HomeMy WebLinkAbout1999-R-32 Part III
Three-Year Strategic Plan
Historical Development
Jeffersonville has a manufacturing-based economy whose recent growth has
only underlined its protracted problems with affordable housing, secure jobs and
a viable downtown.
Contradictions abound. It is a short walk from the new $8.6 million Town Place
Suites construction site to the local soup kitchen.
Most of the city's recent growth - the $200,000 homes, new industrial sites,
national retail chains - has been to the east, away from downtown. This
repositioning of activity began in the 1960s and continues to this day. It has
pulled jobs, businesses and people from the city's core, leaving behind empty
storefronts and deteriorating homes.
In the past, the city has failed in its attempts to revitalize its core business district
and neighborhoods, but community leaders are determined not to squander
recent signs of progress downtown. A series of passages from The Louisville
Courier-Journal and Jeffersonville Evening News track both long-lingering
problems downtown and the recent surge of optimism:
· From 1979: "Businessmen giving up hopes for down~own
Jeffersonville"
A couple of years ago there was talk of
revitalizing downtown Jeffersonville, of
getting the business district back on its
feet, of competing with the shops in the
suburbs.
Lots of people were enthusiastic then.
They're not so happy anymore.
· From 1997: "Spring Street: The secrets of its
success"
In the past, the revitalization of
Jeffersonville's downtown Spring Street has
been a case of two steps forward and three
back.
Revitalization would start, then for a
variety of reasons, stall. New businesses
would open only to have to close their doors
a few years later.
Things, however, are changing.
· From 1998: "Town's growth phase takes shape as
buildings, confidence rise"
I cannot recall this downtown having found
itself again more than now. And I am not
alone.
Jeffersonville, a port on the Ohio River opposite Louisville, was incorporated as a
city in 1839. The county seat of Clark County, Jeffersonville grew into a
shipbuilding center. During the city's long history local manufacturers produced
everything from steamboats to submarine chasers to barges. Some shipbuilding
continues in the city, as does the production of soap, sporting goods, plastics,
electronic components, cabinets, steel and processed foods.
Historically, Jeffersonville had a blue-collar, manufacturing-based economy. But
that market sector, both in the city and across the world, has undergone
fundamental changes in recent times. Corporate globalization, downsizing, "The
Rust Belt" and other factors all eroded Jeffersonville's traditional economy.
But the city is reawakening to its histodc roots and economic potential. The
downtown commercial and riverfront residential areas comprise a local historic
preservation district, which, along with an extensive adjoining residential
neighborhood, is also listed on the National Register of Historic Places. An
exciting new commercial node has sprung up on the riverfront that includes
restaurants and hotels.
Unfortunately, many scars and lingering problems remain from less prosperous
times. One example of an old blemish is the Quadrangle, a once beautiful
complex of brick buildings that formerly occupied 10 blocks and provided jobs to
hundreds of men. Most of this 125-year-old compound is now in a state of
disrepair and is underutilized. In 1993, a fire destroyed a large portion of the
southeast corner.
Other problems are more recent and far-reaching. Jeffersonville is growing, with
an ongoing boom in both new homes and new companies. In essence,
Metropolitan Louisville has jumped the river. But that economic expansion is
centered east of downtown or in other parts of the county.
This transformation started in the late 1960s when the construction of two malls
in Clarksville and the Youngstown Shopping Center drained the vitality of
downtown retail shops. Another blow was the loss of Indiana University-
Southeast, which was once housed in Jeffersonville. In the '70s the campus was
lured away to New Albany, and with it went not only a well-paid, well-educated
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workforce but also the ripple effect to local businesses - the coffee shops,
records stores and restaurants that thrive in every college town.
Jeffboat, one of the city's largest employers, was in financial trouble 15 years ago
and reduced its workforce from three shifts to one. At the same time other
downtown manufacturing and retail businesses were downsizing or closing.
The cumulative loss of downtown jobs meant people moved out of the area. The
real estate market plummeted and many homes fell into disrepair or were used
for Iow-income rentals. Most new, affluent residents moved to suburban
locations such ~s Oak Park and North Haven.
Fewer manufacturing jobs downtown meant fewer people living nearby, which led
to fewer customers for local shops. When a retail area is teetering, every loss
has large repercussions. For example, when Vision World, a one-hour glasses
service, closed, the restaurants and other shops that served its customers while
they waited for their glasses also quickly folded.
The aforementioned newspaper articles recounted local government's inability to
reverse downtown's fortunes in the past, but there also have been recent private
sector efforts. Unfortunately, results were mixed, in part because there was no
unified vision or overall manager. Instead, a few entrepreneurs were interested
in a few specific buildings. For example, the former JCPenny's building, which
had been boarded up for years, was converted to a flea market. Three major
structures along Spring Street followed suit and were converted to second-hand
stores.
A few blocks away; a historically significant flatiron building was closed except for
a small store that sold diet aids. Since then, private developers saved that
building with help from Jeffersonville Main Street Inc.
Only in the past year or two has there been equal interest in revitalization by local
government, private developers and not-for-profit organizations. While the work
of these dedicated parties is creating many exciting projects, no one group is
addressing all of the socio-economic factors that continue to oppress
Jeffersonville's poorest neighborhoods.
For instance, the Downtown Main Street program has been extremely successful
in restoring treasured buildings and other revitalization efforts, but creating jobs is
a by-product, not a direct goal, of their work.
To reach its most disadvantaged citizens and its most derelict buildings
Jeffersonville needs to unite all the disparate public and private revitalization
efforts under one vision. It needs a new organization that can uncover gaps in
services and bring together partners with overlapping interests. The
Jeffersonville Urban Enterprise Zone would be dedicated to these goals.
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Limitations to Development
Describe the limitations to development in the zone area.
Indicate what features of the zone have mitigated your efforts to
redevelop this area. These features should include: the extent
they are a problem, a discussion of crime, description of skill
level of the labor force, ownership of property, permitting
procedures, zoning, statutory restrictions, infrastructure, water
quality, water supply, geographic barriers, financing and bond
rating.
Most of Jeffersonville's protracted and troubling problems with economic,
physical and social issues are within zone boundaries. The area contains most
of the community's dilapidated houses, rusting brownfields and empty stores.
For example, it holds 100 percent of the public housing.
Outside of the proposed zone area, the city could point to almost nothing but
economic progress in recent years - the rows of new executive-level homes, the
almost $150 million in new manufacturing investments and other exciting signs of
progress on the city's East Side.
But it is the zone that holds many of the remaining locally owned businesses,
histodc structures and, of course, the thousands of residents who helped this
traditionally blue-collar community lay the foundation for growth. Instead of
"writing off' this core area of the city, the community is determined to revitalize it.
The challenges are both clear and formidable as the proposed zone faces
economic, physical and social limitations to development.
Economic issues are probably the most troublesome, and start right at the homes
of zone residents:
· 75 percent of the residential property is in need of rehabilitation
· More than four out of 10 dwellings are not owner occupied
Almost 8 percent of the dwellings are vacant
Housing needs are well illustrated by statistics from the Jeffersonville Housing
Authority. The organization manages 762 units, which includes 381 Iow-rent
houSing units - comprised of 185 family units and 196 elderly units - 200 Existing
Section 8 Housing Certificates and 181 Housing Vouchers. There is a backlog of
applications for housing assistance. The housing authority's Annual Report for
f998 had 178 on the waiting list.
Haven House Services Inc. is a not-for-profit organization that formed in 1996 to
respond to the epidemic of homelessness in Southern Indiana. Thirty-six percent
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Limitations to Development
Describe the limitations to development in the zone area.
Indicate what features of the zone have mitigated your efforts to
redevelop this area. These features should include: the extent
they are a problem, a discussion of crime, description of skill
level of the labor force, ownership of property, permitting
procedures, zoning, statutory restrictions, infrastructure, water
quaiity, water supply, geographic barriers, financing and bond
rating.
Most of Jeffersonville's protracted and troubling problems with economic,
physical and social issues are within zone boundaries. The area contains most
of the community's dilapidated houses, rusting brownfields and empty stores.
For example, it holds 100 percent of the public housing.
Outside of the proposed zone area, the city could point to almost nothing but
economic progress in recent years - the rows of new executive-level homes, the
almost $150 million in new manufacturing investments and other exciting signs of
progress on the city's East Side.
But it is the zone that holds many of the remaining locally owned businesses,
historic structures and, of course, the thousands of residents who helped this
traditionally blue-collar community lay the foundation for growth. Instead of
"writing off' this core area of the city, the community is determined to revitalize it.
The challenges are both clear and formidable as the proposed zone faces
economic, physical and social limitations to development.
Economic issues are probably the most troublesome, and start right at the homes
of zone residents:
· 75 percent of the residential property is in need of rehabilitation
· More than four out of 10 dwellings are not owner occupied
· Almost 8 percent of the dwellings are vacant
Housing needs are well illustrated by statistics from the Jeffersonville Housing
Authority. The organization manages 762 units, which includes 381 Iow-rent
housing units - comprised of 185 family units and 196 elderly units - 200 Existing
Section 8 Housing Certificates and 181 Housing Vouchers. There is a backlog of
applications for housing assistance. The housing authority's Annual Report for
1998 had 178 on the waiting list.
Haven House Services Inc. is a not-for-profit organization that formed in 1996 to
respond to the epidemic of homelessness in Southern Indiana. Thirty-six percent
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of the people they serve are from Jeffersonville, and the majority of those people
are from the zone area.
Based in downtown Jeffersonville, the group provides transitional housing. In
1998, they served 1,340 new clients and 2,263 continuing clients. A profile of
their clients is a reflection of many zone residents. About 40 percent are single
mothers. Almost 80 percent of the new clients are white while 17 percent are
African-American. About 45 percent of the people in the programs have an
hourly wage of $5-$6. Twenty-two percent receive food stamps.
Another service organization is the Center for Lay Ministries, also located in the
zone. This group provided food or financial assistance for more than 9,500
people last year. The numbers for 1999 so far exceed the numbers for this same
time last year.
Socially, residents who improve their skills and find better jobs have moved out of
their old neighborhoods; those who remain are often unskilled, unemployed or
earning well below the median income.
To illustrate, there are 15 new subdivisions currently seeking, or having just
received approval in Clark County, according to the Homebuilders Association of
Southern Indiana. The average cost of these new homes is $110,483, up from
$93,389 in 1994. None of that growth is in the zone in 3art because few
downtown residents could afford the mortgages.
High wage earners need a motivation to stay just as businesses need an
incentive to expand or relocate. The usual impediments to home ownership in
high poverty areas are a problem. Homebuyers lack the money for down
payments. Neighborhoods are poorly kept, and the blame is placed on absentee
landlords. Rental units are often overcrowded and in a state of disrepair.
These conditions breed crime, and indeed some zone residents were so worried
about their safety that they formed a Block Watch program. Joanne Blake, a
founder of the Rosehill Neighborhood Association, said drug dealers, public
inebriation and prostitutes plague her street.
In September, a fire at an apartment house on Colonial Park Drive, which police
say was set by an arsonist, killed three people, including a 4-month-old boy.
Other streets, such as West Maple, are so festooned with abandoned cars,
decaying porches and scattered litter that they resemble photos from the Urban
Renewal campaigns of the 1960s.
A concentration of liquors stores, bars, the community kitchen and a series of
"flop houses," derelict structures or rooms rented out by the week, contribute to
the problem, Blake said. She counted 18 rental properties just along one section
of Pearl Street.
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Another emerging issue involves the area's growing Hispanic population. They
arrive in Jeffersonville for the jobs, and many move to the zone because of the
inexpensive housing.
There is often a period of transition when a new ethnic group locates to an area,
and Jeffersonville is no exception. A group of clergy members recently convened
to discuss the needs of the new ethnic community. Legal Services in New
Albany, for example, noted an explosive increase in the presence of Hispanics.
The Clark Coun.ty prosecutor intends to hire interpreters because of this influx.
The prosecutor, Steve Stewart, also noted an increase in Hispanic-related
crimes, including domestic violence and hate crimes.
An additional obstacle to development involves city regulations. There are a
number of restrictions to building on vacant lots within the zone. In most cases
development requires a variance, due to the smaller size of zone area lots. Most
of the lots are about 35-feet wide while new city code requires 70 feet.
Previous sections of this report referred to infrastructure problems, inadequate
public transportation and the fact that much of the zone is in a flood plain.
B. Provide a brief description of any past or present community
development, urban renewal or other activities that have already
been undertaken to revitalize the proposed area. Comment on
the level of success achieved with the revitalization effort and
why that specific effort achieved such a result. How did the
limitations to development affect the result?
Most of Jeffersonville's recent residential, industrial and general economic growth
has been on the East End of town, pulling economic development away from the
zone. In the past two years, the East End has seen eight new business locations
that brought $143 million in investments and 931 new jobs.
There has also been growth in the zone, but on a much smaller scale. In the
past two years there have been five new developments, mostly in what is known
as the "piggyback yard" by the river. These projects constitute $25.4 million in
investments.
While the East End projects are mostly higher-paying manufacturing jobs, like
steel production for Galvstar Inc., many of the downtown jobs are lower-paying
service positions. One of the new downtown projects is a restaurant and two are
hotels, which will need maids, dishwashers and clerks.
Some efforts are underway to improve the infrastructure and physical
appearance in the zone. In 1998, Jeffersonville Main St. Inc. and the city
received a $550,000 Streetscape Improvement grant to reconstruct sidewalks,
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replace streetlights and add benches and trash receptacles in a five-block
section of downtown. The grant included an $82,500 local match.
This year, Main Street Inc. began a $1.8 million Iow-interest loan program
downtown. The program, funded by six area banks, aims to promote expansion
of existing businesses and to recruit new companies. The minimum loan is
$10,000 and the maximum is $300,000.
The loan program attracted five interested parties, four of whom applied. Even
with better-than:market terms the program does not suit the needs of all the local
businesses. Dale Griffith, co-owner of an antique shop, decided against applying
when he was thinking of buying an adjacent building. The length of the term and
the maximum amount did not fit his plans. Clearly the need remains for flexible,
long-term lending aid.
Main Street Inc. also paid $153,000 for three nearly vacant downtown buildings.
The money came from the Redevelopment Department's revolving loan fund.
Two of the buildings had not housed businesses for at least five years. The
organization is recruiting a coffee shop/cafe, bicycle shop, record store,
bookstore, small fitness center and shoe shop.
The city's Department of Redevelopment last year also initiated an Owner
Occupied Rehab Grant program. The $225,000 (including a $25,000 match)
program helped 17 homeowners with remodeling work. Unfortunately, the
department could not secure funding to continue this successful program. An
additional 14 homeowners who wanted help could not be served.
Historic Landmarks Foundation of Indiana (HLFI), which has a branch office in
Jeffersonville, has had some successful projects, including:
· Grisamore House (1983). HLFI owns, occupies and leases office space in
this 1837 row house. In 1987, HLFI developed a public garden to the east
of the house, on the site of a former Laundromat.
· Lewman Building (1992). HLFI worked with others to re-roof, stabilize and
market this key downtown building after it was damaged by fire and slated
for demolition.
· Spring and Maple (1995). HLFI provided a $2,000 grant to Jeff Main Street
for a planning grant after two buildings at the corner of Spring and Maple
were destroyed by fire.
· Elks Building (1999). HLFI provided an $85,000 loan to Jeff-Clark
Preservation to purchase and stabilize historic Elks Lodge on Spring
Street.
But the foundation does not have the resources to address all of the zone's
preservation issues. For example, the organization has included the
Quartermaster Depot as one of its "10 Most Endangered" properties statewide in
1996 and 1999.
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Organizations such as HLFI, the Redevelopment Department and Main Street are
attempting to improve the proposed zone area. But none of the groups are
undertaking a comprehensive view of redevelopment, and all of them are limited in
what they can accomplish. The Jeffersonviile UFA will both augment and
coordinate all these efforts as well as design new programs to fill service gaps.
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How will the zone be managed?
A. What is the managerial structure of the Urban Enterprise Zone?
The enterprise zone will be managed by the City of Jeffersonville Urban
Enterprise Association, Inc., a not-for-profit agency to be formed under the rules
of the Internal Revenue Service and the Indiana Department of Revenue. A 10-
member board of directors will administer the policies of the enterprise zone.
B. How will the day-to-day activities of the zone be handled?
The Department of Redevelopment of the City of Jeffersonville will hire a full-time
person to act as executive director of the JUEA and to report to the board of
directors.
The Redevelopment Department will provide funding for the first year's salary of
the executive director. After the first year, the position will be funded through
revenues raised by the zone.
The Redevelopment Department, Planning Department, Legal Department and
other city offices will provide support staff as needed.
C. What professional resources will be available or are planned for use by
the Urban Enterprise Association?
The JUEA will utilize professional services supplied by the City of Jeffersonville
for routine accounting and legal matters. Community and economic development
consultants will be used as needed.
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Functions and responsibilities of the UEA
First, the JUEA will execute its statutory obligations under the UEZ-enabling
legislation. It will enforce all zone rules and legislative requirements, including
the reinvestment of tax savings by businesses, the collection of contributions and
all requisite financial and statistical reports.
Second, it will manage programs in the zone. (See Attachment X). It will review
on an ongoing basis the effectiveness of these programs and revise policy when
needed. The Ci'ty will again assume a major role regarding capital investment
within the zone for infrastructure improvements.
The JUEA will take primary responsibility for developing human resources in the
zone with a range of programs addressing home ownership, human services
(health care, education and training, recreation, etc.) and technical assistance to
zone companies.
It will take a principal role in partnership with partners such as the Southern
Indiana Economic Development Council in promoting economic development
and the redevelopment of brownfields through aggressive marketing of zone
incentives. The JUEA will also work closely with the Southern Indiana Chamber
of Commerce and the Small Business Development Center branch in New
Albany.
Third, it will manage the implementation of its action plans in order to achieve its
adopted goals and strategic objectives. These plans enumerate the steps to
completion for each action and comprise the fundamental management tool for
the organization's day-to-day operations. It will review on a monthly basis the
progress toward completion of specific actions as detailed in the strategic plan.
The association will update its Three-Year Plan on an annual basis, modifying or
renewing its broader goals and objectives in the light of changing conditions
(demographic, economic and social).
Fourth, zone revenues will be supported by continuing pursuit of additional grants
or funding from appropriate local, state and national resources.
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Obstacles to Development
According to lC 4-4-6.1-3(E), at the time of enterprise zone renewal,
the Indiana State Enterprise Zone Board will review the success of
the enterprise zone based upon the following criteria: (1) Increases in capital investment in the zone
(2) Retention of jobs and creation of jobs in the zone
(3) Increases in employment opportunities for
residents of the zone.
A. What are the existing obstacles to: (1) Capital investment
(2) Job retention and creation
(3) Employment opportunities for zone residents
in the zone area?
One of the biggest impediments to capital investment in the zone is the lack of
attractive sites for businesses.
There are at least 11 brownfield sites in the zone, some with enormous potential
after environmental concerns are addressed. Other barriers to growth include
the large percentage of land in a flood plain.
As a result, zone-based manufacturers who expand often do so outside the zone.
For example, BADD, Inc. recently moved because they couldn't find a suitable
location nearby.
While there are real physical barriers to development, such as brownfield sites
and streets whose narrow dimensions limit truck traffic, an equally big obstacle
involves perceptions about the zone. Business owners weigh fears about crime
and rundown buildings in the zone against all that exciting growth going on in
other parts of Jeffersonville, and then relocate.
As basic employers move out of the zone to the city's new economic center, local
residents lose employment opportunities. Not all zone residents have the
resources to follow the work. For example, within the proposed zone area Vogt
Valve recently cut 34 jobs. Dollar General just closed its downtown store and the
SerVend International, an ice machine manufacturing company, moved to
Seilersburg.
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B. Describe how the UEA plans to overcome the
aforementioned obstacles to:
(1) Capital investment
(2) Job retention and creation
(3) Employment opportunities for residents in the zone area?
The UEA's strategic plan addresses four broad areas of action:
1. Instituting employment development for zone residents
2. Promoting zone neighborhoods
3. Sponsoring housing maintenance and rehabilitation
4. Zone business retention and expansion and new business recruitment
First, zone residents must be better informed about education and training
opportunities available in the community. The accessibility of these opportunities
will need to be assessed and improved as required.
Second, the UEA will support programs that improve the business climate of the
downtown area and the "livability" of zone neighborhoods. Zone residents who
find better employment opportunities (in or out of the zone) will remain in the
downtown area only if the zone community can improve the infrastructure, safety
and appearance of inner-city neighborhoods.
Initiatives will be designed to empower residents to plan and determine the future
of their community. The Main Street Association already is working with
downtown businesses. A more focused campaign will be initiated to nurture
leadership and neighborhood associations.
The JUEA will assist residents and businesses to take more ownership of zone
initiatives through greater participation in the decision-making process. These
measures should make the area more attractive for capital investment in homes
and businesses.
Third, the JUEA will offer residents opportunities to repair their homes and
perform the routine maintenance that - left undone - undermine a home's worth.
People taking pride in their homes is a signal of revitalization.
Fourth, there will need to be a greater effort at retaining and expanding existing
business and in recruiting new business into the zone. This will require a closer
partnership with the Southern Indiana Chamber of Commerce, Small Business
Development Corporation and the Southern Indiana Economic Development
Council. The JUEA will become the lead organization for retention and expansion
of existing businesses within the zone. The keys to job retention and creation in
the zone are properly inventoried business properties, aggressive marketing of
zone incentives and a workforce with the right skills to attract employers.
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A better-educated workforce, suitable residential and business properties and an
aggressive marketing campaign for zone incentives should overcome obstacles
to capital investment, job retention and creation and employment opportunities.
What are the goals for: (1) Capital investment
(2) Job retention and creation
(3) Employment opportunities for zone residents in the
zone area?
Community leachers have developed goals and strategies for each of the four key
areas to be addressed by the Jeffersonville Urban Enterprise Zone:
1. Housing Maintenance and Development
The goals of this strategy are to improve housing and property maintenance,
both downtown and in nearby neighborhoods. The city's vision for housing in the
proposed zone area is for it to become a vibrant set of neighborhoods, in which
families have a wide range of choices in homes and lifestyles. The role of the
JUEA will be to take the lead in eradicating blighted housing and inadequate
infrastructure.
Actions stemming from this Strategy will increase home improvement activities
and help maintain existing housing stock while stimulating organizational and
community capacity to attract and coordinate the production of housing in the
downtown business district.
2. Promoting Neighborhoods
Neighborhoods are more likely to be revitalized when local residents take an
active role in development and implementing growth strategies. The goals of this
strategy are designed to organize grass-roots community organizations, to
advance their internal capacity to undertake selfdirected neighborhood
improvement projects and to establish mechanisms to improve the physical
conditions within enterprise zone neighborhoods. Neighborhood associations will
be essential partners to the zone revitalization, and the JUEA will help to support
those associations.
3. Zone Business Retention and Expansion & New Business Recruitment
The goals of this strategy are to generate increases in economic vitality for both
the downtown business district and the entire enterprise zone. The strategy
encourages small business development, new business and industry attraction
by expanding the employment base.
Efforts will be directed toward stimulating reinvestment in downtown property and
to creating the availability of forums through which zone economic issues might
be identified and addressed.
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4. Zone Resident Employment Development
The goals of this strategy are directed toward expanding employment and
economic opportunity for residents of the zone.
The primary focus of this strategy is the creation of an employment
clearinghouse to directly link zone residents seeking employment with the hiring
practices of zone employers. Other strategies involve building resident capacity
to expand career skills and attain advanced job placement.
D. How .does the UEA plan to reach the aforementioned
goals, and what activities will the UEA perform or
sponsor? (i.e. programs, sponsorship of programs, etc.)
Having established a strategy and goals, the JURA has designed specific
programs.
Housing Maintenance and Development projects include:
> Establishing a home maintenance and rehabilitation program
> Coordinating downtown housing development
Promoting Neighborhoods projects include:
> Creating a neighborhood newsletter
~> Establishing a neighborhood advisory council
~> Establishing a neighborhood grant program
;> Implementing a tenant housing conditions education and enhancement
program
> Recognizing neighborhood organizations for community development
efforts
3. Zone Business Retention and Expansion and Recruitment Projects include:
> Creating a business advisory committee
> Developing an enterprise zone site and building database
> Establishing business advertisements in the JURA newsletter
> Assisting in implementing a micro-enterprise loan program
> Building upon the partnership with the Southern Indiana Economic
Development Council:
· to identify and improve employment locations
· to market zone incentives to new and existing employers
4. Zone Resident Employment Development projects include: > Establishing an employment clearinghouse
> Job Opportunities Awareness
;> Basic Skills Training Program
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Three-Year Strategic Plan
The planning process that created this strategy focused on community
involvement. Early on, JUE^ organizers put a premium on meeting with zone
residents and business owners and made it a goal to continue this
communication even after the plan was complete.
Their work resulted in the identification and prioritization of the following key
areas for projec{s:
Employment development for zone residents
Business retention and expansion
New business recruitment
Promotion of zone neighborhoods
Home maintenance and rehabilitation programs
Employment Development for Zone Residents
One area in which the JUEA can make a significant contribution is in workforce
development. By definition, the residents of the enterprise zone average lower
incomes than the rest of the community. The Indiana Enterprise Zone Program
was designed in part to help local residents improve their incomes through
securing better-paying jobs.
There are two major employment trends that the United States faces. The first
trend is the continuing pressure upon employers to find adequate employees.
The second trend is the growing disparity in income between those workers who
have training and education and those who do not. JUEA will build a workforce
development program centered upon those two macroeconomic forces.
Establishing the following programs will help improve wages and career
opportunities for zone residents:
> Job Opportunities Awareness
> Basic Skills Training Program
> Small Business Development
Job Opportunities Awareness
Zone residents must be made aware that possibilities exist for almost everyone
to train and prepare for better-paying, more satisfying jobs. Without this
awareness residents are unlikely to find the motivation to improve their
employment and life skills.
Benchmarks for Job Opportunities Awareness
Zone residents are'r~ade aware of new employment and career opportunities
Zone residents attend semiannual Careers Day and Job Fair organized by JUF__.~
Zone businesses have a UEA contact for asSistance in finding employees
A Tax Credit Promotion is targeted at businesses in the zone and coupled with
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promotion of improving skills of zone workforce
Zone Residents receive access to a personal computer at City Hall (or some otler
zone location) that can access Indiana Department of Workforce
Development's new CSSS employment program
Implementation Schedule for Job Opportunities Awareness
Steps Task Deadline
1 Create JUEA Business Advisory Council 01/15/2000
2 Form project task force with Workforce Investment 02/1502000
Board, Labor Unions in zone and others
3 Task force organizes and presents Job Fair proposal 05/15/2000
with career counselors and local employers
4 Staff trained on Workforce Development program and 09/15/2000
computer made available at zone location
6 Create Tax Credit Promotion through local media and 09/15/2000
tie in with promotion of improving skills of local
workforce
7 Advertise employment opportunities in zone newsletter10/15/2000
Basic Skills Training Program
For some zone residents, access to information about employment opportunities
will not be sufficient. JUEA will work with local education and training
organizations to make basic skills training more accessible for zone residents.
This program should build upon educational curricula already available in the
community. Thus, JUEA should partner with current Adult Basic Educational
programs from the school system and the local Workfome Investment Board, If
possible, basic skills training should take place within the zone. The JUEA's role
is to help local training organizations better serve zone residents. The JUEA will
not manage this program.
Benchmarks for Basic Skills Training Program
Zone residents are made aware~of th~ advantage of improving their work skills
Zone residents are made aware of training opportunities
Zone resident receives education and training scholarship
Zone residents attend evening classes in the zone have access to transportatior
Implementation Schedule for Basic Skills Training Program
Steps Task Deadline
1 Form project task force with Workforce Investment 02/15/2000
Board, school system and others
2 Develop communications plan 04/15/2000
3 Find suitable space in zone to locate Workforce 08/15/2000
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Development Classes
Establish education and training scholarship for zone 11/30/2000
residents and cdteda for selection
Investigate corporate sponsors for scholarship match 01/15/2001
with UEA (Determine award consistent with budget and
corporate support)
Produce and mail brochure on educational 03/01/2001
opportunities, locations and transportation. Include
scholarship information
17
Business Retention, Expansion and Recruitment
An economic development campaign implemented specifically for the zone will
be an important component in creating new jobs and will complement
investments in infrastructure and workforce development. Establishing the
following programs will help recruit new businesses and develop existing ones:
~ Site Marketing Initiative
> Zone-oriented Entrepreneurial Development
> Retention and Expansion
Site Marketing Initiative
This is a large-scale project and JUEA will need to work with partners such as
the Southern Indiana Economic Development Council.
Benchmarks for Site Marketing Initiative
Database of industrial and'commercial sites compiled
Materials describing sites and incentives are completed
Businesses in the zone are targeted for marketing campaign
New businesses are targeted for marketing campaign
Materials are mailed and follow-up calls are made
Prospects visit the community
Businesses expand or relocate in the zone
Implementation Schedule for Site Marketing Initiative
Steps Task Deadline
I Create database of industrial and commercial sites 01/01/200
0
2 Produce materials describing sites and incentives 03/15/2000
3 Target businesses in the zone for marketing campaign03/15/2000
4 Target new businesses for marketing campaign 06/30/2000
5 Mail materials and perform follow-up calls 07/01/2000
Zone-oriented Entrepreneurial Development
In addition to working with existing employers and recruiting new employers, the
JUEA will establish an aggressive zone-oriented entrepreneurial development
program. This program will focus on growing new businesses for the zone from
within the community. The JUEA will work closely with the Small Business
Development Center to establish an office and program within the zone.
Benchmarks for Zone-oriented Entrepreneurial Development
Creation of a development campaign
Location of new entrepreneurs in the zone
18
Implementation Schedule for Zone-oriented Entrepreneurial Develo ~ment
St;ps Task Deadline
1 Create community awareness campaign 10/01/2000
2 Analyze small business market opportunities within the02/15/2001
zone
3 Survey residents for interest in small business 03/15/2001
development
4 Create.entrepreneurial training program within the zone 06/30/2001
5 Identify funding resources 08/15/2001
6 Apply for grants 09/15/2001
7 Implement program 12/01/2001
Business Retention and Expansion
The JUEA will work with existing industries to address misconceptions about the
zone and to create a better climate for business. Letting these businesses know
that they have an ally, and that the UEA has the power to help them, will be one
of the first goals of zone staff.
Benchmarks for Business Retention and Expansion
Local companies realize the benefits of participating in the zone
other programs
Local companies decide to expand within zone boundaries
incentives and
Implementation Schedule for Business Retention and Expansion
St;~ps Task Deadline
1 Prepare material explaining zone benefits and programs02/01/2000
Mail information to every zone businesses, including an 03/01/2000
offer to meet
Contact zone employers with more than 50 workers and 05/01/2000
survey them about their needs
Follow up survey results 07/15/2000
19
Promoting Zone Neighborhoods
JUEA will promote empowerment opportunities and general quality of life issues
in the zone. The association will establish these programs:
Fostering Neighborhood Associations
Publishing a Community Newsletter
Sponsoring a Rental Property Education Program
Creating Resident and Business Advisory Councils
Neighborhood Associations
One neighborhood association recently formed within zone boundaries, but there
is a need for others. These associations make a terdflc conduit for not only local
activism, but also for educating people about JUEA's services.
Benchmarks for Neighborhood Associations
JUEA developed~and distributed a How-To Manual for organizing a neighborhoed
association
JUEA applied its blueprint for starting neighborhood groups to several areas in
the zone
JUEA is supporting fledgling groups by hosting and staffing the first few meetings
JUEA is funding small-scale, block-specific projects identified by the associationls
Implementation Schedule for Neighborhood Associations
Steps Task Deadline
1 Create a "How To Manual" for organizing a 08~30~2000
Neighborhood Association
2 Distribute manual to potential pilot areas 09/15/2000
3 Meet with Police Department for potential streets to act 09/15/2000
as pilot projects
4 Meet with church leaders and social service agency 10/15/2000
representatives for potential streets to act as pilot
projects
Select two areas for pilot projects. Possible catalysts 02/01/2001
5 include neighborhoods with:
i. A rallying point (crime, etc.)
ii. A particularly nice feature to protect
6 Create a "start-up" program to simplify creation of an04/15/2001
association. Initially offer:
i. A place to meet
ii. Clerk support (meeting notification)
iii. Arrangement of speakers (police, etc.)
iv. Information on possible topics
7 Create incentives to keep associations going. 05/15/2001
Possibilities include:
i. $500 grants for projects
20
ii. City-sponsored cleanup blitz
iii. Access to housing repair loans
iv. Subsidized block parties
8 Work with residents to form associations 06/15/2001
Community Newsletter
Newsletters are an excellent way to build neighborhood cohesiveness and to
alert residents that people are working to improve the local quality of life. They
also inform residents whom to contact for problems and questions.
Benchmarks for a Community Newsletter
JUEA has a newsletter mailed throughout the zone. The first year will have ser
annual publications, later the UEA will switch to quarterly issues
Implementation Schedule for a Community Newsletter
St;gps Task Deadline
1 Select newsletter features, such as: 03/01/2000
i. Profile of zone business
ii. Profile of zone resident
iii. Explanation of zone program
2 Find corporate sponsors to fund production costs 05/15/2000
3 Set schedule for first two publications 06/30/2000
4 Find local printer 06/30/2000
5 Produce first issue 09/30/2000
6 Mail to homes and businesses 10/01/2000
Rental Property Education Program
The condition of rental property was a frequent complaint made by residents
throughout the planning process. JUEA will help facilitate a better city-landlord
relationship. One facet of this program would be a "Landlord Expo," where
rental property owners are brought together for a meeting that includes
workshops on property repairs. For this project JUEA would partner with city
departments.
Benchmarks for Rental Property Education Program
JUEA helps organize "Landlord Expos" where investment property owners learn
about issues such as maintenance and city codes
Using the expos, JUEA forms relationships with local landlords
21
Implementation Schedule for Rental Property Education Program
St~ps Task ' Deadline
1 Partner with city departments such as code enforcement03/30/2001
2 Design program 07/15/2001
3 Set location and date 08/15/2001
4 Solicit sponsors 08/15/2001
5 Send invitation letters 08/30/2001
6 Confirm invitations 09/15/2001
7 Rehearse presentations 09/30/2001
8 Hold event 10/30/2001
9 Write participants asking for feedback 11/15/2001
Resident and Business Advisory Councils
Formation of these groups will be vital to introducing the JUEA to the community
and to creating buy-in among stakeholders. In the future, the groups will provide
front-line feedback on refining JUEA goals.
Benchmarks for Advisory Councils
JUEA has organized a neighborhood advisory council and business advisory
council that meets twice a year
Implementation Schedule for Advisory Councils
St~ps Ta~k Deadline
1 Prepare list of business group members (include small 01/15/2000
and large)
2 Prepare list of resident group members 01/15/2000
3 Invite potential members to participate 02/01/2000
4 Prepare agenda items for business group: 02/15/2000
i. Guest speakers (SBDC, IDOC)
ii. Issues (R&E, infrastructure)
5 Prepare agenda items for resident group: 03/15/2000
i. Guest speakers (City Hall, etc.)
ii. Issues (rental property, streets)
6 Mail participants summary of meeting 04/30/2000
22
Home Maintenance and Rehabilitation Programs
Many of the houses in the zone are in need of significant rehabilitation, but
residents don't have the money to get the work done. Deteriorating housing is a
signal that attracts crime and repels new investment. During research for this
zone application issues such as the need for affordable housing and the need for
Iow-interest loans for home repair were mentioned repeatedly.
Benchmarks for Home Maintenance and Rehabilitation Programs
$150,000 secured for Home Maintenance and Rehabilitation Program through
JUEA and Banks
Implementation Schedule for Home Maintenance and Rehabilitation Programs
Steps Task headline
1 Form a task force with possible members: 04/15/2000
Area banks
Local government agencies
Local business people
The neighborhood organizations
City housing advocates
Other civic organizations
Architects
Church groups
2 Meet with bank, state representatives 05/15/2000
3 Explore further funding possibilities such as Lilly 06/15/2000
Foundation and Community Redevelopment Act bank
programs
4 Set goals such as: 06/15/2000
five homes in 2000
10 homes in 2001
5 Design marketing plan with bank representatives 07/15/2000
6 Promote programs through neighborhood associations, 07/30/2000
etc.
23
O What Responsibilities will the UEA Assume
on Behalf of the Applicant Municipality?
Not applicable.
24
Partnerships
The Jeffersonville UEA will have an impressive set of partners ready to share
experiences and resources. Local not-for-profit, economic development and
neighborhood groups are already operating in the community.
Although these organizations are working toward similar goals, there is no overall
plan to address problems unique to the zone. Most of these groups serve the
entire city and some also work in nearby counties.
Local not-for profit organizations include the Center for Lay Ministries and the
Community Kitchen.
Some of the area's problems are severe enough that residents decided to
organize themselves. The Rosehill Neighborhood Association began as a crime
watch program last spring and quickly developed even more ambitious projects.
For instance, they organized the Clean Sweep of Rosehill event scheduled for
this October, where neighbors will collect trash in a dumpster provided by the
city.
They have also sent mailings to local landlords with information about nuisance
laws. Joanne Blake, a founder of the group and a local business owner, is very
eager to work with the JUEA on projects.
Another key ally will be the Southern Indiana Housing Initiative. This far-reaching
group consists of service providers for housing and homeless services. The
group has developed a continuum of care for regional housing and expressed an
interest in working with the UEA on affordable housing in the zone. Members of
this organization include:
· Rauch Rehabilitation Services, for developmentally disabled people
· LifeSpring Mental Health Services
· Haven House Services, for homeless shelter and transitional housing
Salvation Army
· Jeffersonville Housing Authority
· NewAIbany Housing Authority
· Center forWomen and Families
· Interfaith Community Council
· New Hope Services
There are also ready-made partnerships available with local economic
development groups. The foundation for these relationships were formed by the
Jeffersonville Department of Redevelopment, which has worked with these
organizations and which will host the new JUEA.
25
These economic development organizations include Jeffersonville Main Street
Inc. (JMSI), which covers 10 square blocks downtown that includes 110
buildings. The combination of these entities will offer Iow-interest loans, design
guidelines, small business assistance, tax abatements and seminars to
downtown businesses. In 1998, JMSI projects included overseeing $25,500 in
fagade renovations, $1,394,000 in building rehabilitation and $4,340,000 in new
construction.
Other potential programs that JMSI could partner with UEA on include: · Promotion of the Farmers' Market
· Growth managementJCBD Reinvestment Education
· $500-$1,000 fa<;ade grants for commercial buildings
· Workshops on preservation of older properties
· Landscaping programs
· Business recruitment incentives
· Big Four Bridge pedestrian walkway
· Establishment of design criteria
· Downtown entryway beautification
· Quartermaster stabilization and restoration
Another potent associate is the Historic Landmarks Foundation of Indiana (HLFI),
whose office in Jeffersonville has loaned or invested more than $270,000 in local
preservation efforts. HLFI has also contracted with the city to provide consulting
service to the Historic Preservation Commission.
HLFI, in conjunction with Historic Southern Indiana, the National Trust for Historic
Preservation and the Indiana Division of Tourism, spearheaded the designation of
the Ohio River Scenic Route as a National Scenic Byway in 1996. The route, whict
travels Market and Spring Streets in downtown Jeffersonville, is expected to draw
significant tourist traffic and investment when fully operational. HLFI is currently
working with the city, the owners, and the Preservation Commission to find a way tc
save and reuse the Quartermaster Depot.
Jeff-Clark Preservation is another local, vital group ready to partner with the
UEA. This not-for-profit organization formed in 1983 to save local, endangered
buildings. Working with Jeffersonville Main Street and Historic Landmarks, they
bought the Elks Building at 240 Spring Street last summer. The group put in an
initial investment of $85,000 to buy the building and plans to spend another
$100,000 to renovate. A potential buyer, who would convert the three-story,
1903 building to retail shops and apartments, has already approached Jeff-Clark
Preservation.
Previously, the organization helped restore four residential houses and returned
them to the ta~< roles and renovated another downtown building, which now
houses an antique shop, beauty shop and two apartments.
26
Another partner is the River Hills Economic Development District, which
administer local grants such as the owner-occupied rehabilitation grant from the
Indiana Housing Finance Authority.
Jeffersonville's Downtown Merchants Association is both a case study in the
town's economic cycles and a picture-perfect candidate for benefiting from a
partnership with the new UEA.
The association was once very active, sponsoring special events such as Spring
on Spring Street~, putting up decorations for holidays and generally drawing
people downtown. Then it began losing members - namely, downtown shops.
Key businesses drifted away, the last one being a florist about a year ago.
The group stopped all activities. This summer, however, long-time merchants
noticed that new shops are opening downtown. They are now regrouping to plan
its first renewed activity, Halloween Downtown.
The Clark County Redevelopment Commission also is an ally. JUEA will work
with the commission, which has a professional, full-time staff, on projects such as
downtown revitalization.
27
Participation
The framework for UEA's development plan grow out of two actions: A strategic
plan for downtown rovitalization initiated in 1996 and a more recent ~lanning
process for zoning revisions.
Initial arguments on the need for an enterprise zone grew out the projects and
observations of the city's Department of Redevelopment. This department works
with most of the economic development, social service and not-for-profit
organizations operating in Jeffersonville.
By funding projects, partnering on projects and attending planning meetings, the
Redevelopment Department learned the needs of business owners, residents,
preservationists and other key stakeholders. Redevelopment Department
officials and other city employees were able to identify which of the zone's needs
are being addressed and which need further attention.
The Redevelopment Department has also worked directly with rosidents. For
instance, when looking for applicants for a home rehabilitation program,
department employees started with flyers, a newspaper ad and posted notices at
local churches. When those efforts failed to produce enough applicants, they
went door to door in the zone recruiting neighbors.
The initial effort associated with the Strategic Plan involved analyzing
background information relative to existing conditions within the enterprise zone,
interviewing potential JUEA Board members and holding a series of community
focus group meetings to obtain input from the urban enterprise zone community.
Five overriding problems and concerns surfaced through the focus group
meetings as issues which need resolution if economic and residential well-being
within the enterprise zone are to show marked improvement over the long term;
Physical appearance of the enterprise zone
Business development and downtown viability
Neighborhood organization and development
Employment training and development for zone residents
Public relations/communications
Next, several JUEA board working sessions explored core urban enterprise
association values and developed a mission statement and sedes of goals for the
organization.
Other information was gathered this summer, when a consulting firm led the
community through vision and problem-solving sessions as part of
Jeffersonville's zoning ordinance revision.
28
The session on commercial development downtown included representatives
from the Jeffersonville Preservation Commission and the Historic Landmarks
Foundation of Indiana as well as business advocates. The "Economic
Development" session had people from the Southern Indiana Economic
Development Council, Jeffersonville Main Street Inc. and city departments.
The discussions covered both broad and very specific problems in the zone,
everything from the need for more downtown parking to the general blight of a
local gas station. Many of the specific issues that the UEA will address were first
developed during the Downtown Jeffersonvil/e Strategic Action Plan process.
This process w~s funded through an Indiana Department of Commerce
Community Planning grant and involved meetings with key stakeholders. These
issues were also addressed during the later Jeffersonville zoning planning
process.
Creation of an enterprise zone is an ambitious plan, and the City of Jeffersonville
and the JUEA are determined to make it succeed. The City Departments of
Planning and Redevelopment, as well as other city offices, are prepared to
supplement JUEA income with direct and in-kind subsidies. Funding to meet the
budgetary requirements of the action plans will be targeted from the following
sources:
Department of Redevelopment
Community Development Block Grants (U.S. HUD)
Local Lenders
Federal Home Loan Bank
Jeffersonville Main Street Inc.
Historic Landmarks Foundation of Indiana
Indiana Development Finance Authority
Indiana Housing Finance Authority
River Hills Economic Development District
Southern Indiana Economic Development Council
The JUEA will maintain a broad-based membership on its board: the
participation by representatives of government, human services, educators,
businesses and residents is the first step toward building consensus among the
stakeholders. The JUEA believes that it is essential that all stakeholders become
creatively involved in shaping the goals, objectives and programs which are
meant to transform and empower their community. When individuals become
creatively involved, they take ownership in an organization and have a larger
stake in seeing it succeed. Pride of ownership is not simply a principle in
housing but in human services as well.
As a consequence, the JUEA is committed to an ongoing strategic planning
process in which all the stakeholders are in fact creatively involved. The
neighborhood associations, the business and neighborhood advisory
29
committees, public outreach meetings and the media will all be used to invite and
create participation and, therefore, to mobilize support.
30
Redevelopment Plan
Empowering zone residents and partnering with existing businesses and
development organizations is the primary objective of the new JUEA.
in Question 6 of this section, we outlined the specific goals, projects and
benchmarks for the creation of the enterprise zone. In this section we will outline
the administrative and organizational steps needed to reach our pdmary
objective.
Organizing a Staff
Upon learning that formation of the Jeffersonville Urban Enterprise Zone has
been approved, the City Department of Redevelopment will begin formalizing the
organizational structure.
Assemble board of directors
Determine steps for hidng process
Begin hiring process, sending out notices to professional journals, etc.
Formalize contributions of all city departments
Hire executive director
Creating Partnerships with Residents
Me~t with existing neighborhood association
Distribute new zone newsletter
Meet with local churches, housing projects, etc.
Create citizens advisory board
Select areas for potential new neighborhood associations
Foster creation of new associations
Creating Partnerships with Businesses
Pre are materials on zone incentives
Meet with companies about R&E program
Create business advisory board
Distribute new zone newsletter
Creating Partnerships with other Organization
Formalize relationship with Southern Indiana Housing Initiative
Formalize relationship with Jeffersonville Main Street Inc.
Formalize relationship with Historic Landmarks Foundation of Indiana
Formalize relationship with Community Kitchen
Formalize relationship with Center for Lay Ministries
31
Formalize relationship with Jeff-Clark Preservation
Formalize relationships with other local economic development groups
32