Works Cited

Beedles, S. (2007, November 5). Director of Compensation & Benefits, Case Western
Reserve University. (J. M. Russell, Interviewer)

Case Western University. (2007, October 26). University, Cuyahoga County team up to create wind
energy research center on Lake Erie. Retrieved November 24, 2007, from
http://admission.case.edu/admissions/news/news_story.asp?iNewsID=716&strBack=%2F
admissions%2Fnews%2Fnews%5Farchive%2Easp

City of Cincinnati Community Development and Planning. (n.d.). LEED-CRA Tax

Exemption Program. Retrieved December 2, 2007, from City of Cincinnati:
http://www.cincinnati-oh.gov/cdap/pages/-16936-/

City of Cincinnati Community Development and Planning. (n.d.). Residential CRA Tax
Abatement. Retrieved December 2, 2007, from City of Cincinnati: http://www.cincinnati-
oh.gov/cdap/pages/-3521-/

Katz, B. (2007, June 29). The Goal for Ohio Metros: 43,000 Residents. The Plain Dealer .

The Competitiveness of Downtown Cleveland

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TABLE OF CONTENTS

INTRODUCTION .....................................................................................2

HOUSING IN DOWNTOWN CLEVELAND .........................................2

COME HOME CLEVELAND ..................................................................6

EDUCATION ........................................................................................... 10

GREEN HOUSING INITIATIVES........................................................ 13

GREEN CLEVELAND ............................................................................ 14

BIKING IN CLEVELAND ...................................................................... 16

PUBLIC ART ............................................................................................ 19

WAYFINDING SIGNAGE ...................................................................... 19

The Competitiveness of Downtown Cleveland

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THE COMPETITIVENESS OF CLEVELAND

When looking at ways in which downtown Cleveland can be a competitive city in the

urban market, hours of brainstorming and many issues came to the table during our group

meetings. We mentioned countless topics ranging from education, housing, streetscape,

green space, marketing, and etcetera. Ultimately, we decided to separate the issues into three

general areas: downtown living, education, wayfinding signage and streetscape alterations,

and sustainable improvements. The City of Cleveland should come to the realization that we

have the assets needed to be a competitive midsized city we just need to utilize them more

effectively.

Our project briefly touches on several areas throughout Cleveland that could be

improved in order to make it more competitive. We recognized that although there are many

issues in need of attention, we do not have the perfect answer to solve the problems.

Therefore, we considered the current and future projects in place for downtown Cleveland

as well as the many venerable assets. Thus, we are establishing our recommendation

accordingly.

Housing in Downtown Cleveland

Jason M. Russell

The true measure of a good neighborhood is the people that live there. It is the

residents that make the neighborhood. Downtown Cleveland is as much a neighborhood as

Buckeye/Shaker or Ohio City. However, downtown does not have nearly as many residents

as these neighborhoods. Downtown Cleveland has many amenities to attract people to the

neighbor. One such amenity is the housing stock. Downtown Cleveland is fortunate to have

experienced a tremendous investment in the renovation warehouses and office buildings into

stylish lofts and condos. This type of housing is very attractive to young & old empty

The Competitiveness of Downtown Cleveland

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nesters, but especially the young variety. It is these young empty nesters that will help make

downtown Cleveland and the region more competitive. The state of Ohio and particularly

Northeast Ohio has experienced tremendous “brain drain” in recent years. We have

excellent institutions of higher learning, but the students choose the leave the state rather

staying. While the issue is very complex and goes beyond housing, the creation of a “new &

hip” housing stock in downtown Cleveland at least makes the neighborhood attractive to the

young, talented individuals looking for urban living. Building the housing stock is only half

the battle; there must also be demand for the new housing.

To increase the demand for housing in downtown Cleveland, an employee assisted

housing program could be created to attract individuals to the neighborhood and assist them

in finding housing. Employer Assisted Housing (EAH) is not a new concept. It has been in

use for over a decade throughout the country. Case Western Reserve University enacted an

EAH program in 2004, which offered down payment assistance to its employees on homes

within the City of Cleveland. In the inaugural year of the 81 applicants, 61 were approved

(Beedles, 2007). Similarly, the Fairfax Renaissance Development Corporation administers

the Cleveland Employer Assisted Housing Program (CEAHP). CEAHP “provides

forgivable loans to homebuyers for employees of the Cleveland Clinic Foundation and

University Hospitals” (Residential Housing Development by Fairfax Renaissance

Development Corp.). The loan is forgiven in twelve months as long as the homebuyer

remains an employee of the organization providing the loan. The UCI Development

Corporation is planning a similar program to include other employers in the University

Circle area. The effort is being spearheaded as revitalization tool for the University Circle

neighborhood. EAH is a proven concept and has worked elsewhere in Cleveland and could

help to revitalize downtown Cleveland.

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 Downtown Cleveland has a large number of employers that could participate in

EAH, but what are the benefits to the employer? EAH has been pitched to businesses as a

tool for the four “R’s”, Recruitment, Retention, Revitalization, and Relations. “EAH can be

a cost effective business strategy for employers who are having difficulty recruiting or

retaining workers in locations with tight housing markets, or who are operating in distressed

communities” (Neighborhood Reinvestment Corportation, p. 8). In terms of recruitment,

offering a housing benefit to employees can be construed as being as good as or better than

a retirement or medical plan. A housing benefit is something tangible and is utilized every

day. Even in Cleveland’s soft real estate market, a housing benefit can be a substantial

recruitment tool. Rents in downtown Cleveland, while low in urban living standards, are high

compared to rental rates in the rest of Cleveland and the surrounding region. Also, with

higher commuting costs and Northeast Ohio’s auto dependent configuration, living near

your workplace is becoming more desirable. A 1997 American Housing Study found that

30% of moving parties did so to be closer to work or school. (Neighborhood Reinvestment

Corportation, p. 14) (See Appendix 1.1) Companies already offer van-pooling programs and

mass transit vouchers to help their employees get to work, so why not help employees

simply live closer to work.

Retention is very important for companies. Fannie Mae estimates that staff turnover

“can cost an employer between $10,000 and $20,000, which includes separation,

replacement, and training costs.” (Neighborhood Reinvestment Corportation, p. 16) An

EAH program can be “structured so that employees are incentivized to stay.”

(Neighborhood Reinvestment Corportation, p. 17) Housing benefits should be offered

immediately upon hiring and should be contingent on sustained employment and include a

The Competitiveness of Downtown Cleveland

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penalty for leaving the company. Essentially, your housing would be tied to your

employment. Workers are less likely to leave a company if their housing is tied to it.

Revitalization is the goal for downtown Cleveland, an EAH program can help

achieve the goal and benefit employers as well. EAH increases the number of people living

in the targeted area. With more people comes greater vitality. Increased street traffic brings

new retailers to downtown and the sense of safety is increased because of the greater

number of people on the streets at all hours of the day. Many chain retailers have set

demographic standards that must exist in order for them to locate in a geographic area. For

downtown Cleveland, that number has commonly been stated as 20,000 people. Current

downtown residents often complain of a lack of a grocery store and other services needed

on a day to day basis. The only cure is to increase the number of people living downtown to

lure retailers to the neighborhood. More residents also increase the sense of safety among

residents. Currently, downtown Cleveland becomes a ghost town after 6pm. Residents living

downtown often feel lonely on the streets and fear the homeless that lurk on the streets.

Additional residents adds to the number of people on the streets and as the saying goes there

is “safety in numbers”.

Employer Assisted Housing could be used as a community relations tool. If benefits

are restricted to a specific geographic area, the company providing the benefit can further

express their commitment to the community. “The 1998 Fannie Mae survey found that 72

percent of human-resource professionals whose employers had an EAH program believed

that the firm’s image in the community had improved as a result” (Neighborhood

Reinvestment Corportation, p. 20). The city benefiting from increased tax revenue could

offer additional tax benefits. The resulting symbiotic relationship between corporations and

the city increases the marketability and image therefore increasing the recruiting power of

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corporations. A final benefit of an EAH in downtown Cleveland is reduced commuting

which is interwoven into the “four R’s”. Having employees living within downtown

Cleveland reduces the dependency on an automobile. This would reduce the amount of

emissions placed in the air. Secondary, to the environmental benefits, workers in closer

proximity reduces absenteeism of workers.

Come Home Cleveland

Jason M. Russell

An employee housing assistance program in downtown Cleveland, which we have

termed “Come Home Cleveland” (CHC), would be a multi-tiered non-profit organization.

The organization would assist in promoting and marketing itself and living in downtown

Cleveland, distribution of financial housing assistance, and function as a real estate

consultant and housing consultant. CHC would operate as an intermediate for downtown

employers to offer a housing benefit to their employees and would be funded through

contributions from enrolled employers in the downtown area.

Educating employers about the benefits of offering its employees a housing benefit

is an important aspect of CHC, as it helps maintain the organization and achieves the goal

revitalizing downtown Cleveland. Employers should realize that a housing benefit serves

employees as well as itself, with increased retention and revitalized neighborhood

surrounding their company. CHC can educate the larger employers but also attract smaller

employers as well. CHC could pool smaller employers that could not offer the benefit on

their own to do so. “By grouping together, employers of varying size can gain sufficient

economies of scale to be able to offer housing assistance” (Neighborhood Reinvestment

Corportation, p. 33). Marketing will be crucial because there is a negative connotation

associated with living in downtown Cleveland, such as the neighborhood not being self with

the number of homeless in the area. With stagnant population growth in the region, many

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residents that are attracted to live downtown will more than likely come from within the

region. CHC will be responsible for educating the region about the benefits and amenities

that downtown living can offer.

Providing financial housing assistance will be the primary function of CHC. Multiple

funding opportunities have been proven to work in similar EAH programs throughout the

country. Some programs are on a case by case basis, in which the company applies a

forgivable loan to an applying eligible employee, other programs are funded from a pool of

employers that pay a set amount each year for the program, and finally tax credits can be

applied to monies given by a company that goes toward a housing benefit. A funding source

appropriate for downtown Cleveland has yet to be determined by our group; however we

can make recommendations on how the funding source for CHC should look like.

The Fairfax Renaissance Development Corporation’s Cleveland Employer Assisted

Housing Program, is a local example of a case by case housing assistance program. Eligible

employees of the Cleveland Clinic receive a $10,000 forgivable loan towards the purchase of

a home in the city of Cleveland and an additional $5,000 from the Cleveland Foundation if

their purchase is in the Fairfax neighborhood. This example shows how a third party can

further improve the incentive for individuals to locate in targeted neighborhoods

Another funding source that we recommend is simply a variation of the first, but

creates greater financial incentive for employers to participate in employee housing

assistance. We feel the state of Ohio should offer state tax credits for employers that offer

EAH. This concept is not reinventing the wheel. The state of Illinois through the Regional

Employee Assistance Collaboration for Housing (REACH) offers a 50 percent tax credit for

each dollar spent towards housing assistance and provides matching funds. When combined

with federal tax credits, the cost of EAH is drastically reduced for employers. (See Appendix

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1.2) If these tax credits were limited to EAH programs targeted at urban neighborhoods it

could become a step towards state support of urban revitalization. While this

recommendation is beneficial for all parties involved, we are realistic in the slow pace of the

Ohio legislature and feel an alternative funding source would net near-term gains while the

legislature considers tax credits for EAH.

Distribution of funds for housing assistance is yet another area where options

remain. Typically, funds are given in the form of forgivable loans. Forgivable loans

encourage employee retention because if the employee leaves the company before the loan

has been forgiven, the employee must pay the remaining portion or the entire amount of the

original loan. These loans are used to reduce the up-front costs of home ownership, such as

the down payment and closing costs. Downtown Cleveland offers a unique situation as

97.38% of the occupied housing units in downtown Cleveland were rental units based on the

2000 Census. (Northeast Ohio Community and Neighborhood Data for Organizing) (See

Appendix 1.3) Rental assistance is more difficult to administer than housing assistance,

because assistance is needed on a monthly basis. Rental assistance could be applied to the

security deposit and monthly rent could be subsidized. Any form of assistance would be

under strict geographic limitations that only included downtown Cleveland. Some EAH

programs have income limitations, but such limitations could hurt the goal of creating

vibrant, mixed income neighborhoods within downtown Cleveland.

Downtown Cleveland offers many housing options for potential residents to choose

from. CHC should function as a real estate consultant for those looking to live downtown.

Potential residents could contact or visit CHC to view all the residential communities in

downtown Cleveland rather than spending time going from one unit to the next. CHC could

also market the entire district that the housing units are located. For example, the Warehouse

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district offers a unique housing experience in renovated lofts, while the new Wolstein project

is becoming an entire community on itself with a grocery store and movie theater.

The final component of CHC is housing consulting. Home ownership has been the

American Dream for nearly a century; however in these increasingly complex economic

times buying a home can be a dangerous endeavor, evident with sub-prime mortgage crisis.

A requirement for receiving housing assistance would be home buying consultation. Such a

requirement would educate participants on the home buying experience and give them

necessary financial knowledge to maintain a mortgage in the long run. Rental assistance

participants would be educated on saving for home ownership.

In order for the climate of cities like Cleveland to change these types of initiatives

must be created, fostered, and expanded to attract and retain new industries. CHC is an

appropriate initiative for such a goal. While we are optimistic of the success of CHC we

know tremendous work is still required before implementation. Convincing employers that

EAH is actually a benefit, creating a simple, easily used program and specific program

guidelines, remain significant barriers that CHC must overcome before implementation. In

an ideal world, CHC would be limited to downtown Cleveland, however during negotiations

with companies, these boundaries may expand to include more Cleveland neighborhoods,

but we still feel employees choosing to reside in downtown Cleveland should receive greater

assistance such as in the CEAHP administered by the Fairfax Renaissance Development

Corporation.

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Education
Jason M. Russell

Education is an important factor in any region, Northeast Ohio is no different. The

recent talk of creating a state university of excellence in the region has brought the subject of

higher education in the region to the forefront. While we understand the logic behind

combining the University of Akron and Cleveland State University, we feel the complexity

and lengthy implementation schedule of such an endeavor would not bring near term

economic benefits to downtown Cleveland. Instead we prefer to review the present and

make recommendations, without considering the possibility of a merger.

Educational and health care institutions are economic engines for a city and region.

They create research incubators that spur potential of opportunities for manufacturing. Even

during poor economic times, students attend college and residents require medical care,

these institutions do not go into recession. In Northeast Ohio, where the economy has been

struggling for years, these institutions have played a vital role in keeping the region

competitive. Building upon these economic assets would help serve downtown Cleveland

and the surrounding region.

Cleveland State University is the largest institution of higher education in downtown

Cleveland. Cleveland State University for years has carried the enviable reputation of being

the “13th grade”. We commend Cleveland State University for discontinuing open

enrollment, increasing student residency, opening up the physical campus, and updating

facilities thus promoting economic development along its portion of Euclid Avenue. These

improvements and policy changes have positioned the university to become a significant

participant in the economic revitalization of downtown and the region. However further

improvements could be made.

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 We base our following recommendation on Bruce Katz’s, Vice President and

Director, Metropolitan Policy Program of Brookings Institute, “The Goal for Ohio Metros:

43,000 residents”, which focused on the revitalization of Ohio cities. Mr. Katz stated that

“some 50 four- and two-year colleges are located in the eight Ohio cities highlighted by our

report and should be encouraged to develop downtown satellite campuses” (Katz, 2007). We

feel that this objective can be achieved by collaboration. The potential restructuring of

higher education in Northeast Ohio, creates a great opportunity for our recommendations to

be considered. Perhaps Northeast Ohio is served better from greater collaboration rather

than mergers of its institutions of higher learning. The Kent State University Urban Design

Collaborative is a great example of the collaboration that we are recommending.

The Kent State University Urban Design Collaborative is located in downtown

Cleveland and is a satellite campus of Kent State, which offers an urban setting for a

curriculum that focuses on improving the urban environment. Students from Kent State

University and Cleveland State University are permitted to take courses at the Urban Design

Collaborative; likewise Kent State students are able to take course at Cleveland State

University Maxine-Levin College of Urban Affairs to complete their urban design

curriculum. This collaboration utilizes already established resources and creates an alternative

learning environment that maximizes the educational experience. This style of collaboration

could be duplicated in other academic fields.

Cleveland is fortunate to have the second largest performing arts complex in the

country. However, Playhouse Square remains an untapped educational resource. Playhouse

Square could offer a unique learning experience for students interested in performing arts.

Students could work along side professionals in theatrical performances. They would have

real-life experience built into their curriculum. President Michael Schwartz of Cleveland State

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University hinted at such collaboration in saying “we are working on a plan with the

Playhouse Square Foundation, through Mr. Art Falco’s good efforts, to move our theater

program into a theater at that location” (Schwartz, 2007). While Cleveland State University’s

efforts are noble, our recommendation is much farther reaching. We feel such collaboration

should go beyond Cleveland State University and include other higher education institutions

in Northeast Ohio. A larger collaboration could benefit downtown because it could generate

a residential aspect of the new college at Playhouse Square. This fits into our goal of

increasing the number of people downtown. The benefits of which have been spelled out in

our housing section.

Still, Cleveland has more assets that could be tied to educational experiences.

Cleveland continues to market itself as a biomedical leader and a potential renewable energy

leader, but how are we ensuring that we become a leader? Luring businesses to the region is

simply only a portion of the battle. The region must also supply a workforce that is capable

of supporting biomedical or advanced manufacturing firms and research facilities to advance

these industries. The City of Cleveland and downtown have available land and facilities to

serve these purposes. Why not locate the proposed Great Lakes Wind Energy Research

Center (Case Western University, 2007) or Northeastern Ohio Universities Colleges of

Medicine and Pharmacy in historic downtown office buildings or vacant warehouses in

Midtown. Locating these facilities in and around downtown Cleveland puts them close to

established medical institutions and transportation infrastructure needed for manufacturing

and growth. They will have economic spin-off and provide new income tax sources for the

city of Cleveland. Education has the potential to create economic development in the

present and provide skills for continued economic growth. Having these institutions in

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downtown Cleveland or adjacent neighborhoods will no doubt increase the competitiveness

of downtown Cleveland.

“Green” Housing Initiatives

Jason M. Russell

Cleveland had an extraordinary opportunity to alter the way houses are constructed

in the City of Cleveland. Earlier this year, Cleveland City Council deliberated on the

continuous of the residential tax abatement program. During deliberation, several council

members saw the renewal of the program as an opportunity to make Cleveland a green city.

On the final tax abatement legislation, council “determined it would be reasonable to expect

the development community to prepare for a higher standard for development by 2010.

Therefore, on January 1, 2010, new construction will be required to meet energy star

standards” (Samsa, 2007). Energy Star standards primarily focus on energy efficiency, such

as increased insulation, double pane window glass, and efficient appliances and lighting.

Energy efficiency is important, but this was an opportunity for council members to live up

to the “GreenCityBlueLake” slogan.

We feel City Council should revisit its decision on tax abatement and add greater

regulation for green housing development. Energy Star regulations do not go far enough in

expressing the city’s commitment to green innovations that a Green City on a Blue Lake

should have. Building green is costlier than not and requiring green building across the board

may stymie future housing developments within the city. To accomplish our goal while not

placing a burden on developers, we propose different levels of tax abatement for green

construction versus non-green construction. The City of Cincinnati has had the foresight to

implement a program that satisfies our goal of creating a Green City on a Blue Lake. The

program calls for “One, two, and three-unit residential structures, including condominiums

are eligible for a 15 year (if newly constructed) and 10 year (if renovated) 100% tax

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abatement for residential buildings valued up to $500,000 that are constructed to LEED

standards within the City of Cincinnati” (City of Cincinnati Community Development and

Planning). Homes constructed that do not meet LEED qualifications “are eligible for 10-

year abatement up to a maximum $275,000 market value” (City of Cincinnati Community

Development and Planning). The differences in the program are significant enough to

promote LEED certified construction while also still offering incentives to developers

willing to build in the city. We feel the City of Cleveland should reconsider their current tax

abatement program to further promote green innovation in Cleveland and attract renewable

energy manufacturers.

Green Cleveland ____

Pete Farina

As the City of Cleveland approaches an age where sustainability and energy

efficiency are the driving force in economic development, the City must look to new ideas

and concepts in order for implementation to occur. Whether through incentives, policy, or

immediate implementation in all new City projects, a mid-sized city like Cleveland needs to

be looked at by the global economy and support through legislation must be made in order

for this idea to be successful. Cleveland is often viewed as a City with large towers housing a

great majority of the downtown office tenants, with a mix of aged buildings from the era

where Cleveland was a manufacturing hub for the Midwest. Although renovation can take

place on these buildings, in an effort to create new development in downtown area the City

government first took action in the idea of energy efficiency and sustainability by creating

the City of Cleveland’s Sustainability Program.

Cleveland’s Sustainability Program acts as the role model of sustainability allowing

businesses, residents and tourists to see the ways in which Cleveland is taking strides to

become a competitive region in energy efficiency. The program guides the City on projects

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related to energy, building, fleet, and purchasing and has led new policies related to these

areas. The program explores options available to advance renewable energy in our region.

The City is currently in the process of putting together incentive packages for

developers that apply sustainability practices to their new projects. The City has made the

regulation that 50% of all waste from construction and demolition must be sent to local

recyclers, which preserves materials to be used for other projects while also retaining jobs.

The City has also purchased 300 flex-fuel vehicles and 32 hybrid vehicles which run on

cleaner fuel, are smaller and more energy efficient. These are a few of the practices which

Cleveland has invested into, allowing others to get a better understanding of their

environmental footprint on the City can be less harsh by investing in sustainability

principles.

Cleveland is in the process of studying the possibility of putting four to ten wind

turbines off the shores of Lake Erie. This state of the art energy efficiency project would

create 20 megawatts, powering tens of thousands of homes and businesses. The wind

turbines would be the first water-borne windmills in the United States and the first

freshwater wind turbines ever. The project would create new jobs through the construction

of a wind research center and would gain funding through federal grants, state grants, local

public sector grants, local philanthropic grants, and corporate partnerships. The wind

turbines would allow for Cleveland to be on the map as a regional, national, and worldwide

innovator in offshore wind power developments and high-tech innovation.

Another way which Cleveland can be more competitive is if we implemented the

gem which Cleveland sits along: Lake Erie. Within the Connecting Cleveland: Waterfront

District Plan (Attachment 2.1) there is the concept of decreasing the speed limit along the

Cleveland Memorial Shoreway and creating pedestrian and bike friendly accesses to the Lake.

The Competitiveness of Downtown Cleveland

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Connecting residents, businesses and tourists to Lake Erie would allow for more recreational

activities to occur and bring more people into the City. The idea of slowing down the

Cleveland Memorial Shoreway along the Lake would allow for more people to interact with

the waterfront and create another option for residents to have in living a recreational

lifestyle.

Bike Paths in Cleveland

Pete Farina

Bicycles bring with them a variety of demographics to an area, whether young or old,

rich or poor, black or white… everyone rides a bicycle. By creating more bike friendly areas

around Cleveland it will allow for certain areas within the community to be reinvigorated,

allowing natives of Cleveland to experience parts of the City which they have never seen

before and offer new insight to tourists who may not be familiar with areas outside of the

Central Business District. The City of Cleveland has started taking initiative by incorporating

new bike paths into projects, such as the Veterans Memorial Bridge. Cleveland would

become a more competitive City through bike path initiatives with routes throughout the

City. The City of Chicago is a great example of how bicycle paths are being constructed and

maintained to allow connectivity throughout the City. The map below (Figure 2) shows how

pedestrians and bicyclers can reach a majority of the City through alternative transportation

options.

The Competitiveness of Downtown Cleveland

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Figure 2

The City of Cleveland will have to apply new practices in create a lakefront that will

offer amenities to the community. Chicago can be seen as the role model of how a lakefront

can transform a city and offer unique character. Chicago had the idea of creating regulations

limiting the uses along the main lakefront within the Central Business District; however

Cleveland has the obstacle of incorporating new developments and planning ideas into what

already exists along Lake Erie. In class the question “How will Cleveland become a more

competitive City?” was asked to Mayor Frank Jackson, who responded that the relocation of

the Port Authority will allow for more investments to be made in the City and create a new

identity for the waterfront.

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Port Authority Relocation
Pete Farina

After speaking with John Carney, Chairman of the Cleveland-Cuyahoga County Port

Authority, I received a better understanding as to what the Port’s goal is for the prime piece

of waterfront land located along the mouth of the Cuyahoga River and Lake Erie. (Please see

Attachment #2.1 to view the parcels owned by the Cleveland-Cuyahoga County Port

Authority). Carney says that the land should allow for the community to be connected to the

Lake and allow for green spaces to be made. There is going to have to be new strategy that

will allow for the community to be connected through bike paths and other implementations

much like Chicago, but without the free accessibility that was instilled into Chicago’s

regulations since early planning took place. The challenge of placing new developments in

front of the businesses and majority of the white population in downtown Cleveland and

moving the Port Authority to a place where the black population will receive the new Port

and industry seems to be the social conflict within the plan.

Bob Stark’s Plan for Cleveland

Pete Farina

The question of how Cleveland will become more competitive was also asked to one

of the leading Cleveland developers Bob Stark, CEO of Stark Enterprises. Bob replied that

there is going to have to be a major mixed-use development which will densify the Central

Business District with a larger population and increasing that activity at the street level. The

mixed-use development he plans to construct will consist of 1.2 million square feet of office

space (the same amount as Key Tower) with 1 million square feet of residential/hotel and 1

million square feet of retail fused within the development as well. He said that people need

to accept that Cleveland is a mid-sized City which can not be supported by massive towers,

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taking employees from the suburbs, up to their office on the 75th floor of a building, down

to the cafeteria for lunch and back to their office for the rest of the day before leaving to go

back out to the suburbs. He explained that people need to experience the streets and vitality

of Cleveland.

Public Art in Cleveland

Pete Farina

As developments like Mr. Stark’s begin the first stages of planning, the consideration

of making Cleveland more competitive through public art came to mind. The City of

Cleveland requires that new construction within the City must allocate 1% of the total costs

towards public art. Public art can be a sculpture, monument, or even a piece of art

incorporated into a building. In an effort to create a more specific district identity through

Cleveland, the City should increase the required amount of costs allocated towards public art

along the streets allowing for pedestrians to have a more enjoyable pedestrian experience and

enliven activity on the street level. Public art enhances civic pride while giving Cleveland a

sense of cohesion while reducing crime and raising the quality of life. Construction of public

art encourages surrounding properties to place inward investments on their real estate as well

and increases tourism in these areas.

Wayfinding Signage
Sheri Bontrager

Issue
Oftentimes people complain about coming downtown because they are unfamiliar

with the area, thus unaware of what downtown offers, and concerned with how to navigate

around downtown. Currently, I work with a couple individuals who only come downtown

to work. They drive in from the east side, they get off the highway at East 9th Street at

Tower City, park, and walk into the building. They both admit that they do not spend any

time driving to downtown on weekends because they are not familiar with the area. In order

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to give visitors a better experience of downtown and hopefully encourage them to return,

Cleveland should improve downtown “travelability” and highlight downtown assets.

Wayfinding signage is capable of fulfilling these tow requirements.

Looking around downtown, a person might notice the purple wayfinding signs

currently in place. Unfortunately, this is the only downtown wide signage program. It is a

poor system that is incomplete and sorely outdated. Downtown visitors, like my coworkers,

cannot use these signs because they are difficult to identify and simply lack necessary

information. Cleveland’s current signage program should be redesigned and implemented

completely in order to improve a traveler’s experience of being downtown.

A successful and versatile wayfinding signage system has several purposes; here are a

few examples. It exists largely as directional signage not only for drivers, but also for

pedestrians and bicyclists. Additionally, using a comprehensive signage system is an easy

way to highlight a city’s assets. Signage also clearly identifies parking facilities and provides

information about public transit. It can be utilized as a place-making technique for different

districts which can also create a vehicle for establishing connectedness between districts.

Wayfinding signage can be a style of public art as well as an improvement to the streetscape.

Assuredly, there are several more ways in which signage can be used.

Wayfinding Signage in Cleveland

Currently in Downtown Cleveland, it is difficult to tell whether or not there is a

wayfinding system in place. I have lived in Cleveland for a little over one and half years and

prior to this assignment, I do not recall ever seeing wayfinding signage downtown. The only

unique signage I spotted were the purple additions to the street signs that identified the

specific district in which I was located. Once our group wayfinding signage as being one of

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the factors missing downtown, it was then that I recognized the larger purple signs and the

informational portion of the kiosks.1

In order to learn more about the simple purple signs fastened to the poles

downtown, I contacted Scott Frantz from Cleveland’s Department of City Planning. He

explained that the current signage system in place was created as a result of the construction

of Jacob’s Field and the Quicken Loans Arena (formerly the Gund Arena). Cleveland

stakeholders were concerned that visitors would have a difficult time navigating around

downtown and expressed an interest in creating a signage system. Unfortunately, the

stadiums would be completed very soon after he concern was raised leaving very little time

for fund raising and planning. The project was largely taken on by Downtown Development

Coordinators, the original predecessor organization for the Downtown Cleveland Alliance.

Frantz estimated there was $50 - $60,000 to complete the project during an eight month

period from the fall of 1993 to the spring of 1994. The project resulted in 80-90 purple

signs with white lettering fastened to preexisting poles downtown. The signs simply guided

a person toward one of eight.2

Today, only a few of the original signs are still in place. New street signs are still

designed to include the district name, which is the only sustained portion of the original

wayfinding system. The districts were given instructions for completing destination signage

for their individual locations if they chose to do so, but only the Quadrangle made this

effort. And unfortunately, this signage program as a whole is no longer helpful, as there are

now many missing. Frantz admitted that there was no confirmed maintenance plan for the

signs. Once they were in place, they became the responsibility of the Division of Traffic

1
See Appendix 3.1 for current images of signage in Downtown Cleveland
2
See Appendix 3.2 for original signage plan for Downtown Cleveland

The Competitiveness of Downtown Cleveland

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Engineering. However, many of the signs have been lost due to heavy winds, accidents,

construction projects, and etcetera.

When driving, walking, or biking around Downtown Cleveland, it is easy to see that

our signs need to be redesigned, replaced, and completed. They are unattractive, therefore

not eye-catching, and simply useless in their current state. Plus, some of the pedestrian

signage was never implemented and a system for cyclists was never designed. When asked

about a wayfinding signage plan for the future, Frantz mentioned that there is light

discussion from time to time, but there are currently no plans for new signage. He said that

the implemented project was incomplete yet substantial at the time considering the time and

funding constraints; however, it is no longer a useful system.

Future plans for new signage in downtown and the surrounding areas are scarce.

Currently, the St. Clair Superior Neighborhood is exploring the possibility of implementing

signage and also wants to see the surrounding areas do the same. The only downtown

specific plans to address wayfinding signage is in the latest chapter of the Historic

Warehouse District Master Plan. Unfortunately, according to Tom Starinsky from the

Historic Warehouse District and Historic Gateway Neighborhood, while there is a slight

mention for new wayfinding signage, there are currently no plans to develop this idea any

further. Downtown Cleveland needs to take the time to create a comprehensive and

sustainable wayfinding system that highlights not only the districts, but the many assets

located downtown.

Other cities, such as Atlanta, Georgia and Pittsburgh, Pennsylvania have

demonstrated a strong concern for implementing and maintaining an attractive and

successful wayfinding program.

The Competitiveness of Downtown Cleveland

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Wayfinding Signage Improvements in Atlanta

Although Atlanta, Georgia is much larger than Cleveland, their recent update to their

signage is an example that should be followed. Even though a wayfinding program was

created for the downtown and midtown districts in 1996, specifically for the Olympic

Games, Atlanta is already planning and currently implementing a redesigned and updated

signage program to keep up with their changing city.

Central Atlanta Progress, a non-profit organization focusing on downtown economic

development, is the organization implementing the new wayfinding program in Atlanta. A

few weeks ago, I spoke with Jennifer Ball, the program manager for the new signage

program. She explained that the original signage program was implemented in 1996, but

needed updating because there was no maintenance plan originally created. In 2002, not

even ten years later, the downtown stakeholders recognized the program was outdated and

voted for a new signage program. They agreed to pay into a maintenance program to keep

the new signs up-to-date as the city changes. The funding for the new system and

maintenance are 80% from a State Department of Transportation grant and 20% from local

investments, which amounts to about $3 million for a signage program for a four and a half

square mile area. The yearly maintenance plan will keep the signs looking new and ensure

they are accurate. The redesigned signs are attractive, include specific destination

information, use a color scheme to identify district locations, and affectively improve the

appearance of the streetscape. Central Atlanta Progress clearly recognizes that wayfinding

signage is an important tool for creating a city that is easy to navigate, which hopefully

translates into a better overall experience for downtown visitors.3

3
See Appendix 3.3 for examples of Atlanta signage

The Competitiveness of Downtown Cleveland

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Current Wayfinding Signage in Pittsburgh

Downtown Cleveland is similar to Downtown Pittsburgh in the fact of size, location,

and its history. Both cities implemented wayfinding signage programs in the mid 1990’s.

However, Downtown Pittsburgh’s wayfinding system is much different than Cleveland’s and

has been successfully maintained over the years. Unlike Cleveland’s signage, Pittsburgh’s

signs are much more versatile. They not only identify districts but also guide visitors to

specific destinations. There are different colors that represent individual districts – for

example, light blue to represent North Side and green for South Side - and the signage also

guides a traveler to destinations rather than just districts. Each sign is connected by a similar

logo located at the top of each sign: a y-shaped symbol that represents the three rivers of

Pittsburgh. This symbol promotes the connectedness of the entire city and also adds an

artistic element that highlights the rivers as one of the major assets of the city. Even though

Pittsburgh created their signs over ten years ago, the program was obviously created with the

future in mind. The signs are sustainable and unique the city.4

A few weeks ago, I spent a weekend in Pittsburgh. Neither me nor my friend knew

the city well and had to rely on maps we printed from a computer in order to find our way

around. Not to our surprise, at times our maps were inaccurate and we had to rely on street

signs and wayfinding signage to navigate the city. The signs were dependable, easy to

identify and accurate. The signage in Pittsburgh helped us to easily find and discover some

of the best parts of Pittsburgh. Regrettably, I doubt the current signage in Cleveland was/is

capable of helping a visitor have that same experience

4
See Appendix 3.4 for samples of Pittsburgh signage

The Competitiveness of Downtown Cleveland

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Problems with Cleveland’s Current System

Even prior to the loss of the original signs implemented throughout Downtown

Cleveland, the wayfinding system was unsatisfactory.

First, the signs were unattractive. Scott Frantz explained the purple color for the

sign was selected based on the idea that the State Department of Transportation had already

designated that color as appropriate for street signage. Instead of creating something more

unique that would add an artistic element to the streetscape, typical looking street signs were

created.

Second, there was not enough information on the signs. Although the original plan

encouraged individual districts to create their own signage based on the standard outlined in

the Greater Cleveland Wayfinding Sign Standards manual, the reality is, only one of the

districts chose to create signage. Additionally, visitors unfamiliar with Downtown Cleveland

might not know which district they are trying to locate, thus, this signage would be useless

for them. The pedestrian signage, had it been implemented, would have only helped those

on the sidewalks, and not those on the streets. Directional signage can offer guidance to

places like the Rock and Roll Hall of Fame, Cleveland Public Library, Burke Lakefront

Airport, Greyhound Bus Station, Cleveland State University, and other noteworthy locations.

Third, signs should be a means for promoting connectedness and establishing a tool

for place-making. Instead, the signs directed individuals to different districts throughout

downtown as if they were “separate” areas. And as for place-making, the signs were not

aesthetically pleasing and adding a unique quality to downtown (which also refers back to the

first concern about the attractiveness about the signs).

The Competitiveness of Downtown Cleveland

Page 25
 Fourth, a maintenance plan was not created. Although, as explained by Scott Frantz,

the signs became the property of the Division of Traffic Engineering, there was never a

specific plan created. The signs slowly deteriorated and became outdated. A maintenance

plan would also include a strategy for collected funds for yearly improvements.

The list of concerns for the original signage program could continue to grow.

However, these four are the most easy to recognize as a place where Cleveland’s signage is

lacking when comparing to Atlanta’s and Pittsburgh’s. Clearly, Cleveland needs to improve

their signage in order to compete with the successful efforts of other cities who are

improving the “travelability” of their city.

Support for Improvements in Cleveland

In order to support the claim that wayfinding signage is, in fact, a useful tool, I

attempted to gather quantitative data to show how effective it is to improve a visitor’s

experience. Part of my conversation with Jennifer Ball of Central Atlanta Progress

concerned whether they had collected such data to support the usefulness of their signage

program. She admitted that they have not completed a study, but they planned to as soon as

the new system was completely implemented. Ball did mention that public response is

always extremely positive and very complimentary. Next, I asked Corbin Design, the project

designers for the Atlanta system, if they had ever collected similar data for any of their

previous projects. Likewise, they also did not have any information to share, other than the

fact that they truly believe in their company’s mission. Furthermore, I asked the same

question of Ann Arbor, Michigan and their design firm and received similar responses.

Unfortunately, it seems that there has been very little, if any, research done to provide

quantifiable evidence that wayfinding signage is a useful tool. Without this information, it is

The Competitiveness of Downtown Cleveland

Page 26
difficult to support the claim that Cleveland should consider improving the signage

downtown.

Even without quantifiable evidence, the fact that several other cities throughout the

United States are implementing wayfinding signage programs - including Des Moines, Los

Angeles, Orlando, Grand Rapids, Kansas City, and etcetera - speaks to fact that signage is an

important tool for downtowns. As attractive additions the streetscape, signage guides

visitors accurately throughout the city, making traveling by automobile, bike or foot an easier

and hopefully more enjoyable experience. Cleveland’s wayfinding system is sorely outdated

and in need of serious alterations. If the city wants to compete with its mid-sized

competitors, it should consider something as simple as wayfinding signage to improve a

visitor’s experience of Cleveland.

As the City moves forward to create a more competitive downtown, Cleveland must

utilize its assets. Cleveland has tremendous cultural and civic assets for a midsized city and

must leverage them to make the city competitive in the region, nationally, and globally. Our

recommendations keep these assets in mind and help build upon them to make a more

cohesive urban core.

*Please consult with the writers of this paper before taking any of the information and utilizing it for any
other use outside of the Cleveland State University Introduction to Urban Planning 607 Final Project Fall
07-08.

The Competitiveness of Downtown Cleveland

Page 27
Works Cited – J. Russell
Beedles, S. (2007, November 5). Director of Compensation & Benefits, Case
Western Reserve University. (J. M. Russell, Interviewer)

Case Western University. (2007, October 26). University, Cuyahoga County team up to
create wind energy research center on Lake Erie. Retrieved November 24, 2007, from
http://admission.case.edu/admissions/news/news_story.asp?iNewsID=716&strBac
k=%2Fadmissions%2Fnews%2Fnews%5Farchive%2Easp

City of Cincinnati Community Development and Planning. (n.d.). LEED-CRA Tax

Exemption Program. Retrieved December 2, 2007, from City of Cincinnati:
http://www.cincinnati-oh.gov/cdap/pages/-16936-/

City of Cincinnati Community Development and Planning. (n.d.). Residential CRA

Tax Abatement. Retrieved December 2, 2007, from City of Cincinnati:
http://www.cincinnati-oh.gov/cdap/pages/-3521-/

Katz, B. (2007, June 29). The Goal for Ohio Metros: 43,000 Residents. The Plain
Dealer .

Neighborhood Reinvestment Corportation. (2000). Employer-Assisted Housing:

Competitiveness Through Partnership. Joint Center for Housing Studies of Harvard
University.

Northeast Ohio Community and Neighborhood Data for Organizing. (n.d.).

Downtown Housing Units, 2000 Census Data.

Residential Housing Development by Fairfax Renaissance Development Corp. (n.d.). Retrieved

November 11, 2007, from Fairfax Renaissance Development Corp.:
http://www.fairfaxrenaissance.org/Residential/residential.html

Samsa, K. B. (2007, May 21). Cleveland City Council unveils new tax abatement
policy. Cleveland, Ohio.

Schwartz, D. M. (2007, October 25). State of the University Address.

The Competitiveness of Downtown Cleveland

Page 28
Works Cited – P. Farina
http://planning.city.cleveland.oh.us/lakefront/

http://www.city.cleveland.oh.us/government/departments/pubutil/sustainability/in
dex1.html

http://www.cityofchicago.org/Transportation/bikemap/keymap.html

http://www.publicartonline.org.uk/news/research/current_research.html#item04

Building A New Energy Future. Cuyahoga County Regional Energy Task Force. Report
to the Board of County Commissioners of Cuyahoga County, Ohio.
Recommendations for a Lake Erie Offshore Wind Energy Demonstration Project
and Research Center. February 8, 2007.

Wind power along Lake Erie just might fly. Tom Breckenridge. January 12, 2007
publication in the Plain Dealer.

The Attraction of Art. Lawrence O. Houstoun, Jr. Urban Land Institute October 2000
Feature Article.

Interview with Bob Stark of Stark Enterprises: November 30th, 2007

Interview with John Carney of the Cleveland Port Authority: November 20th 2007

Interview with Jane Campbell, Former Mayor of Cleveland: October 12th, 2007

The Competitiveness of Downtown Cleveland

Page 29
Works Cited – S. Bontrager

“A Wayfinding Signage System for Atlanta Georgia” Program Document from

Corbin Design
February 14, 2007

“City of Atlanta Downtown and Midtown Atlanta Wayfinding Signage System” from
Central Atlanta Progress
February 2006

“City of Atlanta Downtown and Midtown Atlanta Wayfinding Signage System”

System Overview from Central Atlanta Progress
January 2007

Interview: Jennifer Ball, Central Atlanta Progress

November 2007

“Pittsburgh Wayfinder System” from www.routemarkers.com

November 2007

Greater Cleveland Wayfinding Sign Standards” from Downtown Development

Coordinators
Copyright 1996

“Shaping the Public Realm” from the Historic Warehouse District Development
Corporation
September 2007

Interview: Tom Starinsky, Historic Warehouse District/ Historic Gateway

Neighborhood
November 2007

Interview: Scott Frantz, Cleveland Department of City Planning

November 2007

The Competitiveness of Downtown Cleveland

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