- returns, complicated land acquisition, and other is- tivities relating to downtown growth and revital- sues. Public sector assistance can ameliorate or ization. The city should concentrate its efforts in eliminate these hurdles. areas where the effect will be greatest. The private sector will invest in downtown when San Bernardino should aim to become known as a the public sector streamlines the development development-friendly community. To accomplish process and makes investments to ensure reason-

32 An Advisory Services Panel Report able returns at the outset. As downtown begins to University grows its enrollment and programs, change and developers gain experience and confi- the panel strongly recommends that California dence, the need for public financing assistance will State University, San Bernardino, also expand its diminish. For the city to accomplish its goals for presence downtown, perhaps adding departments downtown, developers in the first private/public relating to the arts, architecture, and urban stud- partnerships must be successful too. For the whole ies. In addition, for-profit universities have a enterprise to succeed and for the downtown to at- strong interest in downtown sites. Also, interest tract more investment and development, develop- exists in establishing a downtown artists’ commu- ers must be confident of beneficial outcomes. nity. Artists and other creative industry workers are often interested in live/work spaces, which can Public financing for projects can come from a vari- be created by converting existing Class B and C ety of sources. Low-cost loans, tax incentives, and acquisition assistance are among the most com- buildings as well as by building new space. Careful mon forms of public support for development. The consideration and creative approaches to zoning San Bernardino Economic Development Agency requirements must be taken to encourage this can assemble a package of assistance tools for type of development. prospective developers of signature projects from the tax increment financing funds available for Summits that purpose. The Inland Valley Development The panel was impressed by the high degree of Agency may also assist in this revitalization that interest that many people have in the future of will affect and benefit the entire region. their downtown. The panel is concerned, however, Other financial assistance can be made available that if citizens’ ambitions are to succeed, a well- at the state and federal levels, including mortgage orchestrated process for citizen input and partici- assistance and downpayment assistance programs pation must be put into place. Downtown San at the local and state levels, federal historic preser- Bernardino will not be revitalized unless the vation tax credits, Small Business Assistance residents of all parts of the city—and the county Loans, Community Development Block Grants, —understand why it is important and have their U.S. Department of Transportation programs views heard. (T-21, FTA, FRA, RITA), New Market Tax Credits, and LEED (Leadership in Energy and Environ- Recently, the Rotary Club of San Bernardino in- mental Design)–Certified Tax Credits. Downtown stituted a “Rotary Summit: Restoring the All- is also part of an Enterprise Zone, offering addi- American City” at which citizens heard from com- tional incentives for new businesses. Exploring munity leaders and shared their views about the the many funding mechanisms and opportunities future of downtown. The panel strongly recom- and obtaining dollars will require at least one ded- mends that the Rotary Summit be unfolded into a icated professional as a city or EDA staff member. series of events at which the future of downtown is considered. Although the first summit was con- Student Component centrated on a business-related audience, the panel encourages the Rotary Club to seek community The ethnically diverse workers of the young pro- cosponsors and roll out a series of summits on a fessional and creative class are the most sought- broader range of topics to a larger audience. Over after demographically and offer potential for a the next two to three years, summits could be number of new programming and retail opportuni- held in other parts of the city and San Bernardino ties in downtown San Bernardino. The proximity County and could be covered on public access tele- of 22 public or private colleges within 30 minutes, vision and radio. with 158,000 students, provides an energetic mar- ket opportunity for entry-level-priced residential Although such a citizen involvement process can units as well as new restaurant and entertainment seem to slow down a development process, in fact, venues for downtown. As the American Sports it can help solidify community support and insu-

San Bernardino, California, June 24–29, 2007 33 late a community project from the sort of disrup- The board of directors of the BID should come tive politics that can often stymie its progress. from among the largest dozen or so downtown property owners, a group that currently is not Business Improvement District sufficiently involved in downtown decision mak- ing. The Washington Mutual building, Bank of Strong downtowns more often than not have strong America building, First American Title building, downtown organizations. The San Bernardino Clarion Hotel, and the like represent millions of Downtown Business Association, a voluntary as- dollars worth of investment in downtown San sociation composed of members who pay dues, Bernardino. Whether they are local, national, or has served its downtown well for many years. It global, downtown property owners have a vested has served as a tireless advocate for a business- friendly environment. interest in downtown improvement. Local leaders must be persistent in their efforts to involve prop- Over the past two decades, the nature of down- erty owners. Although the record of BIDs around town organizations throughout the United States the country is impressive, the active involvement has changed. Downtown organizations have moved of property owners in the BID often is as valuable from advocacy to downtown management, from as the BID programs themselves. business-only boards to private/public boards, and from voluntary dues funding to compulsory San Bernardino Economic Development funding through business improvement districts. Agency A BID is an area within which business or prop- erty owners pay taxes beyond their normal prop- Over the years, the city of San Bernardino Eco- erty taxes in return for the ability to govern how nomic Development Agency has proved to be ef- the money is spent to improve the area. California fective at developing and creating incentives for a has two types of BIDs: one in which business own- number of projects throughout the city. The EDA ers (many of them tenants) are assessed, and an- is an appropriate manager for many of the physi- other in which property owners are assessed cal aspects of the panel’s recommendations. It has (most usually passing the assessments on to ten- a broad mission: “The Economic Development ants)—a property-based business improvement Agency is a focused, diversified organization whose district (PBID). In California, the nature of a mission is to enhance the quality of life for the citi- PBID is that the county, city, and nonprofit prop- zens of San Bernardino by creating and retaining erty owners are not exempt from paying spe- jobs, eliminating physical and social blight, sup- cial assessments. porting culture and the arts, developing a bal- The panel recommends that the Downtown Busi- anced mix of quality housing, along with attract- ness Association, working in concert with the city ing and assisting businesses both independently of San Bernardino, form a PBID. The panel was and through public-private partnerships.” It can told that special districts were formed by the city use a number of different finance mechanisms, twice before in downtown San Bernardino—once including tax increment financing, and the City to pay for parking improvements and another Council serves as the EDA’s board of directors. time to pay for streetscape improvements. The panel suggests the formation of a BID not to pay Implementing the recommendations of this re- for capital improvements but rather to institute port will challenge the EDA as never before and the sorts of enhanced cleanliness, security, and test its capacity for delivering projects and pro- marketing programs previously described. Around grams. Anticipating challenges, the EDA has pro- the country, BIDs have instituted successful pro- posed a staff reorganization that promotes a proj- grams in areas such as litter removal, sidewalk ect management system of staffing, where specific cleaning, tree maintenance, flower planting, hospi- staff members have responsibility and account- tality ambassadors or guides, special events, ad- ability for specific projects. The panel supports vertising campaigns, and banner programs. such a system.

34 An Advisory Services Panel Report The projects proposed by the panel are complex. • County Government Complex: County of San The Carousel Mall redevelopment, for example, Bernardino; involves housing, office, retail, historic preserva- tion, adaptive use, “green” development, trans- • Multimodal transit terminal: transit agency or portation, public works, multiple property owners, agencies; and and multiple funding sources. The celebration of • Celebration of water: water districts or water in the day-lighting of streams and creation departments. of lakes and water features recommended here in- volves engineering, environmental, transporta- Beyond the different agencies and organizations tion, and development issues as well as multiple that will have lead responsibility for the dozen or government agencies. All projects in downtown so major projects, programs, and tasks the panel environments are complex; those proposed for has recommended, many agencies and organiza- downtown San Bernardino are more complicated tions will have support roles. Such a major under- than most. taking will take even more than the cooperation of the mayor and the chairman. The panel suggests The EDA must take a focused and sustained lead- that the mayor and chairman jointly take the fol- ership role on its projects. In addition to restruc- lowing actions: turing its staff function with a focus on project management, the EDA should consider hiring con- • Convene a small task force or coordinating sultants as project advisers and ensure that proj- council to coordinate, shepherd, and champion ects are properly prioritized. the major projects and programs that constitute the downtown revitalization project. Member- ship on the task force or council should come Leadership: Chief Development Officer from lead agencies for the major projects, as (Champion) well as private sector CEO-level leadership. The people interviewed by the panel remarked re- • Hire a chief development officer (champion), ei- peatedly that the mayor of the city and the chair- ther on staff or as a consultant, whose job it will man of the County Board of Supervisors working be to ensure that projects remain on track. The together for the revitalization of downtown San chief development officer (CDO) should be ex- Bernardino is a positive sign of collaboration and perienced at managing major urban redevelop- progress in a community that has often been di- ment projects and familiar with the various ways vided. Revitalization of San Bernardino’s center of funding such projects. The CDO should have city of San Bernardino means this cooperation an advisory board that is appointed jointly by must continue. Downtown will not succeed unless the mayor and chairman of the County Board of the county campus is as good as it can possibly be. Supervisors and that reports to them; the CDO The county campus will not succeed unless the should report to the advisory board and be downtown around it is vital. All residents of the hired jointly. The final authority for plans is city and county of San Bernardino have an inter- lodged with the mayor and the City Council est in seeing the seat of the county and the histori- or the County Board of Supervisors depending cal center of the region revitalized. on the permit.

Although the city of San Bernardino’s EDA can In addition to the task force or coordinating coun- take the lead on a majority of the revitalization cil, formation of a private sector regional commit- projects in downtown San Bernardino, other orga- tee to support projects in San Bernardino would nizations and agencies will lead specific projects, be optimal. such as the following:

San Bernardino, California, June 24–29, 2007 35 Conclusion

owntown San Bernardino has been in a The panel has attempted to build the framework downward spiral for 20 years, but now for a vision for downtown San Bernardino. That hope exists that the trend will be reversed vision must be fleshed out by the community: a vi- D and that downtown can be restored to vi- brant, livable, walkable, attractive, clean, safe, and brancy and prosperity that surpasses its best days sustainable mixed-income, mixed-use, urban com- of the past. The growth projected for the Inland munity; anchored by city and county government Empire can be the engine of economic renewal facilities and providing transportation choices; tra- that makes this transformation possible for the versed by green space and streams; and filled with city. What is required of San Bernardino and its retail, office, and housing choices, arts, restau- citizens is vision, attention to detail, and consis- rants, and entertainment. It can be achieved. tent, disciplined public policy.

36 An Advisory Services Panel Report About the Panel

William H. Hudnut III Everywhere (2003), a portrait of America’s first- tier suburbs. Panel Chair Washington, D.C. Hudnut is the recipient of many awards, including Princeton University’s highest alumni honor, the Former four-term mayor of Indianapolis and mem- Woodrow Wilson Award for public service (1986); ber of Congress, author, public speaker, TV com- City and State magazine’s “Nation’s Outstanding mentator, think-tank fellow, elected official, and Mayor of 1988”; the Rosa Parks Award from the clergyman, Hudnut currently occupies the Joseph American Association for Affirmative Action in C. Canizaro Chair for Public Policy at the Urban 1992; and the Distinguished Public Service Award Land Institute. from the Indiana Association of Cities and Towns A past president of the National League of Cities (1985). and the Indiana Association of Cities and Towns, Hudnut graduated from Princeton University with Hudnut is probably best known for his 16-year high honors and election into Phi Beta Kappa. He tenure as mayor of Indianapolis, 1976–1991, where graduated summa cum laude from Union Theolog- his stated goal was to build a “cooperative, com- ical Seminary in New York City. He has received passionate and competitive” city. He spearheaded honorary degrees from 13 colleges and universities. the formation of a private/public partnership that led to Indianapolis’s emergence during the 1980s Agnes Artemel as a major American city. Alexandria, Virginia As a member of Congress, Hudnut sponsored 17 bills that became public law. He is currently serv- Artemel has more than 25 years of experience in ing as mayor of Chevy Chase, Maryland, and is a market and economic analysis and project feasibil- member of the Board of the National League of ity studies. She has conducted studies in the hous- Cities. He was a member of the Millennial Hous- ing, office, hotel, retail, and industrial sectors, as ing Commission appointed by Congress during well as mixed-use and special focus projects at lo- 2001–2002. Prior to his entry into public life, as a cations throughout the United States. She special- clergyman he served churches in Buffalo, New izes in setting up private/public partnerships to York; Annapolis, Maryland; and Indianapolis, Indi- bring the resources of both private and public sec- ana. After stepping down as mayor, Hudnut held tors to bear on solving urban issues, and particu- posts at the Kennedy School of Government at larly on revitalizing older urban neighborhoods. Harvard, the Hudson Institute in Indianapolis, and the Civic Federation in Chicago, before as- For the public sector, Artemel conducts economic suming his current position with ULI in 1996. base analyses, forecasts the economic impact of proposed small area and master plan changes, pre- A much sought-after speaker, Hudnut is the au- pares strategic plans for economic development thor of Minister Mayor (1987), a book reflecting and tourism development, and analyzes mitigation on his experience in politics and religion; The strategies to assist municipalities cope with major Hudnut Years in Indianapolis, 1976–1991 (1995), changes in their economies caused by actions such a case study in urban management and leadership; as Base Realignment and Closure (BRAC) job Cities on the Rebound (1998), an analysis of clues movements or massive new construction projects to the successful city of the future; and Halfway to in more rural areas.

San Bernardino, California, June 24–29, 2007 37 For the private sector, she has assisted developers Association and the Board of Advisers of Virginia and landowners in obtaining the highest value for Commerce Bank. She is an appointee to the raw land and buildable lots; analyzed land carry- Mayor’s Task Force on BRAC and previously ing capacity, zoning, and regulatory obstacles; de- served on the Carlyle PTO Task Force in Alex- termined the market potential of proposed new andria. She has led the Old Town North Commu- projects; and assisted with processing real estate nity Partnership for the past three years, focus- development projects through the municipal ap- ing on bringing business and residents to work proval processes. She has extensive experience in together toward a mixed-use, pedestrian-friendly community relations and with building community neighborhood. Artemel has a master’s degree in support for a new project. urban and regional planning from George Wash- Her recent projects have included preparing a ington University. market analysis for alternative housing develop- ment scenarios on more than 1,000 acres in a rural Daniel Brents Virginia county; assisting an industrial company overcome regulatory barriers to its operations in Houston, Texas an urban area; determining highest and best use for a property in historic St. Mary’s County, Mary- Brents is a planning and urban design consultant land; analyzing the future prospects for tourism to TVS, working on projects in the Middle East, development in Alexandria, Virginia, in the face of Asia, Latin America, and the United States. He emerging competition from a large mixed-use hos- was a principal with Gensler, where he led the pitality and tourism project in another jurisdic- firm’s global planning and urban design practice. tion; and conducting visitor forecasts for a pro- His recent projects include the design of cultural posed 100,000-square-foot museum. and civic centers, hotels, convention centers, mixed-use centers, and educational campuses in Previously, Artemel was executive director of the Eisenhower Avenue Public Private Partnership, the United States and abroad. in charge of determining the appropriate develop- Previously, Brents was the vice president of archi- ment of a 500-acre urban area, promoting this de- tecture and planning for Disney’s real estate de- velopment, and facilitating the public and private velopment group in France at Disneyland Paris, actions needed for implementation. The area is the 4,800-acre, $4.5 billion resort and mixed-use now experiencing rapid growth. project. He was the Houston Sports Authority’s She has also consulted on international projects, development coordinator for the $250 million for example, on the potential for use of wind en- downtown Minute Maid ballpark. He has been a ergy in Turkey and on markets for district heating consultant to Ross Perot, Jr.’s, Hillwood Develop- equipment in Romania. As a program manager for ment on multiple projects. Brents’s previous expe- Electronic Data Systems, she assisted a federal rience includes resorts, urban redevelopment, and agency in developing a market analysis system for mixed-use projects worldwide. its products and services. With Hagler Bailly & Company and Resource Planning Associates, she He is active in the Urban Land Institute and has assisted the U.S. Department of Energy with served on nine ULI Advisory Services panels. commercializing new energy technologies. At He is a registered architect, a Fellow in the Amer- Hammer, Siler, George Associates, she conducted ican Institute of Architects, and a member of the demographic and economic analyses for housing, American Institute of Certified Planners. He has hotel, and shopping center projects. a bachelor’s degree in architecture and a master’s Artemel is a director of the Alexandria Economic degree in urban design. Brents was recognized Development Partnership and of the Alexan- as an Outstanding Alumnus of the Texas A&M dria Industrial Development Authority. She is College of Architecture and is on the Dean’s Ad- also on the board of the West End Business visory Council.

38 An Advisory Services Panel Report Christine M. Burdick Richard F. Galehouse Tampa, Florida Watertown, Massachusetts

With more than 30 years experience in retailing Galehouse is a principal and senior planner/urban and urban development, Burdick was chosen as designer at Sasaki Associates, Inc., in Watertown, the president of the Tampa Downtown Partner- Massachusetts. Sasaki Associates is a multidisci- plinary professional service firm with an interna- ship in April 2002. She came to Tampa from Chi- tional practice offering services in planning, archi- cago, where she worked first with Mayor Richard tecture, landscape architecture, urban design, civil Daley and then as an independent consultant, cre- engineering, interior design, and graphic design. ating strategies for revitalization and economic Since joining Sasaki, Galehouse has directed com- development in urban commercial settings. plex mixed-use urban, new community, resort, in- stitutional, regional, and environmental planning For the past five years, Burdick has taken a lead and design projects. role in planning for the transformation of the re- gion’s largest urban core. With more than $2.2 bil- His project work, writing, and speaking has fo- lion in proposed and current construction, the rede- cused on the issues of urban mixed-use and new velopment of Tampa’s downtown is well underway. community planning and design. He has served as a guest lecturer and critic at colleges, universities, For the city of Chicago, she served as an assistant and professional organizations and has provided commissioner in the Department of Planning and expert testimony on visual and environmental im- Development, overseeing the implementation of pact issues. the “State Street Vision Plan,” and was the liaison Galehouse has been an active ULI member for to key community groups representing develop- more than 20 years, serving on the Urban Devel- ers, retail and property owners, and cultural and opment Mixed Use and Recreation councils. He academic institutions involved in the redevelop- has been a panel member for various plan analysis ment process in downtown Chicago. From 1993 to sessions and has served as the planner/urban de- 1997, Burdick initiated and was president of the signer for ULI’s Advisory Services panels, includ- Lincoln Road Partnership, an organization repre- ing Treasure Island in San Francisco, California; senting the interests of the business and cultural Downtown Grand Forks, North Dakota; New Jer- communities directing the revitalization of Lincoln sey; and Hengelo in the Netherlands. He has writ- Road in Miami Beach. ten several articles for Urban Land magazine, in- cluding “Measurements of Community,” which Burdick has been a member of the Urban Land was published in the June 1999 issue. Galehouse Institute since 1990 and has served as a partici- served on ULI’s Awards for Excellence Jury for pant on Advisory Services panels, Mayor’s Forums, the Americas from 2004 to 2006. and District Councils in two states. She was elected He received a bachelor of architecture degree from chair of the International Downtown Association the University of Notre Dame and a master’s de- for 1996–1997 and served as the interim president gree in city and regional planning from the Har- in 1997. She is also a member of the International vard University Graduate School of Design. Council of Shopping Centers, the International Economic Development Council, and Lambda Richard T. Reinhard Alpha, a land economics society. Locally, she is a trustee of the University of Tampa, board mem- Washington, D.C. ber of the Greater Tampa Chamber of Commerce, Reinhard is deputy executive director, planning the Tampa Bay Convention and Visitor Bureau, and development, for the Downtown DC Business the Florida Aquarium, and the Homeless Coalition Improvement District, a nonprofit organization of Hillsborough County. that works to improve the environment, the econ-

San Bernardino, California, June 24–29, 2007 39 omy, and the social equity of downtown Washing- the optimum mix of land uses that would ensure ton to create a premier commercial, cultural, and timely absorption of the property and bring en- residential destination. The Downtown DC BID is hanced land value to the landowner. funded through a special district within which property owners tax themselves and govern how Shumway’s professional affiliations include the the money is spent to improve the BID area. National Association of Home Builders, the Build- ing Industry Association, the National Association Reinhard has spent more than two decades on the of Industrial and Office Parks, and the Urban improvement of cities. Most recently, he directed Land Institute. He is a frequent guest lecturer for the Infrastructure Initiative at the Urban Land professional organizations; University of Califor- Institute. He has managed urban revitalization or- nia, Irvine, and University of California, Los An- ganizations in Richmond, Buffalo, Atlanta, and geles, classes; and other academic groups. He has Londonderry, Northern Ireland. He served as also spoken overseas, including a recent lecture to chief of staff to the mayor of Buffalo and chief op- a group of key Japanese homebuilders interested erating officer of a Toronto-based real estate de- in learning strategies to expand market penetra- velopment corporation. He began his career as a tion in a downsizing economy. newspaper reporter in his hometown of Syracuse. Shumway graduated from the University of Ore- As an adjunct faculty member, Reinhard teaches gon with a degree in business/economics. He is urban planning at Virginia Tech’s National Capital very active in local community and civic groups. Region campus and has taught planning and policy He and his wife and son reside in the city of Irvine. at the University at Buffalo, Emory University, Georgia State University, and the University Sue Southon of Ulster. Bloomfield Hills, Michigan He has a bachelor’s degree from the College of William and Mary and a master’s degree from Southon is a development professional, trainer, Rice University. He was a Loeb Fellow in Ad- and strategic planner. In 1992, she founded Strate- vanced Environmental Studies at the Harvard gic Planning Services to provide strategic plan- University Graduate School of Design. ning, site consultation, organizational develop- ment, project management (including construction project management), and grant writing assis- John Shumway tance to industry, government, nonprofit organiza- Newport Beach, California tions, and educational institutions. Southon has extensive experience in community, economic de- Shumway is a principal with The Concord Group, velopment, and housing development. She has also which has offices in Newport Beach and San Fran- served as project manager for affordable housing cisco, California, and Las Vegas, Nevada. The projects funded by the U.S. Department of Hous- Concord Group is a real estate advisory firm pro- ing and Urban Development in Wayne, Oakland, viding strategic advice and analysis for land use and Genesee counties (Michigan). issues in the development of residential, commer- cial office, retail, and industrial projects. The com- Strategic Planning Services has offices in south- pany’s broad range of clients includes land de- eastern Michigan and New Orleans, Louisiana. velopers, homebuilders, institutional investors, Prior to 1992, Southon was with the Michigan De- family landowners, and public agencies and uni- partment of Commerce, responsible for compre- versities throughout the nation. hensive strategic planning in distressed communi- ties, as well as assisting local municipalities to Shumway has extensive experience, spanning 20 develop and implement a range of business devel- years, in the evaluation and analysis of both resi- opment and retention programs in Michigan’s 83 dential and commercial properties. He has partici- counties. From 1995 to 1996, Southon served as pated in numerous engagements that focused on the senior director of business development for

40 An Advisory Services Panel Report Michigan First, the state’s private/public business New Orleans’s north shore growth corridor, and attraction and marketing organization. From 1980 a 137-acre active-adult community in St. Francis- through 1990, she was the executive director of ville, Louisiana. In response to the tremendous the Independent Business Research Office of development pressures of Hurricane Katrina, Michigan. Housed within the School of Business at Watson has also formed Crosslake Homes, a the University of Michigan, the office was created homebuilding partnership constructing new as a public policy research resource for small busi- homes in the metropolitan New Orleans region. ness interests. Watson has been active in real estate development Southon holds a real estate license in the state in New Orleans for 16 years. At Columbus Prop- of Michigan. She has authored federal, state, and erties, he was responsible for the development foundation grants resulting in awards in excess and marketing of a 74-acre mixed-use develop- of $33 million. Southon is on the training faculty of ment in downtown New Orleans called River Park. the International Economic Development Council, The master-planned urban development—a former Professional Certification Program, the Economic rail yard—included more than 700 luxury apart- Development Institute, and the National Asso- ments, an expansion of the Convention Center, ciation of Workforce Boards. She is a technical and plans for 2,500 hotel rooms. The project pro- assistance provider for the Michigan State Hous- duced over $100 million in sales and was sold in ing Development Authority, Detroit, and Michi- 2000. gan LISC. Earlier in his career, Watson launched and served as president of FirsTrust Community Develop- Nathan Watson ment Corporation, a for-profit developer that fo- New Orleans, Louisiana cused on urban infill multifamily housing through a variety of public/private financing sources. The Watson is a real estate professional developing company developed 200 residential units during commercial and residential projects in New Or- Watson’s tenure. leans and the surrounding metropolitan area. Wat- son formed his company—Watson Developments Watson earned a bachelor’s degree in architecture —after ten years in progressive capacities for from Auburn University in 1987 and a master’s Columbus Properties, a major Gulf Coast–region degree in business administration from Columbia commercial real estate developer. Combining his University in 1991. He has been a member of the diverse background in architecture and planning Urban Land Institute for ten years and has been with real estate finance, Watson Developments actively involved in ULI’s Advisory Services focuses on bringing innovative solutions to both panel program, serving in Sparks, Nevada; Dallas, urban and suburban real estate development needs. Frisco, and San Antonio, Texas; Port Charlotte, Current projects include a 92-acre environmen- Florida; Lowell, Massachusetts; and German- tally sensitive residential development in New town, Maryland. Orleans, a 104-acre planned unit development in

San Bernardino, California, June 24–29, 2007 41

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