Prepared for the 22Nd Century Committee

Home , Downtown Toledo, Imagination Station, Sculpture in the Park, Toledo metropolitan area

February 2017 Toledo, Ohio

Prepared for the 22nd Century Committee 2 Downtown Toledo Master Plan Eastman &Smith Partner Gene Abercrombie Toledo PublicLibrary Executive Director Clyde Scoles Toledo Museum ofArt Director Brian Kennedy 5/3 Bank Co-chair/President/CEO Bob LaClair Shumaker, Loop &Kendrick,LLP Counsel James F. White, Jr. SSOE Chief Executive Officer Bob Howell Area OfficeonAging President/CEO Billie Johnson 22nd CenturyCommittee ProMedica Co-chair/President/CEO Randy Oostra HCR Manorcare Exec VP,COO Steve Cavanaugh Owens Corning Chief Executive Officer Michael Thaman Toledo Zoo Executive Director Jeff Sailer The ToledoBlade President/General Manager Joseph Zerbey Mud Hens/Walleye President/General Manager Joe Napoli Woodlands Consulting Chief Executive Officer Jerry Jones Development University of Toledo/Leading Economic Facilitator/Former President/Author Dan Johnson UAW/Local 12 President Bruce Baumhower Chamber ofCommerce/EPIC President Wendy Gramza The Lathrop Company Chairman Tom Manahan Huntington Bank Regional President Sharon Speyer Toledo PublicSchools Superintendent Romulus Durant Hylant Group President Executive Vice Richard Hylant Planning Team

Liz Dufrane MKSK Development Strategies Specialist, Real Estate & Development ProMedica Chris Hermann, AICP - Principal Matt Wetli - Principal Andrew Overbeck, AICP - Principal Julie Cooper - Socio-Economic and Real Estate Analyst Barb Petee Luis Huber-Calvo - Planner Megan Hinrichsen - Marketing Director Chief Government Relations & Advocacy Officer Tyler Clark, AICP - Planner ProMedica Anthony Hodge - Designer Mannik Smith Megan Vahey Casiere Xiaolu Liu - Designer President & CEO Sally L. Gladwell, CP, CEM, CEI - Principal/Vice President Lucas County Economic Development Corporation Jean Hartline, PE, PTOE - Principal/Vice President HKS Sharon Gaber Mike Walsh - Transportation Engineer President Randy Morton, AIA - Principal University of Toledo Cecil Bakalor - Associate Toledo Design Center Calvin Lawshe Director- Economic & Business Development Paul Hollenbeck - Director City of Toledo

3 Master Plan Downtown Toledo Toledo Downtown

4 CONTENTS

Executive Summary Page 7

Section 1 Page 9 1 Introduction

Section 2 Page 37 2 Physical Conditions

Section 3 Page 63 3 Market Analysis + Strategy

Section 4 Page 101 4 Planning Vision

Section 5 Page 113 5 Priority Action Items: Policies & Catalytic Projects

5 Master Plan Downtown Toledo Toledo Downtown

6 Executive Summary

To plan for the future of Downtown Toledo, the It was clear from the first public meeting that the for economic incentives that will be necessary 22nd Century Committee assembled a broad riverfront was of tremendous importance to the to spur continued residential development in coalition of public and private sector leaders. By community. Once a thriving center of activity and downtown, develops the street typologies that developing a Master Plan for the downtown area, industry, the Maumee River has long influenced will set the framework for new mixed-use the committee sought to align current planning the vitality of Downtown Toledo. As the economy development, and provides an economic baseline efforts, amplify existing assets, and leverage transitioned from manufacturing to service and to develop an Innovation District in downtown to planned and future investments within and technology, the riverfront and downtown have grow jobs and attract talent. adjacent to downtown. not kept pace. Across the country and the region, the downtowns that are successful are the ones Throughout this collaborative process, the plan Throughout this inclusive process, the 22nd that are reinvesting in their riverfronts. Toledo focused on implementation. As the 22nd Century Century Committee and its team of planners, is beginning to recognize this with the new Committee accomplished this plan, it had always architects, and engineers engaged the public in Middlegrounds MetroPark and a new Promenade expected to transition its members into another the creation of the plan. The public was invited to Park. This Master Plan builds on this energy with position of leadership. The reconstitution of the participate in many different ways across multiple a bold vision of a completely rebuilt, accessible Downtown Toledo Development Corporation platforms. Between the three public meetings that and activated riverfront that connects both sides (DTDC) is the result of these efforts and this were held in January, May and July more than of the river and creates new opportunities for renewed organization will be critical to the 1,000 people attended to give their input, ideas downtown and neighborhood redevelopment continued success of Downtown Toledo. Working and thoughts. At www.downtowntoledoplan.com, and reinvestment. Through new park spaces, a together with public and private sector partners, the public was invited to continue to participate in network of connected and pedestrian-friendly the DTDC will be able to focus on downtown and the process online, and the site garnered nearly streets, and focused infill development, Downtown act as the consistent planning partner of the City, 30,000 page views throughout the process. In an Toledo can begin to knit its urban fabric back County and the greater Toledo community. effort to reach people where they are, volunteers together. took traveling displays and input activities to As this plan moves forward toward multiple office lobbies, community events and This plan does more than merely set forth a implementation (already, some early gatherings. Finally, more than 60 stakeholders vision for the future growth and revitalization of recommendations are being acted upon), the DTDC were interviewed to gain specialized input Downtown Toledo. It catalogs existing physical and others should treat it as a living document. about the opportunities and challenges facing conditions, demonstrates the economic rationale Downtown Toledo will continue to evolve and downtown. Taken together, this public discussion for investments, and recommends 12 Priority this plan should evolve along with it. With this gave the planning team more than 1,000 ideas Action Items for implementation. These 12 Priority new culture of planning, participation and and comments that helped to shape and guide Action Items identify the catalytic projects that will implementation infused into the community, there the plan. Throughout this planning process the transform downtown in the near future and the is no doubt that Toledo’s greatest days are ahead. community showed that they love and cherish policies and strategies that need to be put in place downtown and are invested in its renaissance. to support them. For example, the plan identifies the public and private partnerships that will be required to reinvent the riverfront, makes the case 7

Section 1 introduction

9 Introduction

Why This Plan, Why Now?

In the past decade-and-a-half, Downtown Toledo areas can offer. These trends are evident in 3. The Market Analysis & Strategy section catalogs has seen recent success in bringing people back Toledo, with new residential developments and local data about downtown and the region and to the urban core, with nearly three million people renovations underway and burgeoning areas like compares it against regional trends and metrics. annually visiting arts and cultural destinations the Warehouse District and Uptown. More such The Market Strategy defines the target market, and sporting events. The momentum downtown development and investment will be necessary the product typologies and location for housing, is continuing now with Hensville recently downtown to capture Toledo’s regional talent and retail, hospitality and office within downtown opened, work beginning on the new ProMedica enable the city to compete in the regional, national and offers recommendations for next steps and headquarters, and renovations at the former and global economy. implementation. Grand Plaza Hotel. Other improvements such as 4. The Planning Vision section combines the the Middlegrounds MetroPark and Promenade This plan builds on these trends and recent physical conditions and market analysis with the Park set the stage for better connections and successes by providing a strategic direction for the public input to create a roadmap for the future of urban amenities that will enhance Downtown continued revitalization of Downtown Toledo. This Downtown Toledo. This vision will shape future Toledo. Master Plan will provide the foundation for this planning decisions and is the basis for specific planning work. This report has five sections: policies, strategies and catalytic projects. National and regional trends are also favoring 5. The Priority Action Items section applies the downtown markets making it the best time to 1. The Introduction establishes the importance of downtown, reviewing existing plans and outlining Planning Vision and identifies the critical next steps plan for and invest in downtowns in at least three for Downtown Toledo. It also creates a structure decades. Across the country and in the Midwest, the public process and input that was received and analyzed by the planning team. for implementation and makes recommendations residential populations downtown are increasing. on how the Downtown Toledo Development Locally owned retail, bars and restaurants are 2. The Physical Conditions section documents the Corporation can be the most efficient and effective quickly following, attracted to both the growth and relevant physical characteristics, statistics, and in their work to transform the downtown. the authentic urban character that only downtown analysis that currently shape Downtown Toledo. Master Plan Downtown Toledo Toledo Downtown

10 Glenwood Avenue Cherry Street Aerial Lagrange Street

280 Ashland Avenue

Magnolia Street Bancroft Street 51 120

Woodruff Avenue Adams Street

Madison Avenue Jackson Street Jefferson Avenue Maumee River 75 Monroe Street Summit Street

Erie Street

Dorr Street 246 Collingwood Boulevard City Park Avenue Indiana Avenue

Michigan Street

Main Street

Nebraska Avenue St. Clair Street

Starr Avenue

0’ 1,600’ NORTH 11 Introduction

Assets & Momentum

Downtown Toledo is at the cusp of a renaissance. Current and planned developments, along with world-class institutions, have re-energized the core and have the potential to have a transformative $20m 148k effect on downtown and the Toledo region. TOTAL Visitors Downtown Toledo benefits from high-quality assets, INVESTMENT 2015 such as the Toledo Main Library, Fifth Third Field, the Huntington Center, Farmer’s Market and the Valentine Theater. Within a short distance from downtown, the Toledo Museum of Art and the Toledo Zoo are nationally-recognized institutions that attract millions of visitors to the region. Also Hensville Farmer’s Market nearby is the University of Toledo, which has an enrollment of over 20,000 students.

Several downtown neighborhoods are currently +1,000 530k Jobs 2016 Attendance experiencing an influx of young entrepreneurs, 2015 residents, and visitors. The Warehouse District and Uptown have emerging retail corridors in St. Clair Street and Adams Street, respectively. The Hensville development rehabilitated three historic buildings and added restaurant, retail and office space to St. Clair Street. Uptown is undergoing Promedica HQ Fifth Third Field its own local arts-centered revitalization with the opening of Uptown Green and ProMedica’s Market on the Green.

Master Plan 450k 2,500 Visitors In addition to Hensville, planned, under construction Units and recently opened investments downtown include 2015 the continued development of the Warehouse District, a new ProMedica headquarters that will bring 1,000 jobs downtown, Middlegrounds Metropark, the Anthony Wayne Trail Gateway, and the Renaissance Hotel along the waterfront. These Downtown Toledo Toledo Downtown are all potentially transformative projects that Residential Units Huntington Center 12 should be leveraged to the fullest extent possible. Cherry Street Downtown Assets Lagrange Street

Glenwood Avenue 280 Ashland Avenue

Magnolia Street Bancroft Street 51 120

Woodruff Avenue Adams Street Toledo Museum of Art Civic Center Erie Street Jackson StreetMall Uptown Green Great Lakes 75 Monroe Street Museum Toledo Main Summit Street Madison Avenue Club Library Valentine Jefferson Avenue Theater Dorr Street 246 Maumee River Imagination CBD Station Collingwood Boulevard

City Park Avenue The Toledo Huntington Rep Indiana Avenue Center Promenade Park SeaGate Centre Sandpiper Fifth Third Cruises Field Main Street

The Docks Nebraska Avenue Toledo Farmer’s Market

The Oliver House, Rockwell’s, The Cafe and Starr Avenue Maumee Bay Brewing Co.

Middlegrounds Amtrak Metro Park Station 25

0’ 1,600’ NORTH 13 14 Downtown Toledo Master Plan Previous PlanningEfforts Introduction previous planswill provide importantdirection. analysis toconceptsandrecommendations, these going forward. Astheplanningteammoves from set ofcommongoalsandobjectives tobuild from alignment amongsttheseplansanddevelop a the process astheDowntown Planseeks tocreate discussions andpriorities. This isacritical partof develop anunderstanding ofprevious community reviewed many recent planningeffortsto As partofitsinitialanalysis, theplanningteam Big Ideas: > Big Ideas: > > > > > > > District. Create anUrban Overlay Districtfor the Warehouse along roadways enteringdowntown. Creation ofagateway marker system atkey points Operate ashuttleinthedowntown area. pattern. Return thedowntown street system toatwo-way Toledo Dev. Corporation Association, Downtown Warehouse District Plan Commission, Toledo Design Center, Created By: Year: 2012 Plan Warehouse District Plan CommissionStaff Toledo-Lucas County Created By: Year: 1999 Comprehensive Plan Toledo 20/20 > Big Ideas: > > Big Ideas: > > > development entity withactive role. Strengthen role ofUptown Associationinto economic anchors. Enhance publicrealm links amongdowntown streetscape, and riverfront activities. Reinforce theriver withimprovements toaccessibility, Uptown Association Toledo Design Center, Created By: Year: 2013 Uptown Plan Plan CommissionStaff Toledo DesignCenter& Created By: Year: 2011 Toledo Downtown Plan > Big Ideas: Survey Answers: > > > > > including downtown segments 13 MajorBike Trails connecting majordestinations, sector future planningeffortsshould beled by theprivate Previous planshave notbeenuniversally accepted, intent andbuy-in from thecommunity. Any effortto revitalize downtown requires specific Engineering Services Toledo Department of Created By: Year: 2015 Toledo Bike Plan around downtown with businessesinor 20 BusinessLeaders Answered By: Year: 2014 Downtown Turning Around > > Big Ideas: > > key industryclusters advanced manufacturing, andalternative energy as agribusiness, biotechnology, food processing, Targeted automotive, logisticsandtransportation, economic growth Identified challenges andopportunities for regional Silverlode Consulting Growth Partnership, Commissioners, Regional Board ofLucas County Created By: Year: 2014 Strategy Economic Development Comprehensive NW Ohio/SEMichigan > > Big Ideas: > > between themuseumanddowntown. private agencies intheregeneration ofMonroe Street Interested inparticipating with otherpublicand Become amore integral partofthecommunity. OLIN Created By: Year: 2015 Master Plan Toledo MuseumofArt 1 15 Section 1: Introduction Introduction Economic Importance of Downtown

Between 2010 - 2014 Average downtown Downtown Toledo is an economic engine for both the Toledo Region added: wages are the city and the region. Continued investment in downtown will help to fuel greater growth for both the city and the region and will enable it to lead the transformation into the new economy. The Toledo Region is bouncing back from the recent recession, posting strong jobs gains between 2010 and 2014 adding 18,000 full and +18,000 25% part-time jobs. While Downtown Toledo has full-time and part-time jobs higher than the not seen the same uptick, it is nonetheless an important job center for a number of reasons. rest of the city Downtown Toledo is home to 17% of the city’s jobs, in less than 2% of the city’s land area. This concentration of jobs is augmented by the fact that average downtown wages are 25% higher than the rest of the city. Downtown jobs generate an estimated $27.7 million in income taxes annually. Continuing to build upon and leverage Toledo’s downtown will improve the rest of the city and Downtown contains ...in less than strengthen the region. Downtown is also a key player in terms of physical office space, with 30% of the region’s office space located downtown and 80% of the region’s Class A office space. While downtown currently has a 16% vacancy rate, this concentration of Class A space

Master Plan presents an opportunity. Other initial indicators are 17% 2% positive. In addition to having higher-than-average of the city’s jobs... of the land area wage jobs, downtown also has above average employment levels in key growing occupations. Harnessing this momentum by continuing to CITY OF TOLEDO invest in downtown amenities, housing and entertainment will help to solidify downtown’s blue dot represents

Downtown Toledo Toledo Downtown place in the market and create a dynamic job downtown center that is attuned to the needs of the 21st 16 Century workforce. 1

Downtown Location Quotient: Downtown Toledo to MSA contains

Public Administration Management of Companies and Enterprises Information Professional, Scientiﬁc, and Technical Services Utilities 30% Arts, Entertainment, and Recreation of the region’s office space, Finance and Insurance Administration & Support, Waste Management including... Real Estate and Rental and Leasing Other Services (excluding Public Administration) Above Manufacturing Health Care and Social Assistance Wholesale Trade average 80% Accommodation and Food Services Employment of the region’s Construction in key growing or high/ Transportation and Warehousing wage occupations Class A Space Educational Services Mining, Quarrying, and Oil and Gas Extraction Retail Trade

0.0 1.0 2.0 3.0 4.0 5.0 6.0 ...and generates an estimated $27.7m in income taxes annually Section 1: Introduction

17 Introduction

Project Process

The Downtown Toledo Master Plan has four major tasks, shown in the graphic below:

TASK 1 TASK 2 TASK 3 TASK 4 UNDERSTANDING & MARKET. DOCUMENTATION & Plan OPPORTUNITIES PLACE. CATALYSTS. IMPLEMENTATION ADOPTION

Public Meeting #1: Public Meeting #2: Public Meeting #3: November 3, 2016 - January 19, 2016 May 4, 2016 July 13, 2016 January 24, 2017

Task 1: Understanding & Task 2: Market. Place. Task 3: Plan Documentation & Task 4: Plan Opportunities Catalysts Implementation Adoption

The first task developed an understanding During the second task the planning Following review, vetting and additional The final Downtown Master Plan was of downtown and analyzed potential team conducted detailed economic and public input, the vision for downtown was officially shared with the public on opportunities with the Working Group, the market analysis to support and inform articulated into a final public presentation November 3, 2016, and submitted 22nd Century Committee, stakeholders catalytic project development, place-based and a draft Downtown Master Plan. for adoption as an amendment to the and the public. The First Public Meeting, strategies, and policy recommendations Toledo 20/20 Comprehensive Plan. It held on January 19, was part of this first was reviewed by the Toledo City Plan Master Plan for downtown. task. Commission on December 12, 2016, and recommended for adoption by City Council. City Council’s Zoning and Planning Committee recommended adoption by City Council on January 11, 2017, and City Council unanimously adopted the plan on January 24, 2017. Downtown Toledo Toledo Downtown

18 Stakeholder Engagement List of Stakeholders Interviewed by Planning Team

The planning team conducted a series of stakeholder interview meetings over the course of two days in December 2015. Working with the 22nd Century Committee, involved and passionate downtown stakeholders were identified and asked for interviews, with many taking part. Stakeholders were engaged in the form of roundtable discussions, grouped in the categories shown in the table to the right. This allowed for a more complete picture of both obstacles and opportunities in downtown and its surrounding Elected Officials Businesses/Organizations Education area. General findings from these discussions are Mayor Paula Hicks-Hudson Bob Laclair - Fifth Third Bank Dr. Sharon Gaber- University of Toledo as follows: Council Member Sandy Spang Wendy Gramza - Chamber Dr. Neil Reid - University of Toledo County Commissioner Carol Contrada Jeannie Hylant - Hylant Group Dr. Patrick Lawrence - University of >>Downtown needs consistent leadership and a County Commissioner Pete Gerken Richard Hylant - Hylant Group Toledo common vision in order to succeed. County Commissioner Tina Skeldon Steve Cavanaugh - HCR Manor Care Clyde Scoles- Toledo/Lucas County Wozniak Don Rettig - Owens Corning Library >>Incentives and permitting need to be Bill Mcdonnel - PNC Geoffrey Rose - St. Francis de Sales streamlined to encourage development City/County/Transport Kim Cutcher - LISC Doug Mead - Toledo School for the Arts Megan Vahey Casiere - Lucas County Katen Mathison - United Way David Livingston - Lourdes University >>The Riverfront is an asset that needs to be fully Bill Brennan - Lucas County Randy Oostra - ProMedica Health System Mike Bower - Owens Community College utilized from Middlegrounds to the Lake. Jim Gee - TARTA Jay Black - Toledo African American Joe Cappel - Port Authority Chamber of Commerce Real Estate/Construction >>Downtown needs viable hotels and an improved David Dysard - City of Toledo Steve Schwartz - First Hospitality Group Bob Howell - SSOE Convention Center. W. Gene Powell - Seed Cowork Tom Manahan - Lathrop >>Need to overcome safety and parking problem Arts/ Entertainment Don Miller - Seed Cowork Bill Rudolph - Rudolph Libbe Brian Kennedy - TMA Molly Thompson - LaunchPad Incubation perceptions. Jeff Sailer - Toledo Zoo Dan Rogers – Cherry Street Mission Small Business >>There is a growing interest in residential being Steve Miller - SeaGate Centre Allan Block – Block Communications Ed Beczynski - The Blarney Lori Hauser - Imagination Station Toledo Blade – Editorial Board Peter Brown - Paula Brown Shop downtown Joe Napoli - Mud Hens/Walleye Brian Lorenzen - WTOL Jerry Parker - Toledo Club >>Need better gateways and connections to Art Steve Madwell - Metro Parks Pete Veto - 13ABC Cindy Kerr - DTID Museum and surrounding neighborhoods. Jennifer Jarrett - Arts Commission Brian Trauring – 13ABC Ken Wood - Martin & Wood Appraisal Marc Folk - Arts Commission Jeff Upton - American Property Analysts >>The community mindset needs to change…a Toledo Repertoire Theatre Young Professionals Jim Lindsay - Louisville Title positive attitude is needed. Valentine Theatre EPIC Toledo Marcos Pizza United Way Emerging Leaders Brooks Insurance Other findings that emerged from stakeholder roundtable discussions are summarized in the following pages. 19 Introduction

Stakeholder Comments

Education Development

>>Would consider a downtown location, especially >>Plan needs to leverage downtown assets and if it was a joint campus with other institutions. planned investment to multiply economic benefits. >>While downtown is safe, more needs to be done to improve the perception of safety. >>Residential market is strong; there is not enough product on the market. >>Would like to see more activity downtown as a draw for students; currently most go to Bowling >>Incentives need to be more robust to enable Green for entertainment. more residential development. >>Open to collaborating with the private sector >>Out-of-state land/building owners need to be and developing opportunities for workforce engaged or bought-out. development. >>City permitting process needs to be streamlined Master Plan >>Need to do more to capture graduates and keep to encourage and facilitate new business/ them in Toledo. development. >>Encourage investments in incubator/startups >>Need to dispel myths about safety and not having enough parking. Downtown Toledo Toledo Downtown

20 1

Stakeholder Comments

Leadership & Management Riverfront Attitude

>>Downtown needs consistent leadership in order >>The Riverfront is an unrealized asset. >>Fifth Third Field and the Mud Hens changed to succeed. the perception of downtown for entertainment >>Need more access for residents and recreation visitors, now we need to do the same for >>This plan needs to create a common vision activities along the river. residential, retail and office development. between the public and private sectors and the >>Need to strike a balance between port activity community… >>Need to overcome safety and parking problem and public access. perceptions. >>…And it needs to align recent and current efforts >>The river today is a dividing line, it needs to and plans to create a common roadmap. >>We need to challenge the perception that there become the center of the community. is nothing to do downtown. >>Need to create partnerships to help the city >>Improvements to the riverfront = economic maintain and manage future investments in the >>Outsiders, or those that have moved back to development. public realm and infrastructure. Toledo have a greater appreciation and positive >>Address water quality and environmental feeling about the City and downtown. >>Need to be able to program spaces and places concerns. to ensure consistent downtown activity. >>A positive attitude is needed. >>Need to do more to encourage recreational >>Need to take a leadership position on acquiring >>Desire to better leverage uniquely Toledo brands boating of all kinds. key downtown properties. and character >>Strong desire to turn the focus of the city and community events back downtown. Section 1: Introduction

21 Introduction

Public Meeting 1

More than 350 Toledo area residents attended the First Public Meeting at the McMaster Family Center, located in the Toledo Main Library. Hosted by the 22nd Century Committee, the meeting took place on January 19, 2016 between 5 p.m. and 7:30 p.m. The planning team started the meeting with a presentation highlighting the process along with initial existing conditions and analysis.

After the presentation, participants were invited to interact with exhibits and the planning team for one-on-one conversations at eight themed stations, including:

>>Riverfront >>Residential & Retail Opportunities >>Streets/Connectivity >>Transportation & Parking >>Greenspace/Recreation/Bike Network >>Business, Talent and Innovation >>General Comments/Ideas A Public Meeting announcement flyer was emailed to the Toledo community and posted in various downtown locations >>Downtown Visioning (Interactive Display) Meeting attendants provided over 600 comments Master Plan It was an enthusiastic and highly engaged crowd. in the form of answers to questions on comment Participants expressed their vision and ideas cards, notes added to the interactive displays/map for the future of Downtown Toledo through both exercises, and comments left on station materials. conversations at the stations, and by participating Comments focused on revitalizing the riverfront, in the hands-on activities. The interactive post-it attracting talent and young people to the city, and and map display was transported from the Project building a vibrant downtown retail and residential Storefront to the Public Meeting, so meeting district. Public comments have been sorted and are summarized on page 28. Downtown Toledo Toledo Downtown attendants were able to engage with the storefront activities. 22 Public Meeting 2

Also held at the McMaster Family Center, the Second Public Meeting took place on May 4, 2016 between 5 p.m. and 7:30 p.m. The purpose of this meeting was to introduce the “what” stage of this process - what is the vision for downtown? More than 300 people attended the meeting.

The planning team provided a summary of the public feedback collected to date, including online engagement through the project website. Feedback was synthesized into a list of general comments, organized by how often these were mentioned or expressed. These were then reinterpreted as 12 Goals and Objectives to The emerging opportunities, as illustrated in the guide the remainder of the planning process. map above were: The presentation also shared the results from the Market Analysis in the form of development >>Rediscover The Riverfront potential numbers for residential, retail, office, and >>Rethink The Seagate Centre hospitality development. >>Revitalize Four Corners The planning team then introduced seven >>Recapitalize The Warehouse District emerging opportunities and a draft downtown >>Restore The Civic Center vision that set the stage for a long-term reimagining of downtown’s potential. After the >>Re-Energize Uptown presentation, participants discussed the draft >>Reconnect Downtown vision and emerging opportunities with the planning team in the McMaster Lobby. Participants were asked to prioritize these emerging opportunities, and provided more than 140 comments through the meeting’s seven themed stations. The stations included an interactive physical model of downtown illustrating various potential phases and intensities of the planning vision.

23 Introduction

Public Meeting 3

The Third Public Meeting took place on July 13, The meeting concluded with 12 Priority Action 2016 between 5 p.m. and 7:30 p.m. Attended by Items along with a downtown riverfront vision. over 250 area residents, this meeting introduced After the presentation, the public was invited to the “how” stage of this process - how will the share their thoughts on whether the planning planning vision for downtown happen? team had accurately captured their vision for downtown through open-house style displays in The meeting was introduced with an updated the McMaster Center Lobby. summary of the public feedback collected so far. The Planning team shared results from questions The one-on-one conversations with the planning asked at the Second Public Meeting and through team reflected a positive and energized group an online survey that was emailed out to the of Toledoans. An additional 25 comments were community. gathered by the Planning Team, in the form of comment cards and notes on exhibits. The planning team then presented a preferred planning vision that emerged from the feedback gathered at the Second Public Meeting. This planning vision focused on creating a network of open space, continuous development, and complete streets through downtown and its districts. The results from the Market Strategy were then shared with the public, offering insight as to what types of development could happen downtown, and where in the downtown area are these most likely to succeed. Master Plan Downtown Toledo Toledo Downtown

24 Website Traffic www.downtowntoledoplan.com (as of August 9, 2016)

Total number of Sessions within the In addition to Public Meetings, the process date range. A session is the period included a stand-alone website to engage a wider 9,156 of time a user is actively engaged audience. Launched in tandem with the First Sessions with the website. Public Meeting, www.downtowntoledoplan.com included a wide array of project updates, meeting Users that have had at least one materials, team and process information, and session within the selected date interactive public engagement opportunities. range. Includes both new and 5,735 returning users. Users Since it’s launch date, the website has been accessed by over 5,735 users, most of whom have IP addresses associated with the Greater Pageviews is the total number of Toledo Region. Web visitors spend an average 29,233 pages viewed. Repeated views of a of over three and a half minutes within the site, 2,795 VISITORS Page views single page are counted. and have interacted both by downloading posted The three Public Meeting materials and commenting on questions posed Presentations have been by the planning team. Other than the Home Page, viewed 3,366 times by 2,795 the most popular pages on the site are the First, visitors. The average Second and Third Public Meeting Presentations. length of a Session. 2:26 At the mouth of Swan Creek there should Avg. Session The Planning Team also used the online website be a bike / pedestrian bridge connecting for an public survey that was emailed out to the walkways along the river.” the community. The Planning Team gathered - Michael Lawrence Comments users posted to responses from over 40 people, most of which 204 Questions on the site, and specified that they had not been in attendance for I commute into downtown for work Comments respondents to online survey the First and Second Public Meetings. The results everyday. I would support a dog daycare... from this survey are summarized in the What We and I disagree that parking needs to be Heard Section of this chapter. free all the time” ENGAGEMENT SUMMARY - Alissa Task 1 Comments: 138 Comments Give people multiple reasons to come Task 2 Comments: 16 Comments to the waterfront. The malls in town are successful because there are multiple Task 3 Comments: 9 Comments reasons to be there--shopping, food, Online Survey: 41 Respondents exercise...” Total Email Subscribers: 463 Subscribers - Jeff 25 Introduction

Project Storefront

Located in the lobby of the Toledo Edison Building directly adjacent to the Downtown Toledo Improvement District Office, the Project Storefront included interactive and hands-on displays meant to engage downtown residents, workers, and visitors. The storefront was staffed by Toledo Design Center representatives between 12 PM and 1 PM on Mondays, Wednesdays, and Fridays. The lobby was fully accessible to all foot traffic during regular business hours.

Open to the public between January and May of 2016, the storefront materials included a post-it display with the following three questions:

The hands-on display also included two interactive maps where participants provided information on where they live and their perception of downtown. The display was temporarily transported to the First Public Meeting for the duration of the event. Master Plan Downtown Toledo Toledo Downtown

26 > > > > > > > > included inthe Traveling Display are asfollows: attend publicmeetings. The events andlocations members ofthecommunitywhodon’ttypically institutions. This allowed publicengagementwith circulated through various downtown events and Storefront were modified for travel andwere The engagementexhibits created for theProject Traveling Storefront Display > > > > > > > > Hylant Offices Downtown MainLibrary Government Center PNC BuildingLobby Huntington Arena (Hockey Game) Gathered Studio(Art Walk) Valentine Theater Toledo DesignCenter Art Walk –February 18 Gathered Glassblowing Studio February 22-26 PNC BuildingLobby February 16-18 Toledo DesignCenter 1 27 Section 1: Introduction 28 Downtown Toledo Master Plan Introduction important togrowth aslarger employers. and small-businesses were addressed asequally walkable streets andplentifulretail. Start-ups would require amenitiesfor employees, suchas mentioned thatastrong downtown officemarket would attract growing industries. Many comments envisioned amore vibrant andmixed-use CBDthat expressed adesire toworkdowntown, and The overwhelming majorityofrespondents Business, Talent and Innovation connections totheriver. way streets totwo-way, andmakingbetter street Other attendantssuggestedconverting more one- neighborhoods andincentivizemore retail activity. could increase downtown’s connectivitytonearby options were listedaspotentialimprovements that clear anddistinctive wayfinding, andmore transit Better lighting, addingbicycle infrastructure, on improving safety for everyone, notjustdrivers. Thoughts topotentially enhancestreets centered Streets/Connectivity also topicsofdiscussion. Dockside andrevitalizing theMarinaDistrictwere by several meetingattendants. Revitalizing retail, restaurants, andresidential was envisioned of thecomments, atruly mixed-use riverfront with open spaceandtrail opportunitieswere thefocus facility from Lake Erietothe Toledo Zoo. Though connected Riverfront withabike/pedestrian Participants largely discussedanactivated and The Riverfront Task 1Feedback What WeHeard Engagement PrioritizationSummary Riverfront downtown? Q: What ismissingfrom the “ 16 15 14 13 12 11 10 9 8 7 6 5 4 3 2 1 patios, shopping, residential.” Parks, bike/running trail, restaurants with Everything! We don’tuse theriver atall. Sustainability Better Market Downtown, ChangePerception, CityCommitment Jobs, Density, More People Grocery, Sundries, Shopping, NeighborhoodServices Access toBoats(Water Taxi/Ferry/Marina/Transient Boats) More LightingandSafer Pedestrian Streets Improve Promenade Park Public TransportationBetter Attractions, Cultural Events andUses More andImproved Bike Lanes More HousingOpportunities Need more thingstodoDowntown More Parks andRecreation Events andEntertainment Create aContinuousRiverwalk Access totheRiver downtown? Q: What wouldmake businessesmore successful “ resources...” figures coming togetherand pooling their investors andprominent community Small business owners, entrepreneurs, 1

Q: Parking downtown is: Task 2 Feedback: If it looked like Savannah or Jacksonville Emerging Opportunities & Planning Vision Not an Issue (20%) I’d be there every weekend!” The Riverfront Easy (56%) …it would be nice to have some Following the First Public Meeting, the downtown entertainment along with a mid-sized park Difficult (16%) riverfront continued to be a critical focus for the and Water St.” public. Participants at the Second Public Meeting So hard it makes me not want to come downtown (8%) emphasized the need for a continuous and interconnected network of open spaces along both sides of the river. Other comments included: Transportation & Parking Improving public transportation options was the >>More riverfront activity (Entertainment, Arts, most prevalent message in participant comments, Cultural Destinations) in addition to building a more robust bicycle >>Improved connections (to Middlegrounds Metro network. Meeting attendants also do not see Park and Lake) parking as a problem in downtown. >>Bike and pedestrian connections to both sides of Residential & Retail Opportunities the river Continuing to build on the momentum in the >>Better boating and physical access to the river Warehouse and Uptown Districts was a common thread in discussions regarding housing >>Clean water opportunities. Others expressed a desire for more Riverfront residential located near Fort Industry Square as well as the east side of the river. Many participants stressed the importance Q: What is the preferred usage of the riverfront downtown between Summit Street and the River? of independently-owned retail as an amenity that would attract visitors and downtown residents. As large a park as possible, including some building demolitions 19%

Greenspace/Recreation/Bike Network Bring back Water Street and build a mid-sized park A connected bike network consisting of on-street along the river 40% facilities, such as bike lanes, and off-street paths were of high priority and importance to attendants. Put entertainment development next to the water with 27% Comments focused on increasing connectivity to less parkland nearby neighborhoods, as well as focusing on a bike path along both sides of the river. Other 14% 29 Introduction

What We Heard

Downtown Core St. Clair Street Vistula Historic District Need Riverside Participants prioritized needs to be Public comments Trail connection, rethinking the SeaGate continuous” regarding Vistula additional Centre and revitalizing focused on celebrating parkland near the Four Corners (Intersection of Huron Street Toledo’s First residential and Madison Avenue) as the two most important Neighborhood. Meeting areas” catalytic projects in the Downtown Core. Improving Warehouse District Continuous walk attendants suggested a downtown connectivity through reconnected Building on the from Maumee concentrated revitalization effort that reclaimed streets were also mentioned as potential solutions momentum and activity River all along and cleaned up industrial spaces along the to the pedestrian experience. Other comments of the Warehouse Swan Creek” riverfront and replaced these with new green included: District, members of space and trails connecting to the Nautical Mile. the public expressed a desire for increased open Other comments included: >>Reconnect St. Clair Street space along Swan Creek and additional retail and entertainment opportunities, especially along St. >>Neighborhood needs to river access, parks and >>Connect Warehouse District to Civic Center Clair Street. Additional comments included: redevelopment to succeed >>Build on existing momentum >>Build on momentum of Hensville >>Bridge the Cherry Street divide >>More/better hotels >>Build on momentum of existing/new start up >>Provide boating access >>Improve perception of downtown and incubator space >>Reuse existing buildings first >>Connect to the Amtrak Station

Q: How would you prioritize these efforts? Q: What is your preferred usage of the riverfront in Vistula? (Users Ranked their highest priority as follows)

Rethink the New trail connectivity and Seagate Centre 52% some additional park space 9%

Revitalize Reconnected streets, development Four Corners 41% and a linear river park and trail 31% New trail connectivity with development adjacent Restore the 3% to downtown transitioning to park space north of 52% Civic Center downtown

Other 3% Other 9% 30 1

Reconnect Downtown Bike lane on Comments focused Jefferson on enhancing the Connecting pedestrian experience Uptown to the through the conversion water” of one-way streets Need retail to Uptown District into two-way travel, and enhancing the existing support the Comments strongly streetscape. As well, the majority of comments residential emphasized the need for addressed the lack of on-street bicycle neighborhood” future infill development infrastructure, and the potential to implement the occurring in Uptown to city’s 2015 Bike Plan in the downtown area. Other be consistent with the neighborhood’s authenticity comments included: and artistic character. Residents of this community expressed the importance of the Adams Street >>Change Erie and Michigan to two way Corridor as central to existing small businesses >>Connect St. Clair Street and retailers. Other comments included >>Implement Ontario connector >>Consider importance of historic architecture >>Expand bike infrastructure >>Provide more residential/commercial mixed use Task 3 Feedback: >>Implement Jefferson cycle track >>Make Adams Street corridor a key Uptown Priority Action Items & Planning Vision Draft connection to Downtown >>Remove Bus Loop Public comments received during Task 3 continued to emphasize the importance of a connected riverfront as vital to Toledo’s Future. Along with Q: What is your preferred land usage within Uptown? the creation of a stronger downtown, participants continued to stress the need for more downtown Some new parks and neighborhood development and a residents, retail, and employment. The enthusiastic focus on the Adams Street corridor 18% crowd that attended the Third Public Meeting All of the above, plus more neighborhood development 21% stressed the need for a robust implementation around new greens and squares effort to ensure that the vision created by this plan would become a reality. All of the above, maximizing park space, local streets and neighborhood development 48%

Other 13% 31 32 Downtown Toledo Master Plan The Five Districts+Connections Introduction Farmer’s Market. help toenliven thearea alongSwan Creek andthe Swan Creek totheAmtrak Station. Doingsowill MetroPark andmakingneeded connectionsacross south topickuptheenergy ofMiddlegrounds team’s definition extends theboundariesto restaurants andentertainment. The planning redevelopment andahighconcentration ofretail, thriving withtheopeningofHensville, residential Warehouse District: The Warehouse District is enhance thispartofdowntown. connecting andintegrating existing assetswill meet. Activation ofexisting buildingsand downtown iswhere businessandentertainment Theatre, andtheRenaissance Hotelthecore of Fifth Third Field, Huntington Center, the Valentine employers andassetslike theSeaGateCentre, Downtown Core: Along withnumerous major adjacent neighborhoods. Downtown Toledo, surrounding urbandistrictsand riverfront asthearmature andprimeassetfor development opportunities, thiswill renew the access, connections, publicspace, activityand Toledo andtheEastSide. With afocus on a catalyst for redevelopment inbothDowntown Riverfront: TheMaumeeRiver shouldbecome network ofstreets. includes five districtsandaninterconnected determined areas offocus for theplan. This 22nd CenturyCommittee, theplanningteam After engagingstakeholders, thepublicand Uptown District Riverfront Downtown Core Vistula Warehouse District Connections 1

Five districts + CONNECTIONS

Maumee River

Uptown District: The emerging Adams Street Vistula: Historic Vistula is currently disconnected Connections: Priority corridors will be identified corridor and Uptown Green anchor this part of from downtown and the riverfront. Opportunities for improvements as they relate to streetscape, downtown, and there are opportunities here to exist to jump start revitalization by increasing mobility, sustainability, and walkability. explore the infill of vacant buildings and lots with access and linkages to the riverfront and Connections to surrounding neighborhoods and residential and other uses to repopulate this downtown. near-downtown destinations will be addressed, in neighborhood. addition to linkages to the riverfront, reconnecting streets and one-way to two-way street conversions. 33 34 Downtown Toledo Master Plan Planning Principles Introduction and approval process needstobestreamlined to To enablethis redevelopment thedevelopment the districtsandneighborhoodsthatsurround it. development directly adjacenttotheriver andin riverfront will helptospuradditional mixed-use Investing inthe publicspacesalongthedowntown along andleadingtotheriverfront. Renaissance Hotelandinvest inthepublicrealm ProMedica headquarters, Promenade Park andthe needs toleverage plannedinvestments inthe early signsofaturnaround ahead. The community Toledo. Anundervalued assettoday, there are will bethekey totherevitalization ofDowntown The MaumeeRiver isavaluable publicgoodand guide plandevelopment. 12 PlanningPrinciplestoreflect publicinputand connections, theplanningteamalsodeveloped In additiontofocusing onthefive districtsand to beflexible and relevant asdowntown evolves. continuing communityplanningwill allow thisplan public-private partnerships andacommitmentto to thecharacter of Toledo anditshistory. Strong authentic iskey —improvements needtorespond Throughout all ofthis, whatmakes Toledo connections betweencommunityassets. downtown more usableanditwill allow for better blocks broken down. Doingsowill helpmake two-way street conversions considered, andsuper play. Streets shouldbereconnected, one-way to downtown amore attractive placetolive, workand transportation andenablewalkability will make Complete streets thatenableall modesof downtown. activate currently emptyorunderutilizedpartsof make iteasier toredevelop historicbuildingsand 3 2 1 Valuable PublicGood The River isa Successful UrbanDistricts Focus Redevelopment toCreate Mixed UseDevelopment Encourage 6 5 4 Partnerships Foster Strong Public-Private about ToledoAuthentic Celebrate whatis Approval Process Streamline the Development and 9 8 7 Historic Buildings Reinvest in Public Realm Invest inthe Market Momentum Take Advantage of 12 11 10 Community Assets Connect Planning Provides theDirection Strategic Community Essential toaStrong Downtown Active andCompleteStreets are 1 35 Section 1: Introduction

Section 2 physical conditions

37 Physical Conditions

The Study Area Downtown Districts

Lagrange Street The definition of what constitutes downtown Toledo is informed by numerous perspectives. For the purposes of this planning exercise, there is not 51 Cherry Street a hard line boundary. While it will be necessary to Woodruff Avenue focus efforts and improvements in a geographic area, the planning team is cognizant of the needs Cherry Street to connect to adjoining districts, neighborhoods Monroe Street Legacy and attractions that are additive and important to Corridor downtown. Civic Uptown Center There are several neighborhoods that surround District downtown. These neighborhoods should be Urban Neighborhood seamlessly connected to downtown so that as Overlay improvements are made the neighborhoods also benefit. This is particularly important as planning 246 work examines opportunities along the riverfront

and infrastructure and streetscape improvements Collingwood Boulevard Core along key corridors. City Park Avenue Indiana Avenue Downtown is also made up of several districts that have some degree of both existing plans and development momentum. The planning team will focus on knitting these districts together and identifying opportunities to create strong clusters Warehouse District of activity. Urban Neighborhood Overlay Master Plan

51 Downtown Improvement 75

Downtown Toledo Toledo Downtown District Boundary 0’ 1,600’ NORTH 38 Cherry Street Project Study Area Lagrange Street

CHERRY STREET Glenwood Avenue LEGACY 280 OLD WEST Ashland Avenue END Magnolia Street Bancroft Street 51 120

EXPANDED UNITED STUDY AREA NORTH Woodruff Avenue Adams Street

Erie Street Jackson Street VISTULA

75 Monroe Street Summit Street Madison Avenue

Jefferson Avenue BIRMINGHAM Dorr Street 246 PRIMARY Maumee River

Collingwood Boulevard STUDY AREA City Park Avenue Indiana Avenue

JUNCTION Main Street

Nebraska Avenue St. Clair Street

Starr Avenue

EAST SIDE 51

MIDDLEGROUNDS

25 OLD SOUTH END

0’ 1,600’ NORTH 39 Physical Conditions

Regional Context Larger Regional Context

DETROIT Located on the border of Ohio and Michigan and on the banks of Lake Erie, Toledo has a unique 94 regional, national and international presence. In WINDSOR ANN ARBOR addition to shipping access provided by Lake Erie, Detroit Metropolitan Toledo has access from I-75 that runs north-south 2.7 Million Passengers (2015) and I-90 that runs east-west. This puts almost half 94 of the major U.S. and Canadian markets within 500 miles of Toledo (2014, NW Ohio/SE Michigan CEDS). 275 Regionally, I-475 and I-280 provide convenient connectors that link Toledo with its surrounding suburban communities. This connects Downtown Toledo to the wider region, which is important both 75 in terms of visitors and access to a high quality workforce. There are more than 300,000 people located within a 15 minute drive of Downtown Toledo, 20.3% of which have a bachelor’s degree or above. Within a 30 minute drive, there are MONROE more than 630,000 people, 25.7% of which have a bachelor’s degree or above.

The proximity of Toledo to Detroit is another LAKE ERIE distinct advantage. While Toledo has an airport, it is only a 45 minute drive to the international Detroit Metropolitan Wayne County Airport.

Master Plan Detroit Metropolitan offers more than 140 direct flights daily and serves more than 33.4 million Maumee Bay passengers annually, making it one of the 10 475 busiest airports in the U.S. This gives Toledo access to a major metropolitan asset without TOLEDO Toledo Express having to bear any cost for the infrastructure or 180,000 Passengers (2015) operation. 80/90 280 Downtown Toledo Toledo Downtown 0’ 10 mi NORTH 40 Regional Context MICHIGAN OHIO

LAKE ERIE

475

280 120 CITY OF 51 TOLEDO 25 Maumee River OTTAWA HILLS

75 246

475 OREGON

ROSSFORD

280 90

MAUMEE

PERRYSBURG 0’ 1,600’ NORTH 41 Physical Conditions Downtown Street Grid Framework Historic Downtown Street Grid

The Maumee River is one of the most distinct form giving features of the Toledo region. It is the biggest of the Great Lake tributaries and flows into Lake Erie. Approximately five miles from the mouth of the river there is a distinct bend, the apex of the bend is the site of Downtown Toledo. The major avenues in the city all converge downtown, making direct access to the downtown riverfront convenient from all points in the larger city. The city has grown concentrically, absorbing surrounding townships, but it remains centered on the downtown and the Maumee River.

This historic grid builds from, and leads to the river. This focus of energy and access, while not as pronounced as it once was, sets up a street pattern that will support revitalization. These streets were once the primary commercial corridors for the city and are still important linkages to surrounding neighborhoods and districts. With renewed attention in the urban core of downtown, these streets can regain their importance and help extend the positive impact of a revitalized downtown. Master Plan Downtown Toledo Toledo Downtown

42 Downtown Street Convergence

LAKE ERIE

Cherry Street

475

Monroe Street

Maumee River

Dorr Street Washington Street

Main Street

Starr Avenue 75

280 Woodville Road

0’ 800’ NORTH 43 Physical Conditions

Walkability & Connectivity Downtown Walkability (Quarter Mile Walk Sheds)

Lagrange Street Cherry Street Downtown Toledo has numerous attractions, many Glenwood Avenue Ashland Avenue of which are located within walkable distances.

Magnolia Street A generally accepted walkable distance for the Bancroft Street average person is ¼ of a mile, or approximately a five minute walk. In the downtown core, Fifth Third Field, the SeaGate Centre, the Huntington Center, the Central Business District, Promenade Park and 120 51 Woodruff Avenue Imagination Station are centrally located and within Adams Street Toledo Museum a five-minute walk of one another. Even destinations of Art Erie Street such as the Farmer’s Market and the Main Library Jackson Street are within a five minute walk of the edge of the Uptown Green downtown core and within a 10 minute walk (½ 75 Madison Avenue mile) of most destinations. Summit Street Jefferson Avenue Main Library

People are willing to walk ½ mile if the walk is Monroe Street visually interesting. By focusing on filling vacant 246 Dorr Street Maumee River CBD

storefronts and buildings, redeveloping vacant lots Collingwood Boulevard

and at least the street frontage of surface parking City Park Avenue Indiana Avenue Huntington Center lots, and improving streetscapes and mobility Promenade Park options, all of downtown will become more walkable SeaGate Centre and accessible. 5/3 Field Main Street For destinations outside of the downtown core, such as the Toledo Museum of Art and Uptown Green, Nebraska Avenue walkability is more challenging. The distances Toledo Farmer’s Market are more than ½ mile from the downtown core Starr Avenue Master Plan and there are longer stretches of surface parking lots and vacant lots between these destinations and the core of downtown. To better access these and other surrounding assets farther away from 51 downtown—the University of Toledo, the Toledo Zoo, the Toledo Amtrak Station, and the National Museum of the Great Lakes—corridor-wide improvements in 25 streetscapes, wayfinding, bicycle infrastructure and Downtown Toledo Toledo Downtown other transportation options will be necessary. 0’ 2,000’ NORTH 44 Cherry Street Nearby Assets Lagrange Street Glenwood Avenue

280 Ashland Avenue

Magnolia Street Bancroft Street 51 120

Woodruff Avenue Adams Street

Erie Street 1.5 Jackson Street MILES

MuseumTo Toledo of Art

75 Monroe Street Summit Street Madison Avenue

Jefferson Avenue 4.2 To University 1.6 Dorr Street 246 Maumee River MILES of Toledo MILES Collingwood Boulevard City Park Avenue

Indiana Avenue To National Museum of the Great Lakes

Main Street

Nebraska Avenue St. Clair Street

To Toledo Starr Avenue

Amtrak Station

0.9

MILES 51 To ToledoZoo

3.5 MILES 25

0’ 1,600’ NORTH 45 Physical Conditions

Street Directionality Existing Street Directionality

Lagrange Street Cities around the country are realizing that one- way streets compromise livability, economic activity and safety. Returning streets to two-way 51 Cherry Street operation has been found to result in safer traffic Woodruff Avenue speeds, enhanced wayfinding and access, and more social and economic vitality. While one-way Madison Avenue streets are still an appropriate solution in the right Jefferson Avenue Southard Avenue context (particularly as a set of one-way pairs), it is clear that two-way traffic is beneficial to the Madison Avenue Jackson Street success of residential and commercial areas.

Toledo has been proactive in this regard, having completed the conversion of six key downtown corridors from one-way streets to two-way streets. The benefits can already be seen 246 around Fifth Third Field and Hensville where the 14th Street

conversion of a previously confusing collection Collingwood Boulevard City Park Avenue of one-way streets has helped to transform the 11th Street area. This conversion has also set up a framework Indiana Avenue for the continued revitalization of the Warehouse District. Michigan Street

Erie Street

Huron Street Superior Street St Clair Street Master Plan

One-Way Street 51 75

Downtown Toledo Toledo Downtown Two-Way Street 0’ 1,600’ NORTH 46 Cherry Street Street Directionality - Recent Conversions Lagrange Street Glenwood Avenue

280 Ashland Avenue

Magnolia Street Bancroft Street 51 120

Woodruff Avenue

Madison Avenue

Jefferson Avenue Southard Avenue Erie Street

Jackson Street 75 Summit Street

Dorr Street 246 Maumee River

14th Street Collingwood Boulevard City Park Avenue 11th Street Indiana Avenue

Michigan Street

Erie Street Main Street

Nebraska Avenue Huron Street Superior Street St Clair Street

Starr Avenue

One-Way Street Two-Way Street 25 Completed One-Way to Two-Way Conversion 0’ 1,600’ NORTH 47 Physical Conditions

Traffic Volume & Connectivity Downtown Super Blocks

With progress already being made in one-way to Jackson Street Cherry Street two-way street conversions downtown, attention Adams Street should turn toward addressing the character and usability of downtown streets for all modes of travel. Two immediate opportunities have emerged that will enable the continued revitalization of downtown. Madison Avenue Superior Street

One, is connectivity. While much of the core of Summit Street downtown has been returned to two-way operation, many streets are cut off from one another making Jefferson Avenue it difficult to navigate downtown and access destinations, particularly for visitors and those unfamiliar with downtown. This condition is most Monroe Street pronounced between Fifth Third Field and the St. Clair Street Huntington Center and the core of downtown. St. Clair Street is blocked by the SeaGate Centre, and Superior Street is disconnected by Fifth Third Field Washington Street and the Huntington Center. Likewise, Madison Huntington Avenue is disconnected from Summit Street. This Center forces both cars and pedestrians to take circuitous routes to access these destinations or to get to other portions of downtown. SeaGate The other opportunity involves “right-sizing” Centre Maumee River downtown streets to accommodate all modes Michigan Street Fifth Third of transportation and especially to improve the Field Ontario Street

Master Plan pedestrian environment. The desired vitality

of downtown will not return unless the street Erie Street

corridors are made more desirable and functional Huron Street for the pedestrian. Only Monroe Street, Summit Street, Michigan Street, and Erie Street carry more Superior Street than 8,000 vehicles on a daily basis. The planning team will explore what changes may be appropriate St. Clair Street on these streets and other, less-traveled streets to Summit Street Downtown Toledo Toledo Downtown enhance mobility, walkability, and on-street parking. 0’ 2,000’ NORTH 48 Average Annual Daily Traffic Lagrange Street

Cherry Street Glenwood Avenue Ashland Avenue 280

Magnolia Street Bancroft Street 51 120

Woodruff Avenue Adams Street

Madison Avenue

Jefferson Avenue

75 Monroe Street Jackson Street Summit Street

Dorr Street 246 Maumee River Collingwood Boulevard City Park Avenue Erie Street Indiana Avenue

Main Street

Nebraska Avenue St. Clair Street

Starr Avenue

Average Annual Daily Traffic (Source: TMACOG) 51 0 - 4,000 Vehicles 4,000 - 8,000 Vehicles

Over 8,000 Vehicles 25 Undocumented, but low volumes are expected 0’ 1,600’ NORTH 49 Physical Conditions

Corridor Opportunities Corridor Restrictions

Many downtown streets have a strong potential for conversion/upgrading to complete streets that could allow for on-street parking, wider sidewalks, bicycle facilities, green stormwater infrastructure, 51 and improved streetscapes. These enhancements to increase mobility and walkability will make downtown more attractive to reinvestment and Cherry Street Adams Street revitalization. Madison Avenue Two factors make such improvements more difficult. Streets that are designated as Federal Jefferson Avenue and State routes have certain design restrictions. Streets that carry larger traffic volumes Monroe Street and streets that are one-way also represent challenges. The majority of streets downtown have 246 Erie Street a high degree of opportunity for improvements. Michigan Street Huron Street Superior Street The planning team views the street corridors on the opposite page as important form-givers to the

success, function, and perception of downtown. Summit Street

St. Clair Street Master Plan Corridors with Opportunities and Few Restrictions Corridors with Opportunities and Moderate Restrictions Corridors with Opportunities and 75

Downtown Toledo Toledo Downtown High Restrictions 0’ 1,600’ NORTH 50 Corridor Opportunities

280 Madison Avenue

Cherry Street Lagrange Street

Woodruff Avenue Jefferson Avenue

Adams Street

Madison Avenue

Jefferson Avenue

Monroe Street Huron Street Maumee River Dorr Street 51 MICHIGAN STREET Collingwood Boulevard ERIE STREET City Park Avenue St. Clair Street Indiana Avenue MONROE STREET Main Street

WASHINGTON STREET SUMMIT STREET

Summit Street

Nebraska Avenue

Erie Street

Starr Avenue St. Clair Street

Corridors with Opportunity25 Corridors with Opportunity & Cherry Street Limitations 0’ 1,600’ NORTH 51 Physical Conditions

Parking & Transportation Downtown Parking 900 4,585 Metered off-street on-street spaces Downtown parking is provided though several Jackson Street spaces Cherry Street prominent parking structures, privately-owned Adams Street and operated surface lots, and on-street parking. For downtown visitors, parking information is provided online via the public parking system known as ParkSmart, which catalogs all Madison Avenue downtown parking through a single interface. Three parking garages alone, Port Lawrence, Vistula and Superior Garages, contain close to Jefferson Avenue 2,800 spaces of the 4,585 spaces in the downtown core. Private operators of surface lots include KWIK Parking, EZ Park, and Premier Parking. KWIK Summit Street

and EZ Parking, both owned by the same parent Monroe Street company, have 30 surface lots between the river and 12th street. On-street parking is available through the entirety of the downtown core, and is IMAGINATION conveniently free of charge during lunchtime and Washington Street STATION after 5 PM. HUNTINGTON CENTER Alternative transportation downtown is provided by the Toledo Area Regional Transit Authority (TARTA). Most weekday TARTA routes make four SEAGATE stops in the downtown core, commonly referred Maumee River to as the downtown loop along Jackson, Summit, CENTRE

Jefferson, and Erie Streets. Real-time bus arrival Michigan Street FIFTH THIRD

information is provided online via the TARTA Ontario Street FIELD

Master Plan Tracker, though arrival information is not currently displayed at prominent transfer stations. TARTA Erie Street has a stop at the Toledo Amtrak Station, which Huron Street

provides passenger rail service to Chicago and the Superior Street east coast through Cleveland. Surface Lots St. Clair Street Garages Summit Street On-Street Parking Downtown Toledo Toledo Downtown 0’ 2,000’ NORTH 52 Cherry Street TARTA Routes Lagrange Street

Glenwood Avenue 280

Ashland Avenue

Magnolia Street Bancroft Street 51 120

Woodruff Avenue

Adams Street Erie Street Jackson Street

75 Monroe Street Summit Street Madison Avenue

Jefferson Avenue Dorr Street 246 Maumee River DOWNTOWN

Collingwood Boulevard LOOP City Park Avenue Indiana Avenue

Main Street

Nebraska Avenue St. Clair Street

Starr Avenue

Existing TARTA Line Transfer Station 0’ 1,600’ NORTH 53 Physical Conditions

Open Space & Recreation

From vibrant urban plazas to civic squares and lacking in both breadth and extent. riverfront tranquility, downtown is fortunate to have a rich and diverse collection of gathering The 2015 Bike Plan addresses these issues, as spaces, many of which are vibrant and actively well as overall bicycle connectivity for the entire Levis Square used. This is despite the fact that parkland city. The plan sets a vision for 13 major bike accounts for just over 2% of land outside of the trails to connect regional major destinations. The right of way between the river and Woodruff segments envisioned in this plan with special Avenue. The amount of dedicated parkland in the relevance to downtown, some of which include on- downtown area leaves room for improvement, street facilities, include: as it only adds up to approximately 12 acres. >> Bancroft-Promenade Trail - Connects The most unique public open space downtown is Downtown with University of Toledo and the perhaps the riverfront, which offers the beginnings Riverside Trail of a connected open space system extending from the MLK Bridge to Swan Creek. In addition >> Cherry University Trail - Connects the to riverfront amenities, other gathering spaces University of Toledo with Uptown include Levis Square, a classic urban plaza within >> Riverside Trail & Riverside Trail East – close proximity to the SeaGate Centre, and the Connects the Toledo Zoo with the future Civic Center Mall, a large open space monumental Middlegrounds Metro Park towards in scale and character. Farther north, Uptown Promenade Park. The eastern portion of Green adds green space at the heart of the Uptown this trail connects Dockside and the Marina community. Boeschenstein Park District. Downtown is undergoing potentially transformative parkland developments that will enhance its waterfront and neighborhoods. The future Promenade Park and recently opened

Master Plan Middlegrounds Metropark have the potential to set the stage for a revitalized riverfront corridor. As well, Hensville Park in the Warehouse District has the potential to capitalize on the district’s burgeoning energy. These three assets, though in close proximity to each other, may require stronger connections for both pedestrians and

Downtown Toledo Toledo Downtown cyclists than what currently exists. Bicycle facilities in the downtown area are currently Future Promenade Park 54 CHERRY-UNIVERSITY TRAIL Cherry Street Parkland, Open Space & Potential Bike Routes Lagrange Street Glenwood Avenue

Ashland Avenue

280

Bancroft Street Magnolia Street 51 120

BUCKEYE-BASIN TRAIL

Woodruff Avenue

Jefferson Avenue Erie Street Jackson Street

75 Adams Street

Madison Avenue BANCROFT-PROMENADE TRAIL

Dorr Street 246 Maumee River Monroe Street RIVERSIDE TRAIL Collingwood Boulevard CHERRY-UNIVERSITY TRAIL Indiana Avenue

Main Street

Nebraska Avenue St. Clair Street Summit Street

Starr Avenue

RIVERSIDE TRAIL EAST

25 Bike Route Proposed in 2015 Bike Plan 0’ 1,600’ NORTH 55 Physical Conditions

Existing Land Use and Zoning Existing Land Use

Lagrange Street Cherry Street Current land use and zoning patterns show a Glenwood Avenue Ashland Avenue heavily commercial core surrounded by primarily

Magnolia Street single-family residential neighborhoods. Corridors Bancroft Street in these residential neighborhoods, such as Lagrange, Cherry, and Main Streets, radiate toward downtown and the river and are characterized by commercial uses of varying intensities. Commercial 120 51 Woodruff Avenue and office zoning designations are prevalent in Adams Street the downtown area between Woodruff Avenue Erie Street and the riverfront. Uptown is generally zoned Jackson Street office commercial, as is the Civic Center area. The 75 Warehouse District, reminiscent of its rich industrial Monroe Street Summit Street past, is mostly zoned limited industrial despite Madison Avenue

having a relatively high concentration of residential Jefferson Avenue and commercial structures. Except for a downtown 246 Dorr Street Maumee River section consisting of parks and open space-

zoned parcels, the riverfront is generally zoned Collingwood Boulevard City Park Avenue commercial or general industrial, especially to the Indiana Avenue north of downtown.

More importantly, the City of Toledo Zoning Code Main Street establishes several Overlay Districts affecting downtown and its surrounding neighborhoods. These districts set review processes for Nebraska Avenue St. Clair Street development as well as design guidelines of various extents, some of which include guidelines Starr Avenue Master Plan for building setbacks, parking, and streetscape. The Overlay Districts relevant to the study area Vacant (Parks and Open Space)

include: Downtown District (shown on map), Industrial 51 Warehouse District, Uptown District, Maumee Riverfront, Monroe Street Corridor, Summit Street Commercial Corridor, and the Marina District. Each district is Residential accompanied by a respective planning document 25 Mixed

Downtown Toledo Toledo Downtown that sets out a rationale and vision for future development. 0’ 2,000’ NORTH 56 Cherry Street Existing Zoning Lagrange Street Glenwood Avenue

Ashland Avenue 280 Old West End

Historic District Magnolia Street Bancroft Street 51 120 Erie Street

Vistula Historic Woodruff Avenue District DOWNTOWN OVERLAY Summit Street Corridor Uptown Neighborhood

Overlay Monroe Street Corridor 75 Maumee River Jackson Street

Adams Street

Marina District Dorr Street 246 Madison Avenue Overlay Jefferson Avenue Downtown Commercial

City Park Avenue Monroe Street Mixed Commercial – Residential Indiana Avenue Neighborhood Commercial Summit Street Office Commercial Institutional Campus Main Street Regional Commercial

Nebraska Avenue St. Clair Street Storefront Commercial General Industrial Warehouse District Maumee Riverfront Neighborhood Overlay Overlay Limited Industrial Starr Avenue Planned Industrial/Business Park Mixed Zoning 51 Parks and Open Space Residential, Single Dwelling

Residential, Duplex 25 Residential, Multidwelling Zoning Overlay District 0’ 1,600’ NORTH 57 Physical Conditions Building Coverage & Lot Vacancy Building Coverage

Lagrange Street According to Toledo/Lucas County data, there is not a high amount of vacant residential and commercial lots in downtown Toledo. However, 51 a more useful and informative way to look at the Cherry Street urban form of downtown is to consider building Madison Avenue Woodruff Avenue coverage. With this data, the story becomes more clear. In the extended study area and the primary Adams Street study area between 22% to 30% of downtown Erie Street made up of actual buildings. Madison Avenue Jackson Street Jefferson Avenue This begins to show where the urban form is the most intact (between Washington Street and Adams Street south of Huron Street) and where it has moderate gaps (Civic Center, Warehouse Washington Street District), and where it has significant gaps 246 (Uptown, Monroe Street Corridor). It also helps explain why some areas of downtown feel more Collingwood Boulevard

walkable than others. For example, while they City Park Avenue are just a five to 10 minute walk from portions of Indiana Avenue downtown, the gaps in the urban fabric make the Summit Street Farmer’s Market or Art Museum seem unwalkable. Michigan Street Focusing redevelopment in these gaps would Erie Street help to build connections between areas of Huron Street activity, extending the walkability of downtown and creating critical mass necessary to drive additional reinvestment St Clair Street Master Plan

75 Downtown Toledo Toledo Downtown 0’ 1,600’ NORTH 58 Glenwood Avenue Cherry Street Vacant Lots Lagrange Street

280 Ashland Avenue

Magnolia Street Bancroft Street 51 120

Woodruff Avenue

Adams Street Erie Street

Madison Avenue Jackson Street 75 Jefferson Avenue Summit Street Madison Avenue

Washington Street

Dorr Street 246 Maumee River Collingwood Boulevard City Park Avenue Indiana Avenue Summit Street

Michigan Street

Erie Street Main Street Huron Street

Nebraska Avenue St Clair Street

Starr Avenue

51 Residential and Commercial Vacant Lots Forfeited Land 25 Parcels in Land Bank Industrial Vacant Lots 0’ 1,600’ NORTH 59 Physical Conditions

Significant Land Owners Top 10 Landowners

The ten largest landowners in the downtown area control over 500 acres of land. As seen in the ownership map, 17 landowners of both public and private backgrounds control a large share of the study area, including much of the riverfront. The largest landowner in the study area, with City of Toledo 175 acres of land, is the City of Toledo. The city’s 175 Acres most significant concentration of parcels is in the area surrounding Dockside and east of the Marina Midland Agency of Northwest Ohio District. Other city-owned properties include 69 Acres portions of the Civic Center area, as well as large Owens Corning swaths of land in the Warehouse District. Though Lucas County holding less acreage than the city, Lucas County 50 Acres controls significant real estate that includes the parcels for the Huntington Center, Fifth Third Field, Owens Corning and the SeaGate Centre. 40 Acres

The downtown portion of the riverfront and its Toledo Museum of Art surroundings are largely controlled by less than 35 Acres 10 landowners. The largest holding by a single landowner is the land parcels that compose Toledo Metropark the Marina District and a portion of Dockside. 28 Acres On the north and south sides of downtown, the Marina District Lucas County Port Authority riverfront’s industrial character is reflected by its 18 Acres landowners, which include Norfolk Southern and Arms Dock Inc. Owens Corning and MetroParks Lucas County Master Plan control much of the west riverfront south of Metro Housing Authority downtown. 17 Acres

401 E. Woodruff LLC 16.5 Acres

Arms Dock Inc.

Downtown Toledo Toledo Downtown 16 Acres Huntington Center 60 Glenwood Avenue Cherry Street Significant Landowners Lagrange Street

280 Ashland Avenue

Magnolia Street Bancroft Street 51 Arms City of 120 Dock Inc. Lucas County - Toledo Housing Services 401 E. Woodruff LLC City of Toledo Woodruff Avenue Norfolk Adams Street Southern

St. Vincent Erie Street Jackson Street U.S. Federal Hospital Government Toledo Museum Lucas County - Maumee River of Art Housing Services City of 75 Monroe Street Toledo State of City of Summit Street City of Madison Avenue Ohio Toledo Toledo Schools & Lucas Toledo Toledo Board of Education County Lucas County Jefferson Avenue Blade Port Authority Dorr Street 246 Toledo Schools & Midland Agency of Public Entities Board of Education Lucas Lucas County Northwest Ohio County Port Authority Toledo Museum of Art Collingwood Boulevard

City Park Avenue Lucas City of Toledo County Indiana Avenue ProMedica Toledo Schools & Board of Education Lucas County - City of Toledo Metropark Housing Services Lucas Toledo Lucas County County Louisville Title Main Street Lucas County - Metro Housing Authority Company Lucas County Port Authority City of NebraskaState Avenueof Ohio St. Clair Street Toledo City of U.S. Federal Government & Postal Service City of Owens Toledo Toledo Corning Private Entities Midland Agency of Northwest Ohio Lucas Starr Avenue Louisville Title Company County U.S. Federal Owens Corning Government Norfolk Southern 51 ProMedica Toledo St. Vincent Hospital Lucas County Metropark Toledo Blade 25 Port Authority 401 E. Woodruff LLC Arms Dock Inc. 0’ 1,600’ NORTH 61

Section 3 market analysis & strategy

63 MARKET ANALYSIS

Introduction

Market analysis establishes a baseline of The market opportunities presented here such as Grand Rapids, Des Moines, and Omaha development potential and involves evaluating represent a baseline of what is achievable. have taken many by surprise with the strengths of demographic trends, patterns in real estate supply, Metrics from Toledo’s peer cities are presented their downtowns, exceeding market expectations. and factors impacting future demand. For this throughout. This is an acknowledgement that The city can take inspiration from its peers, while report, the market analysis looks at the market market analysis is both an art and a science. revitalizing its downtown in a manner that is for four types of development—residential, office, Downtowns can grow and revitalize in ways that authentically Toledo. hotel/convention center, and retail. seem to exceed their capacity to do so. Cities

This foundation serves as a basis toward answering higher order questions in the plan, such as how can these market opportunities be TOLEDO REGION GREATER DOWNTOWN TOLEDO best leveraged to create value for the community (market strategy), what does the community fundamentally need to adapt and thrive (economic strategy), and what is the vision for how the downtown could look and function?

This market analysis concludes that significant opportunities exist to add new housing, different types of retail, grow office jobs, and attract overnight visitors and tourists. Many of these opportunities involve better leveraging great assets that serve as anchors for the downtown, while others involve capitalizing on a national trend of renewed interest for urban places in DOWNTOWN TOLEDO TOLEDO TOLEDO MSA which to live, work, shop, and visit. Ultimately,

Master Plan each market based opportunity will serve to make Population 3,400 280,000 608,000 downtown a more vibrant, appealing place. Households Size 1.6 2.3 2.4 Median Household Income $13,700 $33,600 $44,800 Median Age 33 35 38 Median Housing Value $110,000 $90,000 $132,000

Source: ESRI, Development Strategies 2015 Downtown Toledo Toledo Downtown

64 Trends to beeducated andearnhighsalaries. children. Downtown residents are alsovery likely over 55years oldandless than10percent have under 35years old, whilelessthan20percent are the countryfound thataround halfare singleand downtown residents in a numberofcitiesaround to thenationalaverage. Additionally, surveys of as Detroit, Cleveland, andColumbus, ascompared has beenfasterinmetro areas near Toledo, such outside ofclose-inneighborhoods. This growth percent increase inthisdemographic group in andaround downtowns), compared toa13 in neighborhoods”(i.e., neighborhoodslocated degrees across the51largest MSAs in“close- the populationof25-34year olds withcollege showed thatthere was a26percent increase in many cities. Arecent studyby CEOsfor Cities trend hasalready beenunderway for awhile, in districts withincities, andevidenceshows this all pointtobiggainsbeingmadefor urban Changes indemographics andpreferences among young, educated professionals. amenities. This preference isparticularly notable environments ifitplacesthemclosertojobsand and awillingness tolive indense, walkable expressing apreference for walkable communities majority orsizeableminorityofhouseholds align withthesedemographic shifts, withaslight is increasing rapidly. Consumerpreferences sizes are shrinking, andthenumberofseniors want. The populationisgrowing, household want tolive andwhatkindsofhousingthey as are people’spreferences aboutwhere they The demographics ofAmerica are changing— CEOs For Cities, 2009 Cities, For CEOs 25-34 Year Olds with a Four Year Degree Year Four a with Olds Year 25-34 GROWTH OF YOUNG PROFESSIONALS INCLOSE-IN NEIGHBORHOODS Top 50Metros DEMOGRAPHICS Indianapolis Milwaukee Pittsburgh Columbus Cincinnati Cleveland Louisville St. Louis Detroit 2025* Households by Non-Family 72% 10% PREFERENCES 26% 28% housing* or small lot Prefer attached 66% 38% 40% 45% 49% INTERNET TRENDS 59% Rest of MSA Close-In sales* based electronic Increase inweb- 3,700% 83% 87% 65 Section 3: Market Analysis MARKET ANALYSIS

Trends 850 600 New residents Out-Migrants with in downtown Bachelor’s Degrees Mapping of population growth in Toledo over to Urban Counties since 2000 Annually the past 15 years demonstrates that one of the few pockets of growth in the city has been the in greater downtown area, which grew by 850 residents—a 32 percent increase. While this is not the level of downtown growth that neighboring cities have had, evidence shows an upward trend that can be seized and accelerated. The opportunity for Toledo is to make big gains in young professionals downtown and in its urban neighborhoods; the flipside is a loss of young talent to other cities or parts of the country if investment in downtown as a livable, thriving place of employment is not sustained. Migration data from the 2011 American 450 Community Survey indicates that Lucas County In-Migrants with averages a loss of 1,000 residents with bachelor’s 1 Dot = 10 People Bachelor’s Degrees degrees from the Toledo region annually. Of these, Increase from 2000 - 2015 to Urban Counties about 600 go to other urban areas, including Decrease from 2000 - 2015 Annually Cleveland, Columbus, Minneapolis, Grand Rapids, and Chicago. At the same time, about 450 people with bachelor’s degrees are moving to Lucas County from these same urban metros and others on an annual basis. These patterns suggest that educated professionals from Toledo are inclined

Master Plan to stay in the Midwest Region – and indeed, in the State of Ohio – but are being drawn to regional cities with the most vibrant urban environments, while current residents of those environments are coming to Toledo and will be looking for that same vibrancy. A revitalized Downtown Toledo will play a critical role in providing the urban lifestyle that

Downtown Toledo Toledo Downtown highly-educated in-migrants are looking for and highly-educated residents are leaving for. 66 Peer City Downtowns achievable opportunityfor Downtown Toledo. provide acomparative “baseline”for the minimum performing nobetterorworse than Toledo, and Dayton, Fort Wayne, andAkron—are generally aspirational peercities. The performance peers— two categories: performance peercitiesand opportunity. These peercitiesgenerally fall under retail, andthegeneral scale andscopeof to downtown housing, employment, tourism, for evaluation throughout thisreport, asitrelates A numberofpeercitydowntowns were identified around downtown. growth withastrategic setofpoliciesfocused an opportunitytoimprove regional wealthand These numbers illustrate areas where Toledo has of medianhouseholdincomeandhousingvalue. population livingdowntown, itislagging interms aspirational peers intermsofpercent ofregional that while Toledo isperforming onparwithits downtowns. Demographic comparisonsshow talent inways thatmadefor more thriving, livable have beeneffective inleveraging theirassetsand downtowns towhich Toledo can aspire, sincethey Omaha, andDesMoines—are citieswith The aspirational peercities—Grand Rapids, Des Moines, IA Grand Rapids, MI Omaha, NE 3 67 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Residential Market: Supply

LaSalle Apartments Standart Lofts Downtown

A survey of current housing products in the Toledo metro area provides context for attainable rents and sale prices. While housing options in downtown are somewhat limited, there has been renewed interest in residential development in the neighborhood, particularly in the Warehouse 1995 2012 District. Apartments in rehabbed Warehouse 131 units 75 units District buildings rent for $1.15 to $1.25 per 93% occ. 100% occ. square foot, with condos selling for around $100 per square foot. Housing in the CBD is limited to 875 Sq. Ft. Avg. Rent/SF 900 Sq. Ft. Avg. Rent/SF apartments in rehabbed high-rise buildings, such 1 Bedroom 1 Bedroom $0.90 - 1 Bedroom $1.25 - 1 Bedroom as the Commodore Perry and LaSalle Buildings, 1,550 Sq. Ft. 1,200 Sq. Ft. which average $0.75 to $1.00 per square foot 2 Bedrooms $0.75 - 2 Bedrooms 2 Bedrooms $1.20 - 2 Bedrooms in rent. The greatest potential for new housing development likely exists near Uptown, where Historic Hillcrest Apartments Bartley Lofts there is an available supply of undeveloped land. Monthly rent in Uptown’s market rate units range from $0.75 to $1.00 per square foot, on par with similar rehabbed apartments in the CBD.

1999 2005 106 units

Master Plan 52 units 98% occ.

860 Sq. Ft. 770 Sq. Ft. 1 Bedroom Avg. Rent/SF 1 Bedroom Avg. Price/SF 1,130 Sq. Ft. $0.75 - 1 Bedroom 1,300 Sq. Ft. $150 – 1 Bedroom 2 Bedrooms $0.73 - 2 Bedrooms 2 Bedrooms $120 - 2 Bedrooms 2,300 Sq. Ft. $0.65 - 3 Bedrooms Downtown Toledo Toledo Downtown 3 Bedrooms 68 housing unitsintheseareas. below show theaverage rent andsalepriceof right product was available. The mapandchart that couldbeattracted tolive downtown, ifthe whose demographic make-up includeshouseholds visits, revealed anumberofresidential areas below, aswell asstakeholder interviews andsite Mapping thetarget market segmentsdescribed Competitive NeighborhoodAnalysis Average Rent (3BR) Average Square Foot Median HousingSalePrice Average Rent (2BR) Average Rent (1BR) $830 -$1,130 Center City $670-$760 $1,300 -$1,450 $750 -$850 $500-$650 Uptown $1,050 -$1,650 $800 -$1,300 Warehouse $120,000- $160,000 1,350 SF District Old WestEnd $100,000 2,600 SF $50,000 - $100,000 1,600 SF Ottawa $750 -$1,000 $450 -$750 $550 -$850 Reynolds Corner/ Holland Levis Commons (Perrysburg) $250,000 - $350,000 2,500 SF $1,800 $1,500 $900 Secor Gardens $750 $675 Bancroft Hills $820 $540 3 69 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Residential Market: Demand HOUSING UNITS BUILT SINCE 2000 Toledo and Peer Cities ESRI, Development Strategies, 2016 Determining market demand for a downtown involves looking at a number of factors, since MSA DOWNTOWN recent downtown growth is a reversal of several decades of outward movement of people and capital. Doing a conventional market analysis Toledo simply looks at age and income variables within some area around downtown. Such a method might miss incoming residents to the market area, and fails to evaluate consumer preferences. Target market analysis includes consumer Dayton preferences, and is in most ways superior, but relies on national data. Other types of analyses are better for determining demand from people leaving the market that might be kept if the right Grand Rapids product is offered (an opportunity cost). A number of methods have been used in this analysis, and are detailed in the appendix.

Peer Cities Omaha Toledo has kept pace with its peer cities in terms of percentage of its regional population living downtown. The same is true for percentage of new regional housing units built downtown. According Des Moines to Census data, about 0.7 percent of new units built in the Toledo MSA since 2000 were built in

Master Plan the downtown area. Among Toledo’s peer cities, only Des Moines saw a greater proportion of 500 Units units built downtown. However, the generally low numbers – few downtown areas had more than economy improves nationally and regionally, and 200 new units built in the past 15 years – suggest preferences for urban living continue to drive that none of these cities have capitalized on the downtown development, these capture rates full potential for downtown housing yet. As the should increase over the next ten to fifteen years. Downtown Toledo Toledo Downtown

70 Conclusions Residential Market: the market. economically feasible for developers todeliver to this latterpoolofhousingdemandthatismore range. Because oftheirhigherpricepoints, itis townhomes pricedinthe$190,000to$250,000 $1,000 permonth, andcondominiumunits larger upscale rental apartmentswithrents over The remaining 500to750are acombinationof units, renting for $750to$1,000permonth. of these–about750unitsare midscale rental downtown over thenext tenyears. At leasthalf to 1,500housingunitscouldbesupportedin Based ondemandanalysis, anadditional1,250 1,250 -1,500 housing unitsover New downtown 10 years 3 71 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Office Market: Supply

According to CoStar, the Toledo MSA has about among high-rent office tenants. Class A office 30 million square feet of existing office space. As data will further improve with the relocation of is the case in most regions, Class B and C space ProMedica employees to downtown. is the most common, with Class A office only found downtown and in a few select suburban While Class B occupancy lags in downtown, it has office parks and submarkets. Interestingly, in shown some bright spots, experiencing positive Toledo, over 80 percent of Class A space is located absorption in recent quarters. This is not only a downtown, and nearly a third of all office space is reflection of an improving regional economy, but downtown. These uncommonly high proportions of a regional trend toward more start ups in tech, can be viewed with the glass is “half full” or “half IT, and creative industries seeking inexpensive empty” analogy. On one hand, downtown has downtown space. Leveraging this ready supply of relatively little competition for Class A office, inexpensive space in ways that lead to job growth making it the undisputed center of employment will be explored later in this report. for many skilled professions. On the other hand, it is likely symptomatic of a region that had little success in growing office or “white collar” jobs in the previous generation when many other cities were adding employment in new office DOWNTOWN REGION SHARE parks. Either way, a large proportion of office employment and office buildings is in Downtown Class A 14% 16% Toledo, which is an asset that can be leveraged Vacancy moving forward. Class A Space (s.f.) 2.5 Million 3.1 Million 81% While many expressed concern over downtown’s office vacancy rate, at 15 percent, it is consistent Total 16% 9% with many Midwestern downtowns, which struggle Vacancy

Master Plan with the same problem. In fact, it may surprise Total Space 9.2 Million 30.3 Million 30% some people to know that the number is this low, (s.f.)

given the inclusion of the former Owens Corning Source: CoStar 2016 headquarters in the occupancy survey. While downtown’s overall vacancy rate is higher than regional vacancy, its Class A vacancy is lower, indicating some preference to being downtown Downtown Toledo Toledo Downtown

72 occupying low-rent commercial space. to enticeastart-up culture toemerge andbegin of interaction, walkability, andauthenticityofplace begun toleverage thedesire for greater possibility growing businesses. Recently, downtowns have close-in suburbanareas acompetitive for newand cheaper landand(often)lower taxrates hasmade Over thepastseveral decades, thebenefits of Maumee, Perrysburg, and Sylvania. Parkway area nearSecorRoad andofficeparks in clusters intheregion, includingtheExecutive downtown officemarket tootheroffice space The chartandmaptotherightcompare the Executive Parkway Renaissance Place (Sylvania) South Boundary(Perrysburg) Levis Commons(Perrysburg) Briarfield Park (Maumee) Arrowhead Park (Maumee) Executive Parkway Downtown Selected Office Park Areas Avg. LeaseRate $18.00 $15.00 $17.00 N/A N/A - - Class A Occ. Rate 100% 100% 95% 82% 87% - - Avg. LeaseRate $16.00 $16.00 $12.00 $19.00 $15.00 $11.00 N/A Class B Occ. Rate 100% 94% 88% 94% 97% 89% 85% Avg. LeaseRate $16.00 $15.00 $10.00 $9.00 $6.00 N/A N/A Class C Occ. Rate 100% 100% 98% 90% 89% 94% 80% 3 73 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Office Market: Demand PROJECTED 10 YEAR OFFICE DEMAND Downtown Capture Estimates Ohio Department of Job and Family Services, Development Strategies 2015 Demand for office space is necessarily driven by employment trends. Not only do the changes in number of jobs determine office need, but so do the changes in number of jobs in certain industries, as some types of work require more 1.5 760,000 or less office space than others. Employment Square Feet projection numbers from the Ohio Department of Job and Family Services indicate expected growth 10 Year Office Demand of 20,000 jobs in the Toledo MSA over the next 1.0 ten years. These projections imply there will be demand for approximately three million additional Region square feet of office space in the metro area, about half of which will be for occupations in medical- 0.5

Square Feet (in millions) Feet Square Downtown (Enhanced) related fields Downtown (Moderate) Given its current share of regional jobs, downtown could conservatively capture 20 percent of 0 Downtown (Conservative) this demand overall - about 600,000 square Medical Conventional Civic feet. However, given increases in consumer preferences toward urban places to live and work, downtown has an opportunity to position itself With nearly 1.5 million square feet of vacant space downtown, little or no new office development 1.45 M in such a way as to exceed its past performance. Square Feet This will be particularly true if investments are is needed to accommodate this demand. This Vacant downtown made in entrepreneurship and placemaking, and implies that a streamlined approval process, and Office Space institutions collaborate with targeted investments. possibly incentives packages could go a long way A 25 percent capture of regional growth is in reducing vacancy of office space. Additionally, 1.1 M Master Plan quality Class B space should be made available to therefore reasonable, implying office growth of Square Feet 760,000 square feet. accommodate start-ups, creative firms, and tech/ Vacant IT occupations. Quality Class B space can be made Class B and C available to accommodate start-ups, creative Space firms, and tech/IT occupations. 350 K Square Feet Vacant Downtown Toledo Toledo Downtown Class A Space 74 Hotel Market rooms annually. 300,000 visitors andsupportfor over 600hotel would beovernight visitors. This represents over suggests thataboutone-third ofthesenon-locals the Detroit metro area, aconservative estimate come from neighboringcounties, including in County. While aportionofthesevisitors likely local –thatis, they comefrom outsideofLucas annually. Ofthose, approximately 60%are non- attractions combinedattract 1.7million visitors Toledo Zoo and Toledo MuseumofArt. These two Two of Toledo’s largest touristattractions are the Leisure Travelers made downtown. Rapids, DesMoines, Omaha), biggainscan be in themannerofitsaspirational peers (Grand Wayne) andleveraging someofitsbestassets its performance peers (Dayton, Akron, and Fort its convention centertoatleastcompetewith enthusiasm, activity, anddollars. Bypositioning what shouldbeseveral captive markets, andthe has created amissedopportunitytocapture However, thecurrent hotelsituationindowntown and dynamicareas thatthecityhastooffer. stay downtown toexperience themostvibrant coming for businessorleisure travel, want to A numberofvisitors toacity, whetherthey are opportunity. and symphony crowds isanobvious or eateriesthatcater tothemuseum the zoo, andcultural destinations and/ downtown thathave synergies with family attractions could beadded attractions were available. Additional retail, andpublicamenities especially iftheappropriate lodging, overnight visitors tostay downtown, enough thatitwouldbeconvenient for not located directly indowntown, they are close Even though theZoo andMuseumofArtare Overnight visitors to 1 million Lucas Countyeach year 300,000 1.7M 600 Visitors Total Visitors Overnight Rooms Hotel Supportable TOLEDO MUSEUM OFART 440K VISITORS Hotel Rooms in Lucas County 5,077 TOLEDO ZOO1.3M VISITORS Hotel Rooms downtown 535 3 75 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Hotel Market

Convention Center

One visitor market that is being particularly or even triple its number of annual attendees if Current visitor levels indicate that leisure and underserved is the conventions market. The sufficient accommodation options were available. convention travelers to Toledo provide potential SeaGate Convention Centre, located in the heart The current attendance of 125,000 people provides support 800 hotel rooms in downtown. If of downtown, has struggled to attract large demand for about 200 hotel rooms annually, which attendance at the SeaGate Centre could be conventions in recent years, due to the lack implies that reaching the attendance levels of increased to peer city levels, this support would of a convention hotel, ballroom, and sufficient Fort Wayne or Akron’s convention centers would increase to between 1,000 and 1,200 rooms. downtown hotel rooms overall. Over the past increase hotel demand by about 400 to 600 rooms six years, the SeaGate Centre has averaged 150 events and 130,000 attendees per year, with the average number of attendees per event ranging PEER CITY CONVENTION CENTERS - SQUARE FOOTAGE & ANNUAL ATTENDANCE from 800-1,000 people. By contrast, the John S. Knight Center in Akron has averaged 184 events Total Exhibition Banquet Hall/ and nearly 400,000 attendees per year since Annual Square Hall Ballroom 2010, in a space that’s just 30,000 square feet Attendance larger than the SeaGate Centre. A comparison of Footage Space Space the SeaGate Centre to convention centers in peer cities for the most recent year available is shown SeaGate Centre 92,072 75,000 - 125,000 on the right. John S. Knight Center 123,000 29,000 12,000 390,000 According to interviews with SeaGate Centre Akron, OH staff, many convention and meeting groups have Dayton Convention Center 150,000 68,000 - 170,000 expressed a preference for holding their events in Dayton, OH Toledo, given the variety of activities in and around Grand Wayne Convention Center 225,000 48,500 16,000 220,000 downtown. However, the lack of available hotel Fort Wayne, IN

Master Plan rooms is a major obstacle. Given the attendance seen at peer cities’ convention centers, it is CenturyLink Center 258,226 194,000 42,000 340,000 Omaha, NE reasonable to assume that SeaGate could double Iowa Events Center 221,105 150,000 29,000 510,000 Des Moines, IA

DeVos Place Convention Center 234,000 162,000 40,000 590,000 Grand Rapids, MI Downtown Toledo Toledo Downtown

76 3 77 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Hotel Market HOTEL DEMAND Hotel Supply

The Toledo Convention and Visitors Bureau lists 45 hotel properties in Lucas County, with a total of 5,077 rooms. Of these, there are only two located Toledo DOWNTOWN ROOMS 11% in the downtown area, with 535 rooms – just over TOTAL HOTEL ROOMS 5,077 ten percent of the county total. This includes the currently shuttered Grand Plaza Hotel, which is Dayton 7% slated to re-open under the Renaissance Hotel 6,630 brand. While these numbers are similar to the downtown hotel market in Akron, Dayton, and Fort Wayne, they are far below the hotel supply Grand Rapids 20% available in the downtowns of Omaha, Des Moines, 7,250 and Grand Rapids.

The renovation of the Grand Plaza hotel will have Omaha 20% considerable benefit for the business market, as 13,000 well as conventions and leisure. However, even after the addition of 241 rooms at the Grand Plaza, there is potential support for an additional 450 to Des Moines 18% 650 rooms from the visitor market. Bringing and 11,000 keeping visitors downtown will be a critical aspect of a larger economic development strategy. Akron 8% 5,580 Master Plan Downtown Toledo Toledo Downtown

78 3 79 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Retail Market: Supply

ST. CLAIR VILLAGE 1111-1119 ADAMS STREET There is limited data available on the amount of retail square footage in the greater downtown area. The city does not collect this information, and classifications by external surveyors such as CoStar include establishments that are not being used for retail purposes. Conservatively, it appears that there is about 1.3 million square feet of retail space that is either being used for retail or would be appropriate for retail use, with a vacancy rate of about 16 percent.

While no new retail space has been added to greater downtown over the past 10 years, a number of historic buildings have been renovated, mainly clustered around Fifth Third Field and around Adams Street. A survey of some of these Year Built: 1880s Year Built: Unknown (Renovated 1967) renovated properties indicates an average rent of $10 to $12 per square foot. Tenants include a Square Feet: 22,000 Square Feet: 16,000 variety of local small businesses. Occupancy: 91% Occupancy: 75% Asking Rent/SF: $12 (NNN) Asking Rent/SF: $11 (NNN) Tenants: Pita Pit, Ahava Spa Tenants: Studio Eleven Eleven, Elite Events Master Plan Downtown Toledo Toledo Downtown

80 square feet. which commandspremium rents of$21per downtown. The exception isLevisCommons, feet, whichisonparwithrenovated retail space occupied, withrents around $10to$13persquare other areas. Overall, thesecorridors are well- and average occupanciesand rents ofthese following mapandchartshow thelocation, size, Commons shoppingcenterinPerrysburg. The and AirportHighway corridors, andtheLevis Franklin Park andSylvania, theReynolds Road the SecorRoad andMonroe Street corridors in Other retail clusters inthemetro area include Levis Commons Levis Commons(Perrysburg) Monroe Downtown Perrysburg Airport Highway Secor Road Selected Retail ClusterAreas Total Square Feet 2,667,000 1,511,000 2,647,000 799,000 271,000 Average LeaseRate $21.00 $10.00 $12.00 $13.00 N/A Occupancy Rate 100% 93% 97% 94% 97% 3 81 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Retail Market: Demand

PRIMARY MARKET AREA 5 Min. Gap Analysis Serving daily needs The market for a retail establishment will (i.e. grocery store, pharmacy) generally depend on how far consumers are $120M of Purchasing Power willing to travel to access it. Some types of establishments, such as grocery stores and COMMUNITY MARKET AREA 10 Min. pharmacies, will only attract shoppers from short distances away; while others types, such as Serving common needs entertainment venues and high-end restaurants, (i.e. big box retailer, hardware store, will pull people from farther away. This analysis local chain restaurant) looks at resident demand for retail from three market areas, based on five-, ten-, and fifteen- $1.5B of Purchasing Power minute drive-time radii from downtown. COMMUNITY MARKET AREA 15 Min. Demand gap analysis compares the types of goods that households in a market area are buying with Serving occasional needs/interests the actual stores located in a market area, which (i.e. movie theater/entertainment venue, helps determine whether supply is effectively high-end chain restaurant) meeting demand. The resident population within a five-minute drive of the center of downtown has a $3.9B of Purchasing Power purchasing power of about $120 million, including about $87 million worth of demand for food and It is important to distinguish retail market analysis from neighborhoods surrounding downtown can retail goods and services, which supports about conclusions from a market strategy. In the be captured by its retail establishments. For 263,000 square feet of retail space. Assuming that highly-competitive business that is retail services, example, the Old West End neighborhood – just about 50 percent of these retail expenditures are supply can often appear to meet or exceed outside the Downtown Core – has very few dining being spent downtown, current resident demand demand. Yet opportunities still exist for new retail and retail amenities. ESRI data shows that there

Master Plan supports approximately 130,000 square feet of development because of competitive market is a demand gap of over $42 million, including $3.7 downtown retail space. Based on demand gap opportunities. A successful clothing apparel million worth of demand for dining options. This analysis, most of this demand can be met within retailer, for example, might locate in an already- means 15,000 square feet of upscale dining in this five-minute drive-time radius, with only crowded market if they offer a better product downtown could be supported by residents of Old enough excess demand to support about 6,000 for a better price, better services, or otherwise West End alone, while providing a very attractive additional square feet of retail. have a distinct, competitive advantage. Trader and convenient amenity for this high-income Joe’s, for example, can often thrive in a place group. that is crowded with supermarkets, because it Downtown Toledo Toledo Downtown offers something different. Additionally, residents 82 additional sixtoseven restaurants. years—4,000 newworkers—they couldsupportan 20 percent ofjobgrowth over thenext ten restaurants. Further, ifdowntown captured – nearly 20,000 people-can support over 30 Downtown’s large day timepopulationofworkers Workers square feet ofretail space. new householdsdowntown wouldsupport67,500 services, andentertainment activities. Thus, 1,500 percent oftheirincomeonfood, retail goods and Households atthisincomelevel will spend25 will have medianannualincomeof$54,000. new residents degrees withbachelor’s orhigher Based ondatafrom theBureau ofLaborStatistics, New Residents provide additionalsupportfor retail. to downtown through development initiatives will to attract more residents, employees, andvisitors be supportedindowntown. Further, thepotential and whatspecifictypesofadditional retail, can can furtherinform how muchadditionalretail, understanding theirnumbers andspendinghabits groups represent adistinctmarket for retail, and who cometothearea for workandplay. These live, downtown retail alsoserves individuals into retail demandbasedonwhere people While demandgapanalysis provides insight Targeted Demand increasing this support. Centre toattract increased convention traffic, thus rooms indowntown would allow theSeaGate of retail space. However, theadditionofmore hotel and drinkestablishments 15,000square feet would lendsupportto53,000 square feet offood SeaGate Centre, convention and meetingattendees Based oncurrent attendancenumbers atthe Convention attendees activity andshoppingtodraw themthere. lend theirsupporttodowntown retail ifthere is 230,000 square feet ofretail space, and they will per year, combined. These visitors can support Lakes Museumwelcome1.75million visitors The Toledo Zoo, ImaginationStation, andtheGreat Tourists retail space. square feet ofgeneral merchandise andapparel 22,000 square feet ofdiningspaceand7,000 visitors annually –patrons whocouldsupport and the Valentine Theater attract over 500,000 The Toledo MuseumofArt, the Toledo Symphony, Cultural Events in theform ofrestaurants and bars. 48,000 square feet ofretail downtown, mostlikely on typical expenditures, thesefanscouldsupport bring another150,000peopletothearea. Based concerts andevents attheHuntingtonCenter 7,000 peopleevery three days. Additionally, consumer traffic in downtown— approximately The MudHensand Walleyes generate substantial Sports Fans square feet. demand upeven further, by asmuch 225,000 office space, andhotel rooms—would drive this downtown—driven by development more housing, in thenumberofpeopleeating andshopping aware of thispotential. Furthermore, anincrease suggests thatthedevelopment communityis market, andindeed, thedevelopment ofHensville retail spacecouldbesupportedby theexisting Therefore, itisreasonable toassumethatmore that spaceisbeingutilizedfor thesetypesofretail. ground siteworkreveals thatonly afraction of downtown, ananalysis ofsurvey dataandon-the- 1.1 million square feet ofoccupiedretail space 620,000 square feet ofspace. While there isabout residents, workers, andvisitors supportsabout restaurants andretail goodsand services—from The current demandfor retail—specifically for Conclusions 3 83 Section 3: Market Analysis + Strategy MARKET ANALYSIS

Retail Market: Demand EXISTING POTENTIAL NEW DOWNTOWN DOWNTOWN RETAIL RETAIL SPORTS FACILITIES SUPPORT Current Demand: SUPPORT 48,000 sq.ft. Conventions & WORKERS RESIDENTS DESTINATIONS

CONVENTIONS DESTINATIONS CULTURAL Current Demand: Current Demand: Current Demand: 68,000 sq.ft. 230,000 sq.ft. 28,000 sq.ft. PROJECTED ATTENDANCE 400 Master Plan More Hotel Rooms 4,000 1,500 More Households More Workers ($13,500 annually) 250,000 More Convention Attendees WORKERS RESIDENTS PROJECTED DEMAND

Downtown Toledo Toledo Downtown Current Demand: Current Demand: 98,000 sq.ft. 145,000 sq.ft. 138,000 SQ.FT. 20,000 SQ.FT. 67,500 SQ.FT. 84 Development Potential HOTEL RESIDENTIAL Full-service brand Type: 450 to600rooms Demand: townhomes condominiums and some for-sale Mostly rental; Type: over tenyears 1,200 to1,500units Demand: OFFICE Retail services dining, personal Upscale andcasual Type: sq. ft. 250,000 -350,000 Demand: tech sectors Medical, creative and Type: sq. ft. over tenyears 700,000 to800,000 Demand: 3 85 Section 3: Market Analysis + Strategy ECONOMIC STRATEGY

Economic Strategy: Downtown as Economic Catalyst

The economy today is far more reliant on consumption, on the attraction of talent, on the free exchange of knowledge and ideas, and on tourism. The commonality between all of these elements is the need for place—or places, to be more precise.

Toledo is, perhaps above all else, a city that prides itself on hard work. During the era of the great Detroit auto boom in the first half of the 20th century, Toledo grew right along with it, making the glass that went into Detroit’s cars. Its population grew as it became a magnet for people willing to work hard in the factories of the time, GROWTH IN JOBS WITH GROWTH IN PERSONAL % YOUNG PROF’S IN GROWTH IN LEISURE & and out of this came a culture that valued hard BACHELOR’S DEGREE CONSUMPTION DOWNTOWNS VERSUS HOSPITALITY JOBS work as a means of getting ahead and creating 2004-2014 2006-2015 OVERALL REGIONS 2004-2014 better opportunities for one’s children. In 1969— the first year for which detailed employment data was tracked—roughly one in three Toledoans was >>Places to spend money >>Places to retain talent employed in manufacturing. Today, that number Personal consumption has grown 32 percent Jobs requiring a bachelor’s degree have grown stands at 12 percent—meaning manufacturing (2006 to 2015) 18 percent (2004 to 2014) is still an important component of the economy, >>Places for new economy jobs >>Places to visit but is no longer capable of sustaining the entire Tech jobs have grown 32 percent (2004 to 2014) Leisure and hospitality jobs have grown 18 community. percent (2004 to 2014) >>Places to market things

Master Plan If hard work alone ensured a city’s survival, Toledo Internet sales are up 3,700 (1999-2010) >>Places for start-up would likely have a thriving economy today. Yet Regions with more start-ups have more income >>Places to craft great things it lags, as a region, in most economic measures. growth Hard work, as it turns out, is just one component of Craft beer production is up 160 percent >>Places to exchange ideas and innovate successful cities. The ability to adapt is an equally >>Places to attract talent The number of business incubators in the U.S. essential ingredient. As the economy continues to Young professionals are twice as likely to live has grown by 10,000 percent (1980 to 2012) shift, Toledo needs to adapt, and all trends point to downtown. downtown as the necessary center of a strategy [International Business Innovation Association] Downtown Toledo Toledo Downtown for regional economic revival. 86 The only place in which all these elements can Business Development come together is downtown, but it will need to revitalize in order to address many of its structural Downtown needs to continue to be enhanced as issues–including a shortage of business startups the place to do business in Toledo. ProMedica and entrepreneurial activity and low retention of has made a big commitment, joining Owens highly educated residents–and to create a more Corning, 5/3 Bank, and HCR Manor Care as major diversified economy with better paying jobs for downtown employers. Greater start-up activity people with and without college degrees. With is needed in order to grow jobs and companies, growing demand nationally for urban places to and attract capital. It should be fostered within 32% live, work, shop, and recreate, the best opportunity an innovation district that encourages interaction, GROWTH IN TECH JOBS, 2004-2014 in two generations exists today to revitalize bringing creative people into contact with downtown and, in doing so, reinvent the Toledo investors, marketers, and entrepreneurs. economy. This will require significant effort in Visitation three areas: A vibrant downtown is both created by and Place and Livability attractive to out-of-town visitors. Toledo already In order to attract and retain a young, talented has some of the region’s great tourist attractions— workforce, encourage redevelopment, and the Toledo Zoo, the Toledo Museum of Art, and the welcome new visitors and residents, continued Toledo Mud Hens and Walleyes. While not all of investment in creating downtown places is the attractions are located downtown, an active downtown environment with a mix of activities, 3,700% needed. In particular, housing is needed to give downtown an authentic neighborhood feel, and accommodations, and eating places will invite INCREASE IN WEB SALES, 1999-2010 retail is needed to create energy and drive activity tourists to make downtown the center of their visit at the street level. Livability elements are also to Toledo, and will have significant impacts on its needed, including parks and greenspace, walkable revitalization. tree-lined streets, bike facilities, public art, transit, traffic calming, and outdoor dining. 160% INCREASE IN CRAFT BEER PRODUCTION 87 MARKET STRATEGY

Market Strategy: A District & Branding Framework

Vibrant downtowns are diverse in both people A district and branding framework for Toledo can and offerings. They are employment centers, therefore comprise the critical ingredients for a residential neighborhoods, visitor destinations, broader market strategy that links the physical and shopping districts—and are the only places assets of downtown today with real market where such an array of experiences and uses can opportunities that can be leveraged enhance typically occur together. It is what makes them downtown in the future. A sound market strategy special. The character of downtowns can and provides the essential link between what a needs to change over space and time in order place is, and what it can be, because it shapes a to provide such richness and, as a result, we coherent investment strategy that targets the right typically think of downtowns as being comprised people with the right products in the right places. of districts. This leads to a set of branded districts that are unique and distinctive. By leveraging investments in place and the public realm, sound urban design and architecture, anchors to drive traffic, and coordination of complementary uses, districts can be created that are greater than the sum of their parts. Master Plan Downtown Toledo Toledo Downtown

88 3

The Core: Aligning And Focusing Opportunity

Market analysis conducted for this plan, when combined with a high-level physical capacity analysis, reveals that Downtown’s Core (along with the Warehouse District) has sufficient capacity to absorb the next 10 to 12 years of market demand. Further, a focusing of real estate development demand in the Core is largely necessary in order DINING to create a critical mass of activity in a dense environment within a reasonable walking distance. It is where many of the most distinctive physical assets are, and the place where the greatest HOTEL RETAIL impact in transforming the brand, marketability, and functionality of downtown lies.

A market strategy involves aligning opportunities in ways that are synergistic, while separating necessary components of a downtown that may have incompatibilities. Housing that targets VISITOR HOUSING singles may do well adjacent to an entertainment district; housing targeting couples and mid-career professionals will do better above or beside quieter dining experiences. Visitor experiences are going to be closely tied to hotels and entertainment; local residents may prefer to be separated from these experiences. ENTERTAINMENT EMPLOYMENT The following district and branding framework provides the who, what and where of a strategy to encourage the development of housing, retail,

office, and hospitality. That is, who to target, what Strong Link + Strategy Analysis Market the product needs to look like, and where it needs to be located. Link Section 3:

89 MARKET strategy

Market Strategy: Housing

Housing: Who Housing: What

Market analysis indicates that Downtown can and rehabilitated apartments in activity centers There are five housing typologies that will serve support roughly 1,200 to 1,500 housing units over and places that offer nightlife. Couples and mid- the diverse needs of potential downtown residents: the next 10 years. The target markets for housing career professionals will seek a mix of rental and can be broadly divided into two categories: young for-sale housing, and prefer locations that put Loft Rental Apartments: professional singles and roommates, and couples them closer to lifestyle and cultural amenities. Primarily targeted at young singles and couples, and mid-career professionals. The former group these units could be developed within existing is almost exclusively renter, and is seeking new buildings, as has been done throughout the Warehouse District over the past 10-15 years. The appeal of loft-style apartments is in their historic feel, open floorplan with high ceilings, and high- end finishes. As such, they are marketable as smaller-scale one- and two-bedroom units, with average sizes of 600 to 1,200 square feet and rents of $800 to $1,400 per month. Their location in the Warehouse District and Downtown Core would capitalize on recent development activity and the growing popularity of these areas among YOUNG PROFESSIONALS COUPLES & MID CAREER young professionals.

SINGLES & ROOMMATES PROFESSIONALS Loft For-Sale Condominiums: Similar to the loft rental apartments, for-sale Tenure Downtown Aspirations Tenure Peak Activity Hours condos developed in existing buildings would Almost Exclusively Center of Activity; Renter; Some Owner Early Evening; appeal to an urban-minded demographic looking Renter Nightlife Weekends for proximity to walkable amenities downtown. Target Demo(s) The target market for these units would be slightly Master Plan Target Demo(s) Peak Activity Hours Professional Couples Product Types older couples who are more established in their Young Singles; Some Evening; Late Evening and Singles Apartments careers and able to invest in a home, with units Mid-Career Some Condo and averaging 1,500 square feet in size at a price point Product Types Downtown Aspirations Townhome of $200,000. Apartments Urban Lifestyle; Access New and Rehabbed to Culture Downtown Toledo Toledo Downtown

90 feet—and sell for around $300,000. larger thanfor-sale condos—about2,000square main activitycenters. Unitswouldbeslightly separation from thenoiseandtraffic of the area’s without beingdirectly init, givingresidents some this product, asitisclosetotheDowntown Core The Warehouse Districtisanideallocation for walkable environment nearthecenterofactivity. well asretirees lookingtodownsize andlive ina would bemarketable tomid-career couples, as As withthecondoproduct, for-sale townhomes In-fill For-Sale Townhomes: price. looking for adowntown lifestyle atanaffordable graduates, whoare starting offintheir careers and to singlesandroommates, particularly recent $1,125 permonth. These unitswouldbeattractive 900 square feet—and wouldrent for $775to would besmaller thanloft-style ones—575to and Downtown Core. Newconstructionapartments housing constructioninthe Warehouse District for housing, there isampleopportunityfor new In additiontoredeveloping historicstructures Infill Rental Apartments: Avg. UnitSize(Sq. Ft.) Average Rent/Month LOFT APARTMENTS -condos LOFT APARTMENTS -RENTAL Average SalePrice Price Per Sq. Ft. Unit SizeRange Rent Per Sq. Ft. $800 -$1,400 $1.15 -$1.35 600 –1,200 $200,000 (Sq. Ft.) 1,500 $130 Young andMid-Career Professional Couples Professional Singles 10 YearDemand 10 YearDemand Downtown Core, Downtown Core, Warehouse Dist. Warehouse Dist. Target Market Target Market 150-250 Units +/- 500Units and Couples Mid-Career Location Location Avg. Rent Per Month Unit SizeRange Rent Per Sq. Ft. Sale Per Sq. Ft. Avg. SalePrice Avg. UnitSize $775 -$1,125 $1.25 -$1.35 575 –900 $300,000 (Sq. Ft.) (Sq. Ft.) 2,000 $150 INFILL APARTMENTS INFILL TOWNHOMES

Professionals Couples Warehouse District Warehouse District 10 YearDemand 10 YearDemand Target Market Target Market 100-150 Units +/- 500Units Roommates Singles and Mid-Career Location Location 3 91 Section 3: Market Analysis + Strategy DINING HOTEL MARKET strategy RETAIL VISITOR HOUSING

Market Strategy: Housing Strong Link Link ENTERTAINMENT EMPLOYMENT

Artist Lofts: Housing: Where A potentially equally positive prospect—albeit The addition of locally-owned businesses and the one that is more mid-term in nature because it recent influx of creatives in Uptown has brought Hensville and the Warehouse District, with its will require more opportunity alignment—is the vibrancy to a once depressed area of the city. The nightlife and entertainment offerings, is already creation of a mixed-use/residential district with goal of new housing in this district should be to on its way to becoming an ideal location for upmarket housing that targets couples and mid- attract a pioneering demographic that wants to residences that target young professionals career professionals. Huron Street, in the vicinity play an active role in bringing this area back to and roommates. Here, short and mid-term of the “Four Corners”, has an excellent stock of life and connecting it to the rest of downtown’s opportunities are likely to continue to be historic buildings that, coupled with an infusion of activity. The product best suited for this purpose capitalized upon, making use of historic buildings local restaurants and outdoor dining, could make would be artist lofts—newly-constructed, small, for rehabilitation, and vacant lots for new for one of the most elegant and attractive urban low-cost apartments with basic amenities that construction. residential locations in all of Toledo. would appeal to singles and roommates in nontraditional professions with limited means. The units would range in size from 500 to 900 square feet, and rent for $400 to $575 per month. 75 UPTOWN

SINGLES & ROOMMATES Artist lofts FOUR Avg. Rent Per Month Target Market CORNERS Master Plan $400 - $575 Singles

Rent Per Sq. Ft. 10 Year Demand HENSVILLE $0.60 - $0.75 100-150 Units COUPLES & MATURE

Unit Size Range Location PROFESSIONALS (Sq. Ft.) Uptown Downtown Toledo Toledo Downtown 550 – 900 51 NORTH 92 active, productive daytime community. a diversity ofcompaniestothearea andcreate an variety ofneedsandaffordability, inorder todraw downtown shouldbefocused onaccommodatinga design. Newand renovated officedevelopment in ranging from financeandlaw to tech, IT, and will comefrom abroad spectrumofindustries, feet ofcreative ClassBspace. This demand of conventional ClassBspace, and25,000square of conventional ClassAspace, 70,000square feet the next tenyears, including180,000square feet 275,000 square feet ofofficespace downtown over for theregion show there will bedemandfor downtown’s revitalization. Employment projections key industrieswill beacritical componentin way thatresponds toneweconomicdrivers and Understanding how topositionthisspaceina proportion oftheregion’s officespace. Downtown already containsasignificant Office: Who Market Strategy: Office * Doesnotinclude500,000sq.ft. ofMedical Officespace CREATIVE &STARTUP Industries &Occupations Computer Programming Common Backgrounds Peak Activity Hours Downtown Needs Entrepreneurship Access ToCapital Tech; IT; Design Graphic Design Entrepreneurs Cheap Space Incubators Marketing 9-9; M-F Square feet of conventional and creative 275K space* Industries &Occupations Common Backgrounds Peak Activity Hours Business &Related Downtown Needs Entertaining 9-5; M-F Visibility Finance Dining Image MBA Law CONVENTIONAL OFFICE 3 93 Section 3: Market Analysis + Strategy MARKET strategy

Market Strategy: Office

Office: What Conventional Class B: services, at lease rates similar to conventional Smaller companies engaged in professional Class B. Additionally, startups and entrepreneurs Office space needs vary among industries, and can services, such as accounting, sales, or consulting, seek out co-working spaces where they can rent be broadly split into three types: also look for conventional types of office layouts. a desk or a single cubicle/office for a low monthly However, their affordability level is much fee, in an environment where they can interface Conventional Class A: lower—$11 to $14 per square foot—and they will with other like-minded professionals as they grow This space accommodates the needs of corporate therefore locate in older buildings with more basic their business. These are typically some of the firms in industries such as law and finance. These finishes and fewer on-site services. most dynamic and fastest-growing companies, firms can afford the highest rent levels—$17 and although they employ fewer people than large to $21 per square foot—but also demand the Creative Class B: corporate firms, their employees tend to be more highest levels of finish and services. Downtown This type of office space is in limited supply urban-minded and interested in engaging with the already has 80 percent of the region’s Class A-type downtown, but represents the greatest opportunity surrounding neighborhood. Attracting these firms office space, but much of the space will require in the area’s revitalization. Firms in innovative and to downtown with the right type of space at the upgrades in order to compete with new office creative industries such as design, architecture, right price will therefore have an exponentially- development in the suburbs. and technology tend to look for this type of space, positive impact on the dynamism of downtown. which is characterized by open floor plans, shared working spaces, and very basic finishes and

Conventional Class A Conventional Class B Creative Class B

Master Plan Lease Rate Per Sq. Ft. Target Market Lease Rate Per Sq. Ft. Target Market Lease Rate Per Sq. Ft. Target Market $17-$21 Law, Finance, $11-$14 Smaller Companies $11-14 Startups, Web-based, Corporate Design, Characteristics Characteristics 10-Year Demand Characteristics Architecture, Co- High Quality finishes; 10-Year Demand Older office buildings; 70,000 Sq. Ft. Open floor plans; working High Level of Service; 180,000 Sq. Ft. Fewer on-site Shared spaces; Quality lobby space services; Limited Historic elements; 10 Year Demand lobby space Limited building 25,000 Sq. Ft. Downtown Toledo Toledo Downtown services 94 District. and industrialbuildingsfound inthe Warehouse well-suited tothelayouts oftheformer warehouse development ofspacewithopenfloor plans is affordable Warehouse District. Additionally, the amenities, butwill gravitate totheedgier, still- Creative firmswill also want accesstothese increased hospitalityofferings. restaurant offeringsonSummitStreet, and walking distance. They will alsovalue enhanced many othercompanieswithsimilarneedswithin B spacewill findtheCore appealing, duetothe Firms seekingconventional ClassAand Office: Where START-UPS TECH & RESTAURANTS IMPROVED

Monroe Street Strong Link Erie Street Michigan Street Link CLASS AOFFICE WATERFRONT REVITALIZED ENTERTAINMENT Maumee River VISITOR HOTEL Summit Street Jackson Street DINING RETAIL EMPLOYMENT Cherry Street NORTH HOUSING 95 Section 3: Market Analysis + Strategy MARKET strategy

Market Strategy: Hotel

Hotel: Who An additional 125,000 convention and meeting attendees come to events at the SeaGate Toledo currently draws 300,000 overnight visitors Centre annually. These attendees are a captive per year with its tourist attractions. While not market for downtown hotels. However, the all of these attractions are located downtown, short supply of downtown hotel rooms limits these visitors need places to sleep, eat, drink, and the number of conventions that can be held at shop—needs which could all be met downtown the Centre, as well as the number of attendees with the right development. Downtown is a central that can stay downtown. Given the performance location and should be the obvious “home base” of its competitor centers, the SeaGate Centre for tourists to Toledo. Yet, at current levels, tourists 300,000 could realistically double or triple its annual Overnight to Toledo require 600 hotel rooms annually—more attendance—but integral to achieving that goal than the current supply available in downtown. would be the addition of several hundred hotel visitors rooms in downtown.

600 Supportable hotel rooms VISITORS CONVENTION AND TRADE

Master Plan Type Needs Type Peak Activity Hours Families; Cultural Family dining; family Varied Weekday lunch and Tourists amenities; midscale evenings hotels; other family Needs 400-600 attractions;cultural Nightlife; familiar Additional rooms dining dining; unique dining; supported by hotels; ballroom increased convention Peak Activity Hours business Downtown Toledo Toledo Downtown Weekends 96 visitors. opportunity ofadiverse array ofdowntown over aperiodoftenyears, inorder tomeetthe diversification ofhotelofferings will beneeded, hotel, suchastheRenaissance orHilton. Such services andcomfort provided atafour-star in town for ameetingorconvention needthe hotels, suchasAloft. Businessprofessionals yet-modern experience are attracted toboutique Hampton Inn. Coupleslookingfor amore quaint- budget seekoutamidscale hotelchain, suchasa different typesofaccommodations. Families ona Different typesofvisitors to Toledo look for Hotel: What 3 MIDSCALE 1/2 BOUTIQUE -4STAR Imagination Station. Familiar restaurants along including apotentialfuture splashpark, aswell as plethora ofadditionalofferingsonthe waterfront, target familiesintown for thezoowill finda Seagate center, andHensville. Here, hotelsthat that includestheRiverfront, SummitStreet, the The visitorexperience all converges inthearea Hotel: Where NIGHTLIFE HENSVILLE & RESTAURANTS FAMILIAR HOSPITALITY VISITORS &

Monroe Street Strong Link Erie Street Michigan Street Link & BALLROOM IMPROVED CONVENTION downtown thatthey may bevisiting. restaurants andproximity tothe many companies hotels. Businessvisitors will value nearby and leisure offeringsinHensville andnearby the familiarrestaurants, aswell asentertainment experience. Conventioneers will alsoappreciate Summit andFort Industrywouldcompletethe Maumee River ATTRACTION FAMILY ENTERTAINMENT VISITOR HOTEL

Jackson Street

DINING Summit Street Summit RETAIL EMPLOYMENT Cherry Street NORTH HOUSING 97 Section 3: Market Analysis + Strategy MARKET strategy

Market Strategy: Retail

Retail: Who Retail: What Fun and Nightlife This segment is already well on its way to being Market analysis indicates that support for Retail segments to target can largely be divided successfully targeted in Hensville, with a mix of downtown retail can come from a variety of into three categories: Family and Familiar, Upscale restaurants offering burgers, wings, and pubs. sources. This include downtown residents and and Distinctive, and Fun and Nightlife. Other elements could include a piano bar, blues workers, but also visitors of cultural institutions, bar, and concert venue. sporting events, and conventions and destinations. Family and Familiar It is a challenge to meet the needs of all these This segment consists largely of people who are different groups, but the opportunity of doing so perhaps becoming reacquainted with downtowns is more and varied retail—and greater revenue to and urban lifestyles, but have significant buying businesses, the city, and the region. power. They include people who are in town visiting the zoo or Imagination Station, attending a ballgame, and some portion of downtown employees and convention visitors. A mix of fast- casual chains, such as Chipotle, Potbelly, Panera Bread, and Smashburger could be incorporated WHO into a mix of high-volume local chains to target SPORTS these groups. FACILITIES Upscale and Distinctive This segment is comprised of people who are looking for a more crafted, authentic, and local experience. Local chefs, brewers, bakers, and other artisans would be highlighted and valued for their creativity. This would certainly include CONVENTION & new downtown residents, patrons of the arts and museums, Toledo residents seeking an upscale Master Plan DESTINATIONS CULTURAL evening dining experience, some downtown Family and familiar workers, and a limited amount of convention Tenant Mix Examples traffic. Panera Irish Bar & Grill Smashburger American Casual Noodles & Co. Pizzeria Uno Graeter’s Red Mango

Downtown Toledo Toledo Downtown Chipotle WORKERS RESIDENTS 98 Tenant MixExamples Tenant MixExamples Fusion; EthicFoods Upmarket Dining Outdoor Dining Microbrewery Local Chefs Bar &Grill Irish Pub Wine Bar Upscale &Distinctive Fun andNightlife Micro Creamery Cocktail Lounge Concert Venue Micro Roaster Piano Bar Blues Bar Bakery Bistro

buildings atascale thatprovides anauthentic, and continuestohave itsbestcollection ofelegant Corners” whichis Toledo’s historicretail avenue be targeted onHuron Street, nearthe“Four The Upscale andDistinctive market wouldideally along SummitStreet. share infamiliardiningexperiences innewretail an afternoontakinginarevitalized waterfront, and from intown andout-of-town couldeasily spend but farenoughnottobeconsumedby it, families draw from theballpark andconvention center, Family andFamiliar segment. Closeenoughto Summit Street offers theidealvisibility for the Retail: Where Upscale &Distinctive Fun andNightlife HENSVILLE Family andfamiliar

Monroe Street Strong Link & BALLROOM IMPROVED CONVENTION Erie Street Michigan Street Link CORNERS FOUR two. more direct connectionscan bemadebetweenthe significant synergies withHensville, particularly if Nightlife. Greater convention traffic would have being positionedasanexcellent placefor Fun and Hensville anditsenvirons isalready successfully larger cityenvironment. at onceauthentically local andtransporting toa be treated toanurbanexperience thatwouldbe to accommodateoutdoordining, Toledoans would easy andclearaccesstoretail establishmentsand street environment couldbeimproved tofacilitate urban, bigcityfeel. Iffacades, entrances, andthe ATTRACTION FAMILY ENTERTAINMENT Maumee River VISITOR Upscale &Distinctive HOTEL

Jackson Street

DINING Summit Street Summit RETAIL EMPLOYMENT Cherry Street NORTH HOUSING 99 Section 3: Market Analysis + Strategy

Section 4 planning Vision

101 PLANNING VISION

Begin with the Maumee River

The Planning Vision combines public input, attractive destination for a variety of users. The This initiative must start in downtown by existing conditions and market analysis to create goal is to connect an active industry-based organizing the riverfront, which today is a series an image of the future of Downtown Toledo. One waterfront that connects existing industrial of discrete and disconnected developments. clear result from the public process was the concerns with Lake Erie, while also allowing Envisioned is a waterfront esplanade that is part importance of the Maumee River. The river is for daily access and activity by the recreational of an approximately 2.5-mile continuous water unquestionably the unique defining feature of boating community and new potential users edge public park that connects Middlegrounds the region and has the potential to be the focus along a revived downtown waterfront. This means MetroPark to the I-280 Bridge. In downtown it of an effort to dramatically transform Downtown planning appropriate integration with industry, will be more hard edged, accommodating uses Toledo, surrounding urban districts and adjacent commerce, residential and recreational water and appropriate to the density and variety of an urban neighborhoods. water edge uses and users. center. New development should work with the esplanade configuration to maximize the value of The heart of downtown is located at the bowed The public responses during the course of the development and the qualities of the public bend in the Maumee River. It is here that all major the project showed an instinctual sense of amenity. The river should also be better connected avenues in the city converge, providing direct the necessary steps needed for the desired to the downtown street grid. Summit Street access to the river and the economic vitality that transformation to occur: should better address the river and the east-west it historically provided. Once thriving with industry streets that meet Summit Street should connect >>Ensure multiple and various ways to get to the and port activities, the life of the city culminated in to the riverfront and provide access. This may water. the busy and varied activities of a lively waterfront. not necessarily mean vehicles, but would include The river was clearly a big part of the life of the >>Allow for a continuous waterfront experience. views of the river from the center of downtown city. and access to the river that is inviting and clear to >>Make the waterfront an attractive destination visitors, making the transformed riverfront very Today, some feel the Maumee River divides with experiences both natural and organized much part of downtown. the community instead of acting as a unifying that will enhance the appeal of Downtown element. While this is beginning to change, more Toledo. This vision for Downtown Toledo, like the streets needs to be done to integrate the riverfront Several riverfront amenities are already in that connect to it, radiates outward from the into downtown, joining the east and west place. What is missing is any sense of continuity riverfront. The renewed attention on the riverfront

Master Plan sides of the river together. This requires a big and connectedness. A bold initiative that adds and development will provide the benchmark vision to shape current and future decisions. A to the value of projects like Middlegrounds for the revitalization of both sides of the river meaningful transformation of both the riverfront MetroPark will vastly expand choices from a and the adjacent neighborhoods and districts and downtown will require several, varied and single destination fronting the water to a varied that surround the Downtown Core. Other cities in continuous investments. At the same time, long- continuous experience attractive to a variety of the Midwest and elsewhere in the United States term goals must constantly guide and measure age groups and interests. These include cultural, are taking this approach to transforming former what to do and how to proceed. recreational, educational and entertainment industrial waterfronts, leading to redevelopment,

Downtown Toledo Toledo Downtown reinvestment and ultimately the rebirth of their A first step is to address the water itself and experiences to the purely special experience of being in contact with the water. downtowns. 102 to build multiple opportunities to make it an Planning vision

Cherry Street

VISTULA UPTOWN DISTRICT 2.5 MILES

Maumee River DOWNTOWN CORE 2 MILES

75 Summit Street

WAREHOUSE Main Street DISTRICT

EAST SIDE

Anthony Wayne

103 PLANNING VISION

Build a Network of Parks

One important sign of a healthy, livable city is the amount of useable public amenities, especially open space. Toledo is woefully inadequate in this respect, with just 2% (32 acres) of downtown land area made up of parks and green space. To make Downtown Toledo more attractive and livable to employers, residents and visitors, this figure needs to be closer to 20% (320 acres). The less than inviting state of current open spaces are set up for the wonderful transformation achieved in other Midwestern cities, where an opportunity arising from the changing character of a district has been taken advantage of. Success will depend on the commitment to implement the vision and to plan for a public investment strategy that optimizes the resulting private investment opportunities. Middlegrounds Metropark Marina District While perhaps a daunting task, much work is already underway to increase the amount of downtown parkland. Middlegrounds MetroPark, reinvestment in Promenade Park, and potential park investment in the Marina District will form a strong basis for this strategy. It becomes more challenging outside of the downtown core, heading west toward Uptown. However, given the considerable amount of property owned by

Master Plan government or institutions, it is possible that these entities could make an effort to treat these land resources as part of a larger strategy to create the building blocks for vital and expanding downtown neighborhoods. Downtown Toledo Toledo Downtown Rendering of future Promenade Park Uptown Green 104 Existing

ADDITIONAL 320 ACRES OF PARKLAND

32 Acres (2%)

105 PLANNING VISION

Create Complete Streets for All Users

The public made clear that there is substantial support for a multi-modal transportation model that improves mobility around downtown and supports a street infrastructure that accommodates more than the private automobile. A clear hierarchy of streets that have appropriate and different treatments depending on the scale of the street should be created. A bicycle-friendly and walkable downtown as well as a more efficient public transportation system are all key ingredients. The analysis also points to the great potential of the, at present, underutilized Amtrak station facility. This should be considered to play a major role in connecting to an improved bus transportation and to potential boat transportation on the Maumee River. Erie Street St. Clair Street This will require investment in the TARTA transit system to devise a better way of both serving downtown and giving users better access, while removing a Bus Loop that takes up valuable space on several downtown streets. Other streets are overly-wide given the amount of traffic that currently use them, suggesting that further study is needed to determine how to right-size streets and allow for traffic calming, bicycle access, on-

Master Plan street parking and improved pedestrian space. The street grid also requires reconnections in many places where streets have been cut off or compromised by one-way street patterns.

Creating complete streets, from building to building, not just curb to curb, will present both an opportunity and incentive for a wide range of Downtown Toledo Toledo Downtown development projects. TARTA Bus Loop Amtrak Station 106 Complete Streets for all users

107 PLANNING VISION

Enable Continuous Development

One of the key elements to ensure a transformation Vistula: The transformation of Vistula requires the of Downtown Toledo into an attractive, livable, relocation or mitigation of incompatible uses along growing urban center is to commit to a substantial the river edge that currently limit public access to downtown residential program. A new system the waterfront. Once the waterfront is connected of riverfront parks and complete streets will to a larger riverfront park system and east-west help downtown, but until there is a growing and streets in Vistula arrive at the water, several new diverse residential population who has a vested building sites emerge. Buildings that will have a interest in the future of downtown, the success of public esplanade frontage and river views will be an the transformation will be limited. Today there is important part of reclaiming the Maumee River as between 22% and 30% building coverage. It needs the transformed face of Toledo. to be closer to 65%. Warehouse District: The Warehouse District is Three districts bordering downtown—Uptown, replete with valuable assets whose potential has Vistula, and the Warehouse—are all strongly yet to be realized. Connecting these assets will influenced by the Maumee River. A long- allow them to contribute to the attractiveness term commitment to a variety of residential of downtown as a place to live, work and invest. development, particularly suited to each district, Opportunities along Swan Creek and near the Warehouse District will bring life back into downtown and help infill Farmer’s Market have the potential for mixed use vacant lots and buildings. Achieving this requires development as well as recreational connections for development to move away from self-contained to the Maumee River. Three additional assets, the “housing projects,” a common characteristic of Amtrak station, Toledo Central Union Plaza, and the pioneering projects due to security concerns, and a connection to East Toledo via the Anthony Wayne commitment to a larger vision that relies on a focus Bridge need to be better integrated into the fabric of on continuity of the public realm. downtown.

Uptown: As a result of the major roads connecting It is important to commit to an on-going connection

Master Plan to downtown and the waterfront, as well as its between public investments in amenities and relative affordability, Uptown has the potential to private investment in development. The vision be an attractive residential neighborhood. Local indicates that as housing is developed over businesses are already populating the Adams time, so will the parks and streets that support Street corridor and investment in Uptown Green the neighborhood. Doing so will create private sets the stage to test the development scenario of investment opportunities that benefit a larger area appropriately scaled and designed infill housing beyond the immediate projects. activated by public green space. Downtown Toledo Toledo Downtown Uptown 108 4 Continuous development: 65% BUILDING COVERAGE Section 4: Planning Vision

109 PLANNING VISION

Vision Summary

NETWORK OF PARKS Achieving this vision for Downtown Toledo will require consistent attention and continual planning, a dedication of funds, the creation of incentives, and patience to implement it over time.

Investing in a riverfront and building outward into urban neighborhoods and districts with high quality open space, streets and development is not unfamiliar to cities in the Midwest. Many of the river cities in the region are taking a similar approach to reviving their downtowns and reclaiming industrial waterfronts. COMPLETE STREETS One such example is RiverSouth in Downtown Columbus. The city, along with public and private partners created a Riverfront Vision Plan in the late 1990s that set forth a vision of a restored riverfront that attracted both people and development back to downtown. Over the past 20 years, the city, along with other partners both public and private, have methodically accomplished two riverfront park projects, invested in complete streets and put in place tax abatements and other incentives to enable private sector redevelopment. The resulting urban fabric CONTINUOUS DEVELOPMENT is the same as the vision suggested here, a revived

Master Plan waterfront connected by great streets and framed by appropriately scaled infill development and rehabbed buildings. Doing so has taken a once desolate part of downtown and made it one of the key destinations in the city.

With the investments already underway, Toledo is already working toward this vision for downtown. Downtown Toledo Toledo Downtown

110 4 CASE STUDY: RIVERSOUTH, DOWNTOWN COLUMBUS

PARKS r

e SCIOTO MILE

o t io c S COLUMBUS 14% COMMONS 14.1 ACRES

BICENTENNIAL High Street PARK

Bicentennial Park

STREETS r

v i State Street R

o t io c S 32% High Street 32.2 ACRES

Main Street

Civic Center Drive

DEVELOPMENT r

o t io c S 54% 53.7 ACRES High Street Section 4: Planning Vision 250 High 111

Section 5 PRIORITY ACTION ITEMS: Policies & catalytic projects

113 PRIORITY ACTION ITEMS

Introduction

The Planning Vision sets forth large goals for the revitalization for Downtown Toledo. The 12 Priority Action Items identify the Policies and Strategies that will support and enable those goals and the Catalytic Projects that will immediately be the most transformative for downtown. Many of these 12 Priority Action Items apply to all of downtown, but some are more specific or impactful to individual districts.

The 12 Priority Action Items are designed to organize the more than 1,000 ideas generated by the public during this planning process and to guide implementation efforts. The numeric assignment of each of these items is not meant to place greater importance on some rather than others—in fact, almost all of these Action Items are interrelated in some form or another. How those individual items work together to enable success will be outlined in this section. For example, repurposing the TARTA Bus Loop (see page 123) and building a Transit Center, will be necessary before streetscape improvements can be made to Summit Street (see page 148) or a cycletrack can be built on Jefferson Avenue (see monitor success, and make adjustments to goals page 150). And housing incentives and streamlined and projects. Recognizing that this is a dynamic, Master Plan development review (see page 124) are critical evolving process and that new opportunities or tools and policies to have in place to enable new funding sources will likely come available will mixed use development (see pages 126 and 128). make for a more usable and implementable plan. To this end, this section concludes with The Downtown Toledo Development Corporation two matrices that organize the 12 Priority Action (see page 152) will be charged with working with Items (see page 154), recommendations and key the City, other governmental agencies, and public partners. This tool should be used to continually and private partners to enact this plan. They, Downtown Toledo Toledo Downtown evaluate plan progress and pivot priorities and others, should use this section to track and accordingly. 114 Policies & Strategies to downtown (seepage138). SeaGate Centre andattracting hospitalitybusiness the next steps for necessaryimprovements tothe and theConvention CenterStudywill helptoshape and newopenspaceindowntown (seepage136) identify astrategy andpartners toinvest inexisting District (seepage146), aParks Master Planwill the first stepincreating a Downtown Innovation A Downtown EconomicPlan (seepage134)is are necessarytoenactplanrecommendations. The otherthree itemsidentifyadditionalplansthat strategic infill sites. (DTDC) shouldforge partnerships thatfocus on the Downtown Toledo Development Corporation the constructionofnewprojects. Onceinplace, to enablethereuse ofexisting buildingsand to supportredevelopment are alsonecessary Downtown housingincentives andothertools and makingstreetscape improvements. supporting redevelopment ofblocks ofdowntown transportation. These changesare critical to the street gridandenablemultiplemodesof needed toenhancetransit operations, reconnect transportation are outlined, identifyingsteps Improvements tothepublicrealm and support additionaldowntown investment. specific studiesandplanswill benecessaryto partnerships. Additional focus area andsubject investment, incentives, andpublic-private These includeamixofpolicies, infrastructure projects andcontinuedinvestment indowntown. necessary policyframework tosupportcatalytic These sixPolicies andStrategies provide the 3 2 1 housing incentives connected downtown infill sites Identify strategic redevelopment and Establish downtown Advance a better

6 5 4 develop Strategic Plan (underway) Conduct Parks MasterPlan Conduct a Downtown Economic Plan Conduct a Convention CenterStudyand 5 115 Section 5: Priority Action Items PRIORITY ACTION ITEMS

1 Advance a Better Connected Downtown

A 21st Century Downtown Street Network enhancements can be made across time. In fact, components that make downtowns strong. For the improvements are being planned for several health of a downtown, it is critical to interconnect For a downtown to be successful in the 21st streets and gateways in downtown at this time. the surrounding districts and neighborhoods century, it must have an interconnected and For these reasons and many more, streets and a with downtown. In this way the success of one inviting street network for all modes of travel. better connected downtown are a priority action area helps the success of the other, and different Great streets are a critical component that “set item for Downtown Toledo. uses and amenities become readily available to the table” for a successful downtown. Streets everyone. But these street connections must and the surrounding public right-of-way form the Street Connectivity – Interconnecting Downtown be complete streets that accommodate and skeleton of a city and are what a city can most encourage all modes of travel from pedestrians, to One of the primary roles of a street network is directly affect – for better or worse. Streets and bicyclists, to vehicles. the adjacent public realm are what a person connectivity. At its core, the role of a street is experiences first and reflect a community’s self- to provide economic and social activity through In Toledo, the downtown is blessed with great worth. Furthermore, federal, state, regional, and connectivity for the transportation of people street corridor connectivity east and west from local funding is often most readily available for and goods. A street network with multiple Summit Street west into Uptown and beyond. street improvements so streets are places where paths of connectivity is one of the fundamental There are at least five strong street connections at

Strong Crosstown East-West Connectivity Poor Crosstown North-South Connectivity Master Plan Downtown Toledo Toledo Downtown

116 block intervals downtown, including Washington Street, Monroe Street, Jefferson Avenue, Madison A BETTER CONNECTED DOWNTOWN Avenue, and Adams Street – though Madison needs to be reconnected to Summit adjacent to Levis Square. While some of the complete street features could be improved for pedestrians and bicyclists, these streets set the foundation for a revitalized downtown and Uptown. These streets also provide links to Downtown Toledo’s most important asset, the Maumee Riverfront.

Unfortunately, the same cannot be said for street connectivity north and south. Only one street, Summit Street, connects in both directions. This has a profound impact on the connectivity and vitality of downtown with adjacent districts like the Warehouse District and areas south of Swan Creek, and the Vistula neighborhood to the north. It also impacts Summit Street and Michigan and Erie Streets because they have to carry more traffic because there are fewer options. Erie and Michigan are one-way through the length of downtown and Huron Street is one-way north of Adams Street. Because of the creation of superblocks for the SeaGate Centre, NORTH Fifth Third Field, and Huntington Arena, St. Clair Street and Superior Street have been interrupted. defense evacuation concerns, most American Toledo has done well in this regard, converting Sometimes this can create interesting pockets of cities converted their streets from one-way to two- a number of one-way streets back to two-way. activity, like around Hensville, but there still needs way. While one-way streets facilitate vehicular There are still some one-ways that remain (shown to be a multiplicity of two-way connections north movement, they do not help with livability. in red on the maps in the previous page). These and south. Realizing the damage this decision inflicted upon should continue to be studied for conversion our downtown environments and vitality, cities to two-way operation. Most significantly this Connectivity and complete streets benefit from have been gradually converting them back ever includes the remaining one-way portion of Huron two-way streets. Two-way streets calm traffic since. as well as all of Erie Street. and provide better connectivity and wayfinding. With the post-WW II suburban boom and national 117 PRIORITY ACTION ITEMS

1 Advance a Better Connected Downtown: Street Typologies

Streets can no longer be designed solely with the decisions today. The City also needs to create a vehicle in mind. Successful downtown streets Transportation Plan for downtown that strives to DOWNTOWN STANDARD must accommodate many travel modes and scales accommodate needed and safe vehicular travel effectively. Streets that are designed holistically in with pedestrian needs, the recently completed Bike Applies to Streets like: this manner are referred to as “complete streets.” Plan, the TARTA transit plans, this Downtown Toledo Madison Avenue But they actually need to do much more. Streets Master Plan, livability considerations, and economic Adams Street need to serve economic functions such as: adding development needs of the city. economic value, providing for outdoor dining and display, allowing for on-street parking, facilitating We have provided beginning considerations for the storefront browsing, and creating signature appearance and function of Downtown Toledo’s addresses. They need to serve environmental streets with the following Street Typologies. This functions such as controlling storm water, reducing classifies streets by their character and desired heat islands, and improving air quality through streetscape within the context of their functional, street trees and planting. They serve social traffic design capacity. The diagram on the next functions by connecting people, allowing them to page highlights the primary downtown streets and interact, and accommodating the various modes of their classifications. transportation people rely on. Resources are finite and we are not suggesting that Because there are so many masters to serve, a all of the downtown streets be improved at once. downtown street network needs to be carefully The goal is to have a plan and design standards considered and carefully designed. There are in place so that as sections of street are rebuilt, or new private development occurs along street several essential tools to doing this well, including P 1) a transportation plan that establishes the desired frontage, these improvements can be made. roles and priorities of different street sections for P The goals for all Downtown Standard Streets are the various modes of travel now and into the future, full sidewalks to accommodate pedestrians and 2) a current traffic study that measures use, flow, outdoor seating with street trees, decorative LED Master Plan and safety of all modes to allow for better decision- streetlights, parking meters, and traffic signage making, and 3) street design standards/guidelines closer to the curb. On-street parking and curb 36’ Edge of Pavement (Typical) that provide direction for both how different streets extensions (“bump-outs”) are standard elements should function, but also their aesthetics. as well. Accommodating bikes is important, but P P Toledo needs to begin by updating their Traffic Study with low speed downtown streets, sharrows are the standard design. 8’ 10’ 10’ 8’ for downtown. Currently, the overall document and Varies Varies Parking Travel Lane Travel Lane Parking related traffic counts date from the early 1990s. An Streetscape Streetscape

Downtown Toledo Toledo Downtown + Sharrow + Sharrow updated version is needed to make more informed 118 STREET TYPOLOGIES Downtown standard Downtown collector Bancroft Street Downtown specialty

Ashland Avenue Downtown signature

Woodruff Avenue

75 Jefferson Avenue Jefferson

Madison Avenue 120

Jackson Street

Adams Street

Cherry Street

Washington Street Monroe Street

51 Michigan Street

Ontario Street

Erie Street

Huron Street

Superior Street

St. Clair Street

Summit Street

119 PRIORITY ACTION ITEMS

1 Advance a Better Connected Downtown: Street Typologies

Designated streets with enough pavement and right- of-way should accommodate bike lanes, or even DOWNTOWN collector DOWNTOWN specialty cycle tracks and fall into the Downtown Specialty Streets classification. This category is also reserved Applies to Streets like: Applies to Streets like: for downtown streets that carry high pedestrian Michigan Street Huron Street traffic and have important uses along them. Here St. Clair Street the extra detail and expense of signature materials like brick, stone, granite, seating, accent lighting, landscape planters are appropriate to invite people to walk, stroll, and linger.

Downtown Collector Streets are for the more vehicular-focused roads and have wider, 11-foot lanes and are generally one-way, but are otherwise like the Downtown Standard. These should be limited in number downtown.

Downtown Signature Streets (see page 148) build on the qualities of the Downtown Specialty Street and are image-defining streets for Toledo. They usually care more vehicular traffic than Specialty Streets and are gateway streets for P downtown. Thus they should include signature P

intersection design and gateways, landscaped P P medians, and iconic Toledo elements. Along with accommodations for bicycles and other modes

Master Plan of alternative transportation, these streets should focus on slowing traffic and improving the 38’ Edge of Pavement (Typical) 36’ Edge of Pavement (Typical) pedestrian environment in order to spur economic development. P P P P

8’ 11’ 11’ 8’ 8’ 10’ 10’ 8’ Varies Varies Varies Varies Parking Travel Lane Travel Lane Parking Parking Travel Lane Travel Lane Parking Streetscape Streetscape Streetscape Streetscape

Downtown Toledo Toledo Downtown Bump- + Sharrow + Sharrow Bump- Bump- + Sharrow + Sharrow Bump- Out Out Out Out 120 Monroe Street. pedestrian amenitiescan beaccommodatedon are necessaryandhow additionalbicycle and needed toultimately determinehow many lanes Street) isnecessary. Afull assessmentwill be (from the Toledo MuseumofArttoSummit a consistenttreatment alongtheentire corridor are completeautomobileoriented. Developing that have noimprovements whatsoever and on-street parkingandlighting, andothersections sections featuring medians, newstreet trees, Today, Monroe Street isinconsistent, withsome Monroe Street isanimportantcorridor. SeaGate Centre, OwensCorningandtheRiverfront, Fifth Third Field, Hensville, the Warehouse District, between the Toledo MuseumofArt, Old West End, enhancing Monroe Street. Astheconnection page 148, butthere isalsoaneedtoconsider improvements toSummitStreet are detailedon two-way, Monroe Street, In Downtown Toledo, Signature Streets include Erie Street (seepage122). Potential Summit Street, andwhenmade Erie Street Summit Street Monroe Street Applies toStreets like: DOWNTOWN signature

Varies Streetscape Parking Bump- Out 8’ P Travel Lane + Sharrow

10’ P Travel Lane 66’ EdgeofPavement (Typical) 10’ Lane/Median Center Turn 10’ Travel Lane

10’ P Travel Lane + Sharrow 10’ Parking Bump- Out 8’ P

Varies Streetscape 5 121 Section 5: Priority Action Items PRIORITY ACTION ITEMS

1 Advance a Better Connected Downtown: Huron, Erie and Anthony Wayne Gateway

Creating a better connected downtown is a WORK TOWARD TWO-WAY ERIE AND/OR HURON STREETS fundamental recommendation of this plan. This takes many forms, but one area of focus is addressing the lack of north-south street connectivity. Having multiple complete street connections that tie downtown with the Warehouse District and Vistula will help improve the vitality of all across time.

In addition to Summit Street, there appear to be three streets that historically made this connection: St. Clair, Erie, and Huron streets. St. Clair Street is interrupted by the SeaGate Centre, but is otherwise a nice street for businesses and livability. Huron Street is a very important downtown street and enhancing its character with improved streetscape and converting the one-way section to two-way north of Adams Street will make Huron Street a second north-south complete street connection. It appears the City is actively NORTH planning to make this conversion to two-way and this effort should be fully supported.

Michigan and Erie streets today function as District and Vistula. Converting it back to two-way One project that is currently funded, designed one-way pairs that link downtown vehicular operation and calming its traffic would provide and awaiting construction in 2017 is the Anthony traffic to I-75, with Michigan Street carrying the many benefits to downtown and surrounding Wayne Gateway. While a great project in terms of

Master Plan added role of connecting to Spielbusch Avenue neighborhoods and districts. The same goes for enhancing a major gateway into downtown, it will and the Greenbelt Parkway connection to I-280. Michigan Street long-term. For this reason, the continue to reinforce Erie Street as one-way. A For pedestrians, Erie Street serves as a barrier planning team investigated ways to modify the closer examination should be made to investigate between the walkable core of downtown and street system to make this possible while still how this project could be built in such a way as to areas west. Erie Street is also significant in that, providing for traffic flow. A critical component to facilitate the conversion of Erie Street to two-way like Summit Street, its alignment extends “Bridge understanding this potential is updating Downtown traffic in the future. to Bridge” through the extent of the Warehouse Toledo’s Traffic Study. Downtown Toledo Toledo Downtown

122 5

1 Advance a Better Connected Downtown: TARTA Bus Loop TARTA bus loop One of the critical, impending decisions that will impact downtown is the reimagining of the TARTA downtown circulation system and the preferred location of the transit center. Studies by TARTA indicate a general agreement to remove the dedicated bus loop lane and multiple downtown transit stations in favor of dedicated bus stops and a centralized TARTA Transit Center.

With competition for limited space along downtown streets, having buses share the same travel lanes as vehicles makes sense and is what effectively occurs for this system elsewhere and for other bus systems around the country. Dedicated bus stops would allow the buses to pull to the curb lane and board passengers. Removal of the dedicated bus loop frees this valuable public real estate for use by other important, contributing elements.

The area regained by removal of the bus loop should be used for on-street parking and additional streetscape in many locations. On-street parking is critical for successful downtown retail uses, so the return of parking opportunities along Erie and Summit Streets should help existing and potential future retail establishments as well as facilitate Removing the bus loop will not only improve One of the other Priority Action Items of this plan visitor parking to adjacent businesses. Sections downtown streets, but it also has the potential to is bringing back the Four Corners. For this to be could also be converted into wider outdoor seating/ improve transit access and encourage redevelopment. most effective, additional parking is going to be dining areas. Because on-street parking only Consolidating downtown bus stops at a transit center needed to support the reuse of these buildings requires eight feet of width, there could also be has been done in many other downtowns and, when that are adjacent to the current TARTA transit site. opportunities to restripe some street sections to implemented properly, can result in more efficient Working with TARTA to secure the Madison/Erie site accommodate bike lanes or even a cycletrack (see service and a better transit experience. The Jackson in exchange for providing a preferred Transit Center page 150). Street area has long been talked about as the site in the Jackson Street area creates a win-win appropriate location for a transit center and potential condition. A public-private partnership should be Priority Action Items Section 5: Priority Action sites in this part of downtown should be studied formed to enable this to happen. further. 123 PRIORITY ACTION ITEMS

2 Establish Downtown Housing Incentives

Adding housing—and therefore residents—in Provide assistance in using tax credits downtown will invigorate the heart of the Toledo The rehabilitation of historic properties, of which region, enhancing its marketability and appeal, downtown has many, can be facilitated through and playing a vital role in a broader business the use of historic tax credits. The State of Ohio development strategy to attract and retain a provides a tax credit of up to $5 million per talented workforce. project, and in 2016 the state awarded credits Through the strategic use of incentives, projects to 26 projects around the state, including for the that are otherwise difficult to finance with private rehabilitation of Downtown Toledo’s Hotel Secor. finance alone can become viable. Development feasibility can also be given a boost Implement incentive tools for properties that incorporate, for instance, ground-floor commercial uses and utilize New Tax reductions and tax increment financing (TIF) Markets Tax Credits. can go a long way in making development projects economically viable. Downtown is currently Create a low-interest revolving loan fund covered by a Community Reinvestment Area (CRA), A low-interest revolving loan fund targeted which allows the city to offer a 10 to 15-year tax at residential projects would facilitate more abatement on up to 100% of the value of new diverse housing development downtown that buildings or improvements on existing buildings targets a wider resident market and would be in the CRA. The city can also explore the use difficult to finance through the private market. of Tax Increment Financing (TIF) in downtown. The seed money for such a fund could come The creation of a TIF district allows future tax from a combination of private, institutional, and revenue generated by increases in property value public sources, representing a broad community driven by new development to be used toward investment in downtown’s development. financing public improvements that contribute to Conduct outreach with the school district those developments, such as roads and sewers, land acquisition and demolition, and utilities School districts are often skeptical of the use Master Plan infrastructure. of incentive tools, as they require foregoing the additional tax revenue generated by new The benefits to developers are similar with both development for a period of time. Engagement tools, but the use of TIF can potentially be of with school district representatives can address additional benefit to existing downtown properties these concerns and potential solutions, as well as and to the neighborhood’s infrastructure. The use include them in a larger discussion of the potential of the two tools are not mutually exclusive, and it long-term benefits to the community that will would be advised that the city undertake a more Downtown Toledo Toledo Downtown come from use of the incentives. detailed study of the most effective and productive 124 ways to use them in concert. Demand: 1,200 - 1,500 units

Downtown looking West

125 PRIORITY ACTION ITEMS

3 Identify Strategic Redevelopment and Infill Sites

There is no shortage of vacant or underutilized land or buildings in Downtown Toledo. While the core of downtown is largely built out, vast areas to the south, north and west of downtown are devoid of activity. Within built-up areas of the downtown, there are many buildings suffering from both disuse and disinvestment.

Some of this ground is in public hands, making it comparatively easier to redevelop and repurpose. Other buildings and parcels are in private hands where landowners may or may not be predisposed to investing or divesting of their property for more contributing uses. In any case, it is imperative that the DTDC and City begin the process of identifying policies and strategies that incentivize and enable reinvestment (loan fund, financial incentives, Uptown Green streetscape improvements, and parking or other strategic infrastructure investments), while also striving to work with existing property owners to make the necessary improvements to revitalize targeted areas of downtown.

Given the scale of the issue, the planning team has highlighted opportunities in two key locations within downtown: Uptown and Four Corners. Master Plan Downtown Toledo Toledo Downtown Warehouse District Farmer’s Market/Swan Creek 126 5 View looking northeast

JEFFERSON AVENUE 11TH STREET

MONROE STREET

14TH STREET

17TH STREET

WASHINGTON STREET

127 PRIORITY ACTION ITEMS

3 Identify Strategic Redevelopment and Infill Sites:Uptown Green

Uptown Green is a fantastic addition to the Uptown Uptown Green Market on the Green Unique + Local Businesses District, providing much need green space and a community gathering place. Its proximity to the burgeoning Adams Street corridor, which features numerous local businesses, restaurants and bars, ties it into the larger neighborhood that is increasingly seeing reinvestment. The opening of the Market on the Green in addition to the EBEID Institute on the eastern edge of the park has made this part of Uptown a destination.

While the areas around the park are steadily INFILL OPPORTUNITIES improving, there are still numerous vacant and underutilized parcels surrounding Uptown Green. A focused effort to infill these sites with appropriate, affordable and neighborhood-scale redevelopment would better leverage this park investment. Along all edges of the park site, there are opportunities to build needed housing that could serve both new and existing residents and turn Uptown Green into a true community anchor. To guide redevelopment efforts, design guidelines should be established by the City and neighborhood organizations.

Once proven here, the strategy of using park

Master Plan space to organize and spur similar redevelopment efforts elsewhere in downtown. If successful, this approach will not only add to the amount of park space in downtown, it will start to revitalize neighborhoods. Downtown Toledo Toledo Downtown

128 Existing

POTENTIAL

Existing Uptown Green looking toward Downtown

Uptown Green looking towards Downtown

129 PRIORITY ACTION ITEMS

3 Identify Strategic Redevelopment and Infill Sites:Four Corners

Huron Street is one of the most important streets Nasby Building Nicholas Building Huntington Building Spitzer Building downtown. It connects numerous cultural and entertainment destinations, including the Farmer’s Market, 5/3 Field, the SeaGate Centre, the Huntington Center and the Valentine Theater.

Huron Street’s location in the core of downtown can attract a diversity of consumers, from workers and residents to patrons of the Huntington Center and Valentine Theater. Its greatest appeal is place-based, however, with some of the city’s most elegant remaining historic stock of urban buildings Redevelopment OPPORTUNITIES and storefronts. There is a strong opportunity to cultivate a local retail and restaurant scene in this corridor, activating the space and creating better connections between downtown’s event venues. Incentives and tax credits can facilitate storefront rehabilitation and the rebuilding of individual storefront entrances. Finally, a strategy to rehabilitate the Four Corners at Huron and Madison streets and attract major anchor tenants will catalyze other development along the corridor should be created.

This portion of downtown may benefit from a strategic investment in parking. A parking study

Master Plan should be conducted to verify this need. Downtown Toledo Toledo Downtown

130 Existing

POTENTIAL

Existing Madison Avenue looking east

Madison Avenue looking east

131 PRIORITY ACTION ITEMS

3 Identify Strategic Redevelopment and Infill Sites:Conduct a Downtown Parking Study

One of the components of advancing and the adjacent sidewalks that encourages and/or land values increase then redevelopment redevelopment, infill, and reinvestment in walking, strolling, and shopping and provides a of surface lots becomes realistic. downtown is addressing parking needs. This plan level of comfort to pedestrians. It is important recommends that a Downtown Parking Study that on-street parking spaces turn-over regularly, Structured Parking: be conducted to inventory public and private so charging for on-street parking, even nominally, Structured parking (parking garages, parking parking spaces in downtown, their utilization, helps ensure their availability and provides a beneath structures, etc.) is critical to improving availability across the day and week, cost, revenue stream for the City. There are a number vitality in Downtown Toledo. To encourage existing ratios of parking spaces to employees of means for tracking and charging for parking renovation of buildings and construction of new and residents, specific areas of parking shortage and the Parking Study will help identify what development, parking structures are a necessity. and over-supply, and develop incentives for is best for Downtown Toledo and what rates to Enough surface parking cannot be created to redeveloping surface lots and funding strategies charge where. In summary, on-street parking meet the need without destroying the fabric and for strategically-located parking structures. This should be provided downtown wherever possible, walkability of downtown. The City, public agencies, Downtown Parking Study must build upon the and particularly on corridors where retail activity and private partners should work together to objectives and Action Items highlighted in this is desired. facilitate the strategic location of new structured plan. parking. Parking revenues can be used to pay Off-Street Parking back bonds from an agency like the Port Authority. Below are the three major types of parking that As this plan highlights, there is an abundance Areas of early focus should be those that unlock must be studied and fundamental considerations of off-street surface parking lots in Downtown reinvestment in existing structures, such as associated with each. These are 1) public on- Toledo. Surface lots are a means of providing around the Four Corners, and then focus on areas street parking, 2) off-street surface parking (both cheap parking for downtown uses, but they that encourage infill development projects. public and private), and 3) structured parking (both have detrimental impacts to the walkability, public and private). livability, attractiveness, and economic vibrancy There are a number of important urban design of downtown. Surface parking lots adjacent to factors to consider. Structured parking is On-Street Parking sidewalks interrupt the walkability of streets and most effective and economical in mixed use Supplying on-street parking is critical in a divide areas of downtown and sections of streets developments where the same spaces can be downtown, walkable environment. On-street into separate nodes of activity. used fully across a day – for example with workers

Master Plan parking spaces are vital to the success of first during the day and residents at night. Parking floor retail uses and important for visitors, guests, Surface lots should be viewed as a temporary structures that are located internal to blocks allow and deliveries to residential and office uses. development condition. The objective is to have buildings to face the street and be connected to Studies have shown that each on-street parking these surface lots redevelop as buildings and/or parking behind. Where parking structures must be space contributes up to $10,000 annually in sales structured parking across time. At the present, located along a street, sizing the first floor for infill for adjacent retailers. Adjacent off-street parking attractive edges and screening should be required commercial space preserves future value, even is also important, but the on-street parking spaces along surface lots adjacent to all public sidewalks if it is not used immediately. Downtown parking create an important perception of availability and to improve the public street environment. As more structures should be architecturally designed to Downtown Toledo Toledo Downtown access. On-street parking spaces also create a structured parking is developed, vitality returns, contribute to the public streetscape. 132 safety buffer between moving vehicles on streets alternate transportation modes are embraced,

Activate thefirst floor ofstructured parking Screen surfaceparkinglots On-street parkingsupportsretail Washington Street Washington Downtown Parking

On-Street Parking Garages Surface Lots

Monroe Street Monroe Jefferson Avenue Jefferson

Michigan Street Madison Avenue Madison

Ontario Street Adams Street Adams Erie Street

Huron Street

Superior Street Jackson Street Jackson FIFTH THIRD St. Clair Street FIELD

Summit Street HUNTINGTON SEAGATE CENTRE CENTER 0’ 2,000’

IMAGINATION Cherry Street Cherry STATION Summit Street

Maumee River NORTH 5 133 Section 5: Priority Action Items PRIORITY ACTION ITEMS

4 Conduct a Downtown Economic Plan

Ohio House Bill 233, effective as of August 2016, authorizes the creation of a Downtown STARTUP JOB CREATION AS PROPORTION OF TOTAL JOB CREATION, 1990-2013 Redevelopment District (DRD) in a 10-acre area that Source: U.S. Census Bureau, Business Dynamics Statistics contains a historic preservation project. The DRD is set up similarly to a TIF district, with taxes on a 44% portion of the increase in District property values 40% over a period of 10 years are diverted to a dedicated fund. These revenues can be used for a variety of 36% initiatives, including marketing, redevelopment of historic buildings, and infrastructure improvements. 32% Additionally, if the District includes an area equipped with a high-speed broadband network, 28% an Innovation District (ID) can be created within it. Toledo MSA USA The Innovation District (see page 146) is intended to 24% attract and support the development of technology 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 companies and start-ups, and DRD funds can be used towards this end to provide grants or loans to technology businesses and incubators and key technology-related industries with high growth technology, engineering, and math) has continually accelerators within the District. The authorization potential. Such a plan is also a required piece in the increased over the past few decades, including of a DRD in downtown can therefore provide needed creation of a Downtown Redevelopment District and not only jobs that require four-year and advanced funding for its business development strategy. Innovation District. degrees, but also relatively high-paying jobs for skilled technicians and others who lack a four-year Given national trends, the future of the Toledo Identify Target Industry Clusters university degree. These trends are expected to regional economy will be greatly impacted by continue as STEM-related jobs are projected to its ability to foster startup job growth, and local Analysis of location quotients demonstrates that outpace non-STEM-related jobs over the next 10 economic development policy should encourage Lucas County has relative strengths in Healthcare years (source: BLS). Therefore, it is critical that the Master Plan their development. Job growth from startups in and Social Assistance, Manufacturing, Management, region leverage revitalization efforts in Downtown Toledo has consistently outpaced job losses from Administrative Support, and Retail Trade. At the Toledo to respond to larger economic trends and business closings. However, the proportion of jobs same time, concentrations in employment-strong continue to promote growth in these service- created from startups has fallen far from its peak sectors likely to locate downtown, such as Finance oriented, downtown-friendly knowledge sectors. of 41 percent in 2002, sinking to just 28 percent and Insurance and Professional, Scientific, and by 2013. The creation of a Downtown Economic Technical Services, are below national averages, Develop Startup Fund/Grant Program Development Plan will help focus civic, business, although a number of these sectors have increased

Downtown Toledo Toledo Downtown and institutional stakeholders toward attracting their overall market share over the past decade. Before a startup is ready to market its products and cultivating start-up businesses, particularly in Nationally, the share of STEM-related jobs (science, and services to a venture capital fund, initial 134 5

TOTAL VENTURE CAPITAL INVESTMENT BY seed funding and/or grants are necessary for workforce. However, the region ranks near the TARGETED METRO AREA, 2010-2015 the research and development phase. This initial bottom among metro areas for total venture capital TOTAL VC funding can come from public or private sources, investment between 2010 and 2015, with no MSA RANK or a combination thereof. In order to grow the venture capital investment recorded in the MSA in INVESTMENT local entrepreneurial infrastructure and attract 2014 or 2015. Attracting the VC investment needed Pittsburgh, PA $1,157,740,000 23 new talent, learning institutions, vested corporate to bolster local startups and catalyze Downtown entities, foundations, and economic development business development will require the creation of Cleveland-Elyria- $772,275,000 29 entities can pool funds to be awarded to startups an innovation ecosystem, by linking the resources Mentor, OH and fledgling businesses. Along with the resources of educational institutions, civic leaders, and the of a business incubator, this funding can help business community to provide the support and Ann Arbor, MI $512,598,000 34 companies reach the employment growth phase, physical space that companies need in their early Indianapolis-Carmel, $448,301,000 37 directly impacting the local economy. stages and that indicate to VC investors that the IN business environment in Toledo is stable and worth Cincinnati-Middleton, $388,879,000 38 Expand Angel and Venture Capital Investment investing in. OH-KY-IN Since very few lending institutions provide capital Columbus, OH $223,944,000 52 for start-up firms, private equity funding is needed for innovators and entrepreneurs to bring their Kalamazoo - $98,111,000 72 concepts to market. However, over the past 40 Portage, MI years, venture capital investments nationwide have Des Moines - West $92,200,000 87 been overwhelmingly concentrated in just three Des Moines, IA regions: Boston, New York, and San Francisco (Silicon Valley). It is only in the past 10 to 20 years Omaha-Council $46,309,000 89 that there has been any significant geographic Bluffs, NE-IA diversification in this money, with regions such as Akron, OH $46,041,000 91 Austin, San Diego, Seattle, and Denver breaking into the top 12 metro areas for venture capital Grand Rapids- $29,641,000 105 investment. At the same time, in the early stages Wyoming, MI of development, firms are recognizing the potential Toledo, OH $16,686,000 133 cost-savings by relocating to cities like Charlotte, Detroit, or St. Louis as opposed to San Francisco or Fort Wayne, IN $1,050,000 173 Boston, as long as they have the resources to grow. Dayton, OH $0 NA Toledo is well-placed to attract startups, with its cultural amenities, low cost of living, and educated Items Section 5: Priority Action Source: National Venture Capital Association 135 PRIORITY ACTION ITEMS

5 Conduct a Parks Master Plan

Today park space represents approximately 2% of PARK TYPOLOGIES Civic Neighborhood the total land area of Downtown Toledo—a glaring deficit in the physical and environmental health As new park space is added, it of the city. To achieve the recommended 20% of is critical to consider the type of total land area, the total amount of park space in user and park experience that downtown would need to be closer to 320 acres. is appropriate. Investing just Planning for the substantial increase in park space in destination riverfront park will require a dedicated long-term commitment space is not enough, this park to park planning, land acquisition, funding and network must also be made up maintenance. It will also require time to phase of smaller-scale neighborhood in these new park spaces as budgets allow and parks that serve local residents, opportunities arise. Multiple partners will need to civic spaces that allow for be involved—both private and public—to assist in community gathering, and an creating new green spaces and managing these interconnected system of trails new public assets. Beyond the City of Toledo, and natural corridors that link potential partners include MetroParks, private these spaces together. corporations and landowners, institutions and other local and national governmental agencies. Indeed, this is already happening: MetroParks has invested Riverfront Natural Trail in Middlegrounds MetroPark and is planning investment in the Marina District, and ProMedica is funding a new Promenade Park downtown. Other institutions, from the Toledo Museum of Art to the U.S. Courthouse are considering reinvestment in their facilities that could include adjacent signature open spaces, such as the green spaces along Master Plan Monroe Street (between Glass Pavilion and Museum of Art), and the Civic Center Mall, respectively.

Therefore, the primary recommendation of this plan is to bring together these key actors and constituents to create a Parks Master Plan that creates a vision for this new park network and

Downtown Toledo Toledo Downtown forges the partnerships that will be necessary to achieve this important goal. 136 ADDITIONAL 320 ACRES OF PARKLAND TOLEDO MUSEUM OF ART CAMPUS

UPTOWN GREEN

CIVIC CENTER MALL

SWAN CREEK HENSVILLE park PROMENADE PARK RIVERFRONT PROMENADE MIDDLEGROUNDS METROPARK

INTERNATIONAL PARK MARINA DISTRICT

Waterfront Open Space New/Enhanced Downtown looking West Downtown Open Space 137 PRIORITY ACTION ITEMS

6 Conduct Convention Center Study and Develop Strategic Plan

Downtown hospitality development has a There are several options for a more extensive symbiotic relationship with nearby attractions investment in facilities. One would be to renovate and retail—each use needs the others in order to the exterior of the SeaGate Centre to make the attract a central mass of people, and all three will facade more transparent and inviting (option 2). be best served when the strategies are aligned. Instead of being inward facing, the building could This approach includes the revitalization and be redesigned to interact with the surrounding enhancement of waterfront attractions, such as urban fabric of downtown. The Kentucky Imagination Station, Promenade Park, and The International Convention Center in Louisville is Docks, as well as creating a partnership with the currently undertaking a similar project. Another, SeaGate Centre Zoo and Museum of Art to promote downtown as more intensive version of this investment would the preferred place to eat and stay when visiting be to both reskin and reorient the building hotel and convention center facilities on the west these major attractions. around a new Summit Street entrance (option 3). side of Summit Street (option 4). Finally, it could This has several benefits. It more strongly links be determined in the future that the convention Further, the SeaGate Centre has the potential to the SeaGate Centre with the riverfront and the center would be better off located elsewhere in be a driver of hotel development in downtown. investments taking place at Promenade Park and downtown. These last two options would require A strategy for hospitality should include a the ProMedica headquarters and it could catalyze the most investment. convention center study to test the economic and the ground floor reactivation of Fort Industry market response to improvements to the SeaGate Square. The two existing hotel sites would also be Regardless of the option chosen, all efforts Centre, as well as an evaluation of peer cities more prominent and the Convention Center Hotel should be made to enable the SeaGate Centre to understand what level of increase in a joint program could potentially accommodate needed to be more successful and to contribute to the marketing budget and effort is reasonable. SeaGate Centre amenities such as ballroom built environment of downtown. As the downtown and meeting space. A new plaza along Summit improves it is more likely that these investments Potential scenarios for the revitalization of the Street would still allow garage entry, but would will be able to occur. SeaGate Centre include a range of short-term also facilitate a primary pedestrian entrance and long-term options. In the short-term it to the facility. This scheme enables the interior The Board of County Commissioners may be necessary to make basic investments walkway to be opened up, creating a pedestrian commissioned a market and revenue analysis

Master Plan in the interior of the building (option 1). As alley that reconnects St. Clair street and linking for the SeaGate Centre in the spring of 2016. The the Renaissance Hotel comes online and it the Warehouse District and Hensville with the study, performed by Development Strategies, is determined what to do with the existing Downtown Core. will analyze the current market and strategic Convention Center Hotel, it will become more clear positioning of the SeaGate Centre within the what additional investment needs to take place. The most intensive scenario would be to build a context of Downtown Toledo and among its The increased visitor demand resulting from new convention center at the current site. One competitive peer convention centers. The study improvements in Promenade Park and the added potential option would be to situate the building will also analyze the economic and fiscal impacts economic activity from ProMedica headquarters

Downtown Toledo Toledo Downtown in a way that allows a full reconnection of St. of SeaGate Centre operations and visitor spending. will also inform a long-term reinvestment strategy. Clair Street and create new development sites for The study will be completed in the fall of 2016. 138 2 1 4 3 5 139 Section 5: Priority Action Items PRIORITY ACTION ITEMS

Catalytic Projects

Complete the Riverfront Promenade Establish an incubation Implementation of these six Catalytic Projects 1 from Monroe Street to Cherry Street 4 and innovation center downtown should happen concurrently with efforts to enact the Policies and Strategies necessary to support them. These projects seek to build on the existing momentum in downtown as well as take advantage of new, exciting opportunities.

The first three revolve around the riverfront. With investment occurring at Promenade Park, this energy should be extended along the entire downtown riverfront with a new Riverfront Promenade. Similarly, on the west side of the riverfront, investment in park space and potential Advance the Nautical Mile concept Start with Summit Street redevelopment should happen on the Marina 2 (Anthony Wayne Bridge to I-280 Bridge) 5 District site. Doing these two projects will set the stage for a fully realized Nautical Mile that connects the Anthony Wayne Bridge to the I-280 Bridge with a continuous ribbon of green space, trails and accessible riverfront. These riverfront projects will not only add to the amount of parkland in downtown, but will help to catalyze additional redevelopment that extracts the maximum economic value out of the tremendous asset that is the Maumee River. Implement Bike Plan, starting with Upon completion of a Downtown Economic Plan, Acquire Marina District site and develop

Master Plan Jefferson Avenue cycletrack and an Innovation Center should be created that helps 3 Strategic Plan (underway) 6 to add both jobs and new companies to downtown connection to UT Toledo. Finally, with the TARTA Bus Loop removed, it will also be possible to reinvest in Summit Street and Jefferson Avenue, making them more attractive downtown streets that carry multiple modes of transportation and make them more inviting for all downtown users. Downtown Toledo Toledo Downtown

140 riverfront improvements. new parkspacerepresents acatalyst for future building constructiononthe headquarters, this Promenade. Planned tobefinishedalongwiththe to thelower lawn, leading down totheRiverfront Walkways andpathswill connecttheupperpark residents totherevitalized downtown riverfront. community andprovides events thatwelcomeall the programming reflects thediversity ofthe space. Attention shouldbepaidtoensure that is essentialfor thesuccess ofdowntown park for concertsandevents—programming that improvements includeafountain andstage lighting andlandscaping. Potential future phase to all residents, withsculpture, specialtyseating, in thewintertime. This spacewill bewelcoming screen inthesummertimeoraholiday celebration gatherings, whetheritisamovie nighton theLED- lawn alongSummitStreet for community The newPromenade Park will feature anevent Promenade. creating acompleterenovation oftheRiverfront entire lengthoftheMaumeeRiver downtown, space shouldbeleveraged toextend alongthe Promenade Park. This investment inpublicpark garage, ProMedica isinvesting inrevitalizing SeaGate buildingandconstructinganewparking and renovating thePower Plantand Three In additiontomoving itsheadquarters downtown 1 Complete theRiverfront Promenade Promenade park -plannedenhancements 5 141 Section 5: Priority Action Items PRIORITY ACTION ITEMS

1 Complete the Riverfront Promenade

Once a thriving place—both with industry and recreational activities—the riverfront today is Downtown largely underutilized. ProMedica’s investment riverfront - in downtown will change that, activating the bridge to bridge riverfront with 1,000 employees and bringing people back downtown to a new Promenade Park. Efforts should begin now to extend that energy along the entirety of the Riverfront Promenade. While many areas along the riverfront are in need of attention, reinvestment and better connections, this work should begin downtown.

Using the new park as a starting point, design standards should be established for a common aesthetic along the Riverfront Promenade. This linear park space and trail connection should feature high quality materials, lighting, seating areas, plantings and interactive historical displays. Access to the river should also be improved by staffing and maintaining boat docks and encouraging visitors to arrive in Downtown Toledo by boat.

Running from Jefferson Street to the MLK Bridge, this new Riverfront Promenade will link visitors to the Maumee River, link job centers

Master Plan with entertainment centers, and tie into the improvements recently made south of Monroe Street to link downtown to the new Middlegrounds MetroPark. Such an investment will not just complement existing development such as the ProMedica headquarters and the renovated Renaissance Hotel, it will also lead to additional development opportunities and once again make Downtown Toledo Toledo Downtown the riverfront a destination. 142 Existing

POTENTIAL

Existing Promenade looking northeast

Potential Promenade looking northeast

143 PRIORITY ACTION ITEMS

2 Advance the Nautical Mile concept (Anthony Wayne Bridge to I-280 Bridge)

With a Riverfront Promenade established Anthony Wayne bridge dynamic lighting downtown, the overall vision for the Nautical Mile and beyond should also move forward. Broadly considered, the riverfront from the Anthony Wayne Bridge to the I-280 Bridge should be considered. On the west side of the river this connects Middlegrounds MetroPark through downtown to Vistula. On the east side of the river, this connects International Park, Dockside and the Marina District. Doing so meets up with the bike path infrastructure at the Craig Bridge Trail and creates a connection farther to the north toward Lake Source: Toledo Arts Commission Erie. Improvements to both the MLK Bridge and the Anthony Wayne Bridge should be considered to enhance pedestrian and bike accessibility. Nautical mile concept Doing so would create a series of “loop” trails and connections that would be a tremendous amenity to both downtown and surrounding neighborhoods.

There is also an opportunity to showcase bridges that visually define Toledo. The I-280 Bridge is already an iconic element in the city’s skyline, but the MLK and Anthony Wayne bridges are also important. As part of ODOT’s work to repaint the Anthony Wayne Bridge, dynamic, artistic

Master Plan LED lighting is going to be added that will act as a bookend to the southern edge of downtown and highlight this historic structure. This is an excellent first step in creating a strong bridge- to-bridge visual connection along the Maumee riverfront. Downtown Toledo Toledo Downtown

144 completed. phase ofthisstrategic planningefforthasbeen Street andFront Street inEast Toledo. The first the communityandeconomic vitalityofMain will bemostadditive totheimproved healthof will beandhow tomove forward withusesthat the communitywhatbestusesofsite engaged inaplanningprocess todeterminewith facilitated thepurchase oftheproperty andhas and East Toledo neighborhoods, ProMedica has Working togetherwiththeCity, Toledo MetroParks, instead ofsittingvacant. that wouldallow ittohave acommunitybenefit that analternative couldbefound for theproperty process was toregain local control ofthissiteso the key early recommendations ofthisplanning contemplate how tobestusethesite. Oneof and therefore ithassat vacant asdevelopers 69-acre property was notunderCitycontrol At thebeginningofthisplanningprocess, the and underutilized. the site, theMarinaDistricthasremained vacant marina andtwoparks onthenorthernportionof Lakes Museum, theCol. JamesM. Schoonmaker, a past decade andahalf. Asidefrom theGreat numerous redevelopment plansthroughout the of theEdisonPower Plant, there have been vacant. Formerly anindustrialsiteandthe on theeastsideofriverfront haslongbeen is theMarinaDistrict. This key pieceofground Another key area inthisbridge-to-bridgeconcept 3 Acquire theMarinaDistrict&Develop Strategic Plan MARINA DISTRICTSITE Source: ToledoBlade 5 145 Section 5: Priority Action Items PRIORITY ACTION ITEMS

4 Establish an Incubation and Innovation Center Downtown

One trend in putting underutilized and vacant Hensville Owens Corning Seed Coworking Farmers’ Market downtown commercial spaces to productive use is by creating shared office spaces or “co-work” space, where users pay a daily, weekly, or monthly rate for a desk or office in with internet connection and bare bones amenities. A business incubator adds several critical elements to this concept, such as counseling, mentorship, and educational programs, that enable business growth and expansion. It can also provide access to potential funding sources and a network of strategic REDEVELOPMENT OPPORTUNITIES partnerships. The ultimate goal is for the startup to expand and eventually outgrow and “graduate” from the space. The owners and employees of these startups typically become accustomed to the amenities of the downtown area and many firms eventually seek out permanent space in the surrounding neighborhood. This complete cycle of the successful business incubator model not only brings initial activity to a downtown area, it then becomes an economic development tool catalyzing future investment.

Formal co-working spaces and incubators are already present in the Toledo Region, including Seed Coworking in Downtown, the LaunchPad

Master Plan Incubation Program at University of Toledo, and ProMedia Innovations at the ProMedica Wildwood campus. There are also a number of informal supportive groups for entrepreneurs such as Startup Toledo and Tech Toledo. The opportunity now is to create linkages between these groups, build on their efforts, and direct their growth in

Downtown Toledo Toledo Downtown Downtown. The creation of an Innovation District in Downtown, as part of a Downtown Redevelopment 146 District, can be a key step in this strategy. Existing

POTENTIAL

Existing Superior Street looking north

Superior Street looking north 147 PRIORITY ACTION ITEMS

5 Start with Summit Street

Summit Street is the front door of the City of Toledo. In addition to being the riverfront street, it is also home to numerous large attractions for visitors, employees and residents. These include the SeaGate Centre, both downtown hotels, major employers (ProMedica, HCR Manor Care, Fifth/ Third Bank), Imagination Station and Promenade Park. Given its importance to the Toledo community, Summit Street needs to be redesigned to better reflect its position as the premier address in downtown.

Today, Summit Street is primarily designed to move cars as quickly as possible in and out of downtown. With the planned removal of the Bus Loop, there is now an opportunity to right-size Summit Street. Instead of a six-lane section with sporadic on-street parking, Summit Street could be narrowed to a five lane section with on-street parking on both sides. A landscaped median, mid- block crossing and bump outs will further slow traffic and increase pedestrian safety. Street trees and ample sidewalks will provide a comfortable pedestrian environment, making it pleasant to Summit Street - 1909 spend time downtown and provide a more inviting entrance to the park spaces that lead to the

Master Plan Riverfront Promenade. Retail along Summit Street can align with the convention center and hospitality development This new pedestrian-friendly environment is ideal strategy for downtown, appealing to tourists and for improving retail opportunities along Summit convention attendees. Retail development in this Street. A new streetscape will support ground corridor can target high-volume local and national level activity in buildings along Summit Street restaurants that will appeal to these groups. from Fort Industry Square to the newly renovated Such tenants can pay relatively high rents, thus Renaissance Hotel. reducing the public sector contribution necessary Downtown Toledo Toledo Downtown to facilitate development. 148 Existing

POTENTIAL

Existing Summit Street looking north

Summit Street looking north

149 PRIORITY ACTION ITEMS

6 Implement Bike Plan, Starting with Jefferson Avenue Cycletrack and Connection to UT

The City’s adopted Bike Plan identifies the Jefferson PROPOSED TRAILS FROM 2015 BIKE PLAN Avenue corridor as a key bicycle connection between Downtown Toledo, Uptown, the Toledo Museum of Art and the University of Toledo. Known as the Bancroft-Promenade Trail, the plan envisions a cycletrack along Jefferson Avenue leading from the riverfront westward. The removal of the Bus Loop enables this project to be implemented by using the northern lane of Jefferson Avenue for the cycletrack—all while retaining the same amount of vehicle travel lanes. The investment in this new bicycle infrastructure will improve accessibility to and through downtown from other districts, neighborhoods and destinations and provide a strong, yet relatively low-cost linkage to the University of Toledo.

Linear planters will buffer cyclists from traffic and add needed green landscape to Jefferson Avenue. Combined with other streetscape improvements such as street tree planters and new intersections, this corridor will become more pedestrian-friendly and enhance the ability to activate the ground floor spaces of existing buildings. This is especially important as improvements are considered at the SeaGate Centre and at the historic Secor building.

Master Plan Investing now in these streetscape improvements will enhance the other planned investments along the corridor.

With this critical piece of infrastructure in place, other bike connections, whether bike lanes, sharrows or other facilities should be linked to create a robust bicycle network that both Downtown Toledo Toledo Downtown connects downtown and links it to surrounding 150 neighborhoods and districts. Existing

POTENTIAL

Existing Jefferson Avenue looking east

Jefferson Avenue looking east

151 PRIORITY ACTION ITEMS

Implementation Entity Example Organizations

With the completion of this master planning and approval process facilitation. The DTDC will process, the work of the 22nd Century Committee also play a key role in facilitating development is complete. The task of continued planning by helping developers work through the approval Cincinnati Center City Development Corp (3CDC) Private non-profit led by Board of Directors of 30+ corporate and implementation is now turned over to the process, identify funding sources, apply for grants, leaders. Downtown Toledo Development Corporation and develop partnerships with other state and Funded mostly by corporate contributions. (DTDC). This group, now reformed and re- governmental agencies. In addition, the DTDC Strengthen core assets of downtown - Fountain Square, energized, is ideally suited to shape the future of should have design oversight to ensure that public CBD, Over-the-Rhine. Downtown Toledo. amenities and improvements are appropriate and Acts as Developer, Master Developer, Asset Manager, of great quality. It is the setting up of attractive Lender, & Programmer. Across the region, this has proven to be an Roles: Identify Opportunities, Land Bank, Create Viable development opportunities that in the end will Projects, Structure Financing, Manage Project. effective model, with development corporations entice the necessary interest and investment in behind many of the resurgences taking place in downtown. Louisville, Cincinnati, and Columbus. Development corporations are critical entities that bring the Finally, the DTDC should play an active role in public and private sectors in a community together public relations and continuously marketing the to forge change and guide improvements in rebirth of Downtown Toledo. Part of this marketing Columbus Downtown Development Corp / downtowns. The DTDC will need to work with both involves telling the story of downtown and sharing Capital Crossroads SID the private sector and the appropriate government its successes. To do so, the DTDC should gather, CDDC: Private non-profit led by Board of Directors of 15 agencies, whose approvals are necessary for the track, and benchmark critical downtown metrics senior business & institutional leaders. vision to move forward. and statistics in an ongoing basis. Created to implement the Downtown Strategic Plan. Acts as Developer, Master Developer, Asset Manager, & In addition to tackling the transformative projects Success will depend on the substantial nature Event Operator. Roles: Identify Opportunities, Land Bank, Create Viable within the Downtown Toledo Master Plan, the DTDC and longevity of the established corporation. The Projects, Structure Financing, Manage Project. will need to provide leadership and help to create DTDC needs strong leadership and staff support the programs and administrative changes that will to engage the sustained effort necessary to make the vision possible. This includes assisting transform downtown. Work should start now to

Master Plan the City and County with developing a suite of fund and hire a president and necessary staff, incentives and services, such as tax abatements, as well as form committees on issues regarding Louisville Downtown Partnership low interest loans, land assembly assistance organization, development, governmental policies, Private non-profit led by Board of Directors of senior funding, and public relations and marketing. business & institutional leaders. Created to implement the Downtown Master Plan. Acts as Developer, Master Developer, Asset Manager. Roles: Identify Opportunities, Create Viable Projects, Develop Public/Private Partnerships, Structure Financing, Manage Project Downtown Toledo Toledo Downtown

152 5

153 PRIORITY ACTION ITEMS

Policies and Strategies

The 12 Priority Action Items presented here TIMEFRAME have been divided into Policies and Strategies DTDC-FACILITATED POLICIES AND STRATEGIES RELATED RECOMMENDATIONS PARTNERS and Catalytic Projects. The Downtown Toledo SHORT MEDIUM LONG (1-3 Years) (3-5 Years) (5-10 Years) Development Corporation will facilitate the implementation of all the Priority Action Items. In the case of the six Policies and Strategies, this >> Conduct a transportation plan Advance a Better Connected Downtown will include leading individual efforts, convening >> Conduct a downtown Traffic Study City of Toledo, DTID, Lucas County, Downtown Business Owners, 1 ODOT, TARTA, TMACOG, Property Owners, Toledo Bikes!, Warehouse stakeholder groups, or working with the City, (Remove the TARTA Bus Loop, Work toward a two-way Erie and/or Huron Street, >> Create street design standards Develop Street Typologies) District Association, Uptown District Association County and other government officials to enable >> Create a maintenance plan change. For each policy and strategy, there are related recommendations, partners and a >> Develop tax incentive toolkit suggested timeframe outlined in the matrix at >> Provide assistance in using tax incentives City of Toledo, Lucas County, LISC, Port Authority, Chamber of 2 Establish Downtown Housing Incentives Commerce, RGP-Jobs Ohio, Toledo Public Schools, Banks, Property right. >> Create a low-interest revolving loan fund Owners, Local Developers >> Conduct outreach with the school district regarding abatements This matrix should be considered to be a dynamic tool, to both evaluate success and to identify >> Work with existing property owners and/or gain site control needed adjustments or changes. As some are >> Establish funding mechanisms and financial incentives City of Toledo, Property Owners, Lucas County, Lucas County Land completed, others might be added. Likewise, 3 Identify Strategic Redevelopment and Infill Sites >> Create design guidelines Bank, Toledo Design Center, LISC, Port Authority, Chamber of funding availability and other opportunities (Uptown Green and Four Corners) >> Issue developer RFPs Commerce, RGP-Jobs Ohio, Banks, TARTA, Local Developers, Uptown District Association, Warehouse District Association may alter priorities or enable projects that had >> Consider strategic parking solutions not been considered at the time of this plan >> Conduct a Downtown Parking Study completion. >> Identify target industry clusters City of Toledo, Lucas County, Port Authority, LISC, Port Authority, 4 Conduct a Downtown Economic Plan >> Develop a Startup Fund/Grant Program Chamber of Commerce, RGP-Jobs Ohio, Banks, University of Toledo, >> Expand Angel and Venture Capital Investment BGSU, Startup Community, Educational Institutions

Master Plan >> Develop public-private partnerships City of Toledo, MetroParks, Lucas County, Port Authority, Institutions, 5 Conduct a Parks Master Plan >> Create a maintenance fund/endowment for existing signature Property Owners downtown park spaces

>> Develop a Strategic Plan that links to a broader tourism and 6 Conduct a Convention Center Study hospitality strategy Lucas County, Toledo Convention and Visitors Bureau, City of Toledo >> Develop phased implementation strategy for improvements Downtown Toledo Toledo Downtown

154 6 5 4 3 2 1 Conduct aConvention CenterStudy Conduct aParks Master Plan Conduct aDowntown Economic Plan (Uptown Green andFour Corners) Identify Strategic Redevelopment andInfill Sites Establish Downtown HousingIncentives StreetDevelop Typologies) (Remove the TARTA BusLoop, Work toward atwo-way Erieand/orHuron Street, Advance aBetterConnectedDowntown DTDC-FACILITATED POLICIESANDSTRATEGIES

TARTA = Toledo Area Regional Transit Authority ODOT =Ohio Departmentof Transportation DTID =Downtown Toledo Improvement District DTDC =Downtown Toledo Development Corporation > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > Develop phasedimplementationstrategy for improvements hospitality strategy Develop aStrategic Planthat links toabroader tourismand downtown parkspaces Create amaintenancefund/endowment for existing signature Develop public-private partnerships Expand Angeland Venture CapitalInvestment Develop aStartupFund/Grant Program Identify target industryclusters Conduct aDowntown Parking Study Consider strategic parkingsolutions Issue developer RFPs Create designguidelines Establish fundingmechanismsandfinancialincentives Work withexisting property owners and/orgainsitecontrol Conduct outreach withtheschooldistrictregarding abatements Create alow-interest revolving loanfund Provide assistanceinusingtaxincentives Develop taxincentive toolkit Create amaintenanceplan Create street designstandards Conduct adowntown Traffic Study Conduct atransportation plan RELATED RECOMMENDATIONS BGSU =Bowling Green StateUniversity RGP =Regional Growth Partnership LISC =Local Initiatives Support Corporation TMACOG = Toledo Metropolitan Area CouncilofGovernments Lucas County, Toledo Convention and Visitors Bureau, Cityof Toledo Property Owners City of Toledo, MetroParks, Lucas County, Port Authority, Institutions, BGSU, StartupCommunity, Educational Institutions Chamber ofCommerce, RGP-Jobs Ohio, Banks, University of Toledo, City of Toledo, Lucas County, Port Authority, LISC, Port Authority, District Association, Warehouse DistrictAssociation Commerce, RGP-Jobs Ohio, Banks, TARTA, Local Developers, Uptown Bank, Toledo DesignCenter, LISC, Port Authority, Chamberof City of Toledo, Property Owners, Lucas County, Lucas CountyLand Owners, Local Developers Commerce, RGP-Jobs Ohio, Toledo PublicSchools, Banks, Property City of Toledo, Lucas County, LISC, Port Authority, Chamberof District Association, Uptown DistrictAssociation ODOT, TARTA, TMACOG,PropertyOwners, ToledoBikes!, Warehouse City of Toledo, DTID, Lucas County, Downtown BusinessOwners, PARTNERS (1-3 Years) SHORT

TIMEFRAME (3-5 Years) MEDIUM (5-10 Years) LONG 5 155 Section 5: Priority Action Items PRIORITY ACTION ITEMS

Catalytic Projects

The six Catalytic Projects are geared toward slated to occur first. While the Nautical Mile TIMEFRAME supporting the successful redevelopment of is listed second, this doesn’t mean that the DTDC-FACILITATED RELATED RECOMMENDATIONS PARTNERS downtown. The Downtown Toledo Development bridge lighting shouldn’t happen now. On the CATALYTIC PROJECTS SHORT MEDIUM LONG (1-3 Years) (3-5 Years) (5-10 Years) Corporation will facilitate each of the six Catalytic contrary, incremental steps toward successfully Projects to ensure that they are properly planned, implementing these projects is important and designed and implemented. This will require will enable them to be fully realized much faster. >> Perform a Riverfront Promenade study to establish plan and develop working with numerous partners within the However, it is perhaps most important that these design standards Complete the Riverfront DTDC, City of Toledo, Lucas County, Port Authority, Destination Toledo, community as well as continuing to involve efforts are coordinated to ensure that the planning 1 >> Engage with development stakeholders and property owners Metroparks, Boating Community (Lucas County Sheriffs, US Coast Promenade the public as project planning progresses. for one enables the other. >> Establish a funding and programming strategy Guard, Toledo Police) Property Owners For each Catalytic Project, there are related >> Develop a maintenance and security agreement recommendations, partners and a suggested The streetscape improvements suggested for >> Using Promenade Park and the Riverfront Promenade as a starting timeframe outlined in the matrix at right. Summit Street and Jefferson Avenue will also be point, establish design standards and plans impactful for these key corridors and hopefully set >> Engage with development stakeholders and property owners DTDC, City of Toledo, Lucas County, Port Authority, MetroParks, Many are focused on the riverfront, and suggested the stage for further improvements to other key 2 Advance the Nautical Mile Concept TMACOG, Property Owners >> Establish a funding strategy priorities are embedded in the timeframe. downtown streets. Working with the City, property >> Develop a maintenance and security agreement However, it is expected that much work will take owners, and key downtown developments and place concurrently, and all are additive to one- destinations, the plans for these improvements >> Perform framework plan study to determine potential uses, form and development another. For example, extending the Riverfront should be designed collaboratively. Further Acquire Marina District Site DTDC, MetroParks, City of Toledo, Port Authority, Property Owners, 3 >> Engage with residents, development stakeholders and property Promenade will require design work, while the partnerships will be necessary to create an owners Great Lakes Museum, river users lighting of the Anthony Wayne Bridge is likely Innovation Center for downtown that drives both >> Develop a phasing strategy job growth and company creation. >> Develop a private partnership for an initial incubator space Therefore, this underscores that this matrix Establish an Incubation and DTDC, City of Toledo, University of Toledo, Lucas County, Seed 4 >> Explore partnerships with area institutions of higher education, local Incubator, Local Developers should be used as a dynamic tool to organize Innovation Center Downtown businesses, and existing incubators and coordinate projects, evaluate successes and make additional changes as necessary as >> Conduct a downtown Traffic Study

Master Plan implementation progresses. 5 Start with Summit Street >> Create street design standards DTDC, City of Toledo, ODOT, TMACOG, Lucas County, Property Owners >> Create a maintenance plan

>> Conduct a downtown Traffic Study DTDC, City of Toledo, TMACOG, Lucas County, Toledo Museum of Art, Implement Bike Plan, Starting with >> Create street design standards 6 Jefferson Avenue Cycle Track Property Owners, Toledo Bikes! >> Create a maintenance plan Downtown Toledo Toledo Downtown

156 6 5 4 3 2 1 Jefferson Avenue Cycle Track Implement Bike Plan, Starting with Start withSummitStreet Innovation CenterDowntown Establish anIncubationand Acquire MarinaDistrictSite Advance theNautical MileConcept Promenade Complete theRiverfront CATALYTIC PROJECTS DTDC-FACILITATED

TMACOG = Toledo Metropolitan Area Council ofGovernments TARTA = Toledo Area Regional Transit Authority ODOT =Ohio Departmentof Transportation DTID =Downtown Toledo Improvement District DTDC =Downtown Toledo Development Corporation > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > > Create amaintenanceplan Create street design standards Conduct adowntown Traffic Study Create amaintenanceplan Create street designstandards Conduct adowntown Traffic Study businesses, andexisting incubators Explore partnerships witharea institutions ofhighereducation, local Develop aprivate partnership for aninitialincubatorspace Develop aphasingstrategy owners Engage withresidents, development stakeholders andproperty and development Perform framework planstudy todeterminepotentialuses, form Develop amaintenanceandsecurityagreement Establish afundingstrategy Engage withdevelopment stakeholders andproperty owners point, establishdesignstandards andplans Using Promenade Park andtheRiverfront Promenade asastarting Develop amaintenanceandsecurityagreement Establish afundingandprogramming strategy Engage withdevelopment stakeholders andproperty owners design standards Perform aRiverfront Promenade studytoestablishplananddevelop RELATED RECOMMENDATIONS BGSU =Bowling Green StateUniversity RGP =Regional Growth Partnership LISC =Local Initiatives Support Corporation Property Owners, Toledo Bikes! DTDC, Cityof Toledo, TMACOG, Lucas County, Toledo MuseumofArt, DTDC, Cityof Toledo, ODOT, TMACOG, Lucas County, Property Owners Incubator, Local Developers DTDC, Cityof Toledo, University of Toledo, Lucas County, Seed Great Lakes Museum, river users DTDC, MetroParks, City of Toledo, Port Authority, Property Owners, TMACOG, Property Owners DTDC, Cityof Toledo, Lucas County, Port Authority, MetroParks, Guard, Toledo Police) Property Owners Metroparks, BoatingCommunity (Lucas CountySheriffs, USCoast DTDC, Cityof Toledo, Lucas County, Port Authority, Destination Toledo, PARTNERS (1-3 Years) SHORT

TIMEFRAME (3-5 Years) MEDIUM (5-10 Years) LONG 5 157 Section 5: Priority Action Items PRIORITY ACTION ITEMS Leveraging Momentum and Implementing the Vision

Downtown Toledo is at the cusp of a renaissance. National and regional trends are pointing to the resurgence of urban areas and the local market momentum is shifting in the direction of Downtown Toledo. Jobs and residents are returning downtown, new parks and open spaces are being created along the riverfront and investments are being made in entertainment and hospitality facilities. All of these are essential elements to creating an active, livable and attractive downtown.

The Downtown Toledo Master Plan process harnessed this energy, receiving tremendous public interest and support, echoing that desire for continued improvement. Residents of all ages are seeing action downtown and want to be a part of it. Now is the time to tap into that enthusiasm and support for change and reinvestment to continue to build the Downtown Toledo of the future.

Building on this momentum and interest, the Downtown Toledo Master Plan creates a vision of a thriving riverfront city. A city that celebrates and builds from its greatest natural asset and amenity outward into the surrounding neighborhoods, districts and community. Master Plan In convening this planning process and seeing it through to completion, the 22nd Century Committee has completed its objective. The community conversation has led to a common vision and consensus regarding next steps. It is now up to the Downtown Toledo Development Corporation to build the leadership, partnerships and capabilities to Downtown Toledo Toledo Downtown begin implementation. 158 Existing

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