Hollywood Meets Main Street

While most Americans may not have heard of the small town of Las Vegas, New Mexico, many have traveled there –at least in their imaginations – while watching major Hollywood blockbusters such as 2007’s Academy Award winner for Best Picture “No Country for Old Men,” the 1984 Cold War thriller “Red Dawn,” and 1969’s counter-cultural landmark “Easy Rider.”  For almost one hundred years, filmmakers and television producers have found Las Vegas to be an ideal location for shooting productions on its historic streets and beautiful surrounding countryside.

Situated in north central New Mexico between the foot of the Rockies’ Sangre de Cristo Mountains and the edge of the Great Plains, Las Vegas’ outskirts can serve as a stand-in for a variety of different locales because of its diverse physical landscape.  In town, Las Vegas’ built environment features homes, storefronts, and civic buildings that showcase a wide breadth of prominent mid-to-late 19th  century architectural styles such as Italianate, Victorian, Queen Anne, Mission Revival, and many others.  This diversity in building style, the result of the city’s interesting history, makes Las Vegas a unique backdrop for film and TV productions, particularly ones seeking an authentic-looking small town with a colorful “Main Street” lined with stores, restaurants, and galleries.

Las Vegas’ Bridge Street, which connects “Old Town” with “New Town,” is home to shops, restaurants, and galleries that exemplify the Italianate commercial architecture popular in the mid-to-late 19th century.  (Photo Courtesy of the Las Vegas Citizens Committee for Historic Preservation)

Las Vegas’ eclectic architecture and vibrant history also make it a place worth preserving and redeveloping.  With local, state, and federal funding, Las Vegas has made significant progress through historic preservation, main street redevelopment, and supporting the arts and cultural activities.  These efforts have helped instill a sense of place as well as provide an economic boost to this city of 13,000 by creating jobs, spurring new businesses, and attracting private investment.

‘A Rich and Unusual History’

Las Vegas’ look and appearance today has been shaped by almost two centuries of cultural and economic influences, varied land use patterns, and the impact of transportation advancements.  “Las Vegas is a town with a very rich and unusual history,” says Doyle Daves, a Las Vegas resident and board member of the town’s Las Vegas Citizens Committee for Historic Preservation (LVCCHP).  “Even today, we still talk about it in terms of ‘Old Town’ and ‘New Town.’”  This geographic distinction is the result of two major economic periods that shaped Las Vegas.  Founded in 1835 along the Gallinas River, the city became an important drop-off point along the Santa Fe Trail, the critical 19th century route that carried goods and people between New Mexico and Missouri in the days before railroads.

In its heyday as an important spot along the Trail, Las Vegas consisted of small adobe homes located around a main plaza and church, in a traditional style of the Southwest region modeled after the Spanish Laws of the Indies.  Streets were winding, narrow, and spread out in relation to the terrain and to meet agricultural needs, rather than any particular plan.  During these years, Las Vegas grew in population and financially prospered due to its prime location along the Trail, 70 miles east of Santa Fe.

Las Vegas’ look and appearance today has been shaped by almost two centuries of cultural and economic influences, varied land use patterns, and transportation advancements.  (Photo Courtesy of the NM State Records Center and Archives)

Changes would eventually come to Las Vegas in the form of the powerful trains arriving from the East on the Atchison, Topeka, & Santa Fe Railroad that first arrived in town on July 4, 1879.  Though the invention of the railroad had major political, social, and economic impacts on the entire country, the changes it brought to Las Vegas were particularly profound.  The railroad depot in “New Town” was situated one mile away from “Old Town’s” central plaza.  In addition to bringing new goods, people, and attitudes from the East, the arrival of the railroad also resulted in new and different styles of planning and land use in the district surrounding the railroad depot.  In contrast to Old Town’s original winding and narrow streets, development in this part of town was based on a gridded street pattern found in Eastern cities and towns.  Streets were wider, more orderly, and lined with multi-story buildings designed in a variety of architectural styles such as the popular Italianate and Victorian.

The divisions that existed in town at this time were not limited to architecture and street design, but to politics and economics, as well.  These differences led to the community being split into East and West Las Vegas, which separately incorporated in 1888 and 1903, respectively.  They would eventually merge into one municipality, but not until 1970 after citizens voted for consolidation.  This history, though divisive at times, has shaped Las Vegas into the unique place it is today.  “Th[e] contrast between two different traditions and their cultures, and the friction and conflict that came with it, also brought to Las Vegas a diversity of styles, political prominence in northern New Mexico, a distinctive hybrid architecture, and a unique heritage that still gives the town a special sense of place unlike any community in New Mexico,” notes the 2011 Las Vegas Comprehensive Master Plan Update.

Like many other railroad boom towns that thrived in the late 1800s, Las Vegas did not fare as well in the twentieth century.   It suffered a major setback in 1905 when a new rail line was built in New Mexico between the towns of Clovis and Belen, cutting off Las Vegas in the north.  The Great Depression hit the community hard, and with the eventual decline of the railroad industry with the postwar rise of automobile and truck travel, Las Vegas turned into only a passing blur for many travelers whizzing through the state on I-25.  Today, Las Vegas is home to over 900 buildings listed on the National Register of Historic Places, one of the highest per capita in the nation.  In a strange twist of fate, Las Vegas’ mid-century economic challenges resulted in a historic and architectural goldmine that is “frozen in time,” in the words of the city’s 2010 Downtown Action Plan.  “So many of these historic buildings are still standing here because no one had the money to tear them down” after Las Vegas’ boom town days ended, says LVCCHP’s Daves.

‘A Good Time to Invest in Downtowns’

Main Street de Las Vegas covers a 1.07 mile corridor that includes the three major commercial districts in the city: Old Town, New Town, and Railroad Avenue. Click image to enlarge.  (Map courtesy of Community by Design)

It is within these historic buildings and along these streets that Las Vegas is seeking to promote economic development and foster a sense of community pride.  The city has benefited from being located in a state that values the importance of vibrant downtowns and main streets.  The New Mexico MainStreet Program was created in 1985 by the state legislature to support local towns and communities implement the National Trust for Historic Preservation’s Main Street Four-Point Approach which emphasizes economic development through historic preservation.

New Mexico MainStreet, part of the state’s Economic Development Department, provides technical assistance, training, business support, and other services to the 23 programs located throughout the state.  The work has resulted in major tangible results in both large and small communities.  In 2012, 622 new jobs were created, 134 new businesses were launched, and 135 private buildings were renovated, resulting in $16,912,000 in private sector reinvestment in communities involved with MainStreet.  These initiatives “are critical for New Mexico and particularly rural communities,” says Rich Williams, the program’s director.  “This is a good time to invest in downtowns, through acquiring or renovating a property or launching a new start up.  Main streets are the greatest places in the world to incubate small businesses,” he says.

‘A Visible Impact in the Community’

Las Vegas became a certified MainStreet community in 2005.  Projects are coordinated locally by Main Street de Las Vegas (MSLV), which oversees projects in a 1.07-mile corridor that connects the city’s three major commercial areas of Old Town, New Town, and Railroad Avenue.  These districts are home to a varied mix of shops, restaurants, galleries, bookstores, museums, residences, and hotels.  From 2005 to 2011, the work of Main Street de Las Vegas resulted in 18 net new businesses, the creation of 181 new jobs, and sparked $12,003,088 in private reinvestment.  Over $890,000 was received in public sector grants.  “Our organization has made a visible impact in the community,” says Cindy Collins, executive director of Main Street de Las Vegas.

State capital outlay funds have led to streetscape improvements in the downtown area as well as provide resources to support the creation of a Downtown Action Plan, which was finalized in 2010.  The city received $99,000 from the US Department of Agriculture Rural Business Enterprise Grant (RBEG) program to provide state and federal tax credit assistance to owners renovating buildings in the downtown area as well as to provide technical assistance to small business owners and operators.  USDA funds also led to the installation of WiFi in the downtown area and a GIS database of local businesses.

The Castañeda Hotel, formerly part of the famed Harvey House chain, was purchased in December 2012.  The plans to renovate the hotel will be “transformative” for the city, says Cindy Collins of Main Street de Las Vegas.  (Photo courtesy MSLV)

Two recent developments have generated much excitement in Las Vegas – the upcoming renovation of the Bridge Street Breezeway and the recent purchase of the long vacant Castañeda Hotel.  The Breezeway is an open air structure that sits on the former site of a vacant building that collapsed on Bridge Street.  Main Street de Las Vegas received $90,000 in capital outlay funds to renovate the space with the goal of using the area and the parking lot behind it for art exhibitions, music performances, and potentially a farmers market.  Work will begin in spring 2013.  In December 2012 the Castañeda Hotel, one of the former hotels in the famed Harvey House chain, was purchased by an investor seeking to renovate it and also include an artistic element to the property.  The Castañeda is situated next to the Las Vegas Intermodal Center, located in a renovated train station built in 1899 and today served by Amtrak’s Southwest Chief train.  “This project has the potential to be transformative for our city,” says Collins.  The buyer first became interested in investing in the property after reading the city’s master plan and later reached out to Main Street de Las Vegas with his proposal.

Volunteers, including students from nearby New Mexico Highlands University, have helped repaint 10 vacant buildings as part of the “Façade Squad” sponsored by Main Street de Las Vegas.  (Photo courtesy of MSLV)

Volunteers have been a key driver in the progress made along the main street corridor.  In 2011 alone, over 1,300 volunteer hours were logged.  One of the most successful volunteer-led projects has been the “Façade Squad,” a group of volunteers who have helped repaint 10 vacant buildings in an effort to beautify the area and inspire additional restoration.  Students from New Mexico Highlands University, located in the heart of Las Vegas near Bridge Street, have often volunteered on these painting teams.  Over the past five years under new leadership, the university has evolved into a major supporter of community development efforts in Las Vegas.  “The university recognizes that what’s good for the university is good for Las Vegas, and vice versa,” says Main Street’s Cindy Collins.  Highlands University was also a partner in the installation of a sign that directs visitors to the downtown area, the historic plaza, and the university itself, a major improvement as the community has lacked adequate signage to attract visitors off the highway.

Las Vegas has suffered from poor signage and wayfinding. Recently, this sign was been installed to direct visitors and passersby to the downtown and historic districts.  (Photo courtesy MSLV)

The North Central New Mexico Economic Development District (NCNMEDD) has been an active partner is supporting redevelopment efforts in Las Vegas, as well as including it in larger regional planning.  NCNMEDD covers a seven-county region and has worked with the city in application and grant preparation, technical assistance, and planning for a variety of projects, including a Community Development Block Grant (CDBG) application to fund the Comprehensive Master Plan and assisting in efforts to fund streetscape improvements.  NCNMEDD has included Las Vegas’ economic development strategies into the latest regional Comprehensive Economic Development Strategy (CEDS) report and also works with the city as part of a Regional Transportation Planning Organization that provides technical assistance and other support for local transportation projects.

Historic Preservation and Promotion of the Arts

Las Vegas’ main street redevelopment efforts have been bolstered by strong support for historic preservation and the promotion of the arts and culture in the city and surrounding areas.  Since 1977, the Las Vegas Citizens Committee for Historic Preservation (LVCCHP) has worked to support historic preservation in the city through both advocacy and educational initiatives.  It has assisted in writing Las Vegas’ historic buildings ordinance, partnered with the city to receive Certified Local Government status from the state to receive federal historic preservation funding, and organized educational workshops and tours to highlight Las Vegas’ past.  One of LVCCHP’s marquee events during the year is the annual “Places With a Past” tour held during Heritage Week.  This tour brings residents and visitors through homes that showcase Las Vegas’ diverse architectural styles, from the traditional adobe to the more ornate Victorian style.  “Places With a Past” also visits the Montezuma Castle, located six miles northwest of the city.  The castle, originally built as a hotel in 1886 for visitors to the nearby hot springs, is now home to the US campus of the United World Colleges.  This tour, as well as the Holiday Home tour and Garden tour, bring in visitors from the larger cities of Albuquerque and Santa Fe, as well as some out-of-state guests.

The Baca Building (right) and Estella’s Café (middle) are local landmarks on Bridge Street.  Families and individuals have been critical in supporting historic preservation efforts throughout the city.   (Photo courtesy of Emilio Baca)

Individuals and families have also been instrumental in supporting historic preservation in Las Vegas, rehabbing family homes and businesses while maintaining historic facades and designs.  William “Wid” Slick, owner of the Plaza Hotel located on Old Town’s plaza, has been active in preservation and restoration work in Las Vegas since the early 1980s, when he was involved in the restoration of the 19th century hotel.  Today, the Plaza and the adjoining Ilfeld Building are major attractions in the city for tourists and locals alike.  In 1980, Elmo Baca and his father Manuel bought and renovated an Italianate commercial-style building originally built in 1884 on Bridge Street, the colorful thoroughfare which connects Old Town and New Town.  That project first sparked Elmo’s interest in downtown revitalization and preservation efforts and he continues to remain involved in these community issues.  His building is located next to Estella’s, a family owned and operated restaurant open for over six decades.  It is a local landmark in its own right and its vintage sign outside is a favorite subject for amateur photographers seeking to capture the historic essence of Bridge Street.  This local community buy-in to preservation is an important reason Las Vegas has been able to maintain its historic character and charm.

In 2008, Las Vegas was designated by New Mexico as one of the two first pilot cities for the newly created Arts and Cultural Districts Program, established the year before by the state legislature with the goal of fostering local economic development through the arts and tourism.  Designation as an arts and cultural district provides for additional redevelopment support from the state, including more historic preservation tax credits and tourism funding (Tourism is the second largest net revenue generator in New Mexico).  Since its creation in 2007, the program has now expanded to serve six districts throughout the state.

One of the local organizations that has benefited from Las Vegas’ designation as an arts and cultural district is the Las Vegas Arts Council (LVAC).  Located in a historic building on Bridge Street, LVAC has supported a variety of artistic programs and initiatives in the community for over three decades.  With the help and support of volunteers, it converted its front office space into the Gallery 140 and for the past three and a half years has run a program to showcase local artists and musicians.  “The gallery gives arts a center stage and helps highlight the importance of the arts in our community,” says Linda Wooten-Green, a local artist and co-president of LVAC.  Recent shows in the gallery have featured sculpture, quilts, and tin artwork.  The gallery also hosts a Sunday music salon in the winter where local musicians, including high school and college students, perform in the space to around 40 to 50 people.  LVAC also supports the city-sponsored annual People’s Faire held every August for over thirty years.  Between 60 to 80 vendors from the region set up in Carnegie Park and sell crafts, jewelry, baked goods, jams and jellies, books, and other wares.  All of these efforts are part of the larger goal of making Las Vegas part of an “arts triangle” with the cities of Santa Fe and Taos.

Since the early 1900s, Las Vegas has served as the backdrop for many films and television shows because of its diverse architecture and landscape. Here, University Avenue is outfitted as a border crossing for the 2008 film “Inhale.”  Las Vegas is actually located over 300 miles away from the real US-Mexico border.  (Photo courtesy of the Las Vegas New Mexico Film Commission)

As mentioned earlier, Las Vegas has hosted numerous film and TV productions for almost one hundred years, dating back to the silent era when Tom Mix rode into town to film his western movies.  In addition to the natural and built environment that has attracted filmmakers, New Mexico’s film tax credit, which provides crews with a 25% refundable tax credit on production expenditures, is a major incentive for producers.  The local economy has benefited from these projects, as crews rent hotel rooms, eat and shop in local businesses, utilize local building material suppliers, and sometimes use locals as extras on productions, says Lindsey Hill, film liaison at the Las Vegas New Mexico Film Commission.  “The film industry has also helped increase tourism in our community,” she explains.  “People come from all over to check out the many film locations that have been used.  This is what spurred the creation of a film tour guide,” which includes information about the history of film in the city and points of interest for visitors to see the actual locations from some of their favorite movies.

A New Chapter 

For the 14,000 residents who call Las Vegas, New Mexico home, this town is not simply a stand-in for some other community on a movie or television screen, but rather a very real place steeped in local history, culture, and natural beauty.  These are the local assets that have attracted filmmakers to this small community for years, and it are these assets that local residents and officials are working to capitalize on to make Las Vegas a vibrant place to live, work, and be entertained.  Through local economic development efforts including main street redevelopment, historic preservation, and the promotion of the arts, Las Vegas is seeking to write a new chapter in its storied history – one that builds on its past to create a stronger future.

This case study was researched and written by Brett Schwartz, NADO Research Fellow.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

The Baca Building (right) and Estella’s Café (middle) are local landmarks on Bridge Street in Las Vegas, New Mexico. Families and individuals have been critical in supporting the city’s historic preservation efforts.

It has often been said that “If you’ve seen one rural town, you’ve seen one rural town.”  This observation is certainly true as each community has its own geography, history, natural resources, climate, and demographics.  However, the unique nature of each town should not serve as a barrier for sharing success stories and best practices because communities – particularly small towns – can learn much from each other about building partnerships, seeking innovative funding opportunities, and encouraging community participation in economic development projects.  While not every small town will have the same local assets and advantages described in these case studies, every community does have the opportunity to look at itself, bring residents and elected officials together, and set a vision for how to take advantage of local assets in whatever form they take.  It is the goal of these case studies  to provide a snapshot of a few communities that have succeeded in beginning to make those visions a reality.

Featured Case Studies:

• Las Vegas, New Mexico
• Guthrie, Kentucky
• Potosi, Wisconsin
• Greenville, Kentucky
• Lavonia, Georgia
• Sheridan County, Wyoming
• Lewistown, Pennsylvania
• Clinton, Iowa
• Rome, Georgia

A citizen-supported restaurant and hotel tax in Greenville, Kentucky established a Tourism Commission which has financed downtown façade improvements as well as free festivals and concerts, including the popular summer music series, “Saturdays on the Square.” (Photo Courtesy of Greenville photographer Amy Hourigan)

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This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

Fifty miles south of Greenville, Kentucky (previously featured here), the Pennyrile Area Development District (PADD) has been a partner in another transformative small town redevelopment project in Guthrie.  This past August, the town broke ground on a planned Transportation Museum and Welcome Center, a $1.4 million project almost a decade in the making.

Guthrie, home to 1,400 residents, is located along the Kentucky-Tennessee border and is steeped in transportation and American history.  Known as the “Crossroads of the South,” the town is named after James Guthrie, former US senator from Kentucky and one-time president of the Louisville and Nashville Railroad – the company that built the first major switch track in the city.  Throughout the years, other rail lines would be routed through Guthrie both north-south and east-west, solidifying the town as a major destination during the golden era of the railroad.  The town also has its place in one of the darker episodes of American history as Native Americans on the Trail of Tears entered Kentucky by way of Guthrie on the journey westward.

Abandoned for decades, the two-building structure in downtown Guthrie known as the “Jenkins Building” will be home to a new transportation museum and Trail of Tears route welcome center when it opens in summer 2013. (Photo courtesy of De Leon and Primmer Architectural Workshop)

Though the railroad industry and Guthrie itself has changed much since its boom years, this town has not forgotten its roots and continues to embrace the culture of the industry that led to its development almost two centuries ago.  The transportation museum and welcome center for those touring the National Trail of Tears route will be located in a 120-year old two-building structure located downtown, known locally as the “Jenkins Building.”  Vacant since the early 1980s and currently in major disrepair, this 8,000 square foot space was the former site of a pharmacy and later the Jenkins Department Store which served the residents of Guthrie and surrounding areas for decades.  The red brick building was donated to the city after Mayor Scott Marshall reached out to the owner and discussed the plans for a museum.

Small Town, Big Expectations  

The museum and welcome center will be located in downtown Guthrie near the very train tracks (visible to the right and top of the photo) that helped shape the history and culture of this small Kentucky town. Click to enlarge map. (Image created using Google Earth)

Guthrie has set high expectations for this locally-driven project.  “Our goal is to have the museum be the same quality as one you would find in much larger cities, such as Louisville or Lexington,” says Tracy Robinson, Executive Manager of the city’s Guthrie Partners for Main Street.  Much of that high-end quality will come from enlisting the services of the De Leon & Primmer Architectural Workshop, a Louisville-based firm which specializes in designing modern projects that embrace local themes and history.  “A key part of the design concept was heavily influenced by common and familiar elements specific to the railroad and transportation industry that was so important to the city’s early growth,” explains principal Roberto de Leon.  Once completed, visitors will experience a renovated building which highlights the town’s past through the use of steel plate framing, concrete walls, and even color gel fluorescents which will elicit transportation-themed colors of red, yellow, green, blue, and brown.  The inside will mostly be gutted to make room for the modern exhibits, but the exterior façades and beautiful brick walls will be preserved, including a hand-painted vintage Coca-Cola mural advertising the soft drink for five cents a bottle.

Community involvement and buy-in was crucial while planning the museum.  “Throughout the design process, we worked closely and collaboratively with the Guthrie community and city leaders, organizing a series of workshops to maximize the value of the community’s investments in the project.  Most importantly, we were interested in the community’s aspirations,” says de Leon.

A rendering of the proposed exterior design for Guthrie’s transportation museum and welcome center. (Photo courtesy of De Leon and Primmer Architectural Workshop)

What was once an eyesore in downtown Guthrie will now attract visitors to learn about the city’s past, the transportation industry, and the larger surrounding region.  It is anticipated that visitors to the museum will benefit local businesses as people will shop and eat while downtown, an area that currently has 17 commercial buildings.  More importantly, the transportation museum is expected to serve as a larger catalyst for economic development in addition to the immediate local jobs created during the renovation stage.  “By renovating the Jenkins Building, this project can inspire other projects across the street, then down the street, and overall instill a sense of pride in the community,” says Robinson of Guthrie Partners for Main Street.  Finally, in addition to the economic development the museum is expected to bring to Guthrie is the priceless role that the museum will serve in celebrating the town’s past and reminding the residents, particularly children, of their own vibrant heritage.

‘You Must Be Persistent’

While the interior of the building will mostly be gutted, the building’s historic façade and brick exterior will be preserved, including this vintage Coca-Cola advertisement. (Photo courtesy of De Leon and Primmer Architectural Workshop)

Funding for the project was pooled from a $500,000 Community Development Block Grant (CDBG) and $900,000 from two Kentucky Transportation Enhancement (TE) grants.  “During the grant process, you must be persistent,” explains Robinson.  “We had to compete with much larger communities vying for limited amounts of money which means you have to be creative.  A project like this means a lot to a community like ours and we were stubborn enough not to give up.”  That persistence was clearly demonstrated by Mayor Marshall who made numerous trips to the state capital in Frankfort to seek funding and support for the project.

PADD supported the city in preparing the application and are also administering the CDBG funds.  “The interstate highways today take you around the towns that used to be the jewels of the region,” says Jason Vincent, PADD’s Assistant Director.  “With this new museum, Guthrie will have an opportunity to showcase its rich transportation history by attracting visitors to town.”

Through this new museum and welcome center, Guthrie has been able to turn a community liability into a true asset.  When it opens in the summer of 2013, it will have been after years of hard work, struggle, and dedication – much in the same spirit of Guthrie’s original residents who built this railroad town many years ago.

This case study was researched and written by Brett Schwartz, NADO Research Fellow.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

‘The Good Ol’ Days Are Back’

Located in Southwestern Wisconsin near the banks of the Mississippi River, Potosi is known as the state’s “Catfish Capital.”  However, thanks to an innovative and community-led redevelopment project, this town of 700 people is becoming internationally-recognized for another one of its homegrown resources:  locally-brewed beer.

In 2008, after being abandoned for over 30 years, the Potosi Brewery once again began producing beer from its facility on South Main Street.  The newly restored historic site is also now home to the American Breweriana Association’s National Brewery Museum and other attractions, making it a major tourist destination in the region for beer enthusiasts from all over the United States and throughout the world.  During the first year of its reopening, the brewery had around 50,000 visitors from every state and over thirty countries.  In 2012, it is estimated that over 70,000 people passed through the small village to visit the brewery and museum, as well as to enjoy the variety of outdoor recreational opportunities in the area such as swimming, hiking, and fishing.

The Potosi Brewery as it stands today, renovated after it was vacant for three decades. (Photo courtesy of the National Brewery Museum)

Outside the brewery, a large vintage-looking advertisement proudly exclaims:  “Because of you, the good ol’ days are back.”  This sign is not a mere advertising gimmick.  Potosi’s success story truly has been about the village’s citizens coming together as a community to invest and rally behind a long dormant local asset.  While it is the brewery’s product – beer – that gets the headlines and brings in the visitors, Potosi’s accomplishments are rooted in the people of the village who revived and re-branded an important part of their history, embraced historic preservation, and developed a unique business model that has led to its success today.

Potosi’s Rich Brewing History

The Potosi Brewing Company survived the Prohibition era and went on to become the fifth largest brewery in Wisconsin. (Photo courtesy of the Potosi Brewing Company)

The history of beer production in Potosi dates back to 1852 when a small brewery first opened in the village.  During this time, many small Wisconsin towns had a local community brewery or cheese plant to serve residents, farmers, and laborers in the days before refrigeration allowed products to travel great distances.  However, it wasn’t until 1886 when Adam Schumacher bought the brewery and later formed the Potosi Brewing Company with his brothers that the brewery began to reach far beyond southwest Wisconsin.  Unlike many other small breweries, Potosi was fortunate to survive the Prohibition era and would eventually go on to become the fifth largest in the state, selling beer all over the United States.  Until its closing in 1972 due to the high cost of doing business, the Potosi Brewing Company was the primary employer in town for 120 years.  In 1980, the brewery buildings were listed on the National Register of Historic Places.

Despite its historic status and importance to the community, the brewery sat vacant and slowly deteriorated, also suffering damages from a fire that broke out in the complex.  For years, it looked as if the buildings would serve only as a dilapidated reminder of Potosi’s prosperous past until 1995 when local artist and woodworker Gary David and his cousin Denis David bought the brewery buildings for the cost of back taxes with the goal of restoring them.

A Local Asset Is Brought Back to Life

Five years later in 2000, renovation efforts expanded to involve the entire community with the establishment of the 501(c)(3) non-profit Potosi Brewery Foundation, modeled after the philanthropic Newman’s Own Foundation.  Upon its creation, the Foundation’s goals included renovating the brewery and ensuring it would be a “self-sustaining entity,” helping to “reconnect the community to a part of its cultural heritage,” and making the complex a tourist attraction and educational center highlighting Potosi and the greater region.  In 2001, the 28,000 square-foot brewery complex was donated to the Foundation which organized the redevelopment and funding efforts that would eventually culminate with the brewery’s grand reopening in June 2008.

Local businesses in the area all complement each other by providing lodging, retail, and event space. Click the picture to enlarge.  (Photo created using Google Earth)

The $7.5 million restoration project was funded from a variety of federal, state, and private sources.  As part of the USDA’s Business and Industry Guaranteed Loan Program, the federal government backed a $2.6 million loan which was extended by the Mound City Bank.  Additional development costs were then guaranteed by another USDA loan of $660,000.  The project also received a total of $849,000 from the Federal Highway Administration’s National Scenic Byways Program.  State historic preservation challenge grants, transportation enhancement grants, and Wisconsin Department of Natural Resources (DNR) brownfields grants for assessment and cleanup of the buildings provided a large part of the initial funding.  In February 2010, the Southwestern Wisconsin Regional Planning Commission (SWWRPC) made a $75,000 loan from its EDA Revolving Loan Fund (RLF) for additional expansion.  “Small towns like Potosi know that the only way to pull off projects like this is to seek funding from a variety of sources,” explains Linda Hanefeld, a project manager with the Wisconsin DNR.  The Foundation was able to raise five million dollars for the project, and is currently making steady progress in paying off the remaining loans.

A Visit to the Brewery

The National Brewery Museum, located at the Potosi Brewery, contains exhibits featuring historic beer bottles, cans, glasses, as well as other memorabilia and artifacts.  (Photo courtesy of the National Brewery Museum)

In 2004, the Potosi Brewery Foundation received a major boost to its redevelopment efforts when the brewery was chosen by the American Breweriana Association (ABA), an organization of beer historians, collectors, and preservationists, to be the home of the National Brewery Museum.  “It is a facility that Milwaukee, St. Louis, and others were trying to land, but here it is in Potosi,” says village president Frank Fiorenza, who has also been on the brewery’s board of directors since 1999.  “Landing a national museum with more than $2.5 million of artifacts changed the scope of things.”  The museum, managed by both the ABA and the Foundation, features historic beer bottles, cans, and glasses, as well as other memorabilia and artifacts displayed in both permanent and changing exhibitions.  The museum also houses the ABA’s Brewery Research Library which is open to the public.  In addition to the National Brewery Museum, the brewery has two other museums – a transportation museum and an Interpretive Center highlighting the historical and economic importance of the nearby Mississippi River.

Visitors to the brewery complex have a variety of entertainment and retail options while on the grounds.  These include a restaurant and outdoor beer garden which often serves meats, cheeses, and produce from area farms.  The restaurant’s handcrafted wood bar was made by artist Gary David, whose original vision helped spark the revitalization of the brewery after he first purchased the grounds.  A gift shop and art gallery showcasing work from local artists are located across the street from the brewery.  Potosi’s population swells in the summer with the annual Potosi BrewFest which attracts beer enthusiasts for beer and wine tastings, food, music, and tours.

A Local and Regional Economic Impact

“The brewery project was never an end in itself,” notes Potosi’s Fiorenza, who was instrumental in seeking funding for the project.  “I always saw it as a catalyst for additional economic development in the village.”  In its four years of operation, the brewery has provided a major economic boost to Potosi, creating 70 direct jobs and showing consistent financial returns from an increase in beer and merchandise sales.  2012’s beer sales are 13% higher than the previous year.  The restaurant has seen a 7% sales increase and gift shop sales are up 5% as many of the 70,000 visitors to the brewery have opted to bring home a reminder of their visit to Potosi.  The brewery now has ten distributors in Wisconsin, three in Iowa, and four in Illinois.

Importantly, the brewery’s economic impact reaches far beyond its location on South Main Street.  A 2009 Economic Impact Assessment written by the Southwestern Wisconsin Regional Planning Commission with additional research from the Grant County Economic Development Corporation found that the brewery had a $4.3 million impact on the region, generated by wages, beer and merchandise sales, and additional tourist revenue.   The study recognized the importance of local volunteers in supporting the brewery’s business model, noting that “[t]he organization is volunteer-driven and it would not likely have the impact it has had without those efforts.”  A new report is expected to be conducted soon which will likely show an even greater impact as the brewery has expanded its operations and seen an increase in visitors since the 2009 report.  Frank Fiorenza believes that a key part of the brewery’s success as a redevelopment project is that there was a long-term economic vision in addition to the historic preservation element.  “We had a product to sell – a beer with a recognized name. What is restored has to have some business component built into it so that it becomes self-sustaining.  A revenue-generating aspect has to be part of the restoration process to pay its own way,” he advises.

The Holiday Gardens Event Center, located across the street from the brewery, hosts a variety of special events and wedding receptions.  (Photo courtesy of the Holiday Gardens Event Center)

The brewery is closely interconnected with other thriving local businesses in Potosi which creates wider economic development for the village.  Prior to the brewery’s reopening in 2008, the Holiday Gardens Event Center and Pine Point Lodge both opened up nearby.  Holiday Gardens, located across the street from the brewery, hosts a variety of special events and wedding receptions throughout the year, serving about 18,000 guests annually.  “Many of our brides and grooms have their rehearsal dinner at the brewery and visit there on the day of their receptions,” says owner and manager Sharon Bierman, who runs Holiday Gardens with her family.  “We also keep Pine Point Lodge and the Potosi Inn booked for their rooms with wedding party members and out-of-town guests.”  The Pine Point Lodge was built a year before the brewery was completed and features four fully-furnished rental cabins near the Mississippi River.  Owner Mark Bode and manager Julie Oyen recognize the value of all the businesses in the area providing compatible services.  “We all have a part in making this work.  The efforts of the brewery, Holiday Gardens Event Center, the art gallery, and others all play an important role to make it all work for the good of our community and town,” says Oyen.

‘It Takes Patience and Persistence’

Potosi’s ability to turn a distinctive local asset into a world-class destination is due in large part to the Potosi Brewery Foundation implementing creative strategies that have embraced historic preservation, the tourism industry, innovative financing, and an effective non-profit business model.  Potosi has also benefited from additional local advantages.  “We have the Mississippi River at our doorstep, beautiful four-season scenery, friendly people, and great beer,” notes Sharon Bierman of Holiday Gardens.  Frank Fiorenza understands the unique nature of the project his town has undertaken and recognizes that not every small community has the assets or willpower to do so.  “I would like to believe that it can be [replicated elsewhere], but it takes a commitment and dedication of time that is not always easy to find.  It takes patience and persistence.  It takes community support.  It takes the right people to organize and spearhead efforts,” he says.  “Not every community has an historic building that can be restored, but perhaps there is a non-profit enterprise that can be supported to advance economic vitality.”

“Because of you, the good ol’ days are back…” reads a sign outside the brewery. Community involvement and volunteer support was instrumental in making this project a reality.  (Photo courtesy of the Potosi Brewing Company)

Award-winning beer and brewing history may be what brings visitors from all over the world to this small Wisconsin town.  But it is the people of Potosi that have made this project work, from local residents initially deciding to buy to the property, to the community’s involvement in the planning and visioning stages, to the over 100 volunteers who support the Foundation in a variety of capacities each year.  An emphasis on local – local beer, local food, and the local people themselves – have all contributed to the success seen here.  While the sign outside the brewery proclaims that Potosi’s “good ol’ days” have returned, the town’s economic development strategies that are rooted in a creative approach to main street redevelopment have set Potosi on a path to enjoy many more good days long into the future.

This case study was researched and written by Brett Schwartz, NADO Research Fellow.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

Five years ago if you took a stroll down Main Street in Greenville, Kentucky on a Saturday night you would have likely walked on deteriorated sidewalks, peered into vacant storefronts with dilapidated façades, and felt enveloped by silence and darkness.  Like many other small towns throughout the United States, Greenville’s downtown had slowly deteriorated as development and investments were directed elsewhere.

However, thanks to a forward-thinking mayor, a proactive tourist commission, an involved local community, and a supportive area development district, that same walk down Main Street today looks and feels very different.  In this town of 4,300, as many as 8,000 people have been known to fill the streets of Greenville on a weekend night in the summertime to enjoy live outdoor music, find something to eat at a variety of food stands set up by local establishments, and enjoy each other’s company.  Previously vacant buildings are now abuzz with activity, many now home to new retail stores and restaurants.  A mature woodland area off the downtown area has been preserved as a 12-acre nature park, complete with trails, bridges, and a manmade waterfall.  Sidewalks have been built and repaired, historic-looking street lights now shine down on the streets below, planters and trash receptacles have been installed, and engraved brick pavers line new curbs.  Residents in the region no longer think of Greenville merely as a lazy county seat with a historic courthouse, but rather as an economic and entertainment focal point in Muhlenberg County.

A citizen-supported restaurant and hotel tax established a Tourism Commission which has financed downtown façade improvements as well as free festivals and concerts, including the popular summer music series, “Saturdays on the Square.” (Photo Courtesy of Greenville photographer Amy Hourigan)

This positive change in Greenville was neither an accident nor left to chance; rather, it was the result of a small community with a vision for how to build on its local assets and infrastructure, seek innovative financing, and cultivate partnerships in a challenging economic environment.  This southwestern Kentucky town’s revival can serve as a model for other small communities throughout the country working to revive their historic downtowns and Main Streets.

Progressive Leadership and Active Partnerships

In 2006 at the urging of many of Greenville’s citizens, Eddie DeArmond ran for city mayor.  A retired state policeman, DeArmond won the race and took office in 2007 where he set in motion a major effort to redevelop the downtown business district and the surrounding areas.  “The mayor had a vision to make a difference in Greenville and leave the town better than when he found it,” says Ben Van Hooser, the city administrator tapped by DeArmond for the position.  “The downtown and other parts of the community had been deteriorating.  We wanted to breathe new life into the city.”

Sidewalks have been upgraded and now feature brick pavers and historic-looking streetlamps, not only improving pedestrian access and safety downtown, but also creating a distinct sense of place. (Photo courtesy of the City of Greenville)

Soon after taking office, Mayor DeArmond and City Administrator Van Hooser began a vigorous push to seek funding opportunities for streetscape and façade improvements along three blocks of Greenville’s Main Street.  With the support of City Council, they tackled the project by embracing the Mayor’s bold motto which is printed on a banner hanging in City Hall: “Don’t tell me why we can’t do it.  Just tell me how!”  Looking for support, Van Hooser reached out to Jason Vincent at the Pennyrile Area Development District (PADD), western Kentucky’s regional planning and development organization that serves nine counties and 33 cities.  Vincent, at the time a grant writer and today PADD’s assistant director, was excited about the prospect of collaborating with Van Hooser and Mayor DeArmond, whom Vincent regarded as a “progressive mayor who recognized the downtown area as the lifeblood of the community and had idea after idea about how things could be improved.”

PADD has worked with the city in seeking funding opportunities, preparing grant applications, and assisting with procurement activities.  “PADD helped guide and direct us in our efforts, particularly in how to make our grant applications stand out to someone who would be looking at a few hundred or so of them,” says Van Hooser.  Over the past five years, over $1.6 million has been raised to fund local redevelopment, streetscape, and recreational improvements.  This money came from grants such as Kentucky’s Transportation Enhancement Program, the Safe Routes to School Program, the Land and Water Conservation Fund, revenue raised by the local Tourism Commission, and even donations from hometown residents.

Façades, Festivals, and Footpaths

Supported by the city and the Tourism Commission, downtown business owners and volunteer residents worked together to paint and restore around 15 storefront façades through the “Let’s Paint the Town” initiative. (Photo courtesy of the City of Greenville)

Since redevelopment began, nine new businesses have located to the downtown area – many into previously vacant buildings – creating new jobs and instilling a sense of community pride.  These businesses include two new restaurants, two gift shops, a women’s apparel store, and a costume/accessories shop.

By investing in downtown through streetscape improvements and increased pedestrian access, the city has made Greenville an attractive place for entrepreneurs to open new businesses.  The city and the Tourism Commission (discussed further below) launched a “Let’s Paint the Town” initiative which joined business owners and volunteer citizens to paint building façades and restore many to their original colors and designs.  Around 15 buildings were given a facelift through painting and façade restoration, including one where mid-century hand painted signs were discovered and restored after vinyl siding was removed.  Other projects have included renovating the historic theatre’s marquee with neon and running lights, constructing new welcome signs entering the city, and installing outdoor speakers on downtown lights that play non-stop music from Sirius XM radio. 

Early in the redevelopment process, DeArmond and Van Hooser met with staff from the Kentucky League of Cities who encouraged the city to implement a restaurant and hotel tax that would fund a Tourism Commission to sponsor downtown events and activities.  A full-page ad was placed in the local newspaper with the headline “City of Greenville Seeks Your Support” and explained that the money would be used for festivals, sporting events, theatre productions, welcome signs, and other improvements.  The ad urged residents to support the tax, stating that it would “bring ‘life and business’ back to the downtown and will benefit all the citizens of Greenville.”  The tax was passed with zero opposition as the community rallied behind it to raise additional revenue.  It has brought in around $275,000 a year and has funded a variety of activities and events such as the “Let’s Paint the Town” program, the “Squash and Gobble” fall arts festival, and the popular “Saturdays on the Square” free summer music series which features live bands playing a variety of genres of music Saturday nights on the brick plaza in front of the town’s newly restored courthouse, originally built in 1907.

Greenville’s 12-acre nature park consists of a graveled trail, footbridges, birdfeeders, picnic tables, and a manmade waterfall and running stream, pictured here. The park has attracted many visitors from Greenville and throughout the region. (Photo Courtesy of Greenville photographer Amy Hourigan)

The changes taking place in Greenville have not only been accomplished using brick, cement, and paint.  While other projects were underway, a resident came to the city with the idea of establishing a nature park just two blocks from the downtown area near the elementary and middle schools.  When the city reached out to local landowners to acquire their land, three donated their properties to the city on the condition the land would be used for the park, while two others sold it at market value.  A combination of local donations from residents and grants from the Recreational Trails program and the Land and Water Conservation Fund have provided the finances to create what is now known as the Brizendine Brothers Nature Park.  This 12-acre wooded area consists of a half-mile graveled trail, three footbridges that run over 200 feet, birdfeeders, picnic tables, a four-foot manmade waterfall, and 150-foot running stream.  Deer, turkeys, raccoons, squirrels, birds, and other animals have been spotted in the area.  The park has attracted visitors not only from Greenville but from throughout the region, providing an economic boost to the city and county.

Despite the success achieved in Greenville, maintaining momentum has not been without its challenges, especially related to the general fund in this tough economy.  Additionally, over the past five years Greenville has experienced three federally declared disasters, including a deadly tornado, a debilitating ice storm, and damaging winds from Hurricane Ike.  In spite of these challenges, the local leadership and residents of Greenville continue to remain focused and resolute on creating a brighter future.

An Inspiration for Other Small Towns

While every town and city is unique with its own assets and challenges, Mayor DeArmond and City Administrator Van Hooser believe that the success achieved in Greenville can be replicated in other communities that have the vision and willpower to make positive changes.  They have shared their city’s story with other leaders, city councils, and citizens throughout Kentucky at best practices seminars and workshops.  “Our success is the result of a strong, progressive mayor working with a citizenry that was anxious to see deterioration turned around.  That, along with the support of the Tourism Commission and Pennyrile Area Development District, has led to success here in Greenville,” says Van Hooser.  Jason Vincent at PADD agrees:  “This town did the right things, at the right time, and in the right way.  It really came down to strong local leadership that sought community buy-in and support which has made a huge difference.”

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This case study was researched and written by Brett Schwartz, NADO Research Fellow.  Preliminary research was provided by Parrish Bergquist.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

Anticipating explosive growth associated with a new state-of-the-art medical center, Lavonia, Georgia, is working to balance new economic activity with its cultural heritage. By enhancing its downtown, the City is seeking to support downtown businesses and create a sense of place. Meanwhile, the City is analyzing its master plan, zoning code, transportation facilities, and utilities to guide future growth in a way that does not compromise the viewsheds, natural resources, and agricultural areas that the county’s residents value. According to Georgia Mountains Regional Commission (GMRC) regional planner Chip Wright, “We want to grow up instead of outward and reduce the sprawl that has happened in parts of the county around the interstates—we’re trying to correct that and enhance all the resources of this rural county.”

Lavonia town square (credit: flickr user Rusty Stanton)

Located in northeast Georgia, Lavonia grew up as a small farming community around the railroad and features a traditional town square and a number of historic buildings. With a zoning overlay and design regulations, the City has worked to preserve its historic assets and cultivate a community atmosphere. Lavonia joined Georgia’s Better Hometown Program in 1999, at a time when downtown vacancies had reached 45-50%. In 2012, only 4 sites downtown remain vacant, a 94% occupancy rate (based on data provided by Gary Fesperman, Lavonia City Manager).

How did Lavonia achieve such a remarkable turnaround? Fesperman notes that the City has focused on business retention more than business recruitment, “to keep people in business, rather than trying to attract businesses.” The City has coordinated events and promotions to generate activity downtown and support merchants, and have rehabilitated buildings to lease or sell to new tenants.

According to Downtown Development Association (DDA) Executive Director Marie Morse, the city’s investment in downtown amenities and events and its location on Lake Hartwell have played a key role in attracting residents and visitors. Morse explains: “We budget every year for the cleanliness and attractiveness of the City. We make sure to have green space, flowers blooming, benches, and sidewalks, so that when people come into downtown Lavonia they always come back because they like the feel of it. That’s probably the number one thing that people mention to me to explain why they’ve relocated here.”

A large portion of the DDA’s annual budget of $40,000 funds these downtown beautification efforts, but the DDA also supports cultural activities, concerts, festivals, and historical events that appeal to a wide range of audiences. In fact, cultural and historic preservation activities form the cornerstone of the city’s economic development strategy. To this end, the City partnered with DDA to convert a former National Guard armory into a cultural center with a full theatre and a space for art shows and other events. Each year at the cultural center, the community produces the Land of Spirit folklife play, based on stories collected from area residents. The cultural center hosts numerous other events throughout the year.

Lavonia’s rail depot rounds out the town’s tourism-based economic development strategy. The City of Lavonia and Franklin County have worked with the Appalachian Regional Commission (ARC), Tennessee Valley Authority (TVA), and GMRC to preserve the depot and install a public meeting space and railroad museum. According to Wright, the ARC and TVA have provided $120,000 in funds for the restoration, matched with in-kind contributions from the City and Franklin County. GMRC manages the project and provides technical consultation in architectural preservation.

Lavonia rail depot (photo source: GMRC)

The restored depot houses a welcome center that receives a huge number of visitors from I-85. It will also house a museum, a community event space, and city offices. According to Wright, a local railroad company has expressed interest in providing commuter rail service and excursion trains from the depot, although these represent long-term potentialities rather than confirmed plans. As agencies keenly interested in the Appalachian region’s railroad history, the ARC and TVA have showed enthusiasm toward the project, and Wright hopes that it will provide an example for other communities to re-use their historic resources. Wright reports that, for Lavonia’s population, the depot “represents a way of life and a window to the past. They love that building and they’ve always been in support of preserving and interpreting it.  With this approach of using it as a museum for the artifacts and making it a gathering place, the people of Lavonia couldn’t be happier.”

For Fesperman, the rail depot, cultural center, and folklife play’s economic value lies in their ability to attract visitors to Lavonia. He reports that churches, senior centers, schools, and other groups have come to Lavonia for events associated with these venues. He estimates that 4,000 visitors attend Land of Spirit each year, in addition to several thousand people who visit the cultural center for other events. Fesperman says, “While they’re here, these visitors shop and eat downtown, buy gas, maybe they stay in our hotels. We have a good number of tourism venues that generate a lot of sales tax dollars.”

Historic community bank in Lavonia (photo credit: flickr user Amber Rhea)

Simultaneously, the city is working to accommodate new growth associated with a new regional medical center that opened in Lavonia on July 1, 2012. The $63 million Ty Cobb Regional Medical Center embodies a relatively new model for public-private partnership. An investors’ group of doctors owns the building and helped raise about $10 million in private funding, to match $39 million in bonds issued by the Franklin County Industrial Building Authority, and $10 million in bonds issued by the Lavonia Hospital Authority. The hospital is projected to retain 300 jobs from the two hospitals it replaced, and, alongside its associated medical office building, the hospital will create 50 new jobs in its first three years of operation. Additionally, Fesperman expects the medical center to attract retirees to Lavonia, since the community will offer a golden combination of lakeside access, downtown amenities, and access to specialized medical services. Fesperman recalls, “In the past, our residents had to go to Athens, Gainsville, or Atlanta to see medical specialists. Now, we see Lavonia as becoming a medical hub, and it will change the dynamics of the region. We will see some incredible growth here.”

To address this growth, at the time of publication Lavonia had begun revising its comprehensive plan. The City also added to its zoning code a Medical Campus District (MCD), which regulates the form and uses of buildings in the 200-acre area surrounding the hospital. Wright and Fesperman both referred to a potential non-motorized transportation connector to link downtown with the hospital complex, which sits about a mile away from downtown, near I-85. Lavonia is also considering an ordinance to allow the use of golf carts on some streets in town, as part of a broad initiative to improve non-auto accessibility. GMRC will provide technical assistance for Lavonia’s planning efforts, and Wright hopes that the City will adopt strategies that connect new development with the town’s history; respect its agricultural heritage; and protect the surrounding mountains, rivers, and creeks. Lavonia will be a city to watch as it grows in the coming years.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

In Sheridan County, Wyoming, residents with widely divergent political views can usually agree on their profound affection for the land. Conservatives and liberals alike appreciate the outdoors, as shown by their enthusiasm for hunting, fishing, ranching, farming, outdoor sports, scenic vistas, or habitat conservation. Residents’ love of their landscape has translated into a conservation ethic that guides the community’s land use policies. Most recently, the County’s comprehensive plan—adopted in 2008—includes a number of policy strategies that the County hopes will allow it to grow without destroying its precious natural resources. According to the Sonoran Institute’s John Heyneman, “comprehensive plans are not new—every community has them—but many don’t have teeth, and Sheridan County is unusual in putting teeth into its plan’s implementation.”

Sheridan County’s adoption in 2010 of a conservation design subdivision (CDS) process represents a significant step towards implementing its comprehensive plan. The CDS process incentivizes conservation of natural features, and development of the parts of a property best suited for building. To qualify for CDS designation, a developer must set aside at least 70% of a subdivision as preserved open space. In return, the developer may build more homes per acre than allowed under the County’s normal subdivision requirements. Additionally, developers receive density bonuses for preserving certain types of natural features like streams, connected wildlife habitat, or prime farmland.

Due to the housing crunch, the County has not seen much housing development since adopting the resolution. Still, the County was processing its first CDS at the time of writing, and Sheridan County Planner Mark Reid has noticed significant interest from developers in building conservation design subdivisions: “A lot of developers are saying, ‘Why would you do this any other way?’ They can make more money because they’re selling a product that’s sensitive to the features that people move to this part of the world for.” The density bonuses also allow developers to build and sell more units.

Downtown Sheridan (source: flickr user jonathanpercy).

Reid looks to Laramie County to support his optimism that developers will use the CDS process, noting that after Laramie adopted a similar resolution, many developers used the CDS process. Laramie County planner Abby Yenco confirms that open space design subdivisions (as Laramie County calls them) have been built, but adds that her county has changed the process to make it less formulaic and more user-friendly. Laramie County allows for density bonuses on a case-by-case basis, based on sustainability elements ranging from open space conservation to affordable housing. Conversely, Sheridan County’s resolution specifies a formula for calculating density bonuses based on land use zone and project elements.

To protect the Big Horn Mountains, the County rezoned areas in the foothills from residential to agricultural uses–allowing one unit per 80 acres (source: flickr user jacdupree).

Sheridan County also updated its zoning map, reducing allowed density on most of the land within the county’s boundaries. Rezoning took two forms. The original zoning map from 1985 had designated large areas along the Big Horn Mountain foothills as residential, and the County rezoned these areas as agricultural. Additionally, the original zoning code allowed one unit per 35 acres in agricultural areas, and the County reduced allowed density in agricultural zones to one unit per 80 acres. Reid estimates that these changes affected about 95% of the county’s private and state land. About 10,000 acres were down-zoned to agricultural, while density was reduced on the county’s approximately 1,766 square miles of non-federal agricultural land.

When considering the fiscal and economic implications of these changes, Reid says that he has heard two arguments. Some claim that reducing development densities reduces property values, while others argue that open space preservation has raised property values. Local governments in Wyoming derive a large portion of their funding from revenues derived from mineral extraction activities, perhaps easing possible negative revenue impacts. Still, Reid reports that these policy changes stem from the high value that residents and commissioners place on landscape conservation.  Of course, conservation makes financial sense in a community where outdoor tourism helps drive the local economy.

In 2010, Sheridan County adopted a conservation design subdivision (CDS) process. Within the conservation development area–designated in green–developers of parcels of 70 acres in the county’s agricultural district, or 10 acres in the rural residential and urban residential districts (outside the urban services area outlined in pink) may apply for density bonuses (source: Sheridan County Comprehensive Plan).

The comprehensive plan includes 52 strategies that Sheridan County hopes to implement as it moves into the future. Currently, the County is working on a project to map and manage the County’s riparian zones, since they provide important habitat, flood control, sedimentation buffering, and water filtration services. It is also developing standards for development in wildlife habitat, and the commissioners are exploring additional rezonings. Other entities like The Nature Conservancy, the conservation district, the Sheridan Community Land Trust, and the Wyoming Game and Fish Department have been important partners in implementing conservation strategies. These and other entities may also pick up parts of the comprehensive plan for implementation, which will help the County deal with a contracting budget. As the economy recovers and development pressures rise, Sheridan County is positioning itself to promote quality growth while conserving the landscapes, habitats, and farmland that its residents treasure.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

In the mid-1990s, Tom Grbenick with the SEDA-Council of Governments (SEDA-COG) received a call from a banker who wanted to discuss revitalizing downtown Lewistown, Pennsylvania. Following their conversation, Grbenick initiated a downtown planning process, but merchants showed little interest in the initiative. Changing tacks, SEDA-COG led a regional planning process to explore relevant issues in Lewistown Borough and five neighboring municipalities whose residents consider Lewistown their hometown. Grbenick recalls, “What was the key issue to emerge during the regional planning process? Concern about the demise of downtown Lewistown.” Grbenick and his staff at SEDA-COG channeled that interest into a downtown visioning process, aided by support from local legislators, and this time capturing the enthusiasm of downtown merchants.

Two companies donated land to allow for the extension of Montgomery Avenue, offering a much-improved entryway into one of Lewistown’s major parks (click to enlarge) (source: DLI, Inc.).

Supported by a grant from the Appalachian Regional Commission, SEDA-COG, the Lewistown Borough, and other stakeholders organized a downtown revitalization task force. They drafted a strategy and prepared a successful application to the Pennsylvania Main Street Program, which provided funding for five years of downtown revitalization. In 1998, Downtown Lewistown, Inc. (DLI) was formed to spearhead redevelopment efforts, and in 2000, the partners adopted Coming Home: The Charter Plan for Downtown Lewistown. In 2007, Lewistown joined the Pennsylvania Elm Street Program, which targets residential neighborhoods bordering downtowns. The program operates under the principle that vibrant neighborhoods surrounding downtowns contribute to the central business district’s vitality.

Since revitalization efforts began, public and private entities have re-used vacant structures, renovated public and private buildings, redeveloped former industrial sites, improved public spaces, and attracted new businesses to a transformed   downtown. Revitalization began with the conversion of a closed department store into the Mifflin County Regional Business Center, a project that demonstrates Lewistown’s success at forging public-private partnerships. Working with DLI’s predecessor organization—the Greater Lewistown Corporation—SEDA-COG developed a study and proposal for the 54,000 square-foot building’s adaptive re-use.  Tenant leases funded the operations, with Lewistown Hospital committing initially to lease 10,000 square feet of space for off campus mental health services along with Penn State and Cooperative Extension Service. Later, Mifflin County located various offices in the new center. By 2003, over 100 employees worked in the building, which has maintained about 95% occupancy (data source: DLI 2003 Annual Report).

Public and private investment has continued through the years, expanding the available office and commercial space available in downtown Lewistown. For example, a private developer invested $2.5 million to convert an abandoned warehouse into the Community Partners Allied in Social Services (COMPASS) building. The Mifflin County Industrial Development Corporation (MCIDC) helped finance the project with tax-exempt industrial development bonds. The building houses about 75 employees, working for a variety of drug abuse, rehabilitation, and community health organizations. These workers enjoy easy access to Lewistown’s riverwalk, parks, and downtown amenities (see DLI 2009 Annual Report).

A private developer–using financing from tax-exempt industrial development bonds–invested $2.5 million to convert an abandoned warehouse in to the COMPASS building, which houses about 75 employees working for a variety of community organizations (source: DLI, Inc.).

The County also obtained $1.9 million from the State of Pennsylvania to rehabilitate its historic courthouse, and $15.4 million to build a new correctional facility. According to DLI’s Executive Director Jim Zubler, the expansion of office space downtown has created a consumer base for downtown businesses: “Employees frequent downtown during lunch hours, utilizing the facilities of town.” From 1999 to 2009, Lewistown saw 150,000 square feet of vacant space filled and four “’white elephant’ buildings” rehabilitated. Two hundred new jobs were created and 35 new businesses opened (and remained open) in the downtown (DLI 2009 Annual Report).

Public funding has contributed to Lewistown’s revitalization, but the Borough has done an exemplary job of matching government dollars with private investment. For example, the Design Challenge Grant Program funded by the Pennsylvania Department of Community and Economic Development helped fund façade improvements for downtown commercial buildings. Over ten years, the program provided over $75,312 for 32 projects, matched by $556,890 of private investment.

The Design Challenge Grant Program helped pay for facade improvements at 5 East Third Street in downtown Lewistown. The Program provided over $75,000 for facade improvements downntown, matched by $633,202 in private investment (source: DLI, Inc.).

Helping to foster a vibrant and livable downtown environment, the Borough and County have directed $3.4 million in local, State, and Federal funding for streetscape improvements, $300,000 for a new street expansion project, $130,000 for the first segment of a riverwalk with provisions for bike and pedestrian trails, $1.5 million to upgrade street running railroad track including rail stabilization, water line replacement and street reconstruction. They have directed $1.1 million in the construction of a new community center and $30 million in new upgrades to the waste water treatment facility meeting Chesapeake Bay regulations serving the Greater Lewistown area (source: Jim Zubler, DLI, Inc.).

Local residents and businesses have contributed to these projects.  For example, local property owners paid the engineering costs for the Monument Square streetscape improvement project, and Omega Bank, now First National Bank, donated land for the riverwalk project. Two companies donated parcels of land that allowed the Borough to create a new street offering a much-improved entryway into one of its major parks.

One cornerstone project reaching completion is Mann Edge Terrace, a 31-unit elderly housing project set to open this fall on a former brownfield site in the “Elm Street” neighborhood. MCIDC, working with the multi-county SEDA-COG Housing Development Corporation, channeled $5.5 million in private tax credits, federal, and state funds to a former manufacturing site immediately adjacent to the downtown.  Zubler notes, “We’ve enjoyed good success through joint interworking of the public and private sectors, helping to provide the incentives, and helping to see projects through.”

Zubler credits Lewistown’s revival to public entities’ support and to a strong private-sector investment culture. Anticipating a tight fiscal future, he believes the community must devise creative ways to foster investment and cultivate public-private partnerships. DLI’s organizational structure provides a good example. Throughout the Main Street and Elm Street Programs’ implementation, the State of Pennsylvania, local governments, and businesses have provided significant financial support to DLI. With the exhaustion of Elm Street Program funding in 2013, the full budgetary burden will fall on local entities. To meet these new challenges, DLI is transitioning into a new county-wide organization, and it has already secured pledges from local governments, businesses, and industry groups to support its operations.

Fountain Square Park will serve as the anchor for the East End, a residential neighborhood near downtown where Lewistown is focusing Elm Street Program revitalization efforts (source: DLI, Inc.).

Zubler believes that the new organization will build on two decades of comprehensive but focused community revitalization. Returning to the program’s genesis in regional planning, the new organization’s county-wide focus will make Lewistown and Mifflin County competitive as a complement to nearby employment centers. Zubler says, “If we continue to revitalize the community one house, block, and neighborhood at a time, it will be a very good day going forward.”

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.

In 1996, the City of Clinton, Iowa, set out to improve a stretch of US Highway 30 that runs through the heart of town. The road forms a segment of historic Lincoln Highway— dedicated in 1913 as one of the nation’s first transcontinental highways. It also serves as an entryway to Clinton and the State of Iowa. As such, city officials wanted to reconstruct the road in a way that meshed with the local context. With the cooperation of several State and Federal agencies, the community created a corridor that respects existing development, presents a welcoming gateway to the community, and sustains adjacent neighborhoods’ economic vitality.

Before the Liberty Square corridor revitalization project, many buildings had fallen into disrepair or stood vacant. Industrial facilities like an Archer Daniels Midland plant (top) and an abandoned Chicago and Northwestern Railroad car maintenance shop (bottom left, highlighted bottom right) bordered residential areas, posing health threats to residents. Photo: HR Green, Inc.

The corridor’s history informed the choice of improvement strategies. At the time, “incompatible land uses” comingled in the 220 acres of land skirting the 1.77-mile stretch of highway. Contamination from former and current industrial facilities—including a major shipping and storage operation for agricultural products —posed health threats to residents. Many buildings had not undergone renovation since their construction in the early 20th century. Buildings sat close to the edge of the road, over which 14,000-18,000 cars passed every day. The corridor showed visitors and residents such a bleak representation of the community that, according to project consultant Gil Janes, “When the hospital or business community was trying to recruit doctors and professionals, they would avoid taking them down this corridor. It didn’t present the kind of image they wanted to present.”

Improving the highway’s capacity and safety as it existed in 1996—with four travel lanes and a center turn lane—would have required widening the off-street rights of way and increasing building setbacks. This would have drastically reduced space available for businesses alongside the roadway. Seeking to improve rather than degrade the area’s vitality, the project team chose a different solution. The Iowa Department of Transportation (IDOT) would divide the highway into two one-way segments with one block between them. The intervening space would be designated for commercial development.

The City of Clinton assumed responsibility for guiding the redevelopment of the intervening blocks, which contained 190 occupied residences and businesses alongside former industrial sites, vacant buildings, and dilapidated structures. The City and IDOT acquired blighted properties in the designated area, which became known as Liberty Square, and IDOT took charge of relocating residents and businesses according to State requirements. Incorporating extensive public input, the City undertook a planning process addressing market conditions, land use, zoning, and design standards for redevelopment. Emerging from this process, a new overlay district set design requirements to ensure that new development would present a positive aesthetic. The overlay district also limited land uses to professional and retail. Eliminating residential and industrial uses creates a buffer between the industrial area to the south of Liberty Square and a primarily residential zone to the north.

The planning team undertook extensive brownfield assessment and cleanup before designating the allowable uses. To perform these activities, the City received $1.5 million in brownfield assessment and remediation funding from the U.S. Environmental Protection Agency (EPA). The City used this funding to conduct assessments and clean up 4.4 acres of former industrial property. The City also leveraged $2.34 million in low-interest loans from the U.S. Department of Housing and Urban Development (HUD) and $675,000 from Iowa’s Department of Economic Development, for property acquisition and cleanup (more details about funding sources are here). Janes observed that these funds were critical to conducting the due diligence required for redevelopment: “But for these external funding sources, [assessment and cleanup] would have been a monumental undertaking. We were very fortunate to have the support of the EPA and the State of Iowa.”

The Liberty Square overlay district (bottom left) limits land uses to commercial and industrial, creating a buffer between residential areas and industrial facilities. The overlay district’s design requirements ensure that future investment helps create a welcoming entryway to Clinton and to Iowa. The project partners installed streetscape and recreational improvements to the Liberty Square area (top). Photos: HR Green, Inc.

When highway construction is completed (anticipated for spring of 2013) IDOT will transfer to the City the properties it acquired in Liberty Square. At that point, private developers may purchase parcels. To incentivize investment, Clinton County has designated Liberty Square as an Enterprise Zone, and the City of Clinton has made properties eligible for its Urban Revitalization Program. The Urban Revitalization Program provides three-year, 50% property tax abatement on property improvements. The City hopes that these incentives will encourage businesses to relocate to the Liberty Square area. While properties have not gone up for sale yet, former Clinton staff planner Stephen Prideaux recalls fielding many calls from developers interested in investing in Liberty Square.

Partnerships have played a key role in Liberty Square’s redevelopment, as indicated by the myriad of funding sources that the City has tapped. IDOT and the Federal Highway Administration (FHWA), via a 2012 TIGER Grant award, became important partners in the highway reconstruction, and the East Central Intergovernmental Association (ECIA) administered funds and contributed to the planning process. The EPA and HUD provided funding and technical assistance in brownfield remediation. Other partners included the City of Clinton, Iowa Department of Economic Development, U.S. Army Corps of Engineers, and Iowa Department of Natural Resources. Altogether, the State of Iowa contributed $22 million and the Federal Government contributed $26 million to the $57.7 million project.

Prideaux remarks that the Liberty Square project has helped bring about “an obvious transformation from a perspective of Clinton, Iowa, as tired, blighted, dirty, run-down to now one of hope and possibility.” As the highway reconstruction project nears conclusion, the City has opened for investment an area that had been neglected for decades. Without State and Federal partners, this reclamation may not have been possible.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

Public investment helped make Rome’s downtown attractive to residents and businesses.Over 30 years the City of Rome and Floyd County have invested in public spaces, facilities, and infrastructure like the clock tower, library, town green, and pedestrian bridge shown here. Photos: Rome DDA and Tourism.

This case study was researched and written by Parrish Bergquist, NADO Research Foundation Graduate Fellow.

In 1975, the first shopping mall in Rome, Georgia, opened. Residents flocked to the new development, beginning a story of demise common to so many of America’s downtowns. Rome’s downtown anchors lost out to strip commercial development, out-migration, and stagflation, and by 1981 the downtown vacancy rate had reached 26%. Still, with the largest Victorian-era downtown district in Georgia, Rome’s residents value their heritage. When the National Main Street Program came to Georgia in 1980, residents perked up.

In 1981 Rome received Main Street city designation and ever since has applied the National Main Street Network’s approach to historic preservation and downtown revitalization. Through the 1980s and 90s, the City of Rome and Floyd County invested in public facilities to promote downtown as a destination for residential and commercial development. In 1986, the City and downtown businesses overhauled Broad Street—downtown Rome’s main drag—by adding a median and street trees. By 1997, the City and County had accessed almost $40 million in local, Federal, State, and other funding sources to invest in public improvements including combined sewer overflow replacement, police facility, Forum civic center, and library. During the same time period, downtown Rome’s City, County, and school district tax revenues increased by 500%, from almost $200,000 to almost $1 million annually (according to a 1997 study by the Georgia Municipal Association, “Office of Downtown Development Downtown Tax Base Study”).

According to Ann Arnold from the City of Rome’s Downtown Development Authority (DDA), that public investment beginning in the ‘80s set the stage for private developers to reinvest in downtown. Arnold recalls, “The City and County really stepped up and took the lead, and then we had more private investment.”

Residential and commercial redevelopment began when Georgia’s Department of Community Affairs (DCA) launched a Downtown Development Revolving Loan Fund (DDRLF) in 2000. Through the DDRLF, the state loans up to $250,000 for a downtown redevelopment project, at below-market interest rates. This funding covers 40% of a project’s total cost, traditional bank loans finance 50%, and the owner or developer fronts 10%. Rome has received over $2.7 million in DDRLF loans.

The community has tapped into similar low-interest loan funds from the Georgia Cities Foundation, the Appalachian Regional Commission, and the DCA. By 2012, the community had leveraged nearly $6 million in low-interest loans into over $22 million in total private investment. Downtown now includes a vibrant mix of residential and commercial spaces, with 156 residential units, about 100 new businesses, and about 200,000 square feet of redeveloped space. Retailers occupy about 40% of downtown’s commercial space, while service providers occupy the remaining 60%. To protect the city’s Victorian architectural heritage, the city’s Historic Preservation Commission reviews all changes to building facades. According to Arnold, “The majority of downtown redevelopment in Rome has been a direct result of having those incentives available to us. None of this would have happened without the revolving loan funds.” Now, instead of bemoaning the downtown vacancy rate—26% in 1981—Rome’s leaders tout its occupancy rate—94% in 2012.

Rome has leveraged nearly $6 million in low-interest loans into $22 million of private investment, helping to create a vibrant downtown with a 94% occupancy rate. Photos: Rome DDA and Tourism.

In addition to the revolving loan funds, other incentives and public works have spurred revitalization. The City of Rome and Floyd County have continued investing in public facilities, and the DDA offers small grants for façade improvements. Downtown property and business owners pay into a Business Improvement District (BID), which funds programs, promotion, and improvements for the downtown district. Rome’s DDA helps developers apply for low-interest financing and prepare for historic preservation review. The DDA also serves as a conduit for DCA’s loans, since DCA does not loan funds directly to the client.

Looking to the future, Arnold reports that the DDA will focus on tapping the “huge potential for more apartments on the 2nd and 3rd floors of downtown buildings.” The City has also planned and partially completed a riverfront development project to include a public dock, plaza, parking structure, and pedestrian bridge. Leaders hope that this public investment will guide the next phase of redevelopment into the riverfront that forms the edge of Rome’s downtown. Recognized in 2003 as a Great American Main Street City, Rome has made great strides through sustained public and private investment, and its future looks bright.

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This is part of the NADO Research Foundation’s Vibrant Rural Communities series of case studies, which describes how rural regions and small towns across the country are growing local and regional economies and creating stronger communities. This series shows how communities can leverage a wide range of tools and resources to build on their assets, protect their resources, and make strategic investments that offer long-term benefits.

This project is based in part upon work supported by the Federal Highway Administration under Agreement No. DTFH61-10-C-00047. Any opinions, findings, conclusions, or recommendations expressed here are those of the authors and do not necessarily reflect the views of FHWA or the NADO Research Foundation.