downtown corridor development strategyberkley riverfront park 1.5 30 18th and vine jazz district 1.5...

Prepared for

The Civic Council of Greater Kansas City

Prepared by:

Sasaki Associates

Economics Research Associates

Frewen Architects

May 2001

Final Executive Report

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Kansas City, Missouri

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II.. IInnttrroodduuccttiioonnFocused InvestmentConnectionsBenefitsPlanning ProcessStakeholder ThemesDowntown Issues

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Planning StrategiesDesign Principles

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Roles and ResponsibilitiesYears 1 to 5Years 6 to 10Years 11 to 20 and beyondAlternative Concept for Arena Siting

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Public Assembly FacilitiesAn Attraction-Based StrategyDowntown Housing

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KC Community Improvement DistrictKC EventsKC Information ServicesKC Downtown Development Corporation

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Table of Contents

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Kansas City Downtown Corridor Development Strategy

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Figures

FFIIGGUURREESS

11.. Downtown Development Plan 22.. Open Space Framework 33.. Context Plan 44.. Five-and Ten-Minute Walking Distances55.. Phasing Diagram66.. Performing Arts/

Convention Center District Plan77.. Library District Plan88.. South Loop Plan99.. Crossroads Square Plan1100.. East Loop Plan1111.. North Boulevard Plan1122.. Riverfront Plan1133.. Alternative Location Plan for Arena

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Downtown Corridor Development Strategy

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While it lies in the heart of America, Kansas Cityhas a decidedly western attitude about outwardgrowth and expansion. Within the region, thedowntown area has always been a great center, serv-ing as a place for trade, business, government, andentertainment. The impression of a bustling down-town, people on the street, and safety in numbershas declined as people and activities have dispersedoutward. Many businesses and developers havebecome hesitant to invest in downtown without aclear sense of the future.

Downtown can reestablish its hold on the center,however, by building onto its strengths and address-ing key issues. The economy of downtown needsto diversify to embrace more residential and cultur-al uses as a complement to the traditional businessand government core. Retail, restaurants, andentertainment will follow this lead. A system ofgracious parks and tree-lined streets throughout thedowntown will create image and value, whileinspiring private reinvestment in key quadrants.

The goal of the Downtown Development Strategyis to create confidence and certainty for futureinvestment. The plan identifies future developmentopportunities, open space amenities, exciting newdestinations, and the connections between theseplaces. It also identifies policies and strategies thatmust be set in motion to accomplish these goals.In order to be successful, many different entitieswithin the public and the private sectors will haveto work together to achieve a shared vision of thefuture.

As a first step, a downtown development and man-agement entity with a geographic focus should beestablished to carry out the goals and the mission ofthe Downtown Corridor Development Strategy.The “Downtown Entity” should focus immediately

on the implementation of the Performing ArtsCenter/Convention Center District and the LibraryDistrict, while setting the groundwork for develop-ment in the South Loop. In the second phase, theDowntown Entity would continue the South Loopdevelopment, engage institutional uses on GrandAvenue, and promote the ongoing development inthe Crossroads District. Longer-range projectsinclude new residential districts in the East Loop,North Loop, and the Berkley Riverfront District.A professional, committed organization will be ableto respond to opportunities within the overalldesign framework of the plan.

Downtown Kansas City in the future will be thecenter for performing arts in the region, with amagnificent new campus on the hill overlookingthe heart of downtown, the Crossroads, CrownCenter, and Penn Valley Park (Figure 1). ThePerforming Arts Center will connect to the Avenueof the Arts to the north and will invigorate themany unique and historic theaters in the down-town. With a vibrant downtown and multipleactivities within walking distance, the Bartle HallConvention Center will thrive, offering conven-tioneers a new ballroom facility adjacent to thePerforming Arts Center, and in the future, anexpanded exhibition hall. Within a ten-minutewalk of the Performing Arts Center and Bartle HallConvention Center, a new Arena or other destina-tion attraction on Grand Avenue will anchormixed-use development within the South LoopDistrict while bridging the connection to theGovernment Center.

New downtown neighborhoods around the 10th

Street Library, the North Boulevard, and the EastLoop will add to the number of residents alreadyliving in Quality Hill, the River Market, and theCrossroads districts. These residents will form a

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Introduction

Figure 1. Downtown Development Plan

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constituency that takes pride in downtown, itsparks, and its streets, ensuring that they are safe andwell maintained. Restaurants and small shops willserve theater and arena patrons, conventioneers,residents, and the downtown lunch crowd thatspills out of the financial district buildings.

Kansas City will become known for its beautifuldowntown parks that complement the system ofboulevards within the City (Figure 2). Parks willgrace each downtown district:

� The West End and Quality Hill are known forCase Park and its magnificent overlook.

� Barney Allis Plaza is in the heart of theConvention Center District, and over timecould become more accessible, green, and visi-ble from the surrounding streets.

� Ilus W. Davis Park will become the focal pointfor the Government District.

� A new park on 9th Street will add green spacein the Library District.

� A new park extending along the length of theSouth Loop will provide a setting for newoffice, supporting retail and restaurants, andother uses.

� The North Loop will become a gracious boule-vard, lined with trees, and accommodating resi-dential development and a major new openspace or civic destination.

Pedestrians will be able to walk throughout thedowntown on shady streets with benches and light-ing. On-street parking and two-way streets willmake downtown easier to navigate for both pedes-trians and cars, and will make parking more con-venient, especially for short errands and nighttime

events. Bicyclists will be able to ride throughdowntown to reach either office destinations orhome, or can pass through downtown as part of alarger loop along the Riverfront Heritage Trail andother regional trails. In the future, a light rail tran-sit system will carry people between downtown des-tinations and to jobs, homes, shopping, and otherdestinations outside the downtown.

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Efforts to shape the future of downtown KansasCity should be directed toward concentrating desti-nations and people and creating a sense of place.While the quality of the journey between destina-tions is essential, the compelling feature of success-ful downtown districts is the proximity of key desti-nations and the cohesive character that is essentialfor attracting people. The geographic focus of pub-lic investments and development incentives inKansas City should be clarified to support thisoverarching goal.

To demonstrate an overall confidence in the futureof downtown, public and civic-minded improve-ments typically lead and serve as catalysts for pri-vate real estate investment. These civic and publicinvestments should be made wisely to:

1. Magnify benefits and change perceptions

2. Target underutilized areas that are centrallylocated

3. Build on substantial public and private invest-ments that have been made over the years andthat are ongoing.

The Downtown Corridor covers an area of approxi-mately 4,000 acres, extending from the MissouriRiver to 31st Street and from the State Line to the

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Introduction

Figure 2. Open Space Framework

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Bruce R. Watkins Expressway (Figure 3). Throughthis study, however, we have identified a 300-acredistrict in the heart of downtown that shouldbecome the highest priority for future action. Thispriority area extends from Oak Street to Broadwayand from 9th Street to 18th Street, with a centerpoint located around Main Street and 14th Street.From this center point, every area is within a 10-minute walk, including the following:

� Performing Arts Center

� Municipal Auditorium, Bartle Hall ConventionCenter, and the proposed Ballroom and ExhibitHall expansion

� New Library and surrounding redevelopmentopportunities

� South Loop redevelopment area

� Proposed Arena/destination attraction site

� Avenue of the Arts and all downtown theaters

� Financial district

� Crossroads at 18th and Southwest Boulevard.

The Priority Area reaches out to connect to thevitality on Broadway, Quality Hill, and theGarment District on the west. On the east, itreaches the new Ilus Davis Park and the govern-ment district. Redevelopment within the PriorityArea will begin to close the gap between key desti-nations surrounding the downtown core includingthe River Market, Crossroads, Freight HouseDistrict, 18th and Vine, and Crown Center. Inthis plan, the term “downtown” refers generally tothe loop and its immediate surroundings, where thedensity and activity are the greatest.

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While the Priority Area gathers together manyimportant downtown places within a ten-minutewalking radius (Figure 4), there are many otherattractions and destinations in Kansas City that arenot within a comfortable walking distance ofdowntown. The chart below shows the distancesbetween a point in the center of downtown and thefollowing destinations:

DDeessttiinnaattiioonn MMiilleess WWaallkkiinngg MMiinnuutteesRiver Market/Steamboat Arabia 1.0 20Crown Center/Union Station 1.3 25Berkley Riverfront Park 1.5 3018th and Vine Jazz District 1.5 30Kemper Arena 2.0 40Nelson-Atkins Museum of Art 5.3 -Country Club Plaza 5.3 -

In order to improve connections between these dis-persed places, a light rail transit system and relatedshuttle service offers a comfortable and accessiblemeans of travel for residents, employees, and visi-tors. In order to maximize ridership, the transitsystem should connect high-density residential areasto concentrated employment areas, or alternatively,the system should pass through underutilized andvacant land that can be redeveloped for these uses.Within the downtown, the system should serveimportant destinations such as the ConventionCenter, government center, and the PerformingArts Center. By identifying now the route forfuture transit, decisions can be made to concentrateappropriate development near future transit stops.

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As a partnership effort, every participant stands tobenefit from an improved downtown. TheConvention and Visitors Bureau will find it easierto book shows with a vibrant downtown and manydifferent attractions within walking distance ofBartle Hall. The Chamber will be able to feature

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Introduction

Figure 3.Context Plan

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downtown as a centerpiece for the region, and willbe able to offer prospective businesses a choicebetween a suburban location and a more urbaneand lively downtown setting. Existing businesseswill find it easier to retain and attract employees ina safer and more attractive setting. Property ownerswill see their values increase with new public andprivate investment. The City will realize a strongertax base over time and a revived downtown as aneconomic engine for the region. County govern-ment also will benefit from a stronger downtowncore for the region. Real estate developers andother prospective investors will be able to investwith more certainty, taking advantage of a moreeven playing field, where tax incentives andapprovals are handled more consistently to achievethe goals of the plan. Throughout the metropoli-tan area, residents will be able to visit downtown,for culture, arts, and entertainment as well as otherservices, with a feeling of safety and civic pride.

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The Civic Council of Greater Kansas City initiatedthis planning process with the following goals andobjectives:

1. Create an environment that causes businesses to choose to locate in the urban core

2. Develop priorities (including facilities) throughcollaboration, to guide the City, and civic andcommunity leaders in allocating resources andplanning development in the Urban Core

3. Complete a downtown corridor master planthat incorporates and implements the objec-tives and recommendations of the FOCUSUrban Core Plan.

4. Build consensus among various entities with an

interest in a prosperous downtown in order tospeak with a unified voice on the priorities for

Downtown Kansas City, Missouri.

The Civic Council’s Urban Core Committee ledthe planning effort through a collaborative partner-ship with The Chamber, the Downtown Council,and the City, including the active participation ofthe Mayor, the City Manager, and the CityPlanning Director. The Downtown CorridorDevelopment Strategy recognizes that many exist-ing and ongoing plans affect the study area, includ-ing the following key initiatives:

� Mayor’s River-Crown-Plaza Initiative

� FOCUS Plan

� Convention Center Expansion

� Performing Arts Center

� River Market Development

� Riverfront Heritage Trails

� Wayfinding Study

� Envision Downtown, as part of the DowntownCouncil’s Live Work Play Initiative.

The planning process has involved extensive out-reach to stakeholders including the City Council,City staff, the County, the business community,economic development interests, civic and culturalorganizations, real estate developers, neighborhoodgroups, architects, and institutional and other not-for-profit organizations. Initial interviews withstakeholders were held in October 2000. InJanuary 2001, the project team presented the analy-sis and a series of alternative concept plans for dis-cussion. Draft recommendations were presented inApril, and the presentation of the final plan will bemade in May 2001.While this initial phase of the planning process is

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Introduction

Figure 4. Five-and Ten-Minute Walking Distances

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complete, the planning and urban design processwill need to continue with more detailed design, asnecessary, to define projects, to provide costs anddesign guidelines, and to test specific design ideasas projects move closer to implementation. Thestakeholders should remain involved during thisprocess to ensure action and to continue to shapethe final plan and implementation projects.

The Performing Arts Center work session providesa model for open, collaborative planning anddesign, which could be replicated to address othercomplex issues. The design of the Performing ArtsCenter and its relationship to the downtown Loopand to the proposed expansion of Bartle Hall wasdiscussed throughout the planning process. TheConsultant team convened a design work session toaddress the complex issues related to these projects.Participants included the clients and design teamsfrom each of the three projects: Performing ArtsCenter, Bartle Hall ballroom and exhibit hallexpansion, and Downtown Corridor DevelopmentStrategy. The work session provided a forum forsharing project information, studying issues andalternatives together, and identifying a proposedsolution that met the key objectives of each projectas well as the overall urban design goals.

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A number of common themes that arose during thestakeholder interviews and work sessions have beenaddressed in the final plan. They include the fol-lowing:

1. Revitalization efforts need to be concentratedand focused, with the greatest need in the areawithin the Loop. The freeways are barriers thatare choking the Loop.

2. The Performing Arts Center siting and its rela-

tionship with downtown needs to be addressed,especially in relation to the siting and design ofnew facilities for the Convention Center.

3. A hierarchy and pattern of streets is neededwith a focus on 9th, 12th, 18th, Broadway,Main, and Grand, and with special treatmentof the Avenue of the Arts on Central Street.

4. A prominent civic destination is desired. Ofthe possibilities, there is clear consensus on thePerforming Arts Center and the new library.Some participants in the planning process weresupportive of a downtown arena, but there wasno consensus for a downtown baseball stadiumat this time. Additional museums and attrac-tions such as an aquarium lacked the necessarybroad-based support to be successful.

5. Downtown should be more urbane, safe, andexciting with theaters, restaurants, and shops,in part supported by more downtown residents.

6. The West End, River Market, Crossroads, andFreight House districts are attractive areas forredevelopment and renovations although incen-tives are still necessary.

7. Downtown needs more civic parks andstreetscape improvements.

The stakeholders also articulated the challenges fac-ing downtown, including the following:

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1. Downtown lacks image and amenities com-pared to other locations in the region.

2. Downtown appears unsafe and unattractive,making it hard to recruit employees and busi-nesses. The presence of more people and activi-ty on the street would help alleviate this prob-lem.

3. Downtown lacks a committed and powerfuladvocate.

4. The value of land downtown is too high, andmay be affected by the presumed availability ofTIF agreements. Land assembly could facili-tate redevelopment.

5. City incentives for development are not basedon clear criteria and have no geographic focus.Uncertainty in development incentive packagesand approvals acts as a disincentive.

6. Parking is not addressed in a rational mannereither for building renovation or new construc-tion. City participation in parking could be apowerful incentive for downtown development.

DDoowwnnttoowwnn IIssssuueess

The hills in downtown Kansas City are one of itsmost striking features, adding drama to the city andits buildings. In the Government district, IlusDavis Park and the new Federal Courthouse occupythe high ground. The Performing Arts Center willbe located on the top of the hill at 16th Street andCentral Street. Many hilltops are occupied by resi-

dential neighborhoods: Quality Hill, Union Hill,and the West Side are examples. Other residentialareas in or near downtown take advantage of his-toric buildings, such as those found in theCrossroads and the River Market.

In addition to hilltops and historic buildings,waterfronts and parks typically provide amenitiesfor residential and other developments. From theLoop, however, the river is difficult to reach, anddowntown historically has lacked open space. Thefive-acre Ilus Davis Park is a significant addition tothe existing parks in the core, which are BarneyAllis Plaza and Case Park. Penn Valley Park, theCrown Center parks, and Berkley Park on the river-front are significant but not easily reached fromdowntown.

The Downtown Corridor has a collection of uniquedestinations that are distinctly Kansas City in theirorigin and flavor. These destinations are quite dis-persed, however, and most are located outside ofthe Loop, including: the Steamboat ArabiaMuseum and the River Market area; 18th and Vinearea with its celebration of jazz and the NegroLeagues Baseball Museum; the American Royal andits horse shows and barbecue events in the WestBottoms area; Union Station/Science City; and the

Introduction

City Market

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Hallmark Visitor Center at Crown Center. All ofthese destinations are a 25- to 40-minute walk outof downtown. Other attractions such as CountryClub Plaza and the Nelson Museum of Art are overfive miles away. Within the Loop are three historictheaters, Bartle Hall Convention Center, and themulti-purpose historic Municipal Auditorium, butfew other unique destinations.

The pattern of vacant land within the Loop revealsthat the edges of downtown are eroding. Thelargest tracts of vacant and underutilized land lie inthe South Loop adjacent to Interstate 670, in theEast Loop adjacent to Interstate 70, and in theNorth Loop adjacent to Interstate 70. The WestEnd, including Broadway, Quality Hill, and theGarment District, is thriving with a mix of hous-ing, office, parking, restaurants, and open space.The Financial District bustles around the core butbecomes softer with many vacant buildings as onemoves outward to Grand Avenue or to 10th Street.

The Government District represents a significantnumber of employees and a major destination formany, but a number of vacant lots remain in thisarea. The Convention Center District featureshotels, theaters, and places for assembly, but isnotably lacking in street level retail, restaurants, andother destinations for conventioneers.

City Market

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A downtown plan must be flexible to accommodatechanging economic and physical conditions. Theillustrative master plan provides a vision, but plansevolve to respond to opportunities and other crite-ria. We recommend the following principles toguide decision-making and shape the future ofdowntown.

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1. CCoonncceennttrraattee ddeessttiinnaattiioonnss ttoo ccrreeaattee aa sseennssee ooffppllaaccee aanndd mmaaggnniiffyy bbeenneeffiittss.. Major destina-tions within a ten-minute walk of the down-town center will create a pedestrian-friendlyenvironment, in which destinations reinforceeach other to generate a lively character.

2. FFooccuuss iinnvveessttmmeennttss aanndd iinncceennttiivveess ttoo aacchhiieevveeppllaann ggooaallss iinn aa ccoonnssiisstteenntt mmaannnneerr.. Public sub-sidies and incentives should be distributed onthe basis of a set of clear criteria that generatesprivate investment and positive transformationover time.

3. IImmpprroovvee tthhee ppuubblliicc rreeaallmm ttoo aadddd aammeenniittiieess aannddiinnccrreeaassee rreeaall eessttaattee vvaalluueess.. Downtown is signif-icantly lacking in open space and other com-pelling factors that create positive addresses fordevelopment.

4. DDiivveerrssiiffyy ddoowwnnttoowwnn ttoo ccrreeaattee aa ppllaaccee ffoorr ccuull--ttuurree,, tthhee aarrttss,, aanndd lliivviinngg,, nnoott jjuusstt bbuussiinneessss.Many U.S. cities are transforming theireconomies to reflect changing transportationand business decisions, and to capture theunique advantages of a central location thatoffers historic character and an urban lifestylewith arts, housing, and entertainment.

5. MMaaiinnttaaiinn fflleexxiibbiilliittyy ttoo aaccccoommmmooddaattee ooppppoorrttuu--nniittiieess wwiitthhoouutt ssaaccrriiffiicciinngg pprriinncciipplleess. Cities aredynamic with changing economic and culturalforces. The development plan establishes along-range vision to preserve future options,but must be able to accommodate new oppor-tunities within a strong framework.

Design and Planning Principles

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Midland Theater

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The vision for the future of the downtown relies ona set of essential principles of urban design as theyrelate to Kansas City. These include

1. Surround the downtown with residential uses,taking advantage of hilltop sites, historic build-ing stock, and riverfront land.

2. Create new parks in each quadrant of down-town, placing them in the heart of redevelop-ment areas.

3. Buildings should be placed to define openspace and street corridors with consistentheights along their facades.

4. Locate ground floor retail on key corners andfacades around park areas.

5. Preserve landmark buildings and the historicbuilding stock, which contribute character thatcannot be replaced.

6. Streets should be activated by front doors andactive ground floor uses.

7. Parking should be placed on the interior of theblocks and/or with the narrow end exposed tothe street.

8. Every opportunity for shared parking should beexplored before new parking is built, especiallywith the proximity of the financial district andcultural/civic uses.

9. Upper level buildings should not block streetcorridors; overhead pedestrian bridges shouldbe limited and, where inevitable, should belight and transparent structures.

10. Use new development, strong pedestrian links,and other means to diminish the barrier of theinterstate highways around the loop.

11. Promote the concept of the Avenue of the Artsusing both Central Street and Wyandotte Streetwith a major transition across Barney AllisPlaza.

12. Minimize the impact of service areas on thepedestrian environment.

13. Design so that each phase of development canbe experienced as a coherent piece.

14. Respect landforms, topography, and views inthe design of new parks and buildings.

9th Street Corridor

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The phasing of capital projects provides a strategicgame plan that anticipates likely market demand,funding, political support, catalyst effect on otherproperties, and the balance of private and publicinvestment. The art of phasing is to concentrateinvestment and public and private development sothat each phase succeeds in creating a sense ofplace. Like a stone in still water, each projectshould inspire the next so that benefits ripple out-ward from each major investment.

A phasing strategy allows as many projects as possi-ble to move forward independently, without hing-ing or tying one project to another. The develop-ment plan itself reflects the phasing by placing themost likely projects close together in a key location,so that valuable land is not tied up with theprospect of a long term project that might not hap-pen (Figure 5).

The proposed transit system is being reviewedthrough a separate planning process. Downtowndevelopment will benefit from the proposed transitsystem and its current route alignments. The phas-ing of downtown development, however, is not tiedto the transit line. In other words, civic spaces andprivate development can proceed ahead of the tran-sit line, although the mix of uses and the locationof parking should reflect future transit stationdevelopment.

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The initiatives and projects listed below provide awork plan for the proposed Downtown Entity,working in concert with the City and other stake-holders to realize the goals of the downtown devel-opment plan. Depending on the project, theDowntown Entity will advocate, coordinate, man-age, operate, seek funding, assemble land, anddevelop real estate. The organization of the

Downtown Entity is discussed in more detail inSection 5 of this report.

Because improvements to the public realm areessential, the City’s participation and support iscrucial. Public policies in every department and atevery level should consistently support a sharedlong-term vision for downtown, and should becoordinated with the mission of the economicdevelopment agencies (Economic DevelopmentCorporation, Kansas City Area DevelopmentCouncil, and the Land Clearance RedevelopmentAuthority). The City typically provides funding forutility infrastructure, street improvements, andparks, although it may be preferable for a privatenon-profit organization to manage these projects.Development is shaped through the City’s zoning,building codes, economic development policies,and incentive packages. Eminent domain is a pow-erful tool that is sometimes necessary to completethe assembly of a block of land. The DowntownEntity must have a strong working relationshipwith the City so that the two entities support andcomplement each other.

The private sector includes real estate development,corporate investment, and individual philanthropy,all of which will bring critical capital and vision toshape the downtown. The expertise of private realestate development should be tapped whenever pos-sible to accomplish the plan goals, including resi-dential, office, and retail development. The privatemarket might initially require the assistance of theDowntown Entity and/or the City to close thefinancial gap on projects, using land assembly, landwrite-downs, and other incentive to make projectsfeasible. Corporations affect downtown throughinitial and ongoing investments in business loca-tions as well as civic-minded improvements orfunding of civic projects. Individual and corporatephilanthropy in Kansas City has a long track recordof investment in downtown ranging from providing

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Figure 5. Phasing Diagram

Phasing and Priority Projects

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gap financing for Quality Hill housing to develop-ing the new Performing Arts Center.

The idea of a downtown educational campus sug-gests the participation of either public or privateinstitutions that might be interested in the benefitsof a downtown location or a downtown branchcampus. A downtown advocate and developmentcorporation will be necessary to solicit and encour-age these institutions to locate downtown and toacquire and renovate the necessary buildings.

YYeeaarrss 11 tthhrroouugghh 55

The priorities in the first five years are to set up adevelopment and management entity and to realizesignificant new development in the downtown core,specifically the Performing Arts District, theLibrary District, and the South Loop District(Figure 5). Significant office, retail, and entertain-ment uses should be encouraged to locate withinthe Loop. Creating new residential neighborhoodswithin the Loop should be a high priority in thefirst five years, including zoning changes, buildingcode changes, creation of public open space, landassembly, and development incentives packages.Residential development initiatives in the RiverMarket, Crossroads, and Freight House areasshould be supported and encouraged but should beexpected to move forward at their own pace.

Some overall improvements to downtown streets,including a two-way system, wayfinding signage,and street trees and other landscape improvementson major streets, will begin to change the image ofdowntown. During this initial phase, the transitplanning and design will begin. Efforts also shouldbe made to identify an educational institution(s)that could benefit from a downtown location.

Polices and Organization

� Establish downtown development and manage-ment entity

� Establish goals and incentives strategy for newdowntown development based on cost/benefitmodel

� Consider fine-tuning and/or modifying the TaxIncrement Financing (TIF) program to givepreference to the Priority Area in downtown

� Identify parking locations and establish a devel-opment and funding strategy

� Ensure consistent zoning regulations andstreamline development approvals to supportthe development plan

� Create design guidelines for new developmentdowntown.

Performing Arts Center Site

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Performing Arts/Convention Center District

The Performing Arts Center occupies a key hilltoplocation looking out to downtown to the north andCrown Center to the south.(Figure 6). The build-ing, which is being designed by Moshe Safdie andAssociates, will respond to the topography by wrap-ping around the site to engage Wyandotte Street,the nearby Convention Center Ballroom, and thedowntown beyond. The ballet school and othereducational campus buildings are aligned along theeast side of Wyandotte Street.

The City is proposing a new ballroom for theConvention Center. This facility will adjoin theexisting Conference Center and expand across theinterstate highway, providing a new front door forthe Convention Center along Wyandotte Street. Alarge plaza high on the hill near 16th and CentralStreet will open out at the level of the main ball-room floor, offering opportunities for bus drop-offsand/or outdoor events. In the future, these facili-ties will be served by a transit stop along the pro-posed Wyandotte transit line.

The Avenue of the Arts, which is concentratedalong Central Street north of the ConventionCenter, will make a transition across Barney Allis

Figure 6. Performing Arts/Convention Center DistrictCentral Street Corridor

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Plaza, and continue with active civic and perform-ing arts activities along Wyandotte Street. Whenadditional space is needed to expand theConvention Center exhibit hall (approximately200,000 gross square feet), this will occur betweenWyandotte Street and Baltimore Street, extendingacross the interstate between 14th Street and 16thStreet.

The key implementation steps in this phase includethe following:

� Design and build Performing Arts Center

� Design and build the Convention CenterBallroom

� Renovate the Municipal Auditorium to includethe National Association of Basketball Coachesfacilities. Maintain and renovate facilities asnecessary to take better advantage of the build-ing’s historic, symbolic, and functional quali-ties.

� Design and build parking structure(s), encour-aging shared use wherever possible

� Improve Wyandotte Street

� Establish incentives package for residentialdevelopment on appropriate sites

Library District

Some of the most spectacular historic buildings arefound within the Library District, including theLibrary itself (Figure 7). These buildings establisha comfortable residential scale, suitable for buildingreuse and renovation as well as new infill develop-ment. In general, the redevelopment parcels arenorth of 10th Street and extend north towardInterstate 70. In order to create an active and

pedestrian-friendly street, the vacant lot along 10thStreet is recommended for residential use, with thepotential for some parking in the center of theblock. Every effort should be made to identifyshared parking opportunities for the Library, takingadvantage of the many garages in the area servingdaytime business uses. Ninth Street is a majorstreet in this district. Along 9th Street and in thecenter of the undeveloped parcels, a new park willprovide a setting for new residential and mixed-usedevelopment. New uses in this area will improvethe connections between the downtown core andthe River Market area.

Figure 7. Library District Plan

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� Renovate Library building

� Identify opportunities for shared parking with-in this district

� Redevelop adjacent parking lot site for residen-tial use with some shared parking

� Establish incentives for residential reuse of his-toric buildings and for new residential con-struction within the district

� Improve 9th Street

South Loop District

The South Loop occupies an important gatewaylocation into downtown (Figure 8). As part of thespine of development between the FinancialDistrict and Crown Center, office is seen as theprime use in this area, but could be supported byretail, restaurants, and perhaps some housing. Newdevelopment will focus on a three-block park along14th Street, anchored at the west end by the land-mark Power & Light building and on the east endby a new arena. The arena effectively buffers the jailand the nearby telecommunications building, whilebridging the distance between the South Loop andthe Government District. The arena is within afive to ten minute walk of the Financial Districtand the Municipal Auditorium, suggesting manyopportunities for shared parking and a rich vibrantdistrict. New parking within the district faces awayfrom the park. In the event an arena is not feasible,another prominent civic destination could occupythis site. Redevelopment in the South Loop willspur investment in adjacent sites, such as the JonesBlock and the proposed reuse of historic structuresalong Grand Avenue.


� Assemble land

� Establish urban design guidelines

� Initiate developers’ RFP

� Plan for shared parking with the FinancialDistrict and the Performing ArtsCenter/Ballroom

Library District

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Downtown Campus on Grand Avenue

The scale of the existing historic buildings alongGrand Avenue suggests an ideal opportunity forreuse as an educational campus in the heart ofdowntown. This campus could be a single institu-tion or a consortium of colleges and universitiesthat are looking for a branch location downtown.Programs might be designed to attract downtownworkers and might include technology and busi-nesses coursework. Alternatively, planning anddesign schools could take advantage of the locationfor research, study, and proximity to the manyarchitectural offices within the City. Students inthe downtown area contribute to active streets andhelp support housing, retail and entertainmentuses.


� Initiate search for educational and/or researchinstitution(s)

� Acquire vacant buildings on Grand Avenue(11th to 13th Streets)


South Loop District Existing Site

Figure 8. South Loop District Plan

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Gateways and Access

The following implementation steps are recom-mended to identify and improve the street hierar-chy, as well as to improve wayfinding, orientation,and access within the downtown:

� Improve 12th Street

� Implement Downtown Council’s Wayfindingrecommendations

� Re-establish two-way street system

� Plan for transit system.

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In years 6 through 10, the PerformingArts/Convention Center District will have beentransformed and the groundwork for the SouthLoop district will be underway. The realization ofopen space and a new mixed-use development inthe South Loop should become the highest priorityto offer new development sites for office uses.

During this phase, the prospect of a downtownarena may gather momentum, providing an anchorfor the South Loop district. Efforts to create thedowntown campus should continue and should becomplemented by improvements to Grand Avenue.

New initiatives in this phase involve interventionsin the Crossroads area to provide a civic open spaceat the juncture of 18th and Southwest Boulevard,develop parking structures, and promote infilldevelopment as necessary. Over time, improve-ments in the West Bottoms should distinguish itfrom downtown and support the American Royal,which sponsors unique events that are authentic tothe history of Kansas City.

South Loop

To continue development within this area, the keyimplementation steps in this phase include the fol-lowing:

� Design and build open space

� Negotiate incentives package and select devel-oper

� Develop arena or other civic building/destina-tion attraction as anchor on Grand Avenue.

Downtown Campus on Grand Avenue


� Develop educational and/or research campus

� Improve Grand Avenue streetscape.

CrossroadsPower & Light Building

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The Crossroads District has already experiencedconsiderable building renovation and reuse forhousing, lofts, galleries, and restaurants. Newdevelopment will fill in the gaps in the streetfacades and activities. Stakeholders identified theneed for parking to support any further develop-ment. New parking structures within the districtshould be carefully located in the interior of blocksand with the narrow end fronting on the street. Anew park at the intersection of 18th Street andSouthwest Boulevard, as suggested in the FOCUSPlan, will create a focal point for the community(Figure 9). In this new center, retail uses mightcluster around the park. The 18th Street Corridorfrom the Jazz District and Southwest Boulevardfrom the Freight House District will meet at thisimportant civic space.

The key implementation steps in this phase include

the following:

� Develop district parking structure(s)

� Design and build Crossroads Square

� Assemble key parcels as necessary to promoteinfill development.

West Bottoms

The West Bottoms is physically and perceptuallydistant from downtown, separated by considerablegrade differences. In order to minimize competi-tion with downtown, new investment in this areashould further enhance its distinct features and his-tory, such as the American Royal, large outdoorevents and festivals, and animal shows. In general,office, residential and retail uses should be targetedfor downtown wherever possible in order to con-centrate development. This suggests that the WestBottoms’ revival will proceed on its own steam orbe realized in the long term. The key improvementsin this area might include an expansive public gath-ering space – a fairgrounds – that could supportAmerican Royal events and accommodate outdoormusic events and cultural festivals. The fairgroundsshould be linked to the Kaw River, with its boatingpotential, and to the regional trail system in thearea. In this phase, key implementation stepsinclude:

� Develop outdoor public gathering space (“fair-grounds”) near American Royal and KemperArena.

Access and Circulation

� Design and build initial transit phase.

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Figure 9. Crossroads Square Plan

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Once the heart of downtown takes on new life,efforts can begin to shift outward to address sur-rounding areas. Residential areas in the East Loop,the North Boulevard, and the Riverfront Districtwill further enhance downtown, providing a rangeof housing choices for people wanting proximityand a downtown lifestyle. In the long-term, theConvention Center plans to build additional exhi-bition space.

East Loop

With its hilltop location, the East Loop will com-plement Quality Hill and help encircle the down-town core with new residential neighborhoods(Figure 10).In the center of the neighborhood, a new park will

establish a different character in this area, improv-ing the setting for housing. High density, low- tomid-rise housing will define streets and park areasand bring enough people to the area to create asense of community.

The key steps in this phase include the following:

� Assemble land� Establish urban design guidelines� Design and build open space� Initiate developers’ RFP and select developer

North Boulevard

The North Boulevard re-introduces Kansas City’sfamous boulevard system into the downtown area(Figure 11). Following the precedent of manycities, this will involve the removal of a section ofthe highway to break down the chokehold on theLoop. Within this reclaimed land, the boulevardwill help distribute traffic while providing a morepedestrian friendly and green open space setting fornew development. The scale of the highway right-of-way would also allow a major new destinationpark within the corridor, bridging the downtownLoop to the River Market. The vision for this areasuggests a long-range goal that may evolve in thelong term beyond the twenty-year mark.

While extensive preliminary work would beinvolved in studying the existing highway systemoperations and alternative routes and capacity, thesummary of key implementation steps in this phaseare as follows:

� Close North Loop of highway� Assemble land � Establish urban design guidelines � Develop parks system and boulevard� Initiate developers’ RFP and select developerBerkley Riverfront District

Figure 10. East Loop Plan

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A new residential community in the BerkleyRiverfront District could blend high density hous-ing types in a semi-suburban setting, offering a dis-tinct product from downtown. This model is wellestablished in Memphis at Mud Island and hasbeen quite successful. While the steps below couldrespond to earlier opportunity and interest, theriverfront area is seen as too distant from down-town to justify significant focus in the first phases:

� Enhance Berkley Park with a new fountain

� Develop urban design guidelines

� Assemble land and seek developer through RFPprocess

Convention Center District

� Design and build exhibit floor expansion forConvention Center.

Access and Circulation

� Design and build additional phases of transitsystem.


Figure11. North Boulevard Plan

Riverfront Fountain Opportunity

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The proposed development plan evolved out of anunderstanding of the likely timing and feasibility ofkey projects, such as an arena. During the meet-ings and work sessions, there was considerable dis-cussion over the amount of spin-off benefit from adowntown arena, the relationship a downtownarena would have with the existing Kemper Arena,

and the need to identify a professional team beforecommitting to the capital investment in a newfacility. Without a clear consensus on the need ordesire for a downtown arena, the final plan sitesthis facility east of Grand Avenue. Siting the arenaeast of Grand Avenue frees up valuable real estate inthe South Loop in the event that the arena is notdeveloped for many years, if at all. Development inthis district, which has been held back for manyyears by prior development plans that were neverimplemented, will be able to proceed, transformingthis key gateway area to downtown.

Nevertheless, development is often opportunitydriven. In the event that funding became availablein the next year or so for a professional team and anew facility, it may be appropriate to reconsider anarena site closer to the Convention Center (Figure13). Careful urban design will be required toensure that this location does not preclude addi-tional development east of Grand Avenue and thatconnections are made to the government district.

Figure 13. Alternative Concept for the Arena Siting

Figure 12. Berkley Riverfront District

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The following key economic and market issues arecovered in the paragraphs below:

� Public Assembly Facilities—Arenas,Conventions, Arts—and their Value toDowntown

� Attractions and “Catalyst” Projects:Aquariums, Museums, etc.

� Housing: Market Support and DevelopmentEconomics

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The web of public assembly facilities in KansasCity is an important contributor to the regionaleconomy. The facilities that are located downtownhelp to enliven the area and support restaurants andhotel occupancy and other businesses.

Sports Facilities

Sports facilities have frequently been employed as aredevelopment tool by cities in anticipation that theactivities inside the arena or stadium will create suf-ficient adjacent activity to act as a catalyst for newdevelopment in the surrounding blocks.

The evidence in Denver, Cleveland, and other citiessuggests that this expectation is met in certain cir-cumstances. In our experience, arenas—particular-ly those that host two big-league teams—have thestrongest spin-off potential. Football stadiums,unsurprisingly, bring little benefit to adjacentparcels, and ballparks fall somewhere in between.

Arenas offer several advantages for a downtown:

� They can host two teams within the same facil-ity (increasing the number of events)

� They can host a wider variety of secondaryevents (concerts, ice shows, circuses, etc)

� They can augment and enhance conventionspace.

In Kansas City, the question of a downtown arenaraises several key issues. First, the existing KemperArena, with a series of planned capital improve-ments, is seen as generally supportive of the marketfor events in Kansas City. Kemper carries about$24 million in existing debt, which is scheduled tobe retired in 2005. Simply relocating these existingevents, and even a marginal addition of dates to theexisting schedule, would bring relatively littleregional economic impact. While relocating theseevents to a downtown site might create additionaldemand for downtown restaurants and otheramenities, the impact would be relatively minor.

If the arena served a major league franchise (NBA,NHL, or both) the impact would be significantlygreater. The nature of the patronage for big-leaguegames, and particularly the participation of majorregional corporations, would magnify the local ben-efits to downtown. Such a crowd typically spendsmore outside the arena, and may be more vested inthe success of the enterprise.

Market and Economic Issues

44.. MMAARRKKEETT AANNDD EECCOONNOOMMIICC IISSSSUUEESS

Bartle Hall Convention Center

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However, development of an arena in advance of ateam is a highly risky proposition. In recent years,only New Orleans—with its considerable existingtourism economy and proven ability to host majorevents—has built an arena “on spec.”

The planned relocation of the Vancouver Grizzliesto Memphis is instructive. Faltering attendance inVancouver led the team owners to scout new loca-tions. The “shortlisted” cities were Memphis,Louisville, Anaheim, and New Orleans. KansasCity could certainly compete on demographics andmarket size with these cities. However, at the endof the day the site selection was not about marketdemographics—it was about corporate support.FedEx and AutoZone, two leading Memphis corpo-rations, made major commitments to the team,including a financial commitment for a new arena.

Other small-market teams may move in the future,indicating that the development of a new arena andrecruitment of an existing or expansion franchisemay not be a long-term solution. Low attendancein Charlotte, for example, could result in the loss ofthe NBA Hornets, which would dramaticallyreduce the out-of-arena spending that occurs inthat city’s downtown.

Convention Center

Conventions and meetings are important to down-town. Bartle Hall currently hosts about 389 eventsand has a total attendance of one million. Thecomplex at Kemper hosts fewer events, but theaverage attendance is larger, at about 1.2 millionper year. Many attendees are from out of town andbring new money into the Kansas City economy. In1999, for example, meetings and conventions gen-erated over 500,000 room nights, sufficient to sup-port about 11 average-size hotels.

Annual room nights booked for convention busi-ness expanded by 114 percent from 130,183 in1992 to 278,906 in 1999. While business has fall-en off slightly since the peak years of 1997 and1998, 304,000 and 309,000 room nights respec-tively, the Convention and Visitors Bureau ofGreater Kansas City believes that the trend willreverse itself in the coming years.

The Convention and Visitors Bureau recently stud-ied its future needs. While the Convention andVisitors Bureau is not immediately planning toexpand the exhibit space, it would like to acquireland to make future expansion possible. In order toaccommodate the Performing Arts Center to thesouth, the likely location for the future exhibitspace will be east of the existing conference center,spanning the highway.

The Convention and Visitors Bureau anticipatesbeginning construction of a new ballroom in 2002.Demand for ballroom space increased significantlyover the past five to ten years. Kansas City hasbeen unable to accommodate business that requiressuch space. With the completion of the ballroom,the Convention and Visitors Bureau expects torecapture much of the business that was lostbecause of disqualification in the past. This actionis expected to compensate for the recent downwardtrend in convention business.

The Arts

A third component of the revival of Americandowntowns in the last decade has been the arts.The positive effects of the arts upon the city aremost evident when:

� An identifiable arts and cultural district is pres-ent (facilities are clustered in the same generalarea)

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� A mix of facilities is present (museums, the-aters, art galleries etc.)

� Appropriate support businesses are present(restaurants, cafes, bars etc.)

� Partnerships are formed between businesses andcultural groups

� The subject matter pertains to authenticstrengths of the area

Arts uses can be important economic engines.They have high attendance relative to other facili-ties, and they are open daily and are alive duringweekends and at night. Performances often coin-cide with opportunities for dining or entertainmentbefore or after the event. The economic punch canbe powerful. Denver’s more than 300 cultural andscience related organizations drew 7.9 million peo-ple in 1997, some 41 percent more than theBroncos, Nuggets, Rockies, and Avalanche com-bined (1996-1997 season).

The proposed Performing Arts Center in down-town Kansas City can be an important new activitygenerator downtown. It will not generate sufficientactivity on its own to spur substantial new privatebusiness investment. However, as part of a systemof arts uses, supporting businesses, new housing,and public investments in the surrounding environ-ment, the Performing Arts Center could be a cata-lyst for the South Loop area. Based on our experi-ence in other cities, the impact of the PerformingArts Center on existing facilities is likely to be posi-tive overall. Individual facilities might lose particu-lar events or users, but the general experience ofother cities is that a flagship facility of the type pro-posed will “lift all boats.”

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Other cities of similar size have used various kindsof attractions and entertainment facilities toenhance their downtown areas. Chattanooga, forexample, has used several large-scale public projectsto enliven its riverfront and downtown. TheChattanooga Regional History Museum, a $30 mil-lion public-private project, is expected to draw300,000 annual visitors, augmenting the one mil-lion visitors drawn each year to the TennesseeAquarium, which cost $50 million and opened in1992.

More modest facilities, with strong thematic link-ages to the city, can also be valuable agents for rede-velopment. The downtown Louisville SluggerMuseum, a private facility that generates annualattendance of about 200,000, has helped create arevival of the West Main Street district in down-town Louisville. The Louisville Science Museumand IMAX Theater is across the street, generating aconcentration of visitor activity.

Many other examples exist. Attractions generallyrequire some combination of public and privatefunding. The most comparable situation in KansasCity is the City’s involvement as the major fundingentity of catalyst projects in the River Market area,which is generally considered successful.Experience at Science City in Union Stationdemonstrates the challenges of attracting and sus-taining the attendance required to support thesefacilities over the long term.

Anticipating which attractions would be best fordowntown Kansas City is difficult. A successfulattraction usually requires the sponsorship andadvocacy of a specific regional constituency (likethe current performing arts center proposal).


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However, as a preliminary set of criteria, we pro-pose that attractions work best as downtown activa-tors when:

� The attractions are proximate to one another,or where transit linkages reduce the apparentdistance

� They appeal to a wide range of demographicsegments (children, young adults, oldertourists, etc.) over a wide range of daily andseasonal cycles

� They reflect the local heritage and culture of aplace

DDoowwnnttoowwnn HHoouussiinngg

Kansas City, as in most cities across the country,has seen strong interest in living downtown. Anumber of successful loft conversions have beencompleted, and developers are now building new,for-sale housing in the strongest locations down-town. The supply remains relatively small, howev-er, although most observers are convinced thatdemand exists to support more units. Rents are akey challenge, as they are too low to support mostforms of new development, and the supply ofbuildings that are in strong locations and that aresuitable for historic tax credit deals is dwindling.

The Kansas City Metropolitan Area, as defined bythe U.S. Bureau of the Census, is comprised ofKansas counties Johnson, Leavenworth, Miami,and Wyandotte, and Missouri counties Cass, Clay,Clinton, Jackson, Lafayette, Platte, and Ray. TheMSA population has grown 12.2 percent since1990, adding nearly 200,000 new residents, and isprojected to add another 98,000 residents in38,000 households over the next five years.

Multi-family unit permits in downtown KansasCity increased from 182, in 1997, to 410 units in15 buildings in 1998, dropped to two in 1999, butrecovered in 2000 with a projected year-end total of264 in 2000. About 1,200 lofts exist downtown,and we identified another 600 to 800 units in plan-ning stages. The supply of buildings suitable forconversion in the traditional loft sub-markets—theGarment District and the River Market—is thin.However, the Freight House District, the WestSide, and the Crossroads area have substantialpotential.

The vast majority of units are rental apartments.Conover Lofts, a new project in the River Marketarea, is being marketed as condos, with several pre-mium-priced units (as high as $970,000). Theproject is reportedly 50 percent pre-sold at an aver-age of $206 per square foot, well above the experi-ence of previous projects.

Generally speaking, however, achievable rents aresufficiently low that preservation tax credits orother incentives are required to close the gapbetween actual costs and supportable costs. Lowand moderate income housing tax credits wouldalso work but have not been widely used, in partbecause of a low allocation of credits to KansasCity.

In all but the best units, rents remain below $1.00per square foot per month, which developers esti-mate is 20 to 40 percent below what is needed tosupport all-in development costs. This means thatdowntown housing works as long as the costs ofland and parking are excluded. At these rent levels,the minimum annual salary required to afford mar-ket-rate housing downtown is $35,000.

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The most compelling new downtown housingmodel appears to be a moderate-density product of35 to 45 units per acre, in a mid-rise configuration,wrapped around structured parking. These kindsof projects, which were pioneered by JPI, PostProperties, and others, have been popular in Dallas,Denver, and other similar-sized cities. Rents wouldneed to rise, however, or effective developer costswould have to fall, before these would be feasible inKansas City.

Tax abatement appears to be a meaningful incen-tive, adding an estimated four to five percentagepoints to the developer’s return. Abatements arepotentially easier to administer, and with muchlower transaction costs, than TIF. Local developerssee the history of recent TIF projects, particularlyin the Freight House District, as problematic.

The Mayor’s River-Crown-Plaza initiative, whichaims to create 10,000 new units of housing in cen-tral Kansas City, is ambitious on the supply side,but realistic as it relates to demand. Our analysisshows that such an initiative would need to captureonly a small percentage of area-wide demand toachieve this kind of result. The challenge will be tocreate incentives sufficient for developers to takethe risk of building in the face of what they andpotential investors might see as an unproven mar-ket.

The community has accomplished this before, withthe Quality Hill initiative, where a combination ofreturn-driven private capital, “patient” private capi-tal, and public funding produced a remarkableresult. The magnitude of the required incentivewill be substantially lower today, but the need forincentives has not been eliminated.


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Downtown Kansas City, like many Americandowntowns, faces significant competitive challengesfrom other development concentrations in theregion, both in the suburbs and in other parts ofKansas City. One aspect of these other places thatmakes them more competitive is the fact that theyare often centrally managed and marketed. Thisreflects the unified ownership and managementstructure of these places.

Downtown areas across the country have respondedby creating institutional mechanisms to coordinatethe actions of individual property owners, propertymangers, tenants, and city agencies. The objectiveis to compete more effectively by providing a high-er level of service. “Service,” in this context, hasmany different dimensions: cleanliness, public safe-ty, marketing and promotion, and ongoing devel-opment and redevelopment.

Public agencies typically provide services to down-town areas, just as they do for the rest of their juris-dictions. Many cities have discovered, however,that an additional level of service, funded by thosewho directly benefit, can enhance the economicperformance—hence property values—downtown.This usually requires the formation of a businessimprovement district or, as it is known in Missouri,a Community Improvement District (CID). Thesespecial districts, created by local government butusually managed by private, not-for-profit corpora-tions, collect fees from commercial property ownersand spend the money on additional services in thedowntown area.

The Downtown Council has considered forming aCID in Kansas City for several years. With thecompletion of this plan, the issue has gained addi-tional momentum, and efforts to gauge its feasibili-ty are now underway.

A CID, or similar structure, is often the core of asuccessful downtown management effort.However, such an organization is seldom sufficientby itself to accomplish the kind of change envi-sioned in this document. The specific componentsof a broad-based downtown redevelopment effortare discussed below. First, however, is a series ofperformance characteristics for a DowntownDevelopment and Management Entity:

� An entity should have a steady and predictablefunding stream, making it less dependent onannual appropriations and enabling it to planfor multi-year initiatives.

� An entity should have a degree of political inde-pendence, or insulation from the periodicupheavals that characterize most local govern-ments. Open channels of communication anda strong working relationship with the Cityalso are essential.

� Continuity of leadership reinforces an entity’sability to hold steady on a course based on along-term vision.

� Because private-sector credibility is particularlyimportant, and because such organizationsmust deal in a confidential environment, pro-fessional staff, a businesslike approach, and time-ly decision-making are key.

� Perhaps most important is a unique geographicfocus on downtown. The organization must bethe lead advocate for downtown interests.Elected leaders and city staff must respond todistrict-wide or community-wide constituen-cies. Those involved in the Downtown Entityare not compromised in this manner. Theirarea of interest is clear and consistent.

55.. IIMMPPLLEEMMEENNTTAATTIIOONN AAPPPPRROOAACCHH

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Implementation Approach

The need to form this type of organization usuallyleads to a private sector, not-for-profit managementstructure. Several different organizations, eachreflecting a specific mission or scope, usually areorganized under a central management umbrella,with a single executive director and one governingboard. Each constituent organization may have agoverning committee on the board or may haveindependent boards. The Denver Partnership, con-sidered one of the most successful downtown man-agement entities in the country, has four organiza-tional components, all staffed and coordinated bythe Partnership. A prototypical organizationalstructure might look like the one outlined below.

KC Community Improvement District

The Community Improvement District (CID) isusually the genesis of the downtown entity. Itsfocus in Kansas City would be on making down-town clean, safe, and attractive. Funded principallyby special property assessments, perhaps augmentedby city appropriations, it would supplement cityservices downtown. CIDs require the approval ofboth a majority of the individual property ownerswithin the proposed district, as well as the approvalof the owners who constitute a majority of theassessed value within the district.

The marketing of such an approach requires anunusually detailed understanding of the level ofcurrent city services to help assure property ownersand tenants that the CID will not duplicate currentCity services. Cities of comparable size have annu-al operating budgets for these kinds of organiza-tions in the range of $2 million to $5 million, withassessments of 12 cents to 20 cents per square footof commercial space. A realistic operating budgetand assessment in Kansas City will depend on thespecifics of the services plan and on the ability andwillingness of property owners and tenants to pay

the assessment.KC Events

Downtown promotions and sponsorship and themarketing of special events constitute a centralactivity for these organizations. Because these func-tions usually involve significant fee revenue, andbecause the expenditures may not be directly relat-ed to the CID services program, many cities estab-lish separate events-management organizations.

KC Information Services

Data is the lifeblood of downtown developmentplanning. A competent downtown managementorganization must establish a strong foundation ofdata regarding real estate market conditions, demo-graphics, retail spending and sales, and the like.This function adds depth to the planning andinformational underpinnings of downtown.Membership dues, foundation support, and limitedfee income can fund such an entity.

KC Downtown Development Corporation

The Downtown Development Corporation is per-haps the most challenging to create, but one of themost important of the various downtown manage-ment entities. These organizations are intended toprovide private-sector leadership and responsivenessto augment public redevelopment powers. Theyusually operate by brokering and focusing existingpublic redevelopment tools such as tax-incrementfinancing, eminent domain, and tax incentives. TheCity currently is coordinating these functions fordowntown and citywide projects. Key activitiesinclude the acquisition of priority redevelopmentsites, the packaging of projects and the recruitmentof developer partners, and negotiation of develop-ment incentives—all with a clear focus on down-town.

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Many different models exist. In Denver, for exam-ple, Downtown Denver Inc., is a membershiporganization that advocates for downtown develop-ment, working in concert with the Denver UrbanRenewal Agency, which operates under clear policyguidance regarding downtown planning and devel-opment. Two entities exist in Louisville: a public-sector entity, the Louisville DevelopmentCorporation, and a private, not-for-profit organiza-tion, the Downtown Development Corporation.Redevelopment activities are shared between thetwo. Philadelphia’s Center City District encom-passes a BID as well as the Central PhiladelphiaDevelopment Corporation, which works in concertwith the Philadelphia Industrial DevelopmentCorporation to advance downtown developmentprojects. Washington DC started with the BID,then created a “developer’s roundtable,” which hasjust been formalized as the Center City Partnership.It will work with the city’s new National CapitalRevitalization Corporation, in which are vested thetraditional redevelopment powers. These modelsshould be explored further to establish the mostappropriate Downtown Entity for Kansas City.

The planning, design and implementation of adowntown development strategy is an ongoingprocess that will require the input and active partic-ipation of many diferent parties. The recommen-dations of this plan should be distributed to down-town stakeholders in the public and private sectorfor their use in moving fordward on the priorityprojects.


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This report was prepared for the Civic Council ofGreater Kansas City, in cooperation and partnershipwith The Greater Kansas City Chamber of Commerce,the City of Kansas City, Missouri, and the DowntownCouncil, with significant input and participation by hun-dreds of stakeholders of Downtown Kansas City,Missouri.

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