Ll E "Li-{Y fwfiichéfjtfi-n State i Unwergity PLACE IN RETURN BOX to remove this checkout from your record. TO AVOID FINES return on or before date due. MAY BE RECALLED with earlier due date if requested. DATE DUE DATE DUE DATE DUE FEB 3:; 25:3 62.04.13 2105 c:/ClRC/DateDuo.indd-p.15 is; . Plan 3 Paper -@ . Pi Mime & 91": Jeffrey I. 1998. . 06.»:an An Evaluation of Michigan Downtown Development Authorities as Economic and Historic Revitalization Organizations in Small Cities A Plan B Paper Urban and Regional Planning Program Michigan State University May 1998 Jeffrey M. Gray l \AQ' _‘ AN EVALUATION OF MICHIGAN DOWNTOWN DEVELOPMENT AUTHORITIES AS ECONOMIC AND HISTORIC REVITALIZATION ORGANIZATIONS IN SMALL CITIES By Jeffrey M. Gray A PLAN B PAPER Submitted to Michigan State University in partial fulfillment of the requirements for the degree of MASTER OF URBAN AND REGIONAL PLANNING Urban and Regional Planning Program May 1998 Ever-busy, ever-building, ever-throwing-out the old for the new, we have hardly paused to think about what we are so busy building, and what we have thrown away. — James Howard Kunstler, The Geography of Nowhere CONTENTS LIST OF FIGURES ....................................................................................................... v ACKNOWLEDGEMENTS - c - ............ vi ABBREVIATIONS? -V -- _ - - -- -_ _- vii INTRODUCTIONW _ - - - -- - ....... l The Study REVIEW OF LITERATURE - ..... ¢ - - - - - - - -- - -- - - - - 5 Impacts of Suburbanization on Downtown Defining Revitalization Centralized Retail Management Mnal Main Street Program The Components of Organization Michigan Downtown Development Authority Legislation Establishment of a DDA Activities of the DDA Finangin g DDA Activitifi RESEARCH METHODS -- - -- - ........ 18 Initial Selection of Cities Final Selection of the Study Cities The Questionnaire SUMMARY OF QUESTIONNAIRE RESPONSES ..... _ ---25 Background Widespread Support Management Downtown Plan PROFILES OF THE REVITALIZATION EFFORTS ..... - - ............ 30 Howell Ludington Tecumseh Widespread Support Management by One Entity With a Full-Time Staff Downtown Plan General Findings CONCLUSION .................. - - ........ -- - -- .......... 41 Recommended Future Study APPENDIX 1: PUBLIC ACT 197 OF 1975, AS AMENDED - DOWNTOWN DEVELOPMENT AUTHORITIES .............. ........... 44 APPENDIX II: MAPS OF THE DOWNTOWN DISTRICTS IN HOWELL, LUDINGTON, AND TECUMSEH ..... - - - ........ - - - W66 APPENDIX III: INTERVIEW QUESTIONNAIRE .................................................. 70 REFERENCES ....... - - - - _ -- ...... 7S iv FIGURES Hm 1: Initial and Captured Assessed Values .............................................................. 16 Figure 2: Potential Study Cities ...................................................................................... 20 Figure 3: Map of the Three Study Cities .............................. 21 Figure 4: Question #14 Responses ................................................................................. 28 ACKNOWLEDGEMENTS I wish to express thanks to Mike Herman, City Manager of Howell; Mary Beutell, Community Development Director for the city of Ludington; and Chris Manegold, Economic Developer in the city of Tecumseh, for providing expertise and documentation about the efforts of the Downtown Development Authorities in their respective cities. Thanks also go to Professor Miriam Rutz for her patience and assistance as I whittled the research down from “the world” to a small comer of it. ABBREVIATIONS CRM Centralized Retail Management DDA Downtown Development Authority HUD US. Department of Housing and Urban Development ICSC International Council of Sh0pping Centers IDA International Downtown Association NTHP National Trust for Historic Preservation TIF Tax Increment Financing UDAG Urban Development Action Grant ULI Urban Land Institute UMTA Urban Mass Transit Association INTRODUCTION American downtowns are complex units. Once the center of activity and identity for communities, most have experienced economic and physical decline in the wake of suburbanization. Robertson (1995, 430) notes that “continuous decentralization has shifted downtown functions to the surrounding suburbs, particularly since World War II. . .In 1954, downtown retail sales still accounted for nearly 20 percent of the nationwide total; by 1977, only 4 percent of metropolitan sales occurred downtown.” With various studies indicating a pattern of migration back to small cities (Tyler 1987, 7-8) and the growth of the National Trust for Historic Preservation’s (NTHP) National Main Street Program, which focuses on the revitalization of small town downtowns, there may be reason to believe that the downtowns of small cities are on the rebound. Communities that have succeeded under programs like the Main Street Program have done so only after large scale economic restructuring and preservation of the downtown structures that create a unique sense of community. Such an effort requires coordinated action. Citizens, merchants, property owners, and public officials must come together within a single organizational structure to set a shared vision and direction for the downtown. Research by the Urban Land Institute (ULI) shows that the successful downtown revitalization organization will have widespread support, management by a body with a full-time staff, and a downtown plan. Dewlopment of this kind of an organization can be particularly challenging in a small city. As Kotval and Mullin (1992, 18-) n0te, “little planning assistance is available to most small communities. A few fortunate ones have a trained professional planner. However, even in this enviable situation, the planning office is usually a one person show: a long term resident whose hobby is planning and who is doing the best he or she can.” As a result, most small towns lack a current master plan with defined community goals, let alone the ability to engage in a complex revitalization effort. Small cities are not without assistance, though. Downtown Development Authorities (DDAs) are public bodies charged with the role of halting the decline of downtowns. Their goal is to foster economic growth and historic preservation downtown. Legislation such as Public Act 197 of 1975, as amended, the Michigan law enabling the formation of DDAs, is among the tools emerging to help small towns form the organizational structure to engage in and sustain a downtown revitalization. The objective of this study is to evaluate the extent to which Michigan Downtown Development Authorities (DDAs) in cities with a population of between 5,000 and 10,000 people are able to develop widespread support, management by a fiill-time stafl, and a downtown development plan to engage in an economic and historic revitalization of downtown. The Study This study begins with the review of literature, which seeks to relate how Michigan DDAs fit into the context of downtown revitalization in America. The review first relates the forces that have historically impacted downtowns, leading to their decline. This is included because, as Tyler (1987, 5) pointsoout in his study of the health of downtown in eight Michigan cities, planning studies often fail to consider the historical perspective: Rather, a study will assume the current status of a downtown as ‘ground zero,’ without recognizing that that its current state is only one point on a time continuum. A downtown as it now exists is a product of what has happened previously, and is also a precursor of what it will be. Without recognizing this any analysis must be considered deficient. That is to say that understanding why downtown failed will provide insight into how it may be strengthened and made successful into the future. The literature review proceeds with a study of two highly successful downtown revitalization strategies — Centralized Retail Management (CRM) and the Main Street Program of the NTHP. This analysis reveals the importance of organization in any revitalization that will include economic restructuring and historic preservation. The combined elements of widespread support, management by one entity with a full-time staff, and a downtown plan, as presented by ULI, establish the criteria by which a such an organization will be evaluated over the course of this study. The literature review concludes with a discussion of Public Act 197 of 1975, as amended. This discussion considers the procedures for forming a DDA and the structure of the DDA governing body. As well, the revitalization activities allowed under the act and the structure for funding those activities are considered. The next chapter discusses the research methods employed. The criteria for narrowing potential study cities are revealed, including the rationale for defining a small city as having between 5,000 and 10,000 residents. This is followed by a brief introduction to the three study cities — Howell, Ludington, and Tecumseh. The development of the interview questionnaire, and the rationale behind question selection and ordering, is the final topic covered under the research methods. A chapter summarizing the questionnaire responses is followed by a summary of the economic and historic revitalization efforts in the three study communities Background research, including information from the downtown plans and telephone interviews, is used to profile the revitalization effort in each city, and to understand the role of the DDA in that effort. These chapters are followed by the summary of findings regarding the capacity of the DDAs to develop widespread support, management by one entity with a full-time staff, and a downtown plan. The conclusion reports that Michigan DDAs in cities of between 5,000 and 10,000 people do have this capacity and suggests directions for future study. REVIEW OF LITERATURE Toward the goal of placing the above described objective within the appmpriate context, the review of literature has advanced on the following fronts: the impacts of suburbanization on downtown, defining revitalization, the components of organization, and Michigan DDA legislation. The Impacts of Suburbanization on Downtown The combined factors of uniform zoning, Federal Housing Administration and Veterans Administration housing programs, and the “millions of additional dollars from Washington [that were] poured into the suburban infrastructures. . .” drove the physical development in the suburbs following World War II (Gratz 1994, 17; Hall 1988, 291; McBee et a1. 1992, 3). It was the 1956 Federal Aid-Highway Act, which pledged $41 billion for the construction of 41,000 miles of new roads, that enabled the movement of the middle-class p0pulation to the suburbs (Gratz 1994, 17; Hall 1988, 291; McBee et a1. 1992, 3). This effectively dispersed the population from the traditional retail, social, cultural, and entertainment center — the downtown. The impacts of suburbanization on the traditional small town downtown are summarized by Glisson (1984, 5): More than a marketplace, Main Street was the center of civic and social activity, and its buildings reflected not only the town’s past but also its pride. In a very real sense, Main Street symbolized the community’s identity and embodied its heritage. After World War 11, however, suburbanization drastically altered the shape of most towns, scattering homes and businesses to outlying areas. Roads that had once led to the center of town now carried residents and shoppers to commercial strips and regional malls. Throughout the nation, in town after town, the story repeated itself. Businesses closed or moved to the mall; shoppers disappeared; property values and sales tax revenues dropped. Some downtowns sank under the weight of their own apathy. Dingy, dilapidated buildings, boarded-up storefronts and empty, trash-strewn streets gradually reinforced the public’s perception the nothing was happening downtown, that nothing was worth saving there. With its predominant retail form being the chain store, and the overwhelming accommodation in its built form to the automobile, the suburb has come to take on a sameness from place to place, lacking the unique identity embodied in the traditional downtown. This suburban condition has been characterized by Kunstler (1993) as “The Geography of Nowhere.” In the interest of recapturing place identity and reversing the decline of downtown, revitalization efforts were initiated throughout the United States as early as the 19603 and have gained momentum through to the 1990s. Defining Revitalization The term revitalization has been used in association with a wide variety of activities and programs directed toward bringing economic growth to declining areas. Some,like the Urban Development Action Grant (UDAG) program developed in the 1970s, have focused on leveraging private investment through public investment. The primary focus of such programs, therefore, is economic growth. Such a singular focus may not be appropriate for the downtown also interested in restoring the architectural and other physical elements which embody the unique identity of the place. The term revitalization as it is to be applied in this study will be defined by reviewing the structures of two widely successful downtown revitalization programs: CRM and the National Main Street Program of the NTHP. Centralized retail management has generally been applied in larger cities, such as Orlando, Florida; San Antonio, Texas; and Grand Rapids, Michigan, while the Main Street Program has been designed for implementation in smaller towns. Despite this, the two programs are strikingly similar in their focus on economic and physical revitalization. Qngalizgd Retail Management (CRM)l In 1985, the US. Department of Housing and Urban Development (HUD), the Urban Mass Transportation Administration (U MTA), and the International Downtown Association (IDA), with advice from the International Council of Shopping Centers (ICSC), the Building Owners and Managers Association International, the Urban Land Institute (ULI), and the National Trust for Historic Preservation (NTHP), contracted to develop a new revitalization strategy, with the goal of providing overall management of the downtown. With CRM, a downtown organization coordinates such things as the mix of retail establishments, hours of operation, and the physical identity of downtown so that “‘a synergism among competing retailers results in [a downtown in] which the sum is greater than the parts’” (Cloar, Stabler, and DeVito 1990, 3). A pilot program including eleven cities was launched in 1985 .2 Ongoing evaluation of the demonstration cities and a national conference in 1987 allowed for refinement of the CRM program. By 1989, CRM was organized around the following four principles: ‘ The information of this section relies heavily on chapter 1 of Cloar, Stabler, and DeVito (1990). 2 The eleven cities were Eugene, Oregon; Grand Rapids, Michigan; Hartford, Connecticut; Neenah, Wisconsin; Orlando, Florida; Redding, California; San Antonio, Texas; Seattle, Washington; Shelby, North Carolina; Syracuse, New York; and Tulsa, Oklahoma. 0 Market emphasis. An understanding of the market forces impacting downtown currently and into the future is used in the formulation of the downtown plan and in the implementation of strategies to address the needs of customers. 0 Enlistment of all interested parties. Retailers and property owners are brought together with other parties, which may include municipal officials and professionals, consultants, engineers, financial institutions, and major employers. Parties come together to form common objectives and advance mutual interests in revitalization. 0 Coordination of both leasing and retail practices. Often difficult to achieve as it demands detailed organization and coordination, this refers to accomplishing the optimum mix of retailing opportunities and cooperative advertising and promotion. 0 Management and enhancement of the total retail environment. Overall management must further strategies to advance parking opportunities and the overall design continuity of the downtown (Cloar, Stabler, and DeVito 1990, 5). The thrust of CRM and these four principles is that retail and physical cohesiveness and coordinated action in the downtown will bring beneficial returns to individual retailers. National Main Street Program The National Main Street Program is sponsored by the NTHP. It was deve10ped with the purpose of providing small cities with the tools to engage in economic development and historic preservation in their downtowns. As it has grown from the original pilot program, tested in three demonstration cities, to a nationally recognized revitalization strategy, the program is said to have “ushered in a new era in small city planning” (Skelcher 1992, 15). The Main Street Pilot Project was initiated in the cities of Galesburg, Illinois; Madison, Indiana; and Hot Springs, South Dakota in 1977 for a three year period. In addition to their location in the Midwest, these demonstration cities shared populations of between 5,000 and 60,000 pe0ple. The program was designed for communities of this size, as these were found to have been “hardest hit by the dynamics of contemporary socioeconomic change” (Skelcher 1990, 5), that is, suburbanization. The Main Street Program has been called “the nation’s first program to explore the relationship between historic preservation and economic development [because it] maintains the individuality that made downtown special while molding a secure financial base by which to sustain it” (Keister 1990, 46). Its strategy, like that of CRM has four elements, and is known as the Four Point Approach: 0 Design: Enhancing the physical appearance of the commercial district by rehabilitating historic buildings, encouraging supportive new construction, developing sensitive design management systems, and long-term planning. 0 Organization: Building consensus and cooperation among the many groups and individuals who have a role in the revitalization process. - 0 Promotion: Marketing the traditional commercial district’s assets to customers, potential investors, local citizens, and visitors. 0 Economic Restructuring: Strengthening the district’s existing economic base while finding ways to expand it to meet new opportunities — and challenges from outlying development. (National Main Street Center 1997) So like CRM, the Main Street Program focuses on the historic identity of downtown and coordinated promotion and economic restructuring to enable its economic growth. With tested success and national recognition, CRM and the Main Street Program establish the standard in downtown revitalization. The two programs share a recognition 0f the importance of strengthening the market potential while at the same time enhancing 10 the historic and physical identity of downtown. This concept of economic growth and historic preservation acting in concert to improve downtown will be considered revitalization for purposes of this research. The Components of Organization As evidenced by the components of CRM and the Main Street Program, downtown revitalization demands sufficient organizational capacity to support the coordinated effort necessary to achieve economic and preservation goals. The study of downtowns across the United States by Palma (1992, 3) supports this finding: “the skillful and professional management of downtowns will continue to be the critical element that determines whether enhancement efforts succeed or fail.” Research by the ULI for the Downtown Development Handbook (McBee et a1. 1992, 14), which includes extensive review of both CRM and the Main Street Program, indicates that “three features are essential components of the organization behind [a] successful downtown revitalization: l) widespread support, 2) management of the program by one entity with full-time staff, and 3) the downtown plan itself.” The first feature, widespread support, refers to the need for a revitalization to be a collaborative effort, “stress[ing] consensus building and greater community involvement” (Palma 1992, 3). Collaboration allows the opportunity for all those parties, such as local governments, chambers of commerce, property owners, retailers, preservationists, and citizens, with an interest in downtown to be included in setting the policy for its future. Its importance is recognized not only by the ULI, but also in a number of downtown ll revitalization studies and programs (Palma 1992; Collins, Waters, and Dotson 1991; National Main Street Center 1997; Cloar, Stabler, DeVito 1990). A public-private partnership, where the public sector works with the various private interests associated with downtown, is among the principle collaborative models. Both CRM and the Main Street Program emphasize that the likelihood of long term success of a revitalization effort is increased through such a partnership (Cloar, Stabler, and DeVito 1990, 4; National Main Street Center 1997). Palma (1992, 3) goes so far as to say that these partnerships are “essential for success.” Management of the revitalization by one entity with full-time staff helps to assure that the formation and implementation of goals and objectives is coordinated. Palma’s research of downtowns found that organizations “must become institutionalized fixtures of the business community. . .in order to survive” (1992, 4). This level of exposure increases retailers’ and property owners’ awareness and participation in the organization. Increased participation and awareness helps the organization to fulfill its primary responsibilities: development of a yearly work plan, simplifying the regulatory process for downtown retailers and property owners, management of downtown development projects, and the provision of design and economic technical support (McBee et al. 1992, 18). Where skills or resources are limited, consultants may assist the organization in meeting its responsibilities. The final feature of the organization, the downtown plan, communicates the shared vision for downtown revitalization. It must “reflect present community values and project future desires, melding the community’s cultural, economic, social, architectural, and 12 geographic conditions and values. While it forecasts the future, however, it should not be unalterable” (McBee et a1. 1992, 20). The ULI, in fact, identifies the minimum five components that should be present in the plan. They are as follows: 0 an inventory of existing conditions; 0 identification of problems and opportunities, with a market analysis for overcoming problems and taking advantage of opportunities; 0 the boundaries of the plan area; 0 goals, objectives, and action plans; 0 and a description of the management and financing necessary to implement the plan. The ULI recommends, finally, that the plan be formally adopted by the legislative body of the municipality. This assures that the public will have the opportunity to comment on the plan at public hearings, and that the legislature is on record supporting its implementation (McBee et al. 1992, 20-23). These three requirements, widespread support, management by one entity with full-time staff, and a downtown development plan, form the basis in this study for evaluation of Michigan DDAs as economic and historic revitalization organizations. It is to be determined whether DDAs in small cities have the capacity for meeting these requirements. Michigan Downtown Development Authority Legislation A DDA is a public body established by a municipality “with the twin goals to prevent downtown deterioration and promote economic growth and revitalization” (Tyler 13 1994, 180). Public Act 197 of 1975, as amended is the enabling legislation which governs DDAs and allows for their establishment in Michigan. Section 3(1) of the Act states: When the governing body of a municipality determines that it is necessary for the best interests of the public to halt property value deterioration and increase property tax valuation in its business district, to eliminate the causes of that deterioration, and to promote the economic growth, the governing body of that municipality may, by resolution, declare its intention to create and provide for the operation of an authority. The Act recognizes that not only does economic investment help to halt property value deterioration and promote economic growth, but so does the rehabilitation, restoration, and preservation of buildings, structures, and public facilities in the downtown (PA 197 1975, §7 and §29). Establishment of a DDA After designating the boundaries of the downtown district, the municipality must appoint a governing board to supervise and control the authority.3 The governing board includes the chief executive officer (mayor, township supervisor, etc.) of the municipality and, atthe discretion of the governing body of the municipality, between 8 and 12 additional members. Members are appointed by the chief executive officer and approved by the governing body to a term of four years. The act. requires that a majority of the board members “be persons having an interest in property located in the downtown district” (PA 197 1975, §4(1)). Clearly, this arrangement of private interests serving on a public body with public officials creates an environment with the potential of widespread support and a public/private partnership. 14 'vi ° f DDA The activities that the DDA may engage in are listed at length in Section 7 of PA 197. These range from such specific things as acquiring properties and charging rent for their use, and accepting grants and donations to the various activities associated with building a revitalization organization. With regard to revitalization, section 7 of the Act allows the DDA to analyze the economic changes and metropolitan impacts on the downtown district. As well, it allows the DDA to plan and engage in “construction, renovation, repair, remodeling, rehabilitation, restoration, preservation, or reconstruction” projects which the board finds will aid “in the economic growth of the downtown” (PA 197 1975, §7(c)). Organizationally, the DDA is empowered to develop long range and development plans “and to take such steps as may be necessary to persuade property owners to implement the plans to the fullest extent possible” (PA 197 1975, §7(e) and §7(f)). These plans are to be developed “in cooperation with the agency which is chiefly responsible for planning in the municipality” (PA 197 1975, §7(c)). In addition, the DDA may enter into contracts related to performing the activities allowed and prescribed in the Act (PA 197 1975, §7(g)). Finmcing DDA Activities The most commonly used meansof funding the revitalization activities described in PA 197 is tax increment financing (TIF). With TIF, the value of all property within the 3 There are, of course, various legal requirements described in the Act, such as public notice and hearing requirements. A copy of the Act can be found in Appendix I of this study. 15 district, as indicated on the most recent tax assessment roll, is first determined. Throughout the duration of the TIF, the revenue from property taxes paid on this initial assessed value is directed to those bodies having taxing jurisdiction in the municipality (the city, county, airport authority, etc.). In every year after the first, taxes on the property value that exceeds the initial assessed value, or the captured assessed value, are paid to the DDA. Revenues from taxes on this captured assessed value can be used to pay for projects, studies, and the like directly, or to pay back debt from bonds. Figure 1, below, illustrates the concepts of initial and captured assessed values, with the DDA in Anytown, USA as the example.4 4 The concepts of “initial assessed value” and “captured assessed value” are thoroughly defined in section 1 of PA 197. 16 Figure 1:1uithl and Captured Assessed Values DDA: Anytown, USA $20,000,000 ~— sre,000,000 ~~ $16,000,000 + $14,000,000 “r $12,000,000 4» $10,000,000 «- 38.000.000 « $6,000,000 «~ $4,000,000 « $2,000,000 + 30 ~ I Captured Assessed Value I hidal Assessed Valle WValueofAllPropeuylntheDDA Year 1 Year 2 Year 3 Year 4 The assessed value of all property in the DDA in Anytown, USA in year 1 of the TTF was $10 million, as is indicated in Figure 1, above. This $10 million represents the initial assessed value of the property in the DDA. This value is indicated by the cross hatching, and remains constant throughout years 2, 3, and 4. In years 2, 3, and 4, the assessed value of all property in the DDA increased to $12, $15, and $20 million, respectively. The value that exceeds this $10 million in each ofthe three years is the captured assessed value. This amount totals $2, $5, and $10 million in years 2, 3, and 4, respectively. In the example, property taxes would be paid on the $10 million in initial assessed value to those bodies having taxing jurisdiction in the municipality (city, county, airport authority, etc.) during each year of the TTF. Tax revenue on the captured assessed value would be distributed to the DDA. Property owners see no additional property taxes, therefore; a portion of what would ordinarily be paid is simply allocated to the DDA. In l7 addition, as the DDA generates economic development and increased property values, its funding increases. Public Act 197 allows TIF revenues to be used toward those activities described previously, but requires expenditures to be narrowly defined in a development plan. The plan must describe the specific projects to be financed, and the estimated cost and duration of the improvements. For the TIF to be approved, the plan must be submitted to the governing body of the municipality, and public hearings held. So long as the governing body finds the plan to be a public purpose, consistent with the considerations in section 19 of PA 197, it may approve the plan by ordinance. The powers and financing sources described in PA 197 are intended to provide “communities with the necessary legal, monetary, and organization tools to revitalize downtown districts. . (City of Howell 1991, 1, emphasis added). Certainly, the Act provides the potential for the development of a revitalization organization with widespread support, a full-time staff, and a downtown plan. This study will evaluate the effectiveness of Michigan DDAs as economic and historic revitalization organizations, based on the extent to which they meet these standards. RESEARCH METHODS Initial Selection of Cities As has been stated, the intent of this study is to evaluate DDAs as downtown economic and historic revitalization organizations in small Michigan cities. A representative sample of study communities, therefore, had to be chosen. This process began with a brainstorming session involving Professor Miriam Rutz, Michigan State University faculty advisor, and the author. An initial list of smaller Michigan cities known to have a historic downtown was developed. This list numbered 36. As the study focuses on small cities, criteria were developed for classifying city size. It was decided that cities under 5,000 residents would generally lack the resources to sustain a viable downtown. A population of 5 ,000 was determined, therefore, to be the lower threshold of small cities for the purposes of this research. Ten thousand residents was determined to be the upper population limit. This 5,000 to 10,000 range would provide a sufficient sample of cities with the identity and unique sense of place that the study Sought to consider. Additional criteria were considered to further narrow the list and obtain a sample of three small Michigan cities. Cities such as Albion, housing colleges and universities, were eliminated from the list as they would be subject to somewhat unique economic conditions resulting from the. student population. Likewise, those cities within the retail trade area of a larger city would not be considered, as the economic activity of an urban center could influence a revitalization effort in ways not possible in a more autonomous 18 19 city. It was for this reason that the city of Grand Ledge, for example, was not considered for inclusion even on the initial list. Next, it was determined which of the remaining thirteen cities cmrently have or have had DDAs. A search of Michigan city planning documents held in the Charles W. Barr Planning and Design Library at Michigan State University, supplemented by multiple Internet searches, further narrowed the list to those cities whose revitalization efforts included both economic and historic preservation components. Figure 2 shows the list of 36 Michigan cities. Those shaded in gray are outside of the 5,000 to 10,000 population range. The three in boldface type — Howell, Ludington, and Tecumseh — were the cities selected for study. 20 F'lgureZd’oteutislStudyCifles I Revitalize“ Elements , I a CM Preservation Eearanic flaming Internet DDA! Metro Area? Universi errt C t Libs-u Search? Albion 9,884 Yes Alpara 11,589 BIyCity 36,548 Bartmlhrber 11,824 BigRapith 10,471 mm I 6.41m I I I I I I Caseville 866 Chi-hut 900 Dowugiac | 6,101|Yes I I | I | | Gaylord 3,837 GandI-hvur 12.142 Thu-ism 2,061 ' I 6.349I I I I | I | Isz I V I _I I I I 33.247 1,865 7,426 9,348 Yes Yes Yes Yes 35,899 8,122 Yes Yes 9,012 Yes Yes Yes Yes 941 | 6,393IYes I I [Yes |ch | [Yes 17,016 | 7.251IYa I I I I I I 22.563 39,518 I 9.67OIYes Was I I I I I ‘Notezpopulstiouarehsedoululy l, 1996 U.S.CeunsBurauestirustes. 21 Figure 3: Map of the Three Study Cities I-75 US-27 I-75 .Ludiugtou ”5'31 US-l31 I-69 “- 1-94 [-69 . 22 Final Selection of the Study Cities Howell, Ludington, and Tecumseh most closely meet the selection criteria, and on the basis of these criteria alone, the three cities are very similar to one another. A closer look reveals that each varies from the other two somewhat distinctly. The selection of these particular cities, therefore, provides a rather diverse sampling of downtowns in small Michigan cities. The following represent the more critical distinctions between the three study cities: 0 Tecumseh is the only one of the three cities that is not a seat of county government. 0 Ludington, being at Lake Michigan, possesses a strong topographic amenity while the other two do not. 0 All three downtowns lie along a major roadway, with a US. highway passing through downtown Ludington and the Tecumseh and Howell downtowns lying along separate state highways. Howell, however, has the only downtown near an interstate. 0 The populations of Tecumseh and Howell have climbed'dramatically since 1930, presumably due to the movement of the population in Southeast Michigan out of Detroit. The population of Ludington, on the other hand, has been gradually declining since 1950, despite the fact that the remainder of Mason County has been growing.5 5 The populations in both Tecumseh and Howell have increased during every Census from 1930 through the 1996 estimates referenced previously. The overall population increase in the two cities is more than 225% and 150%, respectively. The population in Ludington decreased by a little more than 10% between 1950 and 1990, while at the same time, the Mason County population increased by nearly 30%. All population data is based on information from the US. Census Bureau. 23 So while each is similar to the others in terms of current p0pulation and a desire for an improved downtown, the three possess unique geographic and demographic characteristics. A more complete discussion of the cities and their respective revitalization efforts follows the summary of questionnaire responses. The Questionnaire A questionnaire administered by telephone was the primary means of gathering data for the study. The intent of the questionnaire was to determine from the staff member in each city most familiar with the management and operation of the DDA, its effectiveness in developing widespread support, management with a full-time staff, and a downtown plan. The questionnaire was developed using principles described by Earl Babble (1995) in The Practice of Social Research, 7‘h ed. It was reviewed by faculty advisor, Professor Miriam Rutz, to clear up ambiguities and refine question order. The questions are broken into five sections. The first section gathers information about the respondent, including his/her position with the city. It also asks for the relationship of the respondent to the DDA. This is intended to determine whether the respondent provides staff assistance or actually sits on the governing board. The background section attempts to learn a bit of the history of revitalization in the city. The first two questions ask the respondent to describe the economic and historic preservation achievements of the revitalization effort. These were placed first to get the respondents’ impressions of the strengths of the effort absent the bias of this study. This section also tries to get at how the DDA fits into the chronology of revitalization in the downtown. 24 The remaining three sections ask the respondents to provide information about the capacity of the DDA to develop widespread support, management with a full-time staff, and a downtown plan. The questions are intended to gain an understanding of the role of the DDA relative to other downtown organizations and to detail the means by which the DDA managed to involve all interested parties. Specific questions focus on the importance placed on historic preservation and economic growth during plan development and implementation, to get some indication of the nature of the revitalization effort. A copy of the questionnaire can be found in Appendix III. SUMMARY OF QUESTIONNAIRE RESPONSES Mike Herman, the City Manager of Howell; Mary Beutell, the Community Development Director for Ludington; and Chris Manegold, the Economic Development Director for Tecumseh, were kind enough to offer responses to the interview questionnaire. Each of them provides staff assistance to the DDA in their respective cities. Herman is also an appointed member of the Howell DDA board, while Manegold serves as the manager of the Tecumseh DDA. What follows is a summary to their responses to the questionnaire, grouped under the following questionnaire headings: Background, Widespread Support, Management, and Downtown Plan. Background When asked about the major economic achievements of the revitalization effort, all three respondents referred to the accomplishments of the TIF program in their city. The projects are all fairly typical streetscape improvement projects involving the installation of Streetlighting, landscaping, and sidewalk improvements. All three cities have also been involved in parking improvements, including the elimination of meters downtown and the installation of additional parking lots. In terms of historic preservation accomplishments, the respondents referenced facade improvement programs. Each DDA has established some form of revolving loan or grant program to help property owners preserve and rehabilitate their building facades. Although the programs have been well received and widely utilized in Howell and 25 26 Tecumseh, Beutell reports that there has been, to this date, considerable resistance to preservation in Ludington. Revitalization efforts in the three cities began between the mid-19805 and early 1990s. In two of the cities, the DDA was involved in initiating the revitalization effort. In Howell, however, the effort began as a citizen’s movement to preserve the Livingston County Courthouse in the late 19803. Following that successful preservation effort, the revitalization spread throughout the downtown. The DDA was formed in the early 19905 to help facilitate efforts. The revitalization effort in Ludington is currently struggling to find the necessary funding to complete the streetscape and parking improvements. The DDA is working with the chamber of commerce to develop support for the effort among the downtown business and property owners. The other cities are moving into marketing phases, with Howell looking to reverse the recent growth of office and other non-retail uses in the downtown through retail recruitment, and with Tecumseh attempting to expand its trade area beyond the limits of the city. Widespread Support All three respondents reported that the support of DDA members, government officials, and downtown business owners (via the respective chambers of commerce) had been sought during the revitalization effort. In Tecumseh, the input of a citizens’ advisory board had also been requested during planning and implementation. The DDA in Tecumseh was the only one of the three to request the participation of the general city population. 27 Management The governing boards of the three DDAs are fairly similar in terms of membership. The majority of members in each city are downtown business and property owners. The Howell board is nine members and includes the director of the Howell Area Chamber of Conrrnerce. The other two cities have twelve member boards, allowing the opportunity for financial and legal professionals to serve. The questionnaire responses indicate that the similarity in management across the three DDAs probably ends with the boards. The authorities in Howell and Tecumseh are similar in that the DDA acts as a facilitator between the various downtown business associations and government officials. The DDAs in these cities have acted to coordinate the efforts of the individual parities throughout the respective revitalizations. As well, the DDA in each city is staffed by at least a part-time manager to keep the effort on schedule and on budget. The part-time DDA manager position in Howell is made possible by funding from the chamber of commerce. Manegold and his part-time assistant, who are both members of city staff, have management of the Tecumseh DDA as their primary responsibility. The management of the Ludington DDA sharply contrasts these. The DDA has been the organization responsible for sustaining the revitalization effort in the downtown. Although they are seeking assistance from the chamber of commerce to gain support from business and property owners, the DDA-has generated most of the ideas and plans for downtown. While city staff is able to provide a limited amount of assistance, the DDA is not able to fund even a part-time manager to provide leadership and to keep the revitalization on schedule. 28 Downtown Plan Each of the respondents was able to supply a copy of the downtown historic and economic revitalization plan. The respondents reported that plan development was generally the same in each of the three cities with business and property owners coming together to set goals and strategies. The notable exception was Tecumseh, where a citizens’ advisory board was formed to get input from the city population living outside of downtown. Manegold also reported that the Tecumseh plan also included a somewhat unique implementation strategy. Responsibilities were assigned to the various downtown organizations: the Central Business Association, the Chamber of Commerce, the Historic Preservation Commission, and the DDA. Manegold and his assistant, as a part of their management duties, must see that each group is fulfilling its responsibilities on schedule. The DDAs have generally implemented their downtown plans as written. Minor scheduling changes were required in Ludington where the effort has slowed due to limited funding. With regard to plan development, the three respondents were asked how much importance, on a scale of 1 to 10 (with 1 being very little and 10 being very much) they felt had been placed on historic preservation and economic growth. They responded as follows: Figure 4: Question #14 Responses ' Preservation Growth Herman 10 6-7 Beutell 5 7 6-7 10+ 29 Interestingly, all three respondents reported that preservation was a greater priority during implementation of the plan than it was when the goals were set. Beutell reported that this was even true in Ludington, where a historic district study committee is recommending against the formation of a historic district downtown because of resistance from property owners.‘5 The respondents stated that the business and pr0perty owners in each of the downtowns recognize that the historic buildings provide a unique identity for downtown. Howell and Ludington are now able to market this identity to potential retailers as well as customers to further the economic growth of downtown. 6 Property owners apparently fear that the designation would limit their control over the design and materials of their storefronts. PROFILES OF THE REVITALIZATION EFFORTS Having considered the questionnaire responses for Howell, Ludington, and Tecumseh in the aggregate, this chapter provides a surrrrnary of the revitalization efforts in each of the three cities. The profiles are based both on the responses to the questionnaire and the respective downtown plans. They are intended to provide contrast and to distinguish the economic and historic revitalization efforts from one an0ther.7 Howell According to Mike Herman, Howell City Manager and an appointed member of the DDA governing board, the beginning of the revitalization effort in downtown Howell predated the formation of the DDA in early 1991. In the late 1980S, the citizens of Howell initiated an effort to preserve the Livingston County courthouse. This successful effort sparked much interest in preservation of the downtown and several property owners initiated privately funded efforts to rehabilitate their storefronts. To facilitate these efforts, the DDA contracted with a planning consultant firm in 1991 to develop a revitalization strategy for downtown. The Howell Area Chamber of Commerce, downtown business owners, and the city came together during the development of this strategy to set the vision for downtown. This vision has included the installation of decorative street lighting and the institution of a grant that has funded the renovation of three building facades. 7 Maps of the downtown district in each of the three study cities can be found in Appendix II of this study. 30 31 The DDA developed the revitalization strategy not only to address the physical improvement of downtown and to maintain a cohesive identity, but also to consider some of the economic constraints there. While the downtown currently experiences few vacancies, retailing has, in recent years, given way to an increasing number of office uses. In an effort to overcome the obstacles to retailing, the DDA has recently completed some parking improvements and is funding studies to consider strategies for increased marketability of the downtown. Also toward this end, a DDA manager has been hired to work on attracting and maintaining more retail uses downtown. This individual is employed on a part-time basis by the Howell Area Chamber of Commerce and contracted to implement the DDA goals. This relationship with the Chamber of Commerce is indicative of the role of the DDA in the revitalization in Howell. Herman characterizes the DDA as a facilitator and liaison between the Chamber and the business and property owners it represents, and the city and county governments and the assistance that they are able to provide. In fact, the Director of the Chamber and downtown business and property owners hold seven of the nine memberships on the DDA governing board. In this regard, the Howell DDA has served to create a real public-private partnership in the downtown. Ludington The TTF Plan for the Ludington DDA (1989) reports that the downtown suffered a rather significant blow in the early 19805 when Montgomery Ward & Company left the downtown. While the prime space was refilled by other businesses, only one major retailer remained in the downtown following the company’s leaving. Many of the replacement 32 businesses have been of a very different character, directing their attention toward the seasonal tourism market. Even with these retailers, there were 18 vacancies at the time the TIF plan was written, and according to Mary Beutell, Community Development Director for the City of Ludington, a high vacancy rate continues to be the primary concern in the downtown. Unlike the DDA in Howell, the Ludington DDA has been the group primarily responsible for leading the revitalization effort and generating plans for downtown since it was formed in 1984. That effort has involved two major streetscapin g projects that were funded using TIF money. These projects focused on landscaping and brickwork along the sidewalks, the installation of streetlights, and parking lot improvements in the downtown. The DDA also started a loan fund to pay for facade renovations. Beutell stated, however, that historic preservation was a very low priority throughout the development of the revitalization effort. She referenced the report recently completed by the historic district study committee recommending against designating a historic district downtown. Resistance by downtown business and property owners, due apparently to the perceived design limitations that a historic district might impose, was cited among the reasons for recommending against the designation. Despite this, Beutell reported that preservation is becoming much more of a priority downtown. Retailers are realizing the character and sense of place that the downtown buildings provide, and many see them as a tool for attracting major retailers back Given the resistance to historic district designation, any preservation efforts would presumably be initiated by individual retailers and property owners. 33 The Central Business District Master Plan recognized the lack of coordinated action downtown: “Like the community at-large, the business community in Ludington has also struggled to find common goals and agree on the means to achieve them. Store hours, for example, lack any consistency from one business to another. Storefront design also reflects a lack of harmony” (City of Ludington 1986, 12). The plan recommended that a staff person be hired to manage the coordination of activities in the downtown as a remedy. This is not likely to occur soon as, according to Beutell, the DDA is currently struggling to find adequate funds for its activities downtown. In addition, she and the other city staff are only able to assist the DDA on a limited basis. Tecumseh Chris Manegold, Economic Development Specialist for the City of Tecumseh, and his three-quarter-time assistant make up the management team for the Tecumseh DDA. While they do have other responsibilities, he says that the downtown is their primary focus. In particular, it is Manegold’s responsibility to see that the Economic Enhancement Strategy 1995 (HyettPalma, Inc. 1995) plan stays on schedule. On July 1, 1998 the DDA will enter the third year of that plan. Unlike those in Howell and Ludington, the Tecumseh plan was developed with input from an advisory board that included not only downtown retailers and property owners, but also city residents. Representatives of HyettPalma, Inc., the consulting firm that developed the plan, interviewed members of this board to 'develop a set of shared goals and objectives. The consultants then developed an implementation strategy that divided responsibilities between the Central Business Association, the Chamber of Commerce, the Historic 34 Preservation Commission, and the DDA. The DDA retains the primary role, as it provides funds through TIF. Having completed $900,000 in streetscape improvements, including the installation of streetlights, benches, landscaping and planters, and sidewalk improvements within the four-block downtown area, the effort is now looking at parking. Meters have been removed downtown; parking lots are going to be improved and directional signage installed. The current budget is also looking at maintenance of the improvements. Year three of the plan will focus on marketing the overall image of downtown. That image has been central to the effort since it began in 1990. At that time, the City of Tecumseh Matter Plan recognized “a need to build upon and improve the small city historic character of downtown Tecumseh” (Vilican-Leman & Associates 1990, 26). The commitment to preservation remains as strong today, with the DDA and Chamber of Commerce coordinating the distribution of $100,000 in annual low interest loans for interior and exterior renovations by local banks. Manegold says that preservation has remained a priority in the effort because downtown retailers and business owners realize that the structures create the character and identity of downtown Tecumseh. The revitalization effort has focused on strengthening that character to help maintain the viability of downtown. FINDINGS The objective of this study, as it was stated in the introduction, has been to evaluate the extent to which Michigan DDAs in cities with a population of between 5,000 and 10,000 people are able to develop widespread support, management by a full-time staff, and a downtown development plan to engage in an economic and historic revitalization of downtown. The telephone interviews and the experiences of Howell and Tecumseh would seem to indicate that DDAs have the capacity to develop widespread support, full-time management, and a development plan. This chapter will explore the extent to which the DDAs were able to develop these. Widespread Support Support for the revitalization efforts in the three study cities ran the complete spectrum from Ludington, where there was little to no support for a collaborative effort, to Tecumseh, where advisory boards of city residents and downtown retailers and business owners came together to set the shared vision of downtown. The scope of this study was not such that the reasons for the differences between the communities can be identified. The study seems to indicate, though, that participation by the general public, in addition to that by downtown business and property owners, facilitates the development of widespread support. In Howell, the revitalization effort was initiated by a citizens’ movement to see the preservation of the Livingston County Courthouse, a local landmark. That movement blossomed into the overall revitalization of downtown. Citizen support was accomplished 35 36 in Tecumseh when a citizens’ advisory board was invited to participate in the Visioning process downtown. In both cases, citizen participation has lead to a broader base of support and seems to have resulted in greater success in the economic and historic revitalization of downtown. It is interesting to note the role that historic preservation played in collaboration. Even in Ludington, there was a recognition that the historic structures in the downtown have established its character, and that their preservation could lead to its revitalization. There was a sense that a downtown with a strong and unique identity might attract major retailers back. In fact, in Howell and Tecumseh, the recognition of the need to preserve the identity of their respective downtowns provided the initial shared goal around which widespread support and collaborative action was developed. Having developed widespread support and consensus around shared goals, both Howell and Tecumseh were able to establish strong public-private partnerships. The DDAs, which are public bodies, made concerted efforts in both cities to work closely with the established downtown organizations, including the chambers of commerce. In Howell, the DDA worked as a facilitator not only between the chamber and the city government, but also the county government. Management by One Entity With a Full-Time Staff Ludington has struggled since the formation of the DDA with developing management. The lack of agreement among the different interest groups and a dwindling budget have been cited as the major causes. With these two conditions apparently 37 worsening, the development of a management structure in Ludington is not likely to occur soon. Howell and Tecumseh were both able to develop a management structure, though. In Howell, the chamber of commerce provided the budget to support the management functions of the DDA. While this individual did not work in a full-time capacity, the commitment to downtown was sufficient to see that implementation of the program was occurring on schedule and to explore some additional funding options, including grants. Tecumseh was the only one of the three cities to accomplish full time management. Managing the DDA and its efforts was the primary responsibility of Chris Manegold, the Economic Development Specialist for the city, and his part time assistant. As in Howell, the staff was responsible for keeping the revitalization on schedule and on budget. The management responsibilities also extended to include such things as making sure that regular payments were being made on the DDA’s 20 year bond and budgeting for the maintenance of downtown improvements. As has been stated the management structure of the DDAs in both Howell and Tecumseh also appears to have contributed to success. The DDA serves in borh instances as a facilitator and a collaborator. This has allowed tasks to be divided among the interested parties, drawing upon the strengths of individual downtown organizations, as well as city and county departments, with the DDA maintaining Overall management authority 38 Downtown Plan Each of the three DDAs has developed plans that included the five components that ULI identified as being required in a downtown plan. Those components are: an inventory of existing conditions; identification of problems and opportunities, with a market analysis for overcoming problems and taking advantage of opportunities; the boundaries of the plan area; goals, objectives, and action plans; and a description of the management and financing necessary to implement the plan. In fact, the involvement of the DDA in the revitalization of each downtown typically began with the creation of such a plan. The other recommendation of the ULI with regard to the downtown plan is that it be formally adopted by the legislative body of the city. This recommendation is made to assure that the public will have the opportunity to comment on the plan at public hearings and that the legislative body formally goes on record supporting its implementation. While the plans in Tecumseh and Ludington were formally adopted, the streetscape design concept in Howell was not. The concerns of ULI are probably not an issue in Howell, however. First of all, the DDA, being a public body, held public hearings during the formation of the plan. Furthermore, the TIF plan provided the funding for implementation of the design concept. PA 197 requires that the TIF plan be subject to a public hearing before the legislative body. The Howell City Council had to adopt it before implementation could begin. 39 General Findings There were a couple of additional findings that, while they do not necessarily fit within any of the above elements, impact DDAs as downtown revitalization organizations. The first is that in all of the three cities, the respondents to the telephone interview stated that historic preservation was at least as much, if not more so, a priority when the revitalization was implemented as when the goals had been set. Even Mary Beutell, Community Development Director of Ludington, stated that preservation is now more of a priority than it was in 1984, when the DDA was formed. There is a real sense that the historic character of the small town is a major asset in maintaining the viability of downtown. Also, consideration had not been made in this study to the recent legal changes pertaining to TIF. In 1994, the property tax structure in Michigan was significantly changed as a result of a special election on an item known as “Proposal A.” Voter approval of the proposal on March 15, 1994 meant that school district revenue would no longer'come from property taxes. As a result, school tax revenue from the captured assessed value of property in the DDA was no longer a potential revenue source after 1994. The anticipated tax increment revenues in Howell and Ludington had been determined in plans drafted prior to this change having been made. The respondents in both cities reported that they were having difficulty finding adequate funds to continue implementation of the original plan. Although Tecumseh had begun streetscape improvements in 1990, prior to the 1994 passage of Proposal A, their current revitalization strategy was developed in 1995. Chris Manegold did not report any funding 40 problems in Tecumseh. Rather, he stated that the revitalization is currently on schedule. Further research would be required to know the full impacts of this change on past and future DDAs in Michigan cities. CONCLUSION The stated objective of this study has been to evaluate the extent to which Michigan DDAs in cities with a population of between 5,000 and 10,000 people are able to develop widespread support, management by a full-time staff, and a downtown development plan to engage in an economic and historic revitalization of downtown. This evaluation has been made based on the review of revitalization plans and strategies and through telephone interviews with city staff responsible for the administration of DDAs in Howell, Ludington, and Tecumseh. Once again, the study found that: overall citizen participation, in addition to that of downtown business and property owners, may be a necessary element in developing widespread support; strengthening the overall identity of downtown through historic preservation is generally a shared goal in the downtown that can facilitate the development support and collaborative action; full-time management seems to be best, but part-time is better than none; the DDA serving in the role of manager and facilitator of the economic and historic revitalization strengthens the public-private partnership, increasing the potential for success; DDAs have the capacity to create a downtown plan that includes: an inventory of existing conditions; identification of problems and opportunities, with a market analysis for overcoming problems and taking advantage of opportunities; the. boundaries of the plan area; goals, objectives, and action plans; and a description of the management and financing necessary to implement the plan; the changes in the property tax structure resulting from Proposal A may limit the funding opportunities for TIF plans developed prior to 1994; and preservation plays an ever increasing role in the revitalization of downtown. 41 42 This review indicates that Michigan DDAs in cities of between 5,000 and 10,000 people can develop the capacity for forming such an organization. The study, as well, points to some possible avenues for future research. Recommended Future Research The scope of this study has been sufficiently limited to allow completion within the available time frame. The study has, therefore, only considered three Michigan cities. As has been indicated, this represents only a small sampling of cities that might potentially be studied. City staff were interviewed to gain a municipal perspective. A more comprehensive survey would allow for input from other interested parties including, elected officials, business owners, chambers of commerce, and DDA board members to see if the perception of the DDA in each downtown is universally accepted by all stakeholders. The study should be seen, therefore, as a preliminary investigation of the issue. - In addition, as it was completed, the study indicated certain trends not considered in the design of the research that may be worthy of additional study. The relative success of the efforts in the three study communities was not considered, for example. As the research of the ULI indicated, there appears to be a correlation between the success of the effort and the strength of the organization. Future study might consider the economic and quality of life returns that a community could expect based on the level of organizational commitment. While the study indicated a capacity for DDAs to perform as successful revitalization organizations, there was a wide disparity in the level of support from 43 business and property owners. There is nothing in this study that can definitively account for the ability of Tecumseh and Howell to accomplish coordinated action, where business owners in Ludington were unable to formally identify a shared vision for downtown. Research could discuss the historical political, developmental, and demographic trends in the three cities and attempt to reason why a climate that favors coordinated action does not exist in Ludington. Finally, in reviewing the revitalization plans of Howell and Ludington, both implemented prior to the passing of Proposal A, and that of Tecumseh, implemented after the Proposal, there seems to be a distinction in the ability of the DDAs to maintain sufficient funds. The respondents from Howell and Ludington indicated that the respective DDAs were struggling to find the money to continue with implementation. The Tecumseh DDA is having no such problem. Future study should examine whether this distinction is attributable todifferent management strategies, for example, or whether pre- Proposal A DDAs are subject to a lack of funds due to the restructuring of property taxation in Michigan. 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(90% A VENUE 'acent Re idential l FigureBT L DEVELOPMENT AREA PLANNING SUBAREAS fil I ... _ . S--. a... ....... -... . .eavh s f 3"” a W -. ' ’ 1 VOTE: THE ABOVE DOWNTOWN DEVELOPMENT AUTHORITY DISTRICT BOUNDARIES \ AND ’AX DARCELS ENCLOSED 'HEREIN ARE BASED ON TAX ASSESSMENT 9CLLS. .__35‘,~'5‘ QECCRDED DLATS. *lCHT—OF—NAY AND OTHER NFCRHAT'ICN SUPPLBED iY V CITY 7F HOWELL AND DOES ‘IOT REPRESENT AN ACTUAL SURVEY. a ‘...o \ll 43qu t _. I}! \.‘ll|| \~II|\\. NM“ 1"” \un \Ilhll. - ‘; 4:; ;_;' ‘i-p .2<. =03 'n. U :1! :r: ' < E x < '9‘ Source: City of Howell (1990, 17) L—n!‘ - I Ir 7 I I 2 I, I c E; I J 2 - "— - ’T‘I tab-j ~ [—7 [2th [::l , « 7‘; C: - _ _I:::I [ZIEZI 2' . [.4 Q :3 [_l 3,, IHARauETVE _ ”(4 - . I ‘ ET I; 1 S ‘ ‘ ‘ ’ ‘ I . :__. T 7 g T “'I i' r g r ‘ 7 g 7 Jr; D" 1 . :‘J a J U l J O O) ' C I?” 9" 0 fl) Qi- ~‘O E—TI V. I. n! ‘I‘O I I. f I. ‘5' :I l I. II ‘T -I I. d, .'¢ ...-5:: I.“ ‘ ' owJ _ T—fg. 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