hub - regional-institute.buffalo.edu

A Regional Action Plan for Downtown Buffalo

Volume 2 – The Work Plan

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Anthony M. Masiello, M AY O R

W W W. C I T Y- B U F F A L O . C O M

November 2003

Downtown Buffalo 2002!

DEDICATION

To people everywhere who love Buffalo, NY and continue to make it an even better place to live life well.

Published by the City of Buffalo


October 2003

Program Sponsors: Funding for the Downtown Buffalo 2002! program and

Queen City Hub: Regional Action Plan for Downtown Buffalo was provided by four

foundations and the City of Buffalo and supported by substantial in-kind services

from the University at Buffalo, School of Architecture and Planning’s Urban Design

Project and Buffalo Place Inc.

Foundations: The John R. Oishei Foundation, The Margaret L. Wendt Foundation,

The Baird Foundation, The Community Foundation for Greater Buffalo

City of Buffalo: Buffalo Urban Renewal Agency

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A Regional Action Plan for Downtown Buffalo

Volume 2 – The Work Plan

Anthony M. Masiello, M AY O R


October 2003

Downtown Buffalo 2002!

A R e g i o n a l A c t i o n P l a n f o r D o w n t o w n B u f f a l o

Table of Contents – Volume II V

Table of Contents: Volume 2 – The Work Plan

1. Preface to Volume II: The Work Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

2. The Vision for Downtown Buffalo . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2Downtown is a Regional Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Culture and Entertainment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3Health Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3Commerce and Government Clusters . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Downtown is the Neighborhood of Neighborhoods . . . . . . . . . . . . . . . . . . . 5Downtown is for Everyone . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6Downtown is where the Ellicott Plan, the Olmsted Park and

Parkway System, and the Waterfront Converge . . . . . . . . . . . . . . . . . . . . . 7Downtown Builds on Decades of Progress . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

3. Priorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11Five Strategic Investment Areas/Capital Program . . . . . . . . . . . . . . . . . . . . . 12

Erie Canal Harbor and Waterfront District . . . . . . . . . . . . . . . . . . . . . . . 13Downtown Education and Public Safety Campus. . . . . . . . . . . . . . . . . . 17The Financial District and Government Center . . . . . . . . . . . . . . . . . . . . 19The Theatre District . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22The Buffalo Niagara Medical Campus . . . . . . . . . . . . . . . . . . . . . . . . . . 24

Putting It All Together . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29The Radial and Grid Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30A Mixed Use Core Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31Downtown Residential/Mixed-Use Communities . . . . . . . . . . . . . . . . . . 32

4. A Progress Report on Planning and Implementation. . . . . . . . . . . . . . . . . . . . . . . . 38Priority Issue: Living Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39Priority Issue: Working Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41Priority Issue: Accessing Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42Other Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44

5. The Work Plan. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

Living Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48Working Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54Visiting Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61Shopping Downtown. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65

Principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70Accessing Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71Urban Design and Management Downtown . . . . . . . . . . . . . . . . . . . . . 80Preservation Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87Energy and Green Design Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . 95Image of Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 103

References. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 107Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111Appendix. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117“A New Story About Downtown Buffalo“. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121

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VI Table of Contents – Volume I

Table of Contents: Volume 1 – The Context for Decision Making (Printed in a separate volume)

1. The Vision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

2. Achieving the Vision. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Strategic Investment Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Putting It All Together . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

The Capital Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

Other Major Proposals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

3. Organizing to Implement the Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

Activity Downtown: Live, Work, Play. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Principles: Policies For A Great Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

4. Decades of Progress . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

5. A Regional Framework for Planning and Action . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

The History of the Plan. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

Planning at the City Scale. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

The Planning Framework at a Regional Scale. . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

References. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33

Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34


Preface to Volume II: The Work Plan 1

Preface toVolume ii: The Work Plan

The Queen City Hub plan is incorporated by reference in the Queen City in the 21stCentury: City of Buffalo ComprehensivePlan. As such, it will serve as the basis forthe additional work needed to give theDowntown strategy the force of law inzoning ordinances and design reviewprocedures. To be fully effective, it is tied tothe City’s capital program and budget. It willalso be part of the Generic EnvironmentalImpact Statement (GEIS) review process tobe developed for the Buffalo ComprehensivePlan as specified in the State EnvironmentalQuality Review Act (SEQRA). The Queen CityHub plan tells us what to do and where – as well as what not to do – to advanceDowntown as a regional center and as theneighborhood of neighborhoods for our city.

The Queen City Hub builds on itspredecessor, the 1999 Strategic Plan forDowntown Buffalo, as well as the extensivepublic review of that plan managed by theDowntown Buffalo 2002! implementationcampaign. The campaign set clear prioritiesfor work on living, working, and accessingDowntown. The Queen City Hub strategyresponds to a number of concerns that wereraised in the review of the 1999 plan, thevast majority of which were not part ofwhat the original plan was commissioned to address. For example, the authors of thatplan were not supported to develop thedetailed plans related to activity programsfor Downtown or for policy development.They also were not tasked with identifyingperformance measures such as thoserepresented in this plan. Perhaps even moreimportant, the initial plan was not intendedto address the structure of implementation.The vision, organizational structure,implementation plans, and resources describedin The Queen City Hub will all be critical to the future success of Downtown Buffalo.


2 The Vision for Downtown Buffalo

The Vision forDowntown Buffalo

The Queen City Hub envisions Downtown as a place where citizens of the City and the surrounding region choose to live, work,and play. The Queen City Hub sees a strongurban core as a regional center for cultureand entertainment, heritage, education,health care and life sciences research, andcommerce. It understands that Downtown’srole as the upstate center for government,finance, banking, and legal services makes it part of the backbone of the regionaleconomy. The vision presents Downtown asthe diverse neighborhood of neighborhoodsfor the whole region and it celebratesBuffalo as an historic waterfront city in a bi-national region.

Downtown is a Regional CenterDowntown Buffalo has to be a specific type of regional center, one that builds onits strengths as the hub of each of severalregional economies. The vision forDowntown emphasizes these basic assetsand completes the infill elements necessaryto make it a great place to live, work, andplay. The existing regional economies at thecore of the vision include our culture andentertainment base, our medical servicesand research base, and our commerce andgovernment center status.

While it is possible to overstate the role of Buffalo in the region, plan reviewers and plandevelopment team members agree that the role has been understated for far too long.

(Source: The Urban Design Project)

The Regional/Urban Design Assistance Team visiting Buffalo in2001 believed Downtown can provide unique urban living

opportunities not available in the rest of the region. (Source: TheBlueprint for Living in a Downtown: Buffalo R/UDAT, 2001)

Buffalo sits at the mouth of the Buffalo River and the headwatersof the Niagara River. Water from three other great lakes flows

through Lake Erie, moving north and east over Niagara Falls andon to Lake Ontario. (Source: The Urban Design Project)

Lake Erie

Lake Ontario


The Vision for Downtown Buffalo 3

Culture and EntertainmentDowntown Buffalo is a regional center forculture and entertainment. Substantialrecent investments in Shea’s Performing ArtsCenter, Studio Arena Theatre, the BuffaloTransportation Pierce Arrow Museum,Sphere Entertainment Complex, Mudpies,Dunn Tire Park, Andrews Theatre of the Irish Classical Theatre Company, and nearby Kleinhans Music Hall help confirmDowntown’s role as a regional center. The$14 million invested in Shea’s enabled it tomove from thirty relatively modest shows tosixty first-rate shows a year. As a result ofthese and other investments, employment in the restaurant business in Downtown isgrowing at a faster rate than anywhere elsein the region. Plan proposals for additionalinvestments in the Erie Canal Harbor, forheritage sites along Michigan Avenue, andfor continued investment in the historicstock of Downtown buildings and districtsall add to this economy.

Health ServicesThe creation of a world-class Buffalo NiagaraMedical Campus on the northeast corner of Downtown reinforces the branding ofDowntown as a regional, if not global,center. It begins with the Roswell ParkCancer Institute and the Buffalo LifeSciences Complex with its collaborationamong the University at Buffalo’s Center of Excellence in Bioinformatics, the RoswellPark Cancer Institute Center for Geneticsand Pharmacology, and the Hauptman-Woodward Medical Research InstituteStructural Biology Research Center. Theseprojects are setting the standard for thesuccess of the campus. The combination of research and medical technology facilitiesand programs will further reinforce theregional prominence of Downtown.

Shea’s Performing Arts Center,The Irish Classical Theater and

Studio Arena are among the sevenlive theater venues that help

anchor culture and entertainmentofferings Downtown.

(Source: Buffalo Place Inc.)

Artist rendering of the future Buffalo Life Sciences Complex.

(Source: The Buffalo Niagara Medical Campus)

Five strategic investment areas for The Queen City Hub. (Source: The Urban Design Project).



This will become increasingly true as the rest of the strategy is implemented,addressing parking, access, residential life,neighborhood services, and retailing alongwith culture and entertainment.

All of these sectors of the economy fitwithin the five strategic investment areasoutlined in the Overview and detailed in this volume of the plan. The Queen City Hubenvisions the continued reinforcement of theexisting sectors of the Downtown economyand adds an emphasis on education.

Commerce and Government ClustersDowntown Buffalo is already the center for government, finance, banking, and legalservices in the region. The infrastructure is well established and reliable, there arequality sites for infill development and thereis a surplus of existing structures appropriatefor adaptive reuse to provide adequatespace to build up these commerce clusters.A new building code, simpler procedures for permit acquisition, and a clear vision of Downtown as a center of regionalcommerce reinforce its appeal as a locationfor business. Of course government, finance,insurance, and real estate operations shouldalready consider a Downtown location first.

Commerce and Government represent thelargest sector of the Downtown Economyand have a significant federal and state as

well as regional presence.(Source: The Urban Design Project)



same is true for other investments in theHome Ownership Zone on the near EastSide of Downtown and past investments inneighborhood stabilization to the southeast.

Downtown as a regional center is biggerthan the central business district. The visiondemands that Downtown serve both theadjoining neighborhoods and the region. As such, the regional center we are callingDowntown is loosely defined on the northby Porter Avenue and North Street, on theeast by Jefferson Avenue and on the southand west by the Buffalo River, Lake Erie and the Niagara River. It is a Downtownwith a current population of about 18,000residents and well over 60,000 workers. It has the spending power to help fuelresidential services and regional attractions.It is the neighborhood of neighborhoods for the region.

Downtown is theNeighborhood of NeighborhoodsBuilding on strengths also means buildingon the over $500 million that have beenand are continuing to be invested instabilizing the inner ring of neighborhoodssurrounding Buffalo’s central businessdistrict. Buffalo will not have a greatDowntown unless its inner ring ofneighborhoods is also great.

In the Lower West Side, housingdevelopments under the Hope VI programof the Federal Department of Housing and Urban Development, a new TopsSupermarket, and a focus on Niagara Streetas a gateway boulevard into Downtown will further improve the quality of life andproperty values in that neighborhood.Investments in Kleinhans Music Hall, theAllendale Theatre, and housing on DelawareAvenue further strengthen Allentown.Additional reinforcement in the inner ringhas been provided by the Roswell ParkCancer Institute complex and will continuewith implementation of the Buffalo NiagaraMedical Campus plan and new plans forinvestment in the Fruit Belt. Investments in Willert Park and the Michigan Avenuehistoric area bolster other investments innew market rate and affordable housing to the south and east of the CBD. The

The health of Downtown depends in part on the health of

neighborhoods like the onepictured above on the 200 block of Prospect Avenue in the Lower

West Side. The picture on the topshows the neighborhood as itlooked in 1996 and the image

below it shows it today.(Source: The Lower West Side

Neighborhood StabilizationDemonstration Project: Housing

Design Review Guidelines, MayorAnthony Masiello’s Housing

Design Advisory Board,second ed., 2002)

“Stabilize the core city of eachregion because in no place is there evidence of regionsdoing well when their core city has deteriorated.”

THEODORE HERSHBERG, PH.D. Director

Center for Greater Philadelphia

Downtown and the inner ring of neighborhoods looking northfrom the HSBC office tower on Main Street




Downtown is for EveryoneDowntown Buffalo has the capacity toattract the world, the region, and nearbyresidents. The 1999 Strategic Planenvisioned a Downtown with life twenty-four hours a day, seven days a week, twelvemonths a year. The plan also envisions agrowing number of residents and expandedrelated services in the core of Downtown. It reinforces restaurant, entertainment,theatre and cultural venues. And it expandsthe number of employees working a fullrange of jobs Downtown.

Buffalo is a central actor in many powerfuland world-famous stories. We need to tellthese stories of our region’s natural heritage,architecture and cultural history. Thewestern gateway of the Erie Canal washere. The Underground Railroad ran throughhere. Important battles of the War of 1812were waged here. Some of the bestarchitects in the world built here. These are important stories to tell, not only tostrengthen our visitor-based economy, butalso to enrich the lives of all who live in the region and in the city.

Downtown is a place where very large crowds gather for specialevents like the Taste of Buffalo pictured above, or the AllentownArt Festival, Curtain Up and Thursday at the Square. SuccessfulDowntowns are designed to accommodate large crowds at such

events, while comfortably hosting more routine residential,business, and entertainment activity. (Source: Buffalo Place Inc.)

Several factors contribute to the current separation of the central business district from its abutting neighbors. The QueenCity Hub plan is designed to reconnect the CBD to the inner ring of neighborhoods. (Source: The Urban Design Project)

The inner ring ofneighborhoods

The central business district

A greater Downtown

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only respect for the one that helped make it great, along with a commitment to buildon the strategic investments already made Downtown, a dedication to thedevelopment of a new regional economy,and a creative response to ourcontemporary problems.

The Queen City Hub envisions the Ellicottradial plan and the Olmsted Park andParkway system as key elements of a 21st-century city. It provides a system of greatstreets and parkways fully integrated withstrategic economic clusters, neighborhoods,and the waterfronts of the Buffalo River,Lake Erie, and the Niagara River. Embeddedin the work of Ellicott and Olmsted is theunderstanding of an urban core whichconcentrates investments and provides the heart of the city and region. The historicplans also provide the basic clues to asystem of gateways that announce entryinto the city, to the Downtown core, and to the waterfronts.



Some of Buffalo’s most distressed neighborhoods surround the Downtown Core.

(Source: Empowerment Begins with a Job, City of Buffalo, 1997)

The “live, work, and play“ activity programwill achieve its full potential whenDowntown employees and residents of theinner ring of neighborhoods chooseDowntown as their place for specializedneighborhood retail services, entertainment,and work. It is not possible or desirable to build enough Downtown housing tosupport such retail services. But thecombination of more than 15,000 residentsin the inner ring neighborhoods with thegrowing Downtown residential populationand the workforce of what will be morethan 60,000 people is sufficient to providethe market for retail services. Becoming apreferred retail venue, in turn, requires aninner ring of neighborhoods with strongconnections to Downtown.

All entrances to Downtown require travelthrough the inner ring of neighborhoods. All of our visitor-based economies dependon a Downtown and neighborhoods thatare clean, safe, friendly and beautiful. All of our retention and new businessdevelopment efforts depend on these samequalities. The vision for Buffalo is aninclusive one that brings the full diversity of the City and Region to Downtown. As the city goes, so goes the region. As the inner ring of neighborhoods goes, so goes Downtown.

Downtown is Wherethe Ellicott Plan, The Olmsted Park andParkway System, and theWaterfront ConvergeThe most basic elements of the vision arealready in place – embedded in JosephEllicott’s 1804 radial plan for the city andreinforced by Frederick Law Olmsted’s parkand parkway system. Taken together, thesehistoric plans link all the neighborhoods toDowntown and both the neighborhoodsand Downtown to the waterfront. TheQueen City was, according to Olmsted,“…the best planned city in America.“ It needs no new grand physical vision,

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Top: 1990-2000 – New investment completed in the decade of the 90s.Middle: 2000-2003 – New investment completed and pending in the first half of this decade.

Bottom: 1990-2003 – A composite illustrating investment occurring Downtown and in the inner ring of neighborhoods since 1990.(Source: Downtown Buffalo 2002! Patterns of Investment, The Urban Design Project)

ACTUAL INVESTMENT DURING 1990–2000

ACTUAL AND PROJECTED INVESTMENT DURING 2000–2003

ACTUAL AND PROJECTED INVESTMENT DURING 1990-2003

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Buffalo’s CBD size comparison to five peer cities. (Source: The Urban Design Project)

Downtown Builds on Decades of Progress The Queen City Hub builds on decades of investment Downtown. The patterns of investment analyzed and published as part of plan development reveal coreexpenditures in the financial center on Main Street from Huron to Chippewa andinvestments from Chippewa to TupperStreet in the Theatre District. There has beensignificant development on almost all parcelsin the past two decades. The city has rebuilttwo full blocks in the heart of Downtown.

In addition, substantial new investmentshave occurred along Chippewa from Mainto and across Elmwood Avenue adding an additional four blocks of significantimprovement to the core. To this base theplan seeks to further establish “bookends“by building on the investments in theBuffalo Niagara Medical Campus to theimmediate north and on the waterfront to the south. Infill is designed to occurbetween the bookends with new investmentsin education, office structures, and mixed-use residential and retail developments.

The geography of The Queen City Hubbuilds on and fully respects the traditionalboundary of the central business district. It also acknowledges that the base is smallwhen compared to several peer cities. Whenit includes the strategic investment areas, itbecomes more comparable to the CBDs ofsuch cities and when it extends to the innerring of neighborhoods, it surpasses them.

DOWNTOWN CBD BOUNDARY COMPARISON


10 Priorities

Priorities

Implementing the vision of The Queen CityHub requires that hard choices be madeabout strategic investments in priority areas.It requires the creation of new residentialcommunities within and among the priorityareas, and it requires the mending of theurban fabric by reinforcing Joseph Ellicott’sradial street plan and relating it to FrederickLaw Olmsted’s park and parkway systemand to the waterfronts. Doing such workrequires a continued focus on how work isdone: the relationships among participants,procedures, and the quality of design andplanning. It will require hundreds of acts of sound physical design and improvedmaintenance standards. It will requireleadership from all sectors of our communityand improved enforcement of the lawsgoverning development and maintenance.

As discussed in the Overview (Volume 1),the obstacles to achieving the visionrepresent serious challenges. The vision can be achieved, however, with a concertedeffort that builds on progress we havealready made, organizes commitment to practical improvements, and demandscontinuing accountability to the plan.Achieving the vision will require a few boldmoves, but mostly it will require incrementalcapital investments that build on current

assets. It will also require specific policyinitiatives and administrative reforms thatdevelop institutional capacity. This willinclude developing a strong planning anddesign capacity in City Hall, and creatingclear and enforceable design guidelines thatproduce the best urban environment possible.

The Queen City in the 21st Century:Buffalo’s Comprehensive Plan, incorporatesThe Queen City Hub and also describes waysto fix the basics and leverage strengths andpast investments throughout the City. It alsoconnects to a larger and still developingregional and economic planning frameworkwithout which neither Downtown nor thecity will achieve their full potential.


Priorities 11

already occurred in both the Downtown andinner ring of neighborhoods. It will beessential to further establish the critical massof development and adjacent employment,residential life, and entertainment venues in and related to these districts. Cities thatisolate or “strand“ their assets by failing to build on their strengths also fail to createviable urban centers.

The top priority investment areas forDowntown are the two that are projected to continue to receive significant investment:the Buffalo Niagara Medical Campus andthe Erie Canal Harbor and WaterfrontDistrict. The waterfront has beenconsistently rated as a top priority in publicforums and surveys conducted by theDowntown Buffalo 2002! program over the past three years and the BNMC is slatedto generate at least twice the investment of any other strategic investment area in the next few years. As such, these two areasare described in more detail than the otherthree although all five are ultimately criticalto the success of the plan.

From South to North, the KeyInvestment Areas Are:• The Erie Canal Harbor and

Waterfront District

• The Downtown Education and Public Safety Campus

• The Financial District and Government Center

• The Theatre District

• The Buffalo Niagara Medical Campus

The Queen City Hub strategic investment areas. (Source: The Urban Design Project)

The Vision has Five StrategicInvestment AreasStrategic investments in five core areasDowntown provide the foundation for thevision. All five areas represent employmentcenters and business developmentopportunities joined with the potential for residential communities, retail services,and entertainment venues. All five areas are intended to take full advantage of thedecades of significant investment that have


12 Priorities

The Erie Canal Harbor and Waterfront DistrictAn ambitious set of initiatives emphasizesdevelopment in Downtown Buffalo at thewaterfront and in the historic Erie CanalHarbor District at the foot of Main Street.Taken together, the implementation of anemerging Erie Canal Harbor and WaterfrontDistrict, the reuse of Memorial Auditorium,the creation of a new inter-modaltransportation center, the completion of the esplanade and Naval Park Museum, the development of the nearby CobblestoneDistrict and new housing all promise totransform the historic birthplace of Buffalo.

The cornerstone for development is the Erie Canal Harbor master plan for the 12-acre site that includes the CommercialSlip as the historic western gateway to the Erie Canal and site of the Central Wharf. Though initially surrounded withcontroversy, we now see progress that willcombine basic infrastructure investment for public access, new commercial maritimefacilities, and historic interpretation, with ancillary commercial, retail andentertainment developments.

The project will build on and improveexisting assets at the site, including theBuffalo and Erie County Naval and MilitaryMuseum and Servicemen’s Park with itsensemble of historic naval ships and militarymemorials. Although construction on muchof the project has been delayed to allow forredesign based on public demands to retainthe Commercial Slip in its historic location,the creation of a new moorage for the USS Little Rock, USS The Sullivans, and thesubmarine the USS Croaker, and creation of the “Heroes’ Walk“ was completed in the summer of 2003.

The Erie Canal Harbor and Waterfront District. (Source: The Urban Design Project)


Priorities 13

The overall project concept depends oncreating significant heritage attractions,maritime activity, enhanced waterfrontaccess, and new development to produce aplace of activity and excitement. The designincludes a continuous pedestrian esplanadeand public plaza with unobstructed views ofriver, historic grain elevators, and maritimetraffic. Direct links to rail transit, as well asimproved access to the site by car, bus,bicycle, and foot traffic will be provided.Provisions for water taxi, tour boats,transient boaters and “Tall Ships“ in a newSouth Basin, along an improved bulkhead,and in the Canal Basin of the CommercialSlip will significantly improve access by boatto the Inner Harbor.

Meanwhile, project sponsor Empire StateDevelopment Corporation is continuingwork on a revised site plan that will allowthe Commercial Slip to be re-watered withinits original bounds. The waterfront plazaand a new commercial boat basin are alsobeing reconfigured in recognition of thehistoric location of the Central Wharf.

New master plan proposals for the Erie Canal Harbor and Waterfront District are currently underway andfocused on the changes outlined in the above diagram. (Source: Empire State Development Corporation)

Multiple alternatives have been considered as planners explore thefull program of historic interpretation, sports and entertainment,

and commercial development for the Downtown waterfrontdistrict. (Source: Buffalo Economic Renaissance Corporation)

A new waterfront esplanade is complete.This recreation path links the entire InnerHarbor development along the waterfrontnorth to the marina and Gull Landing.Regionally the esplanade is part of a 26 mile “Riverwalk“ that extends north fromDowntown along the waterfront and eastalong the Buffalo River linking the evolvingBuffalo River Greenway and IndustrialHeritage Trail to the path system.

Public investments estimated at over $46million in infrastructure, direct waterfrontaccess, maritime accommodation, andheritage interpretation will make theremainder of the 12-acre site more attractiveto potential commercial development. The plan anticipates over three thousandnew jobs in this strategic investment areawith well over $100 million of privateinvestments leveraged by the public sectorfunding currently in place.

Conceptual sketch from the current commission to develop a revised master plan for the Erie Canal Harbor andCommercial Slip. (Source: Courtesy of Empire State Development Corporation and Flynn Battaglia Architects, PC

Mathews Nielsen Landscape Architects; John Milner Associates; Chermayeff & Geistner, Inc.)

Buffalo’s inner harbor prior to the relocation of naval vessels and the opening of the new Veteran’s Park on the waterfront. (Source: The Urban Design Project)


14 Priorities


Priorities 15

A related element of the plan for the areainvolves the adaptive use of MemorialAuditorium. Public officials envisionattracting a major experience-oriented usefor visitors.

An inter-modal transportation center is alsoplanned for the area and would ultimatelyconnect Amtrak passenger rail service withNFTA Metro Rail and bus service. The currentproposal calls for the Amtrak station to bedeveloped as part of the inter-modal facilitywith 800 to 1000 parking spaces in a relatedparking ramp facility. Funding for the rampproject at $16.3 million as well as the $14.5million for the inter-modal facility is in place.

A subsequent phase of work around theErie Canal Harbor would involve demolitionof the Gen. William J. Donovan State OfficeBuilding with relocation of current tenantsto office accommodations in the Governmentand Financial District Downtown. This hasthe dual effect of reducing the inventory of poor quality office space Downtown and leasing up still more space in theGovernment and Financial Districts.

ERIE CANAL HARBOR HIGHLIGHTS

Historic/cultural interpretationof the harbor area, new transitplaza, waterfront esplanade,maritime facilities, vehicularand bicycle infrastructure.

Construction of new Veteran’sPark and new Naval andServicemen’s museum.

Restoration/reconstructionand interpretation ofarchaeological resourcesrelated to Erie Canal.

Links to waterside and landsidetransportation networks.

Project Schedule:

• Naval Basin & VesselRelocation: Complete

• Veteran’s Park: Complete

• Supplemental EIS Began: Spring 2003

• Public Information/Review:June, September, and October 2003

• Final Design Begins: Spring 2004

• Start Construction: Fall 2004

• Completion: Summer 2006/07

The waterfront development planning willbenefit the nearby Cobblestone District,which currently consists of a few blocks of original cobblestone paving and a smallensemble of buildings. But opportunities for development immediately to the east of the Erie Canal Harbor are expansive and some market demand has beendemonstrated by the early success of the new Elk Terminal loft apartments.

Concept sketch illustrating one idea for the redevelopment of the cobblestone district as a mixed use residential andentertainment district. (Source: University at Buffalo, School of Architecture and Planning urban design studio)

INTER-MODAL TRANSPORTATIONCENTER AND WATERFRONT PARKING STATUS

Goal: Comprehensive Transportation Facility

Relocates the Downtown Amtrak Station(currently on Exchange Street) providing direct connections to Metro Rail, Erie CanalHarbor, Riverwalk, Greenway Trail System andother transportation modes with additionalparking capacity.

Provides supporting 800 car parking rampfacilities to serve the Erie Canal Harbor,Intermodal Transportation Facility, centralbusiness district, and associated development projects.

Project Schedule: Memorial Auditorium Site• Environmental Review: Completed• Federal Grant Applications: Approved• 30% Design: Completed

The Memorial Auditorium had beendesignated as the preferred site for theintermodal center and was to be integratedwith a proposed multi-use development withup to 270,000 square feet of entertainmentretail. The project is on hold pending the final determination of the remainder of theAuditorium building program. The projectteam is reviewing the feasibility of relocatingthe project to the Donovan site to theimmediate east.

Project Schedule: Waterfront Parking Ramp• Completion of Environmental Review/

Preliminary Design: Spring 2004• Completion of Final Design and

Construction Start: Fall 2004• Completion of Project: Fall 2006


16 Priorities

As The Queen City Hub plan goes to press,the Buffalo and Erie County HistoricalSociety (BECHS) is exploring the potential to relocate to the historic DL&W terminal atthe foot of Main Street on the waterfront.The move would provide additional space to exhibit more of the BECHS collection anda prime location to enrich the interpretationof the surrounding area with related exhibitsincluding the manufacturing of steel, thetransshipment of grain, the Erie Canal, the railroad era, and the war, peace andfreedom themes that are already part of the interpretive potential of the waterfrontdistrict and Erie Canal Harbor.

The Queen City Hub projects an integratedmixed use waterfront environmentconnecting an emerging urban villagearound the Elk Terminal project to thehistoric Cobblestone District, the Erie CanalHarbor, the Naval and Servicemen’s Park,and 600 units of housing in the MarineDrive Apartments. These developments link with the Erie Basin Marina and futureinvestments north of Erie Street. Urbandesign guidelines are to be developed aspart of plan implementation and shouldassure the uniqueness of individual areaseven as they employ basic principles ofpedestrian friendly waterfront access, mixeduse programming, and respect for thepreservation district and site designations.

This 1890 photo of Buffalo’s Main Street illustrates itshistoric connection to the waterfront.

(Source: Buffalo and Erie County Historical Society)Illustrations of potential exhibitions for the DL&W terminal.

(Source: Hadley Exhibits and the Buffalo and Erie County Historical Society)

The DL&W terminal at the foot of Main Street needs a creativereuse like that being considered by the Buffalo and Erie CountyHistorical Society. They are currently evaluating its potential as

a future home for much of their collection.(Source: Buffalo and Erie County Historical Society)


Priorities 17

three Erie Community College campusesinto a single complex Downtown. Ifimplemented, the concept would bring8,000 additional students Downtown andsee tens of millions of dollars invested in facilities as part of a new campusdevelopment. The development concept also includes a proposal for a “public safetycampus“ to include training facilities for fire, police and emergency servicescommunications, information systems, and a new forensics laboratory for CentralPolice Services.

County officials expect that the ErieCommunity College consolidation couldhelp them avoid anticipated renovation costsat the North and South Campuses totalingnearly $20 million, not to mention thepossible proceeds of the sale of eitherproperty. In addition, the potential of theproject to revitalize an underutilized districtof Downtown is substantial. City of Buffaloofficials have promoted the idea of buildingthe campus toward Main Street to link it to transit and other activities. Others have

The Downtown Education and Public Safety Campus can develop both east and west of the current Erie Community College Campus linking investments in the near east side residential communities

to the Downtown. (Source: The Urban Design Project) Erie Community College. (Source: The Urban Design Project)

Downtown Education and Public Safety CampusThe most recently emerging focus area in the Strategic Plan update is a newDowntown Education Campus in the vicinity of current Erie Community College(ECC) facilities in the old U.S. Post Office on Ellicott Street at South Division and the Flickinger Athletic Center one block to the east. County Executive Joel A.Giambra has proposed consolidating the


18 Priorities

pointed out the opportunities to reuse anarray of vacant or underutilized buildings to the east. It may be that the demand for space will allow a consolidated ErieCommunity College campus Downtown to do both, linking westward toward MainStreet and reaching eastward toward recentresidential developments in the EllicottDistrict. New investments in the Buffalo and Erie County Public Library further add to the concept of an education campus as part of Downtown.

There are many elements of the emergingcampus plan and it is by no meanscomplete. Even so, the vision is to establisha campus environment supporting ErieCommunity College and a new public safetycampus with all their student, staff, andfaculty. Other educational venues andattendant retail and commercial officevenues are also possible, establishing animportant activity center Downtown.

The creation of the concept of a DowntownEducation Campus does not precludeeducational venues throughout Downtown.The Emerson High School culinary arts andhospitality management programs and theirplanned expansion in new facilities attachedto the Root Building on Chippewa Street area good example of the mixed-use venuesenvisioned throughout Downtown.

As The Queen City Hub goes to press, some of the initial explorations of theconsolidation of ECC campuses are beingexplored for financial feasibility and impactson ECC enrollments into the future. Thedecision could go either way. Even so, theidea for the Downtown Education andPublic Safety Campus remains an importantpart of the vision. The proposal for aconcentration of educational activities doesnot depend on any one capital effort butrather on a mix of compatible educationalprogramming that will benefit fromcollocation through shared facilities (library,auditoria, athletic facilities, classrooms,education related retail services,transportation hubs, and more) as well as from its proximity to the residents,employers and employees Downtown.Consideration should be given to additionaleducational venues in this campusenvironment including a strongerDowntown presence for local colleges and universities who could “hotel“ seminarand classroom spaces, services, and otherfacilities in collaborative arrangements.

Artist’s rendering of the new $33 million Erie County Public Safety Center.(Source: Image courtesy of Erie County and Cannon Design)

Massing model exploration of the Downtown Education andPublic Safety Campus concept. (Source: Image courtesy of Erie

County and Barton, Hovey, Nardini, Tries Architects)


Priorities 19

The Financial District and Government CenterDowntown Buffalo is the financial andgovernment center of Western New York,with primary concentrations of banking,finance, legal, and professional services aswell as the largest concentration of City,County, State, and Federal courts andadministrative offices in upstate New York.These combined activities constitute thebulk of about 50,000 employees in the CBDand well over 7.5 million square feet ofoccupied office space they provide thefoundation for the continued expansion ofentertainment development, residentialgrowth, and retail revival. Indeed, for thefirst time in eight years, the total assessedvaluation of all property in Buffalo increasedin 2001 – mainly because of growthDowntown.

Downtown Buffalo is the location of choicefor nearly all government offices. Despiteheightened security concerns prompted bythe attacks of September 11, 2001, the U.S.General Services Administration selected anew site for the U.S. Federal Courthouse.Updated security guidelines eliminated aplan to locate the facility on the site of theparking lot on Court Street north of theFernbach parking ramp. No new federalbuildings will be constructed adjacent topublic parking structures. But GSA plannersstill see Downtown Buffalo as the logical sitefor a “signature“ Federal Courthousebuilding to open in 2004 and have selectedan infill site that will complete the urbanfabric of Niagara Square.

The Financial District and Government Center Downtown form the core of the employment base.(Source: The Urban Design Project)


20 Priorities

GSA is also relocating offices currently in the 492,000 square feet Thaddeus J. DulskiFederal Office Building into a variety ofbuildings in the Central Business District.The first of such relocations involves thedevelopment of a new six story officebuilding at 150 S. Elmwood Ave. The190,000 square foot building will be thelargest new office building in over a decadeand expects to lease 61,000 square feet forthe Internal Revenue Service. This project isan example of good public policy regardingthe development of an inventory ofcontemporary private office buildingsavailable for lease by government agenciesthus assuring the property is on the tax rolls.It is also consistent with The Queen City Hubplan goal to locate new investment instrategic investment areas. In addition, the GSA actions in Downtown balance newconstruction with renovation activity. Forexample, the new Federal Courthouse to be built on Delaware at Niagara Square will vacate the Michael Dillon FederalCourthouse on Court Street and thatbuilding will be renovated to house othercourt-related tenants.

In the near term, additional Dulski buildingtenants to be relocated into renovatedexisting buildings or new-builds Downtowninclude the Social Security Administration,military recruiters, the National LaborRelations Board, and the Customs Service.The empty Dulski building will then be eitherrenovated or cleared for future development.

Erie County is also in the midst of an $85million construction and renovation programfor its offices Downtown. The new ErieCounty Family Court, recently opened onNiagara Street at Pearl, has provided greaterdignity and security, as well as spaciousness,to court operations. Renovations of the OldCounty Hall, the annex at 25 DelawareAvenue, and older offices at 77 W. EagleStreet are pending. Private sector interestsare also reinvesting in Downtown officespace. Key Center finished the build-out ofits South tower in 2000 with the relocationof Delaware North Companies from theirold headquarters at Main and Court Streets,and the complex is now more than 85percent occupied.

The proposed Federal Court on Niagara Square.(Source: U.S. General Services Administration; Kohn Pederson Fox Associates, Architects and Planners)


Priorities 21

under construction as Emerson High Schoolexpands its culinary and hospitality educationprogram in the newly renovated RootBuilding at Chippewa and Franklin.

Office space is the productive capital of an office economy. Ongoing investment inbuildings in Downtown Buffalo is crucial tomaintaining and building the employmentbase. That employment base, in turn, isimportant to developing new residentialdistricts Downtown, building a visitor andentertainment economy and building themarket for retail and services. Some of theclass B and C office buildings Downtownlack the floor plate, floor to ceiling heights,floor load capacity, or parking support tocompete in the contemporary market. As a result, the plan strategy calls for theconversion of such buildings to mixed usesand a measured addition of class A spaceconsistent with market demand.

The completion of the 67,000 square footbuilding at 665 Main Street was the firstnew office space constructed in DowntownBuffalo since 1990. Construction has begunon another new building at Main andChippewa next to City Centre (three stories-27,000 square feet). Meanwhile, the lawfirm of Hodgson Russ recently purchasedLouis Sullivan’s landmark Guaranty Buildingat Church and Pearl Streets. It will becomethe firm’s headquarters following a $4million renovation supported in part byhistoric tax credits and an easementdonation of the façade of the building to the Landmark Society of the NiagaraFrontier. There is still more development

Acquest Development’s proposed new project at 150 S. Elmwood Ave.is in a strategic investment area, removes a surface parking lot from

the inventory of excess surface lots, provides for retail and restaurantspace on the street, as it adds additional tax base to the City.

(Source: Acquest Development)

Fountain Plaza. (Source: Buffalo Place Inc.)

The view from Niagara Square to the south east of Niagara Street. (Source: Buffalo Place Inc.)


22 Priorities

University at Buffalo and a seeminglyquixotic policy initiative embraced by arecently elected Mayor. Today, Buffalo’sTheatre District is an established reality in Downtown Buffalo with multiple livetheater and entertainment venues and a still maturing mix of office, residential,restaurant, and institutional uses.

Since the 1999 Downtown Strategic Planwas released the, “B“ District police stationwas completed, new apartments above theIrish Classical Theater were occupied, a newoffice building was constructed and opened,and Shea’s Performing Arts Center hasexpanded to accommodate larger travelingshows, opening more nights and drawingbigger crowds.

Theatre Place and Shea’s Performing Arts Center in the heart ofthe Theatre District. (Source: The Urban Design Project)

The Theatre DistrictTwenty-five years ago, the 600 Block ofMain Street was a depressing strip of vacantstorefronts, diners, and struggling retailshops anchored by the Greyhound busstation. The Market Arcade was closed andthe historic Shea’s Buffalo Theater was acandidate for the wrecking ball. Twenty-fouryears ago the “Theatre District“ was an ideain a graduate architecture studio at the

The Theatre District (Source: The Urban Design Project)


Priorities 23

Proposals to renovate the upper floors ofthe building which houses Tent City in the600 block of Main Street, the SaturnBuilding nearby on Pearl Street, and the newoffice building at Main and Chippewa willadd further population, activity, and strengthto the district. Indeed, there are fewer andfewer buildings or sites on Main Street toredevelop, which means that the nextexpansion of the Theatre District will needto take place on Washington and PearlStreets where large parking lots presentsubstantial opportunities.

A revised traffic pattern Downtowncombined with a new policy to reducesurface parking will help turn the “backs“of buildings on Washington and Pearl into“fronts.“ In addition, active first floor useswill be supported by improved multi-modalaccess to Main Street, created by returningvehicular traffic. Both of these activitiesprovide additional life on the streets andimprove access throughout the Downtownservicing not only the Theatre District but allfive of the strategic investment areas.

Tent City is a candidate for up to 20 units of housing above thestore on Main Street. (Source: The Urban Design Project)

“Curtain Up” kicks off the fall theatre season every year in Buffalo. (Source: Buffalo Place Inc.)


24 Priorities

The Buffalo Niagara Medical CampusOften, when people hear the phrase“master plan,“ they tend to assume one of the following things: that the effort is faroff into the future, that it is filled with lotsof promises and hopes unlikely to come tofruition, or that the plan is a good idea butbetter left to start at a later date. Like The Queen City Hub plan, the master planfor the Buffalo Niagara Medical Campus(BNMC) is not just about starting something.In addition, it is about taking something thatis already there and strengthening it, givingit greater vitality and preparing it to flourishinto the future.

The “it“ in the BNMC case is a nationallyrenowned collection of health care, researchand educational institutions that aredetermined to maintain and expand theirexcellence through increased collaboration.The plan comprises nearly 100 acres of landa few blocks north of the Theatre District. Inthe spring of 2000, five medical institutions– Buffalo Medical Group, Hauptman-Woodward Medical Research Institute,Kaleida Health, Roswell Park Cancer Instituteand the University at Buffalo – joined forcesto create a world-class urban medical center.The collaborators in the campus arededicated to supporting clinical, researchand academic excellence. The memberinstitutions are improving and adding to the infrastructure of the current medicalcampus and fostering further economicdevelopment opportunities for the region.This could mean as many as 3,000 moreemployees over the next decade. In order to accomplish its vision, the BNMC MasterPlan creates an environment conducive toexcellence in education, clinical care, and scientific discovery.

Computer rendering of existing conditions on the Buffalo Niagara Medical Campus.(Source: IBC Digital and the Buffalo Niagara Medical Campus)

The Buffalo Niagara Medical Campus. (Source: The Urban Design Project)


Priorities 25

PRINCIPLE #3 Foster Community and Economic DevelopmentThe Buffalo Niagara Medical Campus is already one of the major engines of Western New York’seconomy, and its role will only expand as the campusgrows. The major public and private investmentsplanned for the campus will not only have effects on the regional economy as a whole; they will alsospur significant opportunities for redevelopment in the immediately surrounding neighborhoods. The campus lies at the edges of three distinct areas:Downtown Buffalo, Allentown and the Fruit Beltneighborhoods. The plan for the Medical Campusrecognizes the unique opportunities for andchallenges to redevelopment presented by each of these three different areas.

PRINCIPLE #4 Enhance the Open Space NetworkThe design of open spaceson the BNMC – incombination with thecharacter of buildingarchitecture – will helpestablish a powerful identity.A collection of distinct openspaces will support anorderly growth of the

medical campus by unifying dissimilar building typesand styles, greatly enhancing the quality andconsistency of the public realm.

This design strategy aims to supplement the publicrights of way established along city streets withadditional pedestrian-only open spaces and new citystreets to facilitate public interaction, pedestriancirculation and development of an attractive campus.If the campus can balance vehicular use and publictransportation use, the pressure for wider roadwaysand more parking can be lessened and buildable landcan be maximized.

PRINCIPLE #1 Establish a Common Campus AddressCapitalizing on the historic significance of EllicottStreet – named for Joseph Ellicott, Buffalo’s firstsurveyor and designer of the radial street pattern –each institution can assume an identity along thestreet. By concentrating new clinical and researchdevelopment along Ellicott Street, vital adjacenciescan be fostered and sites knitted together. A 25-footcontinuous setback from the property line along theEast Side of Ellicott Street will help foster a commonidentity and signify an important axis for the campus.

PRINCIPLE #2 ImprovePhysical IntegrationBetween the Campus and NeighborhoodsTo increase interaction withneighbors to the east andwest, the BNMC Master Planidentifies Michigan Avenue andMain Street as “seams“ ratherthan borders. Commercial andresidential development on

these streets will help integrate the medical campuswith both the Fruit Belt and Allentown.

Fruit Belt: Michigan Avenue has the potential tobecome an active commercial street that serves theneeds of both the campus and the neighborhood. A mix of commercial and residential development willreinforce the role of Michigan Avenue as a sharedasset and not the “back door“ to the campus.

Allentown: Extending Allen Street through theAllen/Hospital NFTA transit station – past WashingtonStreet to Ellicott Street – fosters east to westconnectivity through the BNMC. It is possible toextend the street through the station withoutdemolishing critical infrastructure that supports thestation (i.e. elevator or escalators).

BNMC MasterPlan Principles

The Master Plan andImplementation Strategy for theBuffalo Niagara Medical Campuscenters around four principles.

As the institutions constantly seek toimprove themselves, advance their work,and maintain and attract talent, so mustthey also make sure to improve their hostcommunity. The Master Plan andImplementation Strategy for the BNMC is about facilitating collaboration, in partthrough physical planning, but also throughthe establishment of a forum for collectivedecisions. As one of the five focus areas in

The Queen City Hub plan, the ultimate goalof this endeavor is to help build economicgrowth and social capital for Downtown. It also strives to create a premier placeattracting premier people that can improvethe health care of the city, the region andthe nation. The BNMC Master Plan is fullyincorporated into The Queen City Hub planby reference.


26 Priorities

Michigan AvenueMichigan Avenue is well positioned tobecome a community-based, neighborhoodstreet. Residents have expressed a need forlocal shops and commercial developments in this area that can benefit both theneighborhood and the medical campus. The creation of a shared space between theBNMC and the Fruit Belt neighborhoodalong Michigan Avenue will reinforce therole that the campus could play in terms ofneighborhood revitalization and ease thelegitimate concern about erosion of theneighborhood. In order to achieve this end,the following steps should be taken:

Short-term• Encourage infrastructure and landscape

improvements eastward into the Fruit Belt.

• Shield the campus parking areas withadditional landscaping and streetscapeenhancements.

• Consolidate underutilized and available land.

• Foster “art-in-public-spaces“ programswith neighborhood art institutions.

• Focus commercial development at theintersections of Michigan Avenue withHigh and Carlton Streets.

Long-term• Explore possibilities for joint-

redevelopment projects with St. JohnBaptist Church.

The BNMC Street ProgramThe BNMC Master Plan advocates thereinforcement of the three primary north-south streets: Main Street, MichiganAvenue and Ellicott Street. Streetscapeimprovements will extend east and westalong High Street, Carlton Street andVirginia Street.

Main StreetMain Street is a regional resource for the cityand must be capitalized on as an investmentopportunity. In order to achieve this end, thefollowing steps should be undertaken:

Short-term• Facilitate private development of the 700

and 800 blocks of Main Street.

• Facilitate acquisition and revitalization of the Red Jacket building at the corner of Main Street and Allen Street.

Long-term• Extend Allen Street east into the campus,

helping to connect the BNMC toAllentown and the Fruit Belt.

• Incorporate a tree-lined, Main Streetmedian to calm traffic and focusstreetscape improvements from GoodellStreet to North Street.

The Main Street seam (on the left of the above perspective) as envisioned by the BNMC Master Planincludes a new streetscape plan for Main Street with a tree lined median and extensive street trees.

(Source: The Buffalo Niagara Medical Campus Master Plan, Chan Krieger & Associates)

Concept sketch of Allen Street extendingeast into the campus. (Source: The Buffalo

Niagara Medical Campus Master Plan,Chan Krieger & Associates)


Priorities 27

Ellicott StreetIf development along the edges of MichiganAvenue and Main Street provide the physicallinkages necessary to tie the BNMC into itsneighborhoods, the potential for EllicottStreet lies in its ability to link the medicalrelated facilities along an efficient,interconnected and beautiful boulevard.Capitalizing on this north-south axis willcreate a “new address“ for the institutionsand foster an identifiable campus image byaligning the structures along a single axis.The alignment of research and clinical carefacilities along Ellicott alleviates pressure forlarge-scale, medical related constructionalong Michigan and Main, promoting spin-off renovation opportunities more to scalewith the neighborhoods. In order to achievethis end, the following steps should be taken:

Short-term• Begin relocation of utilities on Virginia and

Ellicott Streets to facilitate construction of the Life Sciences Complex (LSC).

• Focus streetscape improvements andlandscape design initiatives strategically –unique lights, layered building setback,tree plantings and furnishings.

• Design BNMC gateway markers andfinalize signage and wayfinding plans.

• Return Ellicott Street and WashingtonStreet to two-way traffic.

Design Guidelines and Review ProcessIn 1999, the City of Buffalo Planning Boardadopted a Citywide Design and Site PlanReview process. The development of BNMCdesign guidelines builds upon this work. Theaddition of these design guidelines helps tounderscore the importance of a consistentcampus image. A planning council for themedical campus will provide oversight toassure that development is commensuratewith the aspirations of a world-class medicalcenter and its neighbors. The area’s 1960Urban Renewal Plan will be amended toreflect the BNMC design guidelines andincluded as part of the Master Plan &Implementation Strategy.

Ellicott Street is destined to be the main entrance to the BNMC. As such, the intersection atEllicott and Goodell will help calm the Goodell traffic and link the campus to Downtown.

(Source: The Buffalo Niagara Medical Campus Master Plan, Chan Krieger & Associates)

The BNMC viewed from Goodell Street looking west. (Source: BuffaloNiagara Medical Campus Master Plan, Chan Krieger & Associates)


28 Priorities

Distribution of Parking and AccessLarge, single-use parking structures andextensive areas of surface parking disruptthe continuity of the campus, create barriersto adjacent neighborhoods and promoteisolation. The solution to this challenge is to capitalize on shared resources and to

The Buffalo NiagaraMedical Campus site

and land use plan.(Source: The Buffalo

Niagara MedicalCampus Master Plan,

Chan Krieger &Associates)

strategically disperse parking rampsthroughout the medical campus. Garagesthat lie adjacent to residential areas mustcontain active ground floor uses. Convenient,attractive, and well-managed parkinggarages are the key to the implementationof the parking plan.


Priorities 29

Putting It All TogetherThe radial plan, a mixed-use core district,residential communities and a series ofgateways define Downtown.

Each of the five investment areas isthematically and geographically distinct buteach also allows for a fully mixed-useprogram throughout Downtown. Inaddition, a great Downtown must be morethan a collection of districts. It must providean interconnected environment, overlappingactivities, and continuous experience.

To achieve this goal, Downtown needs toemphasize, and where possible restore, theinterconnections provided by Joseph Ellicott’shistoric radial and grid street plan; it needsto announce this special Downtownenvironment with gateways; and it needs tofoster the development of fine-grainedmixed uses that define the pattern of theurban fabric. All of this must be done inconcert with the historic stock of existing

buildings, the designated historic districts,and Frederick Law Olmsted’s intentions touse his parkways and Ellicott’s radials tobring people around the City to Downtownand to the waterfronts.

For those who seek the grand vision for theCity of Buffalo and the Downtown, this is amajor part of it: Ellicott’s radial street plan,Olmsted’s park and parkway system, and thewaterfronts will be united in a cohesivesystem of pedestrian-friendly great streets,avenues, and parkways.

Top right: A great streets programwill help restore the Ellicott radial

and grid street pattern.(Source: The Urban Design Project)

Reconnecting Olmsted’s historicpark and parkway system to theradial street plan is also central

to the plan’s success.(Source: Buffalo and Erie County

Historical Society)


30 Priorities

benefits of reestablishing major radialconnections such as Genesee Street throughDowntown and on toward the waterfront.

All of these initiatives have the potential to connect the different focus areas ofDowntown and to help it become morethan the sum of its parts. The radial and gridstreet plan connects Downtown with itssurrounding neighborhoods, the waterfront,the rest of the city, and all of upstate NewYork. The historic Native American “firstpeople’s“ trail, now known as Main Street,deserves special emphasis, as do GeneseeStreet, Broadway, Delaware Avenue, CourtStreet, Church Street, Erie Street andNiagara Street. These radials help integratethe historic Black Rock, Riverside, and MainStreet grids that make up modern Buffalo.

The Radial and Grid Plan The street system of any city is what allowsor impedes its life, pedestrian movement,and exchange. Downtown Buffalo’s streetpattern, now nearly 200 years old, oncemade it possible for a vibrant urban life toflourish. Interruptions of that pattern, andthe introduction of many one-way streets,coincided with the waning of that life.

Current work in implementing the DowntownBuffalo Strategic Plan has emphasized therestoration of two-way traffic to many streets,including Chippewa, Franklin, Ellicott, Huron,and Washington. Current planning work hasalso focused on options to improve MainStreet and reopen it to automobile traffic inaddition to transit and pedestrians. Recentproposals have also identified the potential

On the left is the street pattern as it existed in 1971 and on the right is the proposed street pattern in the 1971 master plan. Changes to the street pattern made in the 80s retained Goodell, Tupper, Elmand Oak as city streets and not highways, although the speed and volume of traffic on these streets tend to separate the CBD from its neighbors. (Source: The 1971 Buffalo Regional Center Plan)

Mai

n

Broadway

Genesee

Mai

n

Oak

Elm

Go

od

ell

Oak

Elm

Go

od

ell

Broadway

Genesee


Priorities 31

The health of Downtown is partiallydependent on the inter-modaltransportation options created for thecitizens of the region. A solid program ofquality options that are well integrated willreduce the pressure on parking and increasethe desirability of Downtown as a businesslocation. Downtown must support and besupported by walking, biking and bus riding,as well as intercity and intra-city rail in afully integrated system of transit. The samedevelopment of inter-modal transit optionswill also help reduce the social, economic,and environmental costs of suburban sprawl.

A Mixed Use Core Area What the radial, grid, and gatewaysconnect, however, must be a dense andfinely woven fabric of mixed uses. Theremust be big uses: Shea’s Buffalo PerformingArts Center, HSBC Arena, a new InnerHarbor, Courthouses, and a CommunityCollege. But there must also be small uses:first floor shops, street vendors, restaurants,second floor offices, loft apartments, coffeeshops, drugstores, dry cleaners, taverns, andmore. Some of this fabric has been repairedin recent years, in the Theatre District andalong Chippewa Street, for example. Now itis possible to imagine over the ensuing yearsthat the entire core, from Elmwood toMichigan, and extending north and southfrom Genesee Street, might be knit togetherin a continuous fabric, and that ultimatelyDowntown might be stitched together with the Near East Side, Fruit Belt, MedicalCampus, Allentown, Lower West Side, and the waterfront to make a single greaterDowntown. The Queen City Hub envisions a city that grows its core area in phases, takingadvantage of current strengths, creatingcritical mass, and then expanding again.

Gateways that celebrate the connectionsbetween Downtown and the city can helpdefine and announce the Downtown core.A well designed gateway can improve theimage of Downtown both through physicalimprovements and by creating a sense thatpositive things are happening.

A long neglected area of Downtown is theChurch Street link connecting the AdamsMark Hotel and the waterfront beyond it to Downtown. Currently the street has sixlanes of forbiddingly fast-moving traffic andan unattractive streetscape. The objective isto make Church Street a truly great street,taking full advantage of the spectaculararchitecture including historic structuressuch as the old U.S. Post Office, The EllicottSquare Building, St. Paul’s Cathedral, theGuaranty Building and the modern M & TBank Building and Plaza. There is also thepotential to reinvigorate the commercial and entertainment assets of the south endof Main Place Mall. The result will makeChurch Street a beautiful east-westboulevard. Work on Erie Street as part ofEllicott’s historic radial plan would contributeto Church and enhance the relationship ofDowntown to Lake Erie by opening up astrong vista to the water from Main at Church.

Church Street should become a beautiful east-west boulevard connecting the Adam’s Mark Hotel andConference Center to Main Street. (Source: The Urban Design Project)


32 Priorities

Downtown Residential/ Mixed-use CommunitiesFrom the 1994 Downtown Summit forward,members of Downtown constituency havebeen clear about the importance of makingDowntown Buffalo a place where peoplelive. They saw Downtown living as avaluable housing choice for citizens of thearea. More importantly, they understood the development of a full-time Downtownpopulation as a means to accomplish manyof their other goals for Downtown. Full-timeresidents could give Downtown life twenty-four hours a day and seven days a week. It could help all Downtown users feel saferat all times of the day and night. Conversionto housing could soak up underutilizedspace in old office buildings. A newDowntown resident population could alsohelp lay the groundwork for the resurgenceof retail.

Over the years, attention has focusedconsistently on the Theatre District andvicinity as the most attractive and logicalplace to develop new housing Downtown.The 1993 Urban Design Project/Buffalo PlaceInc. study A New Downtown Neighborhoodin Buffalo envisioned new housingspreading from the Theatre District, northalong Main Street, and east along GeneseeStreet. The American Institute of Architects-sponsored Regional/Urban Design AssistanceTeam visit to Buffalo in March 2001identified many of these same areas as likelytargets for new housing, in addition to afew others. Now, as the idea of housingDowntown continues to gain credibility as well as support, the extent of thegeographic focus for development hasexpanded and new areas have emerged.Focus areas for development of residentialcommunities are essential for directingincentive resources in ways that reinforcethe key investment areas even as they buildout historic districts and give emphasis tothe radial streets linking to the surroundingring of neighborhoods.

Part of understanding the mixed use corerequires the city to revise its Downtownzoning ordinance, retaining the mandate for transparency (no blank walls) and addingthe requirement for 1st floor retail in thetraditional retail core areas of the city,especially on Main Street from Church toHuron where the pedestrian density on thesidewalks make first floor space suitable forretail and service uses. On a typical summerday, pedestrian volumes in this area rangefrom 7,000 to 40,000 trips per day.

It will be important to focus investments in core areas of Downtown even as we expand the size of the core.The diagram above suggests three core areas where we 1. develop the entertainment focus, 2. build out the financial

district and government center, and 3. expand eastward to include Michigan Avenue.(Source: The Urban Design Project)

D O W N T O W N C O R E D E V E L O P M E N T


Priorities 33

The first publicly supported residentialdevelopment was the renovation of theglazed terra cotta Ansonia building forground floor office and retail and 58 upper-floor residential units. A smaller privatelyfunded project saw the 19-unit SpauldingBuilding renovated for new occupancy. Plansfor 160 loft apartment units in CenturyCenter I, the former Trico plant, are on holdwhile the developer reevaluates the market.Meanwhile, Clover Development isconstructing 67 new units in the red terra-cotta Sidway Building at Main and GoodellStreets. The project is a prime example ofhow housing conversions can reduce theglut of underutilized older office space in Downtown and provide a new benefit at the same time. Future projects like Sidwaywill benefit from aggressive programs oftenant relocation in their conversion and a clear process of incentive awards.

Across the street on the west side of MainStreet are the vacant site of the old TeckTheater, the long-vacant Vernor andSchmidt’s buildings, together long consideredto be one of the most logical sites for newhousing on this end of Downtown. Thelinkage north to the Buffalo Niagara MedicalCampus continues in the 800 block wherenew units are planned for the existingstructures on the west side of Main. In theshadow of these other projects, and with thesupport of an Urban Renewal designationamendment that enables site acquisition,these properties can be redeveloped.

The top priority areas for new neighborhoodsDowntown outlined below are selectedaccording to their critical relationship tostrategic investment areas, the existing baseof residential units Downtown, and currentdeveloper interests.

1. The 600 – 800 Blocks of Main StreetIn the heart of the Theatre District, the 600block of Main Street, Theatre Place becamethe pioneer for new housing in the 1980s.Around the same time, a six-unit apartmenthouse on Franklin Street was renovated.Development of City Centre (also related tothe Genesee Street radial) came next, with32 high-rise, high-end condominiums. Morerecently, 10 new units were created in thefloors above the new Irish Classical Theater.To the north, the 700 block of Main Streethas long seemed a likely place for newhousing. It is a short walk to the TheatreDistrict and light rail station. And it is closeto the south end of Allentown. The Vernor Building, in the 700 Block of

Main, is a contributing building to thehistoric Theatre District and an important

redevelopment site on the block.(Source: A Blueprint for Living in a

Downtown: The Buffalo R/UDAT, 2001)

The 600 to 800 Block of Main Street neighborhood. (Source: The Urban Design Project)

The Sidway and Spaulding Buildingspictured above along with the

Ansonia to the west and south areproviding 144 units of housing to

anchor the neighborhood.(Source: The Urban Design Project)

The Genesee Street radial is part of larger aspirations for the redevelopment of the street linking Martin Luther KingPark to the waterfront. (Source: The Urban Design Project)


34 Priorities

The Genesee Street block from Ellicott Street to Elm Street is a candidate for mixed-use retail and residential development and a key gateway

site into the central business district.(Source: A Blueprint for Living in a Downtown: The Buffalo R/UDAT, 2001)

Further south and west, the EllicottDevelopment Corporation is now developinga plan to renovate the former GreystoneHotel, a long-troubled property, to create 30 units of market rate housing betweenDelaware and Elmwood adjacent to JohnsonPark. These complement other developmentson Pearl, Franklin and Delaware north ofChippewa in what is the historical site ofresidential concentration in Downtown.

2. Genesee Street RadialNearby on Ellicott Street, just north ofGenesee Street, Burke DevelopmentCorporation is redeveloping a complex of old commercial and warehouse structures known collectively as the EllicottLofts project.

Just across Genesee Street to the south ofthe Ellicott Lofts is the historic GeneseeVillage stretching from Ellicott to Elm, one of the largest intact ensembles of late 19thcentury commercial buildings remaining inBuffalo. This is another logical site forhousing redevelopment “above the store“ or in a “live-work“ or other mixed-usecomplex that builds on the Genesee Street radial.


Priorities 35

The 500 Block and east through the Electric District embraces a large stock of existing buildings worthy ofrenovation and alternative uses. (Source: The Urban Design Project)

3. The 500 Block and East Through the Electric DistrictJust south of the Theatre District, starting in the 500 block of Main Street, is anotherpotential cluster of new housing. EllicottDevelopment’s Belesario project in theformer L. L. Berger buildings is underconstruction. The adjacent Gamler’s buildinghas been incorporated in the project andnew residential work is proposed on thenorthwest corner of Mohawk and Main.This represents the complete renovation ofthe west side of the block from Huron toMohawk on Main. On nearby WashingtonStreet, a developer is exploring the feasibilityof an adaptive use of the former HollingPress building, perhaps the first of manyefforts to create housing in the industrialand commercial stock of buildings in the Electric District. This residentialconcentration will help animate the financialand government centers to the west,immediate north, and south with thetwenty-four hour, seven-day week life of a residential population.

4. Scott Street and the Cobblestone District Developer Bernard Obletz is now renting 72 units of loft-style housing in the ElkTerminal on Scott Street near Michigan on the northern edge of the CobblestoneDistrict. Other developers have expressedsignificant interest in the possibility ofmixed-use development in the historicCobblestone District to the west. This district is least well understood as a coreneighborhood, but infill between the Elk Terminal and Cobblestone could becomea significant urban village. Possibilities alsoexist for the village to grow east of the ElkTerminal site as well. All of this builds on theemerging strengths of investments in theErie Canal Harbor and Waterfront District.

The Cobblestone District and the area surrounding the newly renovated Elk Terminal form a fourthresidential neighborhood in the Plan. (Source: The Urban Design Project)


36 Priorities

Plan and perspective sketch of Lafayette Square development opportunities.(Source: A Blueprint for Living in a Downtown: The Buffalo R/UDAT, 2001)

Other Sites: The Niagara Street Triangle,Lafayette Square, and Delaware AvenueThe Regional Urban Design Assistance Team(R/UDAT) identified two other possibleneighborhood clusters, including onecentered on the triangle bounded byNiagara, Huron, and South Elmwood whichis now appropriately slated for thedevelopment of a new office structure forthe IRS and other tenants. The other R/UDATsite was on the east end of LafayetteSquare. Future renovation of the LafayetteHotel and development of the parking loton the northeast corner of the square couldbring the new Downtown neighborhoodright into the center of the city.

Another mixed-use neighborhood cluster(Delaware Avenue) builds on the strengthsof Allentown to the North, Elmwood andthe Lower West side to the West, theTheatre District to the East, and theGovernment and Financial District to theSouth. An action plan developed by the“Avenue Association“ calls for specific workin all of the activity areas and most of theprinciple areas of The Queen City Hub workplan. For example, strategies for the fullgeography of the plan (three blocks wide by six blocks long) call for protecting historicresources, ensuring appropriate parkingdesign, advancing the work of theDowntown Neighborhood DevelopmentCorporation, increasing the health ofexisting businesses, improving lighting as well a public safety and policing, andenhancing the pedestrian experience.

The idea of developing more Downtownhousing has been advancing now for atleast a quarter of a century. Some of theinitial steps have been small halting ones.But as one project after another falls intoplace it becomes possible to see how thesesmall clusters of residences will generatefurther new activity, draw neighborhoodretail support services, and generate newconfidence from other developers. Giventhis slow and steady progress, and the factthat developers have yet to produce enoughhousing to meet even the most conservativeestimates of potential market demand, anew Downtown neighborhood in Buffalowill happen. In the near term, over 700units are planned with rental rates from alow of $400/ month to as high as $2,500/month. These prices accommodate veryaffordable roommate flats as well as loftsand luxury housing. They also complement a mix of very affordable housing alreadyavailable Downtown.

The new DND has the mission to createresidential neighborhoods with an urbanlifestyle. Its structure will be as a not-for-profit corporation coordinating the capacityof all its cooperating organizations. It will be the one-stop source for assistance inhousing development Downtown.

Also consistent with Downtown Buffalo2002! and the R/UDAT recommendations, a Downtown Neighborhood Development(DND) Corporation is now being charged to implement a housing delivery system thatwill coordinate the efforts of Buffalo andErie County governments, lenders, realestate developers and professional servicefirms, New York State and Federalgovernment participants, the businesscommunity and Downtown residents.


Priorities 37

Delaware Avenue action recommendations (Source: The Urban Design Project based on the Delaware Avenue Action Plan prepared by Flynn Battaglia Architects PC)


38 A Progress Report on Planning and Implementation

Strategic Plan was published in 1999, it hadalready been 14 years since the previousplan, The Buffalo Regional Center Update,was published in 1985. It had been another14 years since the original Buffalo RegionalCenter Plan in 1971.

The agenda for Downtown has movedforward. On the date of this publication fiveof an original eleven priority projects havebeen retired. They are complete. Four otherprojects were added in 2001 and three ofthose are completed. All the others exceptone are moving forward. A full accountingof all 15 of the priority projects is includedas part of this description of current status.

A Progress Reporton Planning and Implementation

The Queen City Hub action Plan is animportant next big step in a continuousprocess of planning, action, and evaluation.It is the outgrowth of the strategic planpublished in 1999. After four years andmuch additional work, it is time to lookback on what has been accomplished,reassess the current situation, and adjust thecourse for the future.

In the past, there has often been too muchof a time lapse between reviewing progress,sharpening the vision, and updatingpriorities. When the Downtown Buffalo

A DOWNTOWNNEIGHBORHOODDEVELOPMENT (DND)CORPORATION DRAFTVISION AND MISSIONSTATEMENT

Downtown Buffalo is a regionaldestination attracting visitors,residents and new businessesto its colorful and invitingenvironment. The opportunityto walk to work, a host ofcreative eating options, thebest of live theatre, and ampleboutique and convenienceshopping make Downtownhousing the most desirable andthe fastest appreciating in theregion. Visitors are struck bysome of the best-preservedexamples of classical Americanarchitecture and the diversity ofa hip population living in award-winning neighborhoodsdesigned by exemplary architects.

Mission StatementActing as the city’s lead agencyfor Downtown housing, themission of the DND is toconvert areas of Downtowninto neighborhoods with theamenities and look whichcreate a unique urban lifestyle.

To that end it is perfecting a series of functions:

• Organization of a fair andpredictable developmentprocess through policy and procedure

• Expertise in the blending ofpublic and private incentives

• Facilitation through the city development approvalprocesses

• Mixed-use urban planningand design, targeted publicimprovements, andpreservation of historic and architecturallyinteresting buildings

• Public relations and marketingto developers and residents

• Guidance and coordinationof supportive functions likeparking, transportation andpublic safety

An inventory of living, working and access projects tracked by the Downtown Buffalo 2002! implementation campaign from 2000 through 2002.(Source: The Urban Design Project)


A Progress Report on Planning and Implementation 39

A progress report on Downtown Buffalowould not be complete without mentioningthe priority issue that went away. At the firstDowntown Buffalo Summit in October 1994the number one priority issue was “FeelingSafe.“ As a result, the City of Buffalo, BuffaloPlace Inc., the Buffalo Police Department, andbuilding owners and tenants went to work,and by 1999 the issue of crime and feelingsafe in Downtown Buffalo had dropped tosixth place in the priority issue ranking. At the December 1999 Summit, a session wasorganized to discuss the issue. No oneshowed up wanting to discuss it.

Priority Issue: Living DowntownDeveloping Downtown Buffalo as a vibrantand inviting residential neighborhood hasbeen a top priority for Downtown since the very first Downtown Summit in 1994.Downtown constituents now clearlyunderstand that people living Downtowncan bring life to the streets weekdays andweekends, day and night, year-round.

1. Century Center I160 market-rate units were also planned for the fifth, sixth, and seventh floors of the former Trico building at Goodell andEllicott Streets. The developer is nowapplying for historic preservation tax credits,working on the building shell and core, and has prepared construction drawings for the residential elements of the mixed-useproject. Given the viability of the site forother commercial uses the decision to gowith housing or not has been placed onhold for the short term while SignatureManagement Corporation reviews itsoptions and the market.

Downtown Buffalo 2002! Priority Status projected to

the end of 2003 – Living.(Source: The Urban Design Project)

The Watkins Building is a restored Pan-American era apartmentbuilding completed in 2001. (Source: The Urban Design Project)

2. The Watkins BuildingThree new housing projects went onDowntown Buffalo 2002! agenda for“Living Downtown.“ The first was a small,six-unit, Pan-American era apartmentbuilding on Chippewa Street just west of South Elmwood, purchased andrehabilitated by Heart of the CityNeighborhoods, Inc., a not-for-profithousing organization. Construction on theWatkins Building was completed in summer2001 and the property is now occupied.

Signature ManagementCorporation is rehabilitating the

historic Trico factory building formixed use occupancy.




3. The BelesarioThe adaptive re-use transformation of theformer L. L. Berger department store to amixed-use residential and commercial projectis well under way. The third through theeighth floor of the buildings will be rentalhousing. The first two floors are now incommercial use. Demolition, asbestosremediation, and design are all complete.Ellicott Development Corporation hasindicated that construction of 30 loft-styleresidential units is ongoing and currentlyadvertises them as ready for occupancy bythe end of 2003.

4. New York State Building CodeA fourth project was added to the “LivingDowntown“ agenda in 2001 – reform of theNew York State Building Code. Downtownconstituents identified the building code asan important barrier to the adaptive use ofolder buildings for housing. When a reviewby the State Fire Prevention and BuildingCodes Council was commenced, the City of

BUFFALO R/UDAT 2001

Part of the Downtown Buffalo 2002! campaign progress on Living Downtown involved theAmerican Institute of Architects Regional/Urban Design Assistance Team (R/UDAT) visit to Buffalo.The team included nationally recognized architects, planners, designers, and developers, who were invited to take a fresh look at a housing strategy for Downtown Buffalo. They emphasizedthe need to build clusters of housing to create life on the street and generate attendant serviceretail. They stressed the need to make links between Downtown housing and surrounding inner neighborhoods.

The members of the R/UDAT team saw that subsidies, permit reforms, and technical assistance to developers would be necessary to “prime the pump“ for new projects. They thought a mix of housing prices for a mix of incomes would help create a better Downtown neighborhood. And they stressed the importance of quality. The team identified a number of potential clusters:the Theatre District, the 700 Block of Main Street, and E. Genesee Street as well as the trianglebound by Niagara, Elmwood, and Mohawk, and the east end of Lafayette Square (see www.buffalorudat.org).

The effort to develop an exciting, attractive Downtown neighborhood seems to be gainingmomentum. Developer interest is growing. New projects are on the horizon. And the demand forDowntown housing is still bigger than supply. A report of progress was published a year after theinitial visit in “Buffalo Responds to the R/UDAT“ by Downtown Buffalo 2002! and is largelyincorporated in The Queen City Hub plan (see www.downtownbuffalo2002.org).

Buffalo staff worked hard on the technicalsubcommittee for existing buildings. Inaddition, Robert Shibley, the Director ofDowntown Buffalo 2002!, was appointed tothe Council and together with several Citystaff worked to deliver the international codeto New York State, to help develop arehabilitation code for the State, and to workwith the Council to minimize more stringentlocal standards by individual municipalities.

The result was the adoption of theInternational Building Code by New YorkState in January 2003 with a “Schedule K“on existing buildings, both of which willreduce the cost of the adaptive use ofexisting buildings by three to eight percent.Local code overlays are replaced by the newcode and there is further simplification ofcode review and permit processes now inplace that is based on the new code.

The Belesario involves the rehabilitation ofboth the former LL Berger’s Department Store

and Gambler’s adjacent to the Hyatt RegencyHotel on Main Street. Construction is ongoing

and expected to conclude by the end of 2003.(Source: The Urban Design Project)



7. 665 Main StreetAlthough not added to Downtown Buffalo2002! agenda until 2001, this new officebuilding on a site previously occupied by avacant single story fast food restaurant is alreadycomplete. Its first tenants, the Wolf Group,the Buffalo Niagara Partnership and BuffaloNiagara Enterprise, have already moved in.

8. Webster Block Development SiteThe recent turmoil surrounding AdelphiaCommunications has had impacts on theWestern New York community far beyond theshelving of plans for the Adelphia NationalOperations Center near the foot of MainStreet. Adelphia’s employees remain, but theprospect of a new headquarters building hasdimmed. Yet the crucial fact is that a primesite surrounded by recent or planneddevelopments remains an important resource.The factors that led Adelphia to choose the“Webster Block“ for its operations center –proximity to the Erie Canal Harbor, waterfrontretail developments, the Inter-modal Trans-portation Center, HSBC, and the HSBC Arena– all still apply. New developers are alreadylining up to consider the potential of the site.

Other projects are on the horizon including a new office building now under constructionon the vacant parcel at the corner ofChippewa and Main Street. Work on anotable Summit priority – a businessdevelopment strategy for Downtown – isproceeding. Total Downtown employment willrise by as much as ten percent with the fullimplementation of the Inner Harbor plan andwith full build-out of the Buffalo NiagaraMedical Campus. Still additional employmentmay result from the completion of newFederal court facilities.

Priority Issue: Working DowntownWhile Downtown takes on new roles, theconstituents of Downtown understand thatits historic role as a center of employmentalso needs to be reinforced. At the 1999Downtown Summit the issue of “WorkingDowntown“ was a strong number-two priorityissue and developing a business growthstrategy was the number-two priority project.Office space is a key part of the productivecapacity of any Downtown. Changingfunctional and technological requirementsfor office users require that DowntownBuffalo improve its office space product in order to grow the employment base.

5. Century Centre IIIf closure of the former M. Wile plant onGoodell Street was a blow to the economy,the almost immediate renovation of thisbuilding must be seen as a recovery. Theadaptive use of the historic 172,000 squarefoot daylight factory building wascompleted in 2001.

6. Hampton Inn and SuitesWhat had been one of Downtown Buffalo’sold and underutilized office buildings openedin mid-2001 as one of the city’s mostluxurious hotels. Benderson Developmentreconfigured the former Jackson Building intoa 138-room hotel and suites complex. Theproject also included the demolition of thetroubled 210 Delaware Avenue apartmentbuilding once known as The Ford Hotel.

The former M. Wile daylightfactory on Goodell Street

has been transformed into modern office accommodations

called Century Centre II.(Source: The Urban Design Project)

Jackson building renovation: What was a class C office building onChippewa Street between Delaware and Elmwood Avenues is nowhome to a new Hampton Inn, reducing vacancy rates in the officemarket and retaining existing building fabric on Chippewa Street.


Downtown Buffalo 2002! Priority Status projected to the

end of 2003 – Working (Source: The Urban Design Project)

A new office building with leasable ground floor retail space at655 Main Street now replaces a long-empty one story fast food

restaurant. (Source: The Urban Design Project)



completed in summer 2002. The phasethree conversions of Franklin andWashington Streets to two-way traffic werecompleted in the spring of 2003. Projectedfor completion in 2003 is the extension oftwo-way circulation on Washington andEllicott Streets from Goodell Street throughthe Buffalo Niagara Medical Campus.

10. New Lighting On Main StreetTo borrow a phrase from the centennialcelebration of the 1901 Pan-AmericanExposition, “the light has returned to MainStreet.“ Long-term inadequacies in street-level lighting have been rectified through thecooperative efforts of Erie County, the Cityof Buffalo, and Buffalo Place Inc. Brighterlight fixtures and bulbs have been installedfor both upper levels and pedestrian levels.The City of Buffalo has also installed similarfixtures along Pearl and Washington Streets.

11. Short-Term Parking PlanImplementation of a new short-term parkingplan is producing the equivalent of morethan 2,000 new parking spaces forDowntown. This includes 700 commutersusing the expanded Park n’ Go shuttleservice; a targeted 500 monthly parkersconverted to transit use through a newMetro Advantage incentive programsupported by the NFTA and Downtownemployers; the addition of 505 new on-street parking spaces; and 450 meters thatallow $2/day parking.

12. Erie Canal Harbor and Intermodal Transportation CenterDespite substantial delays due to thecontroversy over the fate of the historicCommercial Slip, investments in InnerHarbor infrastructure are back on track. A Supplemental Environmental Impact Studyis complete; additional archaeologicalinvestigation has been undertaken; and anew budget for the project to accommodatethe re-watered canal slip has been drawnup. Meanwhile, construction of the newNaval Ship basin and the Veteran’s Park hascontinued and is expected to be completethis year.

Downtown Buffalo 2002! Priority Status projected to the end of2003 – Access (Source: The Urban Design Project)

Main Street is better lit, making it even moresecure. (Source: Buffalo Place Inc.)

Priority Issue: Accessing DowntownDowntown constituents understand that theattractiveness of Downtown Buffalo as aplace to work, live, and play is partly afactor of how easy it is to get there, movearound, park, and walk the streets.“Accessing Downtown“ was the thirdranked priority at the 1999 Summit and fiveof the top ten priority projects were aboutaccess, including a revision of streetcirculation, parking improvements, and anew look at cars sharing Main Street.

9. Street Circulation RevisionsAlthough the system of one-way streetsDowntown simplified travel at intersections,it also made it necessary for motorists todrive long and confusing loops to get toplaces that were actually nearby. Apioneering phase of street circulationrevisions made Chippewa Street two-wayfrom Elmwood all the way to Ellicott. Thefirst phase of additional conversions madeEllicott two-way from Swan Street toGoodell. Conversion of Huron Street was



Progress on the Erie Canal Harbor project includes still more in-depth investigations into howbest to interpret and take full advantage of its rich history. This image of the Canal is a detail of

a sketch done in 1853 (Source: A Canal Conversation, 2001 courtesy of Mr. Henry Baxter)

Proposed improvements to the Metropolitan Transportation Centerpromise to greatly enhance the streetscape on Ellicott and Division

Streets. (Source: Niagara Frontier Transportation Authority)

13. Metropolitan Transportation CenterThe proposed renovation of the bus terminalof the Niagara Frontier TransportationAuthority also includes renovating the officeportion of the complex. All of the work ison hold pending lease negotiations andbudget issues.The full program has beenapproved by the NFTA Board pending suchresolution. If implemented, the projectwould greatly enhance the streetscape on Ellicott and Division Streets.

14. Chippewa Street ImprovementsUpgrades in basic lighting on ChippewaStreet, as well as paving and streetscapeimprovements, are in design and areawaiting approval of bonding authoritybefore proceeding to construction.

Study sketch suggesting a reconstructed Central Warf. (Source: Empire State DevelopmentCorporation and Flynn Battaglia Architects, PC; Mathews Nielsen Landscape Architects, PC;

John Milner Associates, Inc.; Chermayoff & Geismer, Inc.)

demolition of the Gen. William J. DonovanState Office Building to better accommodatethe inter-city bus facilities. As the Erie CanalHarbor plans evolve, however, so also do the plans for the inter-modal facility andMemorial Auditorium. As this plan goes topress the intermodal transportation center is on hold pending the results of additionaldevelopment plans for the MemorialAuditorium as well as a final determinationof what should occur at the Ellicott StreetMetropolitan Transportation Center.

As part of a more comprehensive approachto the inner harbor, plans have called for the Amtrak Station to be relocated in the northern portion of the MemorialAuditorium where it would be co-locatedwith the NFTA Metro Rail. The project hasgone through its environmental impactreviews and thirty percent designdevelopment with all the funding in place to proceed to construction. A subsequentphase of the project would involve



The Robert Adam Ramp on Washington Street isreceiving additional levels to increase its totalcapacity. (Source: The Urban Design Project)

Top left: Parking available to thegeneral public shown in grey.

Top center: The amount of surfacearea devoted to the automobile

endangers the urban environment asit measures over 50%.

Top right: Surface parking lotsrepresent a large percentage of theavailable parking in the core. The

Queen City Hub plan calls for surfacelots to be replaced with urban infill

and structured parking withcommercial uses on the ground floor.


Village, a second phase of the Gull Landingresidential development has recently beenconstructed. On the Lower West Side, theBuffalo Municipal Housing Authority is inthe midst of a massive redevelopment of aseven-block area under the federal Hope VIprogram. The project will replace many ofthe units in the Lakeview Apartments – one of the oldest public housing projects in Buffalo – with new one- and two-familyhomes. Comparable work is occurring in the near East Side as affordable housingreplaces the “projects“ of the 1960s.

Nearby, construction on the long-awaitednew Tops Supermarket on Niagara Streethas concluded and funds have beenearmarked to renovate the Father BelleCommunity Center. Ten new homes havebeen constructed nearby on Prospect Avenue,and Hispanos Unidos de Buffalo has completedits headquarters building. A new grocerystore on the East Side reinforces commercialservice on Jefferson Avenue.

15. Adam and Augspurger Parking Ramp ExpansionConstruction to add additional levels to the Robert Adam ramp at Washington andNorth Division Street is underway. Expansionof the Owen Augspurger ramp on Pearl Streetnorth of Huron is also under constructionand will include a mixed-use retail andcommercial space on the first two floors.

Other DevelopmentsBesides these projects, there are many otherdevelopments on which to report. Withinthe Downtown core, the new Erie CountyFamily Court Building has recently opened at Franklin and Niagara Streets. A majorrenovation of the historic Erie CountyCourthouse is ongoing. And planning hasbegun for a new U.S. Federal Courthouse.

Beyond the Downtown core, a wide array of new investments is planned, underway,or recently completed. In the Waterfront

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RETURN OF VEHICULAR TRAFFIC TO MAIN STREET

Planning work is underway on the future of the MainStreet pedestrian mall andtransit way. An environmentalreview process has beenconcluded by the City ofBuffalo, NFTA, Buffalo PlaceInc., Erie County, the NewYork State Department ofTrans-portation and theGreater Buffalo RegionalTransportation Councilresulting in the selection of a preferred alternative, thephased sharing of the trainway by automobiles. Thephased program will involveapproximately a year’s work in final planning and designand three stages of implement-ation if the consortium ofinterested parties is successfulin acquiring Federal funding.Design and construction will be phased so that noblock of Main Street willsuffer through more than one construction season.



In Allentown, the restoration of theAllendale Theater has provided a newactivity anchor for that popular street.Restoration of the historic reflecting pool, as well as other renovations at KleinhansMusic Hall, is well underway on SymphonyCircle. The Mansions hotel has opened inthe renovated Sternberg House (morecommonly known as the former location of Victor Hugo’s restaurant) at Delaware and Edward. Also, luxury apartments arerenting in the renovated former UniversityClub at Allen and Delaware.

The Pillars Hotel has opened to provideaccommodation for long-term hospitalpatients and their families. And work onimplementing the master plan for theBuffalo Niagara Medical Campus isadvancing. Across a twenty-year horizon, it is anticipated that much as 2.6 millionsquare feet of space will be constructed to house bio-medical research andbioinformatics-related facilities on thenortheast corner of Downtown.

The Work Plan

It will be a great Downtown when everyproject is measured against the strategicplan prior to approval.

The Queen City Hub forms the basis for theimplementation of the Vision for Downtowndescribed in Volume 1. The Action Plansystematically identifies action items in fouractivity areas (Living, Working, Visiting andShopping) and five principles. The activityareas should be delivered in accordance with the principles of Access, Energy and the Environment, Urban Design andManagement, Preservation, and Image.

Within each of the four activity and fiveprinciple areas, action items are furtherbroken down by classification (Policy,Analysis, and Implementation) and timeframe (short-, medium- and long-term). The long-term outlook is defined as three to five years, though some aspects ofimplementation may span 8-10 years. Whilethat time frame is long, it does not meanthat the work can wait. On the contrary, it is imperative to act now to createneighborhoods Downtown and completeinvestments in strategic areas in order toestablish Downtown as the regional centerfor all of Western New York.

The Mayor’s Office of Strategic Planning will identify agency team leaders for each of the nine activity and principle areas and coordinate relationships among them.The lead positions may shift as the workprogresses based on different projectrequirements, priorities and circumstances.Team leaders in the activity and principleareas will work to refine and complete the work tasks and account for the progressof the work.


46 The Work Plan

Visiting Downtown: supporting diversevenues for the broad cross section of visitorsto Downtown with further investments invenues like hotel and conferenceaccommodations. Visiting Downtownrequires improved signage, “wayfinding“and interpretation of significant attractionsDowntown, making them visitor friendlywith a full complement of amenities. It alsorequires both better marketing andcoordination of “visitor ready“ attractions as well as better product development forthose visitor attractions that are not yet available.

Shopping Downtown: creating anenvironment that invites small businesses to fill vacant or underutilized ground floorspace. Shopping Downtown needs acompetitive mix of goods that cater toDowntown workers, visitors, newDowntown residents, and residents of the inner ring of neighborhoods.

Four ActivitiesA major focus of the vision is to create aDowntown where people live, work andplay. Towards that end the work tasks inactivity areas relate directly to:

Living Downtown: building diverse and mixed-use neighborhoods Downtownthat interconnect strategic investment areasand the inner ring of neighborhoods. Animportant part of living Downtown is theability to shop Downtown, meeting retaildemand for new residential populations aswell as the Downtown worker population.

Working Downtown: retaining existingjobs and adding new jobs in all five strategicinvestment areas by stressing our regionalrole as the upstate center for government,finance, insurance, real estate, law and lifesciences. To this we add the development ofa Downtown education campus building onthe strength of the Erie Community Collegeand library and a new public safety campus.

Each of the activity areas is implemented through the application of five principles.(Source: The Urban Design Project)

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The Work Plan 47

HOW TO READ THE ACTIVITY AND PRINCIPLE WORK PLANS

Each theme area provides a “Snapshot“ of the current state of this issue in Downtown(number of housing units, major employers, parking spaces, number of visitors, etc.)These data and other relevant information help establish baseline indicators, or“Measures of Success.“ Complementing the Measures of success are the “Top Rules“or guiding principles that should govern action on the topic.

Each topic also has a “Work Chart“ that tentatively identifies participants according totasks. The charts are based on the work of the focus groups that initially developed thetasks and have been reviewed by the agencies participating in the Downtown Buffalo2002! Action Team and Implementation Council. Many other participants could addvalue to the tasks at hand and the tasks could also be performed with less extensivemulti-party collaborations. The initial designation of participants is meant as a place tostart in building action teams required to get the task completed; it is not the final word.

All of the participants in plan implementation are grouped according to their status aspublic, not-for-profit (NGO), or private agencies. Within the public sector, the City ofBuffalo refers to a broad range of potential participants including the Department ofPublic Works, the Office of Strategic Planning, The Buffalo Economic RenaissanceCorporation, the Buffalo Urban Renewal Agency, the Common Council, and thePreservation Board. The Mayor’s Office of Strategic Planning will coordinate City Hallparticipants.

All of the tasks are given two priority numbers in the charts to give action teams a senseof the relative importance assigned the work by the participants in a Downtown Buffalo2002! web-based survey of the draft plan issued in April of 2002. The first numberindicates the importance of the task within the prescribed short-, medium-, and long-term time frame. The second number identifies the importance of the task relative to allthe tasks in the theme area.

Some items in the charts have a “B“ rather than a number to identify a basicrequirement needed to implement the vision of the The Queen City Hub. Other itemshave an “NR“ indicating not ranked. Those items not ranked were derived from planreview and were not part of the survey.

Each chapter concludes with an inventory of “Recently Completed Projects“ relevant tothe topic as well as lists of “Projects under Development“ and “Work to Date.“

Below: The Living work planshould lead to the transformation of

the top three priority areas forresidential neighborhoods.


Problem StatementThere is a spatial and emotional disconnectbetween Downtown and the surroundingring of neighborhoods. The residentialpopulation Downtown is too sparse toactivate the needed supporting retail andservice venues to make it a great place tolive and to keep it alive after the Downtownworkforce goes home. In addition to beingsparse, the existing housing is not in areasof concentration that give the critical massneeded to establish quality neighborhoods.

There is no Downtown-wide neighborhoodassociation and no clear voice forDowntown residents. This may in part be due to the confusion surrounding thedefinition of Downtown. To some, theCentral Business District bounded byElmwood, Edward/Goodell, Michigan andthe Waterfront is Downtown; others have a broader definition. The Queen City Hubplan envisions Downtown as extending to the 1832 boundaries of the Cityencompassing 4.5 square miles, includingthe waterfront housing on Lake Erie, theWest Village, the Lower West Side,Allentown, the Buffalo Niagara MedicalCampus, the Fruit Belt, Willert Park, Ellicott Town Center and near East Sidecommunities all the way to the Buffalo River.Understanding Downtown this way wouldestablish a political voice for Downtown of over 18,000 residents and the capacity to address the important quality of lifeissues crucial to the success of the LivingDowntown activity program.

There are many reasons for promoting livingin Downtown Buffalo. More people meanmore activity in the evening, more patronsfor restaurants and shops, a better sense of security, and the possibility of an urbanlifestyle not available anywhere else in theregion. It also means a stronger tax base for the City and a better ability to deliverservices citywide.

Living DowntownIt will be a great Downtown when…

• there is residential activity in DowntownBuffalo, day and night, evenings andweekends, summer and winter.

• there is a substantial supply of bothaffordable and higher end housingmeeting a still growing demand for both.

• the new diverse Downtownneighborhoods knit together the fivestrategic investment areas and reinforceour existing assets such as the radial planand our connections to our waterfrontand inner ring of neighborhoods.

The work plan goal is to outline astrategic approach to develop newDowntown neighborhoods and strengthenexisting surrounding neighborhoods.


48 The Work Plan


The Work Plan 49

• Current parking requirements are adeterrent to residential development.Many existing and potential buildings thatare suitable for residential conversation donot have the required number of parkingspaces to meet market demand or currentzoning requirements.

• Fear of loss of equity discouragesinvestment in housing stock.

• There is an emerging demanddocumented but the depressed price ofhousing in the city makes it difficult todevelop market rate housing withsufficient rents to offset developmentcosts. Banks and other lenders remainlargely unwilling to loan against the fullpromise of the emerging market.

• Data indicates that Downtown couldabsorb as many as 300 units a year inmarket segments with ability to pay rentsranging from $350 to over $2,500 amonth. It is not clear how deep thismarket is and it will not be clear until it is tested over time.

• Several tax incentives are now availablethat add greatly to the potential to fill the gap in financing.

• A new Downtown NeighborhoodDevelopment Corporation is in theprocess of being formed. It will work inclose cooperation with the City, financecommunity, and developers.

Strategies• Expand the geography of Downtown

while retaining traditional definitions for the Central Business District.

• Focus on target areas, create a criticalmass of neighborhoods and connectstrategic investment areas in Downtown.

• Standardize incentives and “level theplaying field“ for all developers.

• Deliver incentives until the market candeliver the needed product without help.

Until now, the greatest inhibitor of thedevelopment of new housing stock inDowntown Buffalo has been the lack of gapfinancing, generally defined in terms of thedifference between the cost to rehabilitatethe existing building stock or to build newand the amount of revenue that can begenerated by a project. Finding the dollarsto fill this gap is difficult given currentmarket conditions in a city that is losingapproximately 3,000 people every year and has thousands of vacant housing units.

A second inhibitor has been the lack of a clear delivery system to allocate theappropriate incentives for Downtownhousing while sustaining a level playing field for all developers and engaging the powers of the municipality in siteacquisition, development, and the provisionof key infrastructure.

Current Status• Current housing developments are

scattered and occur on an ad-hoc basis.They are not serving to create Downtown“neighborhoods.“ There are no detailedurban design and neighborhooddevelopment plans describing in thenecessary detail how the targetedneighborhoods should be developed.

• Developers often have their hands outbefore exhausting all other sources offunding. There is also a real or perceivedlack of a “level playing field“ for thosewho seek to develop housing Downtown.

• There is no formal process for housingdevelopment in the Downtown core. Thechain of command or responsibility forhousing development is unclear andanswers to developer questions are foundin multiple locations with multiple people.As a result the development process is unpredictable and difficult for localdevelopers and even more so for out-of-town developers.

Genesee Street at Ellicott Street,where mixed use development

remains both very important and challenging.


The 700 block of Main Street is inthe first priority area for

neighborhood development.(Source: The Urban Design Project)


50 The Work Plan

Living Downtown Action Items

Short Term Policy (6 months to 1 year)• Identify and commit to primary,

secondary and tertiary developmentareas and direct incentivesaccordingly. In order to maximize theimpact of any development, it isrecommended that new residential targetzones be established (600-800 block of Main Street, Genesee Village/ FlowerDistrict, the 500 block of Main Street and east to Elm Street, the CobblestoneDistrict). The purpose of the developmentareas is not to discourage developmentthroughout Downtown, but to encouragethe creation of new neighborhoods withsufficient critical mass rather than a seriesof stand-alone buildings. Establishment of the zones will also help prioritize theinvestment of public dollars to supportneighborhood development that leveragesalready substantial investments instrategic investment areas. Restrict otherthan as-of-right public incentives to onlythese target areas.

• Establish and adopt a policy positionthat all public incentives be leveragedwith adequate developer equitycontribution. Exclusive of as-of-rightincentives such as Empire Zone, mixed useUrban Exemption Program, and HistoricPreservation Tax Credits, all developmentsseeking public support should have a minimum percentage of developercontributions. Adopting this policy willbetter leverage public investments andease over-reliance on public dollars. Once this incentive policy is established it will make the entire process of housingdevelopment more predictable for all concerned.

The former LL Berger’s Department Store now becoming themixed use Belesario. (Source: Buffalo Place Inc.)

LIVING DOWNTOWN SNAPSHOT: CURRENT STATUS…

Downtown Residents • There are 3,210 residents in the Central Business District, another approximately

15,000 reside in the surrounding neighborhoods• The CBD represents 1.1 percent of Buffalo residents and 0.34 percent

of Erie County residents • The median age of Downtown residents is 45• 93 percent of Downtown residents are 18 years and older• Only 5.3 percent of Downtown households are families with children under 18,

compared to 29 percent of the City and 30 percent of the County(US Bureau of the Census, 2000)

Downtown Housing Stock• There are 1,207 occupied housing units in the CBD. This represents 0.98 percent

of all occupied units in Buffalo and 0.031 percent of Erie County. The total number of residential units is 1,233, representing an occupancy rate of 98 percent.

• There are 927 rental units in the CBD with average rents of $508.• There are 306 owner-occupied units (condo and traditional homeowner) in the CBD

that have an average assessed values of $187,734. The total assessed value of the units is $57,446,771.

• In 2001, there were an estimated 2,250 new residential permits issued in Erie County.265 of those were issued in the City of Buffalo.

Source: US Bureau of the Census, 2001; Buffalo Place Inc., 2002


The Work Plan 51

– Federal Government: Meet withcongressional / senate delegations to request assistance in identifying and obtaining federal monies.

– Banks and Private Lending Institutions:Work with banks and private lendinginstitutions to develop a venture loanfund for Downtown housing.

– Private Foundations: Across the country,private foundations are taking newroles in community development byproviding soft loans and matchinggrants. These private dollars oftenleverage additional private and publicdollars for development programs.

– Renewal Community: As businesses in the Downtown area begin to realizebenefits from the Renewal Communitydesignation, ask them to considerearmarking a portion of their taxsavings (10 percent) for a DowntownDevelopment Fund. Portions of thisfund could be used to leverage gap-financing dollars.

– Regional Employers: Exploring especiallythe potential for Employer Assistedhousing options. These options are aneffective tool in encouraging residentialdevelopment in targeted areas.Assistance can come in the form ofgrants or low-interest loans. Workingwith Fannie Mae, the City of Buffaloand Canisius College have eachdeveloped and adopted EmployerAssisted Housing programs that couldserve as models.

• Develop a project ranking system toguide decision-making. Before anypublic dollars are invested, projects shouldbe reviewed and assessed to determinecompatibility with defined goals andobjectives for Downtown housingdevelopment. Projects that incorporatemore desired goals and objectives willreceive a higher ranking, thus increasingeligibility for public support. Among the factors that could be used to rank a project are:

– Percent Developer Equity

– Location in or near Target Zone

– Type and Number of Units

– Mixed vs. Single Use

– Mixed Income

– Uniqueness of Product

– Environmentally Responsible / Efficient Systems

– Use of Good Urban Design Standards

– Exterior Amenities

– Proximity to Transit

Short Term Implementation (6 months to 1 year)• Support the creation of a Downtown

Neighborhood DevelopmentCorporation (DND) to provide one-stop service on housing delivery andmarketing. The need for a “one-stop-shop“ for Downtown housingdevelopment has been repeatedlymentioned. The Mayor has taken the firststep through the establishment of a Boardof Directors for the DND. They will spendthe next 6 to 12 months establishing thecorporation. In the interim, agencies thathave previously provided support forDowntown housing development shouldcontinue their work while coordinatingtheir efforts to support the newcorporation. The DND should thenconvene a housing development gapfinancing task force to help furthercoordinate all resource possibilities.

The Holling Press Building onWashington Street adds balance to

the current market rate apartmentswith the addition of affordable

units meeting the needs ofDowntown workers with annual

incomes below $35,000.(Source: The Urban Design Project)


52 The Work Plan

assessed value, the insurance will coverthe difference. Participating owners mustown and occupy their home for at leastfive years before they are entitled to file aclaim. This program can minimize risk andencourage investment in newer marketsconverting from rental to condominium or cooperative housing options.

Long Term Implementation (3 to 5 years)• Facilitate the development or

redevelopment of 1500 housing unitsin the Downtown area over the nextfive years. Several housing marketstudies conducted over the past few years(Danter, R/UDAT, Downtown WorkerSurvey, BNMC survey) have determined an average absorption rate of at least 300 units per year for new Downtownhousing. Taking into consideration localmarket and macro-economic conditions,that goal has been modified. The newgoal for housing development is 50-100units per year in the CBD and 100-200units in the greater Downtown area. This number includes the rehabilitation /upgrade of existing housing units as wellas apartments or lofts created by theadaptive reuse of existing structures.

Work to Date• Legislative / Policy Completed

– 700 Block Urban Renewal Plan– 800 Block Urban Renewal Plan– City of Buffalo Permit Fee Reform– Extension of Empire Zone Credits to

Residential Mixed Use– NYS Mixed Use Urban Tax Exemption

Program for commercial spaceconversions to mixed use

– City of Buffalo Mixed Use Urban TaxExemption Program

– Reform of the NYS Building Code

• Develop detailed urban designguidelines to support neighborhooddevelopment in the 600-800 block ofMain Street establishing it as the firstpriority residential development area in the Downtown.

• Create a Downtown NeighborhoodAssociation as a participant in theGood Neighbors Planning Alliance.This will become a voice for quality of ife issues for residents in Downtowncomparable to the voices now heard forbusiness concerns and resident concernsin the remainder of the GNPA.

Medium Term Implementation (1 to 3 years)• Revise zoning code to decrease

parking requirements for newDowntown residential development.Current City of Buffalo zoning lawmandates one permanent off streetparking space for each dwelling unit(§511-96, A). Current exceptions to thatrequirement include public and seniorhousing and lodging/rooming houses. The density and land-use patterns ofDowntown are different than traditionalresidential areas. Many buildings that are prime candidates for conversion toresidential use have limited access to on-site parking. To facilitate residentialdevelopment Downtown, this ordinanceshould be revised to allow for fewerspaces or alternative arrangements(evening ramp space, on-street residentialpermits, etc.).

• Explore the development andimplementation of an EquityInsurance Program to guaranteeinvestment/property values inhousing. Used in places such as Chicago,IL and Syracuse, NY, Equity InsurancePrograms protect homeowner investmentsthrough the creation of an insurance poolfunded by a special local tax that protectsagainst a decline in home values. If ahomeowner cannot sell their house at its

LIVING IN BRIEF

Measures of Success

Indicators

Increase in total residentialpopulation in neighborhoodfocus areas

Increase in total number of units

Increase in diversity of product

Increase in occupancy rates

Increase in number of new or renovated units per year

Increased/stabilized property values

Increase in median rental rate

Top Rules for LivingDowntown Action Plan

Density and concentration

Diversity – all cohorts, all types

Green design / connect to transit

Historic District / Infill

Mixed-use, service retail

No parking requirements

Public/private participation

Quality of architecture

Unique product


The Work Plan 53

• Capital Projects Completed– Gull Landing Phase II– The Bellasara– Watkins Building– Lofts at Elk Terminal– Ellicott Lofts Phase I

• Capital Projects Under Development– Century Centre I– The Belesario– Sidway Building– Tent City Building– Ellicott Lofts Phases II and III– Holling Press– Saturn Building– Greystone– Hope VI

• Legislative / Policy Under Development– Proposed Historic Tax Credit Legislation

• Planning / Organizational Completed– Buffalo R/UDAT 2001– Downtown Buffalo Housing

Sourcebook– The Danter Report – A Downtown

Multifamily Housing Analysis– The Dennison Study – The City of

Buffalo Housing Delivery Study

• Planning / Organizational Under Development– Buffalo Downtown Housing

Development Corporation– Buffalo Niagara Now Initiative

Living Downtown working draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)


54 The Work Plan

CONTEXT

Problem StatementDowntown is currently home to more than50,000 workers with an estimate of over7,000 more in the Buffalo Niagara MedicalCampus. The CBD numbers must be seen inthe light of what some analysts describe asa 25 percent Downtown vacancy rate forclass A and B office facilities. They alsodescribe the continuing difficulty to retain as well as recruit tenants into Downtown.There is no business plan for Downtowndevelopment that will assure retention andnew recruitment and there is no clearunderstanding of the Downtown economy,particularly in the regional context.

At the moment there is no single agency or person focused solely on economicdevelopment in Downtown. There is nobusiness plan for Downtown developmentoutside the efforts of the overall strategicaction plan. Current efforts to consolidatework in the Erie County IndustrialDevelopment Agency are promising, as isthe fuller integration of the functions of theBuffalo Economic Renaissance Corporationwith the Mayor’s Office of StrategicPlanning. There is much work to be done in the development of easily accessibleinformation on available space Downtown.Much work also needs to be done to createfurther efficiencies in the developmentprocess and in the way in which urbandesign, management, parking and accessprograms assure that Downtown acquiresthe status of the premier location to dobusiness in the region.

The current regional economic developmentstrategies either ignore or do not favorDowntown as a place to do business. This islargely due to real and perceived problemsregarding parking, an outdated buildingstock (inappropriate floor plate, floor loadcapacity, and floor to ceiling heights in classB and C office buildings), perceived suburbancost advantages, perceived problems withthe security of Downtown, and the lack ofDowntown amenities such as convenientshopping and quality streetscape.

Working DowntownIt will be a great Downtown when…

• Downtown is established as the newbusiness incubator for the region andcontinues to serve as the regional centerfor finance, insurance, real estate, law,health and life sciences, and government.

• the total building vacancy rate is 10 percent.

• there are quality buildings and a publicstreetscape that matches tenant needs.

• there is sustained employment growth.

The work plan goal is to develop acollaborative and consistent approach tobusiness development and retention inDowntown. The goal includes establishing therole for Downtown in the local and regionaleconomy using quantifiable factors such as the size of workforce, occupancy rates,corporate expansion potentials and longevityrates, and the availability of product by type.

Below: The number ofDowntown employees per

block is highest in the Financial District and

Government Center.(Source: Buffalo Place Inc.,

2000 Downtown Buffalo Businessand Employment Trends)


The Work Plan 55

Strategies• Consolidate and improve delivery of

services and information related topotential business locations Downtown.

• Clarify the demand for and availability oflight industrial space within the WesternNew York region, especially in the smallerfloor plate range. Downtown has asurplus of light industrial building typesthat can easily be converted to new lightindustrial space or to loft housing.

• Assure that Buffalo’s Comprehensive Plan land use strategy for businessdevelopment is consistent with therealities of contemporary land usedemands and define the importance ofDowntown locations. All city and regionalplanning efforts need to take betteradvantage of the positive attributes of theDowntown building stock.

• Market Downtown as the regionalincubator for office and light industry anddemonstrate its competitive advantages.

• Reduce the vacancy rate in existing class Band C office buildings by redevelopingstrategically located structures for use asresidences and work to relocate existingtenants to better locations and facilities.

• Assemble land for campus settings in theBNMC and in the Downtown EducationCampus to accommodate demands forfuture development.

• Formalize retention, relocation, andexpansion support for those who wish todo business Downtown, making theprocess clear, equitable, and consistentwith developing a more diverse androbust economy.

Current StatusDowntown Buffalo is the historic center ofcommerce in Western New York. Beinglocated in Downtown Buffalo offers manyadvantages to businesses. Downtown has alarge concentration of Class A office space,and is the preferred ‘front door’ address formany businesses. Government, banking andbusiness and legal services dominate thecurrent landscape in Downtown. Otherimportant industries include restaurants andentertainment services. These and otherbusinesses benefit from proximity to clients,other businesses, ease of regional access,and a central location for employees. Forthe Downtown worker, advantages includeavailability of services and events such asrestaurants, dry cleaners, Farmer’s Market,Thursday at the Square, etc. Downtown is apopular place to work, but the demands fortraditional retail and inexpensive parking areissues that have to be addressed. Finally, theinterdependence between the state of theeconomy in Downtown and the region as awhole cannot be understated. While theremay have been a dispersion of economicactivity into the rest of the region, thesymbolic nature of the state of Downtownaffects the entire region’s ability to attractnew business and retain existing business.

Office uses are the heart of the WorkingDowntown market, but other sectors shouldnot be ignored. There are importantindustrial, and visitor based entertainment,restaurant, and cultural-heritageemployment markets. The economy isdiversifying and should be encouraged tocontinue to do so.

The Family Court Building onNiagara Street between Pearl Street

and Franklin Street.(Source: Buffalo Place Inc.)

The strategy for WorkingDowntown must address

other employment options in addition to office

(Source: Buffalo EconomicRenaissance Corporation)

WORKING DOWNTOWN SNAPSHOT: CURRENT STATUS…

EmploymentDowntown Buffalo Central Business District (CBD) Employment = 50,046

This is:• 39.3 percent of Total City Employment of 127,264• 11.7 percent of Total County Employment of 429,515• 9.5 percent of Total Buffalo-Niagara MSA Employment of 529,578

Business Sectors• 1,375 Businesses are located in the CBD• 28 percent of CBD employees work for government• 35 percent of employees work in the Service Industry Classification

– Administration and Support, 9 percent– Legal, 8 percent– Information, 5 percent

• 18 percent of employees work in FIRE (Finance, Insurance and Real Estate) Industry Classification– Banking, 13 percent

Company Size• 50 percent of CBD employees work for large companies with more than 250 employees• 2 percent of CBD businesses employ more than 250 people• 90 percent of CBD businesses employ fewer than 50 people• 60 percent of CBD businesses employ fewer than 10 people


56 The Work Plan

Action Items

Short Term Policy (6 months to 1 year)• Agree on a regional approach to

economic development thatacknowledges the central role ofDowntown Buffalo within the region.A common understanding of the role ofDowntown will help focus economicdevelopment activities. Downtown Buffalois a central player in the Western NewYork economy. Finance, insurance, realestate, legal, government, business, andentertainment/sports services are amongDowntown’s dominant industries. All themajor economic development agenciesshould define a shared approach toeconomic development in Downtown andincorporate that vision into theirprograms. Part of the regional approachinvolves the consolidation of servicesamong the Buffalo Economic RenaissanceCorporation, the Mayor’s Office ofStrategic Planning, and the Erie CountyIndustrial Development Agency.

Another part involves the commissionedwork by Erie and Niagara County on thedevelopment of the Erie NiagaraFramework for Regional Growth due tooffer its recommendations by 2004. Thiseffort is focused on growth managementin the two-county region.

Empire Zone and renewal community designations in the greater Downtown area should befurther aligned to support concentrations of development in strategic investment areas or, as

appropriate, in the key neighborhoods that connect them. (Source: The Buffalo EconomicDevelopment Corporation and the Office of Strategic Planning)

Acquest’s Niagara Center contributes to the Financial Center and Government District area of strategic investment.

(Source: Acquest Development Corporation)

Key:Empire ZonesRenewal CommunitiesRenewal Communities and Empire Zones


The Work Plan 57

• Develop a comprehensive onlineinventory of available space inDowntown Buffalo. Access toinformation about available space forlease or purchase in Downtown should be easy to locate. A central databaseidentifying sites, square footage, leaseoptions and contact information shouldbe developed and incorporated into astand-alone website. This site could alsooffer preliminary information about themultiple incentive programs available forDowntown businesses. Initial work towardthis end was developed by BERC in 2002and needs to be further developed and released.

• Implement the Buffalo NiagaraMedical Campus Master Plan. The next five years will bring significantdevelopments and changes to the BuffaloNiagara Medical Campus located at thenorth end of Downtown. Advocates forDowntown and the campus shouldmaintain regular communication andwhenever possible, coordinate marketing,economic development, and trans-portation programs to maximize theimpact of the development.

Medium Term Policy (1 to 3 years)• Establish greater collaboration

between the economic developmentand real estate communities. The realestate community is often the first pointof contact for a company interested in relocating Downtown. Economicdevelopers and real estate agents shouldcollaborate to develop an agreed uponsystem that would allow agents theopportunity to identify and share basicprogram information with prospectivetenants and owners. This would speed up the flow of information and improvecommunication between the real estateand economic development communities.

• Focus incentives on the five strategicinvestment areas in the plan. This willcreate the critical mass of developmentneeded to build on the strengths ofDowntown and improve its retail andoffice market share in the region. Oneelement of incentive may be theestablishment of a fast track permitprogram for those projects that reinforcethe implementation of The Queen CityHub plan.

Short Term Analysis (6 months to 1 year)• Conduct a full-scale analysis of the

Downtown economy. To betterunderstand the existing and future stateof the Downtown economy and toidentify niche opportunities, a full-scaleanalysis should be undertaken. Factors to be studied include space and businessinventory, employer and employeeperceptions, business mix, trade areadefinition, local economic analysis, officemarket, retail market, restaurant andbusiness services, entertainment, lodging,and opportunities for niche development,clustering, and mixed use development.

Short Term Implementation (6 months to 1 year)• Organize and centralize Downtown

economic development efforts. Thereare many economic development agenciesactive in promoting Downtown Buffalo.However, it is not one person’s or agency’ssole focus. Having one entity or individualworking solely on Downtown will helpcoordinate information about sites,programs, incentives and other resources.

Main Street must remain acentral site of reinvestment to

achieve the goals of the WorkingDowntown work plan.


Downtown needs a web-based inventory of sites, square footage,lease options, and contact information.



58 The Work Plan

Medium Term Implementation (1 to 3 years)• Create a Business Incubator in

Downtown Buffalo. Many of the smaller, but potentially valuable, spaces in Downtown Buffalo are overlookedbecause they are in poor condition. Manyof these properties are in violation of City code and potential tenants are oftenasked to take on the additional financialburden of bringing space up to code aspart of the cost of a triple-net lease. Mostof the business incubators in Buffalo arelocated in somewhat remote areas of thecity on large parcels of land. While theyare successful, there is a shortage of largerland areas within the city that are requiredby large office developments and mediumto heavy industries. These are businessesthat generally will not locate in theDowntown area. There are many spaces in Downtown Buffalo that have smallerfloor plate and load ratings that makethem ideal for conversion to small businessincubators. Through eminent domain orother public acquisition, one or two smallbut high profile properties should bedeveloped into shared office with ground-floor retail incubator space.

• Promote Downtown Buffalo as acenter for small, clean, light industrialdevelopment. Similar to the previousaction item is a recommendation thatmore effort be made to encourage small,clean, light industrial companies to locatein Downtown Buffalo, particularly in Class B and C space. The Buffalo NiagaraEnterprise reports that there is a“substantial shortage“ of warehouse,distribution, manufacturing, and high-techR&D space in the 5,000 to 39,000 squarefoot range. New construction costs for thistype of space ranges from $37.00 to $42.99per square foot, while rehabilitation ofexisting space can be less expensive. Leaserates for similar space in the suburbs areone third more expensive than the centralcity. Although parking is often a concern,there are many locations on the peripheryof Downtown that include on-site parking.

• Develop a comprehensive andcollaborative business developmentplan for Downtown. Based on theresults of the full-scale analysis of theDowntown economy, a comprehensive andcollaborative business development strategyshould be developed and implemented.

Long Term Policy (3 to 5 years)• Advocate development of lower

Michigan as low- to mid-rise buildingsite. Michigan Avenue is important as ahistorical and cultural development area.Most of this attention is focused on areasnorth of Eagle Street. South of EagleStreet there is a significant amount ofvacant and underutilized land. It is anideal location for single or two story large-floor plate buildings that companiesoften seek out when expanding theiroperations. New construction must becontextually designed to enhance thearea. Land uses should be compatiblewith the new Downtown Education andPublic Safety Campus and the proposedhistoric district and its visitor-based economy.

Long Term Implementation (3 to 5 years)• Develop former industrial areas into

urban office parks. There are severallarge pockets of vacant or underutilizedland that may be suitable as urban office parks. Strong design guidelines and compliance with the Buffalo Coastal Special Review District (§ 511-67)standards including the 100 footminimum setback from the riverfront, andBuffalo’s Local Waterfront RevitalizationPlan, would ensure sensitive developmentwhile still providing the ability to developlow-level, larger floor plate buildings with parking that could attract largercompanies into the area.

Large pockets of vacant and underutilizedland south and east of the Downtown offer

opportunities for recreation, industrialhistory interpretation, and urban office park

development. (Source: Buffalo EconomicRenaissance Corporation)

The area in and around Michigan Avenuesouth of Eagle Street includes a number of

opportunities for further reinforcing the newPierce Arrow museum and for commercialand light industrial development. (Source:

Buffalo Economic Renaissance Corporation)


The Work Plan 59

Working Downtown draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)

Downtown employment by industry. (Source: Buffalo Place Inc.)

Service36%

Government28%

Finance/Insurance/Real Estate

18%

Entertainment/Hospitality

11%Manufacturing/Transportation/

Utilities7%

2000 Downtown Employment by Industry

WORKING IN BRIEF

Measures of Success

Increase in Square Footage ofDesirable (Class A/R1) Product

Increase in Overall Occupancy Rate

Increase in Size of Workforce

Corporate Longevity –Retention and Expansion Rates

Increase in Number ofCompanies by Type andPercent of City and Region

Increase in Number ofEmployees by Type andPercent of City and Region

Square Footage by Type andPercent of City and Region

Top Rules for WorkingDowntown Action Plan

Accountability

Bring the Real EstateCommunity on Board

Empower and Educate aBroad Cross-section ofAmbassadors for Downtown

Recognize the Reality ofExisting Conditions

Stick to the Plan

Build on Strengths and Tapinto Existing Resources


60 The Work Plan

Work to Date• Legislative/Policy Completed

– Empire Zone– One-On-One Retention Program– Renewal Community Application

and Designation

• Planning /Organizational Completed– Buffalo Niagara Medical Campus

Master Plan– 2003 BNMC Employee Survey – 1998 and 2000 Downtown Buffalo

Business and Employment Trends– 1998 Downtown Employee Survey– CB Richard Ellis Office Occupancy Report– BOMA Office Occupancy Report– Militello Office Occupancy Report– TCN Worldwide Market Reports

• Planning/Organizational Under Development– BNMC Economic Development Plan– Buffalo Niagara Now– Coordinated Local Development Process– Permitting Reform– Renewal Community Marketing Plan

• Capital Projects Completed– 665 Main Street– Century Centre I– New Barrister Headquarters– The Stokes Seed Building

• Capital Projects Under Development– The Guaranty Building– New Federal Courthouse– Waterfront Entertainment District– 598 Main Street– Center for Bioinformatics– Hauptman-Woodward Institute– Downtown Education and Public

Safety Campus

The Federal court house project taken with the proposed architecture in the Downtown Education and Public Safety Campus and that onthe Buffalo Niagara Medical Campus sets a new standard for contemporary 21st century architecture in a City already famous for its great

20th century architecture. Part of this work involves the renovation and reuse of the existing Federal court house on Niagara Square.(Source: The US General Services Administration; Kohn Pederson Fox Associates, Architects and Planners)


The Work Plan 61

CONTEXT

Problem StatementThe existing Downtown visitor base is poorlyunderstood and the potential for associatedeconomic impacts is not clearly quantified.Information is difficult to obtain because the needs of visitors vary by purpose of visit. What data there are tend to reflectnighttime activities over daytime venues.

Retaining the visitor base and increasing itwill require improved coordination amongattractions with a focus on the quality ofvisitor experiences and the capacity oforganizations to produce such experiences.New destinations like the Erie Canal Harborand waterfront sports, entertainment andretail venues need to be fully integrated,with the Theatre District and conventionvenues, into the Downtown visitor experience.

Visitors sometimes find Downtown difficultto navigate. Signage, map materials, andinterpretive streetscapes that reflect cityhistory, identify significant districts, andlocate key attractions are critical toDowntown wayfinding.

Downtown programming related to festivalsand special events needs to be expanded to include more events in the winter months and designed to extend the stay of visitors before and after work and afterevening events.

Current StatusOne of Downtown’s greatest strengths is its ability to attract residents and visitors to special events, entertainment venues,sporting events, and restaurants and bars.Downtown is the special event hub of theregion, drawing over 2.2 million visitorsannually. An additional five million visits are made to Downtown for sports, theater,libraries, conventions, and religious services,making Downtown the core of our identityas a regional community.

Visiting DowntownIt will be a great Downtown when…

• Downtown is one destination withmultiple attractions.

• there is something for everyone coveringa diverse range of incomes, interests and lifestyles.

• it is user friendly to new and repeat visitors.

• hotels, restaurants, cultural andentertainment venues are thriving.

The work plan goals are to understandthe needs of visitors to Downtown, enhancetheir experience, and to encourageincreased visits and economic spin-off.Doing this will require establishing new waysto bring visitors to Downtown andenhancing the experience of the existingvisitor base.

The Buffalo Niagara Conventionand Visitor Bureau is engaged in

an aggressive marketing campaignto attract new visitors to Buffalo.

(Source: Buffalo NiagaraConvention and Visitors Bureau)

The Greater Downtown has a substantial number of significant cultural and heritage venuesthat reinforce its position as a regional center for visitors of all kinds. The sites with stars

reflect some of the key contributing venues to the Rethinking Niagara themes of War, Peaceand Freedom, Enterprise and the Arts, and The Wealth of Nations.

(Source: Queen City in the 21st Century: Buffalo’s Comprehensive Plan)


62 The Work Plan

Action Items

Short Term Analysis (6 months to 1 year)• Conduct a multi-venue attitudinal

survey. The purpose of this survey will be to develop a baseline understanding of visitor attitudes about Downtown and their experiences there. Surveyquestions should include generaldemographic information, reasons forcoming Downtown, cross-use of venues,impressions of the area and frequency ofvisits. The survey should also determinehow a visitor’s use of Downtown affectstheir opinion.

Short Term Implementation (6 months to 1 year)• Develop visitor-specific information

packets targeted to groups includingjurors, business travelers, conventioneers,and heritage tourists. Each of thesegroups uses Downtown in a different wayand needs different types of information.

Medium Term Policy (1 to 3 years)• Encourage outdoor performance art

to increase street vitality. Performanceart and art displays can bring life to thestreet. While there are organized musicalperformances such as the M&T Plazaseries, more effort should be given toencouraging other types of performancesand exhibits throughout Downtown.

Medium Term Implementation (1 to 3 years)• Create pedestrian level “You Are Here“

maps. Many of the buildings inDowntown are known more by theirnames than their addresses. This makes itdifficult for visitors to find their destination.Pedestrian maps will assist with wayfindingand highlight places of interest.

Also important to Downtown, but not aswell understood, are business travelers,conventioneers, jurors, and heritage andcultural tourists. The Buffalo ConventionCenter is completing a $4 million upgradeand in 2003 has booked events projected to spin off $50 million into the Buffaloeconomy. Along with different types ofvisitors, Downtown offers several differententertainment districts. These districtsinclude the Theatre District, ChippewaStreet, the sports district, and thewaterfront. There are also Downtown-wideattractions including public art, cultural and architectural destinations. Each districthas different amenities and visitors.

Strategies• Sustain an inclusive and diverse array

of venues.

• Coordinate venues, events, and marketingto maximize impact.

• Enhance wayfinding.

• Make the case for cultural tourism as aneconomic engine and enhance its potential.

There are multiple venues Downtownincluding events like First Night, Taste of

Buffalo, and Thursday at the Square.The plan calls for more and multi seasonalevents. (Source: The Urban Design Project

and Buffalo Place Inc.)

VISITING DOWNTOWNSNAPSHOT: DOWNTOWNATTRACTIONS…

Attendance at Downtown Attractions(Buffalo Place 1999/2000)

Sporting events 2,020,260Special Events 2,172,557Theatre District 895,905Waterfront 606,264Buffalo & Erie County Library 482,104Churches 378,599Other Events 79,913Total: 7,110,871

Number and Type of DowntownVenues

Sporting 3Live Theaters 7Art Galleries 1Movie theaters 1Churches 7Ice Skating Rinks 1Public Libraries 1


The Work Plan 63

• Facilitate cross and joint marketing of the entertainment districts.The primary entertainment districts(Waterfront/Sports and Theatre/Chippewa)that make up Downtown are physicallyseparated. To create stronger connectionsand strengthen cross-use by visitors, jointmarketing of attractions should be increased.

• Create additional attractions. There are several types of venues or attractionsthat could be added to the Downtownportfolio and would attract additionalvisitors. Three of the suggested attractionsare an outdoor performance space in theTheatre District, a carousel, and public art installations.

• Begin programming for events at thewaterfront. Public access to water is atheme that has been repeatedly called for by the public. The Erie Canal Harbor is several years from completion. However,there are already several events in the areathat have become popular. These eventsshould be expanded to increase publicenjoyment and access to the waterfront.

Yerba Buena Gardens in SanFrancisco mixes child and adult

venues providing a multi-generational experience for its

visitors. (Source: Commitment toPlace: Urban Excellence and

Placemaking, 1999)

Nightlife on Chippewa Street.(Source: Buffalo Place Inc.)

Visiting Downtown draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)

Outdoor performance art increasesstreet vitality. WaterFire in

Providence, RI is an art venue inthe city center that employs acombination of music, street

theatre, fire in braziers on the water, and hours of operation

that extend stays Downtown.(Source: WaterFire, Providence and

the Bruner Foundation)


64 The Work Plan

Long Term Analysis (3 to 5 years)• Conduct another multi-venue attitudinal

survey to measure progress. Several yearsafter the first survey is completed a follow up should be done to see if andhow attitudes have changed aboutvisiting Downtown.

Work to Date• Planning/Organizational Complete

– Convention Center Feasibility Study– DK Shiffrin Study– Convention Center Site Selection Study– Canal Conversation Report – Working for Downtown Forum on

the Convention Center Report– Re-Thinking the Niagara Frontier– Economic Impact Analysis of Events

(Thursday at the Square, Taste of Buffalo)

• Planning/Organizational UnderDevelopment– Buffalo-Niagara Cultural Tourism Initiative

• Capital Projects Completed– Shea’s Performing Arts Center Expansion– Andrews Theatre– Pfeiffer Theatre Renovation –

Sphere Nightclub

• Capital Projects under Development– Convention Center Renovations– Erie Canal Harbor

VISITING IN BRIEF

Measures of Success

Increased Attendance at Attractions

Increase in Hotel Nights

Increase in Occupancy Rates

Increase in Number of Convention Attendees

Increase in Number of Venues

Improved Visitor Experience as Indicated by Survey

Increase in Number of Theater Performances

Increase in Visitor Cross-Use of Establishments

Top Rules for Visiting Downtown Action Plan

Act fast on low cost and high visibility projects.

Make ease of circulation and a pedestrian-friendly environment top priorities.

Create wayfinding signage.

Cross-market and coordinate venues twelvemonths a year.

Place parking where and when it is needed.

Create gateways to celebrate entry to Downtown.

Focus on diversity of product.


The Work Plan 65

ground floor uses by requiring transparency.It will also require revisions to theserequirements in order to ensure there areretail use opportunities on the ground floorin high pedestrian traffic areas Downtown.

There is a substantial unmet demand forretail in Downtown. Current employeesdescribe retail opportunities as the numberone amenity they want to see created inDowntown. If new neighborhoodsDowntown are to thrive they will needservice retail. If our aspirations to make aDowntown for everyone are to become real,we will need to connect retail to the innerring of neighborhoods and to the region.

Most of the basic infrastructure to makeretail happen is not in place. Short-termparking to support retailing is in short supplyand expensive. The streetscape needs capitalmaintenance and refurbishment

Current StatusThe current perception is that retail does not work Downtown. A nearly empty malland well-publicized store closings havereinforced this. However, several specialtyand destination stores are thriving. Many of the stores that were in the mall had thehighest sales per square foot in the region,even with limited hours typical of a CBDlocation. More often than not, theseclosings had more to do with macrocorporate failure or landlord tenant relationsrather than micro store performance.

Special events and street activity during the summer workday bring large volumes of pedestrians to the street and past theshops. On a typical summer weekday,15,000 to 20,000 pedestrians walk pastunderutilized Main Street storefronts.National studies have indicated thatpedestrian volumes over 1,000 people per hour are sufficient to support retaildevelopment. Four locations along MainStreet meet this standard throughout the entire day.

Shopping DowntownIt will be a great Downtown when …..

• residents, workers and visitors are able to purchase clothing, gift items, groceries,and other merchandise days, nights and weekends.

• it is more exciting because ground floorretail space is fully occupied and thriving.

• retail mix is competitive with otheroptions in the region.

• retail adds economic value and tenantamenities to the building stock.

The work plan goal for shoppingDowntown is to meet the demands of retailconsumers in the workforce, in newresidential communities as well as the innerring of adjacent neighborhoods, and thoseof visitors of all kinds to Downtown. BuffaloEconomic Renaissance Corporation estimatesplace this combined unmet demand at closeto three hundred million dollars of buyingpower a year. Buffalo Place Inc. estimates anunmet office employee demand for retail of$75 million.

Problem StatementTo be a good place to live, work and play,Downtown must have a full complement of service retail. To be a good place to visit it must have at least boutique retailsupporting niche market retailing consistentwith visitor demand. There is no oneorganization designed to promote this arrayof retail need through marketing, identifyingavailable space, quantifying the businessopportunity, and proving the market.

Downtown has essentially lost its retail core,traditionally north and south of LafayetteSquare on Main Street. However, it has theavailable space, ease of access to suburbanmarkets, plans for new residential life, solidoffice employee base, and the opportunitycreated by the development of healthy innerring neighborhoods to bring a significantamount of retailing back into the life of thecore. Doing so will require enforcement ofexisting zoning requirements that animate

Shopping Downtown 2003.(Source: Buffalo Place Inc.)

Postcard image from 1920 at Mainand Eagle Streets, Downtown.(Source: Library of Congress)


66 The Work Plan

• Develop a strategy to address the requiredretail mix related to demand Downtownrecognizing that office worker, visitor,resident and inner ring resident marketshave different needs.

• Educate landlords about the opportunityto attract and retain tenants.

Action Items

Short Term Policy (6 months to 1 year)• Develop a multi-agency focus on

retail. Increased retail opportunity couldprovide economic growth for Downtown.Unfortunately, it gets little or no publicattention. Many groups working togethercould unify the community to push formore retail choices in the core.

• Encourage retailers to validateparking. Short-term parking in ramps,lots and at parking meters putsDowntown retailers at a disadvantagewhen compared to suburban locationswith large tracts of free parking. Retailervalidated parking would improvecustomer access to Downtown retail.

• Modify the Downtown OpportunityZoning District to require first floor retailfronting from Huron Street to Church Street.

The Downtown workforce has $100 millionof buying power available for retail marketsDowntown, only a fourth of which isactually spent there. There is also anotherestimated $300 million in buying powerfrom residents in and directly adjacent to theCBD and a total of $3.88 billion throughoutthe City.

Strategies• Concentrate on existing unmet demands

in promotion of retail including worker,Downtown resident, visitor, and inner ringresident markets.

• Seek opportunities to support retailingthrough incubators and entrepreneurialtraining.

• Coordinate agency support for retailrecruitment and retention.

• Start with local small business that canappreciate peak weekday shopping withlimited labor expenses.

• Expand to evenings and weekend retailingconsistent with new entertainment andvisitor venues as the market andconfidence returns to retailing Downtown.

Specialty retail stores are an important partof the market for shoppers Downtown.


Basic services for residents provided by thisconvenience store are frequently requested byboth employees and residents of Downtown.


Ground floor retail and restaurant services are a key ingredient fora successful Downtown. (Source: Buffalo Place Inc.)

■ Ground Floor Retail

Existing retail in the core isfragmented and needs

concentration even while theentire core should be zoned to

require mixed use development.Special attention should be givento assure retail ground floor uses

and transparency in the traditionalretail core indicated in red.

(Source: The Urban DesignProject/ data from the 1999

Strategic Plan for Downtown)


The Work Plan 67

• Prepare marketing materials and aneducation program identifying the retailopportunity. Property owners, realtors,and retailers could use these materials to attract new tenants.

• Develop entry-level retailopportunities. These opportunities can include expanded sidewalk vending,participation in the Farmers Markets,kiosk markets, and a holiday market.These opportunities will help start-upretailers by keeping costs down and willexpand the retail opportunity for theDowntown shopper.

• Hold a series of focus groups to determine strategies andopportunities for Downtown retail.A neutral group should host threeseparate focus groups, one each forrealtors and developers, retailers, andeconomic development agencies andfinancial institutions. Information collectedcan help identify current weaknesses andstrengths and make recommendations forfuture action.

• Hold a retail seminar to reinvigorateinterest in Downtown retail. Feature aretail development expert. Invite propertyowners and managers, retailers and others.

Short Term Analysis (6 months to 1 year)• Conduct a full assessment of existing

retail. There is an existing base of retail inDowntown. A study of the type, customerbase, merchandise, price range and levelof success would expand the knowledgeof retail. The results from this study couldbe used to determine the niche, identifygaps and help market to new retailers.

• Conduct market research ofDowntown employees. In 1998,Buffalo Place Inc., along with the GBNRTCand the City of Buffalo, conducted astudy to determine demographic andmarket data about the Downtownworker, including demand for retail goodsand services. This study should beupdated in 2003.

• Identify available retail space. Currentlythere is no single source of informationabout available retail space in Downtown.Data should be collected and housed inone place to facilitate attracting retailers.

• Identify local and national retailprospects. Retailers that are looking toexpand publicize their market requirements.Using the retail assessment data, matchescan be determined and contacted toconsider Downtown Buffalo as a location.

Short Term Implementation (6 months to 1 year)• Seek ways to improve marketing of

Downtown retail. The existing base ofretailers does not have a strong marketingprogram. Working with the existingretailers to develop a marketing plan will strengthen the local market.

The Farmer’s Market should followthe trend in thousands of other US

Cities and create a Downtownpublic market that can service

both the Downtown workforceand residents.


High pedestrian counts on Main Street represent part of theuntapped retail market potential. (Source: Buffalo Place Inc.)


68 The Work Plan

Medium Term Implementation (1 to 3 years)• Explore revolving loan fund for

existing retailers. Obtaining financingfor expansion and other capital costs isoften difficult for small retailers. A well-managed revolving loan fund couldprovide a source of capital that would be used to support retailers.

• Promote Downtown as anexpansion/new market area for localretailers. Due to the limited shoppingtime, retailers in Downtown have feweremployee and operating expense needs.This is an ideal situation for existingretailers to expand their sales base. Localretailers also understand the marketbetter than national retailers who baselocation decisions on standard data.

• Develop retail incubation space.Starting a retail venture is risky. Incubationspace that provides low rents and supportservices such as marketing could increasethe success rate of start-up businesses.

• Test the market with specialprograms. Special programs wouldprovide better understanding of the true retail market. Examples of specialprograms are street fairs, holiday marketsand overstock sales.

Long Term Implementation (3 to 5 years)• Develop a year-round indoor Public

Market. The Tuesday and ThursdayDowntown Country Markets are greatsuccesses that provide additional retailopportunities for shoppers and expandthe market for farmers and specialty food vendors. Expanding this into a year-round market will increase shoppingopportunities, provide convenience retailfor residential populations, and provideretail incubator space. There has been a dramatic increase in public marketpopularity in the US concurrent withincreased interest in living Downtown.

SHOPPING DOWNTOWNSNAPSHOT: CURRENT STATUS…

Number of Stores by CategoryBicycle Shop 1Book Stores 3Confectionery Stores 1Cigar Store 1Clothing Stores 10Convenience Stores 3Eating and Drinking Establishments 108Electronics 1Florist 7Furniture and Household Accessories 3Gift Stores 5Jewelry Stores 9Newsstands 10Office Supplies 1Pawn Shops 3Shoe Stores 5Stamp/Coin Shop 1Variety Stores 2Vitamins/Supplements 1

• Retail employment in 2000 was 452.

• Eating and drinking establishmentsemployment in 2000 was 1,846.

• Downtown workers have an unmet retaildemand of $75 million.

• The city has an unmet retail demand of $307.8 million.

Pedestrian volumes from 8:00 a.m. – 5:00 p.m. weekends.

(Source: Buffalo Place Inc., 2000Downtown Pedestrian Study)


The Work Plan 69

Shopping Downtown draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)

SHOPPING IN BRIEF

Measures of Success

Increase in Number of Stores by Category

Increase in Square Feet of Ground Floor Retail Space

Increase in Retail Employment

Increase in Employee and Resident Spending Downtown

Top Rules for Shopping Downtown

Do whatever it takes to get space availableand ready.

The quality of retail spaces and pedestrianrealm are key to retail success and the “look“ of Downtown.

Identify and incubate the niche markets.

Build a critical mass of retail in strategicinvestment areas.

Perception is reality; address the problems of perception.

Promote advantages of being a Downtown retailer.

Promote Downtown as a center for retail for all Downtown neighborhoods.

Make the case for the importance of retail in Downtown – live, work, and play venuesare reinforced by retail opportunities.

Tap into existing resources to make it happen– SBDC, BNE, BERC, BPI, ESD.


70 The Work Plan

Five PrinciplesEach of the four activity programs should be implemented in accordance with five key principles for Downtown: access, urbandesign and management, preservation,energy and green design, and image.

Accessing Downtown: making theDowntown Hub easy to understand anduser friendly with fully integrated pedestrian,bike, car, bus and rail services. It must be anaccess system that is well connected to theneighborhoods and the waterfront while itsupports all the activities Downtown.

Urban Design and ManagementDowntown: creating a quality pedestrianenvironment; one that is both beautiful and urban.

Preservation Downtown: assuring thepreservation of historically significant buildingsand related urban fabric and districts. Apreservation approach designed to use historyas a significant economic development tool,balancing a reasonable demolition policy withbuilding re-use and restoration.

Energy and Green DesignDowntown: achieving energy efficienciesand related cost savings, improving ourecology with sustainable design, and addingto the quality of life in Downtown.

Image Downtown: representing anaccurate picture of Downtown, its currentlife and future potential.

The five principles establish the policy environment for the core activity program fro Downtown.(Source: The Urban Design Project)

PRINCIPLES

AC

TIV

ITIE

S

Acces

s

Pres

erva

tion

Ener

gy an

d

Green

Des

ign

Urban

Des

ign

and M

anag

emen

t

Imag

e

Living

Working

Shopping

Visiting


The Work Plan 71

Accessing DowntownIt will be a great Downtown when…

• access is easy to understand and user friendly.

• parking is no longer an issue.

• there is an intermodal system for train,bus, bikes, pedestrians, etc.

• we are connected to the waterfront on the south and west.

• the access system supports all theactivities of Downtown.

The work plan goal for access Downtownis to create an integrated access andtransportation system supporting all of the activity programs Downtown.

Problem StatementAccess is a comprehensive issueencompassing many different modes oftransportation. Quality access is not an endin itself; but is a service supporting all theother activities that occur Downtown. Thechallenge is to balance price, availability, andmanagement of the various access optionsto best support Downtown activities.

For example, workers rely on convenienttransit, affordable parking, and pedestrianfriendly connections to move to work.Perceived and real deficiencies result inemployers choosing to relocate, affecting the Downtown economy. Visitors requireunderstandable street patterns, accuratesignage, and convenient access or parking to encourage trips to Downtown forentertainment. Downtown housing alsorequires access to transit and parking in orderto secure tenants. Housing developmentsnear established transit lines may reduce the demand for parking by residents. At thesame time, residential units near the officecore find it difficult to secure parking due to daytime use by office tenants.

Roads and rails representonly a small part of critical

access and urban designinfrastructure. Parking,

pedestrian access, and bikecirculation, also need to beaddressed in a manner that

mitigates the negativeeffects of the current

infrastructure. (Source: TheUrban Design Project –

Photo courtesy of theBuffalo Economic

Renaissance Corporation)


72 The Work Plan

divisions, the Buffalo Division of ParkingEnforcement, City of Buffalo Parking Board,Niagara Frontier Transportation Authority(NFTA), and Greater Buffalo-NiagaraRegional Transportation Council (GBNRTC).The numerous agencies involved increaseconfusion and reduce coordination.

As a result there is no comprehensive accessplan for Downtown that acknowledges the various modes of access and theirinterdependence. There is no coordinatedpedestrian, bike, bus, rail, car pool, shuttle,and parking management system. Finallythere is no single reliable source of data to determine demand and potential use for Downtown access programs and modes of transit.

Access to Downtown is constrained by many factors. There are multiple agenciesresponsible for management which leads to a lack of cooperation. Traffic control hasbeen designed to favor automobile trips in or out of Downtown over multi-modalcirculation through Downtown.Management and pricing of parking hasbeen the subject of extensive study, ongoingrefinement, and is of continuing interest to both public and private sectors as well as Downtown advocates.

Cooperation: There are at least tenagencies involved in providing access in the Downtown area: New York StateDepartment of Transportation (NYSDOT),New York State Thruway Authority, BuffaloCivic Auto Ramps (BCAR), Buffalo Place Inc.,City of Buffalo Department of Public WorksTraffic Engineering and Street Design

Monthly parking ratesshown in relation to

employee concentrations.Parking shown is for onlythose lots open to public.


Total parking supplyincluding lots and structural

parking privately held andnot open to the public.



The Work Plan 73

over-wide sidewalks often seem empty,resulting in security concerns, althoughactual pedestrian volumes are quite high.Vehicular traffic would add vitality to Main Street and bring sidewalk widthsdown to a more appropriate, comfortablepedestrian scale.

Parking: Parking is important to the issue of access. There have been five studiesfocused on parking in the last ten years.Many of the recommendations in thesestudies have been implemented, or are in progress. There is still work to be done to make the best use of existing parkingresources and to coordinate the seven publicentities which have parking responsibility.Management of these agencies’ diverseagendas requires ongoing attention.

The demand for parking exceeds the currentsupply in the core of Downtown, accordingto both the multi-agency DestinationDowntown 2002 report and the ongoingwork of Buffalo Place Inc. In addition,approximately 28 percent of the surfacearea of Downtown is dedicated to off streetparking with less than 5 percent of that in structured parking. Only 27 percent ofthe surface area of Downtown has buildingson it. The result endangers aspirations for a dense, urban, and pedestrian friendlyDowntown.

However, office tenants, who constitute the major economic engine of Downtown,require parking before they will commit to lease space. The inaccurate perceptionthat parking is free in the suburbs creates a problem in attracting new businessDowntown. The reality is that such parkingis incorporated into commercial rentstructures and not passed on to individualusers, as it is Downtown.

Transit: Mass transit ridership is decliningand operating deficits, as a result, areincreasing. Recent transit fare increases wereunderstandable but encourage those withaccess to an automobile to drive and parkDowntown. The community supports MetroRail expansion but a lack of dedicatedoperating funding inhibits progress.

Signage, wayfinding and marketing:There is a lack of awareness about accessoptions. Downtown is a destination, yetinformation about getting to and around itis hard to locate. This is even truer regardingaccess to the waterfront. While there aremultiple routes to the water there is littleannouncement of them Downtown andnone of the urban design supports thatwould define them as special gateways.Existing Downtown visitor signage is in need of updating. Pedestrian “You AreHere“ signage tied to directory maps hasbeen a long-term goal that needs to beimplemented.

Traffic speed and pattern: The remainingone-way streets Downtown are effective atrapidly moving high volumes of traffic. One-way patterns make it difficult to travelwithin Downtown and are not user friendlyto Downtown visitors or pedestrians. Theone-way streets linking the KensingtonExpressway (Route 33) and the I-190, whilepreferable to the originally planned gradeseparated highway, divide Downtown fromthe BNMC, the 700–800 block of Main St.and the East Side of Buffalo. The relativelyhigh speed and one-way street patterns thatresult contribute to an unfriendly pedestrianenvironment and frequently unsafe drivingconditions due to excess speeds.

The Buffalo Place pedestrian/transit mall onMain Street limits access to the majorproperties Downtown and has contributedto the loss of first floor occupancy and Main Street property values. As the “imagecenter“ for our region, the “vacant look of Downtown“ has been found to inhibitregional efforts to attract new employerseven to suburban locations. Main Street’s

It is critical to find a dedicatedsource of revenue for Buffalo’s

Metro Rail.(Source: Buffalo Place Inc.)

Ten hour/$2.00 parking is part of alarger strategy to revamp parking

rates and access.(Source: Buffalo Place Inc.)


74 The Work Plan

• Parking is still essential in securing officetenancies and countering the continuedmovement of business to suburbanlocations that offer easy parking. Muchwork has been done to help address theimbalance of parking in the CBD. Many of recommendations of the DestinationDowntown Buffalo 2002 Study have beenimplemented, and gains have been made.But until the question of the managementof the parking system is addressedproblems will continue.

• Downtown access solutions involvingpublic transit cannot proceed due to lackof funding. These potential solutionsinclude extension of Metro Rail south to Mississippi Street or Michigan Avenue, a Downtown free-fare bus zone, andcirculator bus service linking employmentin the core and available parking at the periphery of Downtown.

Strategies• Create a single access management

system that includes all of the accessservice providers.

• Build on the strength of previous work.

• Encourage the use of car-pools, bicycles,and Live-Near-Your-Work programs thatreduce single occupant vehicle trips.

• Encourage the use of transit while providingan opportunity to use a car for those whomay need to do so during the day.

• Express the gateways to Downtown andaccess points to the water with qualitysignage and streetscape amenities.

Current Status• There is a shortage of structured parking

in the core relative to current marketdemands. Inexpensive parking chargesdesigned to support office occupancyresult in overuse of limited parking in the Downtown core while there is asurplus in the periphery.

• The NFTA Strategic Transit Assessmentcompleted in April of 2000 indicates thatthere is potential to leverage public/private opportunities to support improvedtransit even as federal sources areincreasingly constrained.

• A final environmental assessment wascompleted for multi-modal access andrevitalization of Main Street. The preferredalternative was for vehicular traffic to sharethe trainway with Metro Rail. Metrostations will be redesigned to be smallerand thinner and around 125 short termcurb parking spaces will be provided. These changes will result in Main Streetsidewalk widths in the 19 to 25 footrange, similar to Court Street; wideenough to accommodate Main Street’simpressive pedestrian volumes andpedestrian amenities, but small enough to feel comfortably occupied throughoutthe year.

• North/ south connections in Downtownare strong – east/ west connections areweak. There is a need to facilitate themovement of people between theperiphery and the core.

• The Elm-Oak corridor is not pedestrianfriendly and acts as a barrier to the EastSide neighborhoods.


The Work Plan 75

Action Items

Short Term Policy (6 months to 1 year)• Use the Access Infrastructure Task

Force as a forum for identifying issues,coordinating access providers andimplementing solutions. Membershipshould be expanded to include all accessproviders and groups that focus on bicycleand pedestrian access.

• Open closed streets and convert the majority of one-way streets to two-way. Streets closed for thepedestrian mall should be opened. Thereare many reasons to convert one-waystreets to two-way streets. The conversioncan improve pedestrian access, increasesafety, eliminate confusion in trafficpatterns, and enhance accessibility tobusinesses. Currently 39.6 percent ofstreets in Downtown are one-way. Thisshould be reduced to less than 10 percent.

• Research systems for integratingtransit costs into commercial rents.Suburban office parks have free parking,or so it seems. Parking spaces and themaintenance of the lots is built into the commercial rent; therefore it is notpassed on to the worker or customer. InDowntown, the cost of parking or transitis paid by the worker or customer. Ifcommercial rents included the cost oftransit for workers it would eliminate thepass on of cost and encourage morepeople to take transit.

• Insure public access to the waterfrontfrom Downtown and from thewaterside. Access needs to be improvedfor boats, pedestrians, bicyclists,motorists, and commercial traffic.

• Promote and expand the Park andRide programs. Assess the marketdemand and create more frequent rail or shuttle bus service.

The Park n’ Go lot near the Arena.(Source: The Urban Design Project)

The Park n’ Go shuttle offersanother access option for the

Downtown workforce.(Source: Buffalo Place Inc.)

The pie charts above indicate the “urban carpet“ as it currently exists Downtown. One objective is to reducethe amount of surface area consumed by parking. (Source: The Urban Design Project)

ACCESSING DOWNTOWNSNAPSHOT: CURRENT STATUS…

• Three expressways lead into the CBD.

• Approx. 43,000 cars enter the CBD daily.

• 39.6 percent of the linear feet ofDowntown streets are one-way.

• Daily Metro Ridership to/from Downtown– Bus 13,400– Rail 9,950

• One light rail line

• 17 local bus routes

• 17 express bus routes

• Buffalo Place Park 'n Ride has 1500registered parkers.

• 25,175 off-street parking spaces exist in the CBD.

• 1,881 on-street parking spaces exist in the CBD.

• 28 percent of the surface area ofDowntown is devoted to off-street parking.


76 The Work Plan

• Encourage car-pooling/ride sharing.Incentives to people agreeing to car-poolcan include reduced rates for parking,preferred parking spaces, decreased timeon wait lists for ramp spaces or otherideas. The goal is to make car-pooling/ridesharing not only an option but alsosomething that has a tangible benefit.

Medium Term Analysis (1 to 3 years)• Conduct transportation study on

Elm-Oak Corridor for potentialimprovements. The Elm-Oak corridor is an excellent way to move cars quicklythrough Downtown. It is designed andtimed so that a car traveling 30 miles anhour will not be stopped by a red light.Unfortunately, the corridor often has carstraveling significantly faster than 30 milesan hour. The timing of the lights is notconducive to pedestrian crossing. thecorridor is also a significant barrier bothvisually and physically between the EastSide and the Downtown core. A studythat analyzes how the road is used andhow the community wants it to be usedwould include recommendedimprovements.

• Determine the demand for accessservices and infrastructure. This studyshould look at the optimum price forparking, the demand for circulator buses, free fare zones, additional parkingspaces, expanding metro rail, and otherimprovements to the access system thatcould be undertaken. This study couldform the foundation of a comprehensiveDowntown Access Master Plan.

• Explore creating a Downtown freefare bus zone using existing MetroBus routes. This would serve to movepeople around the Downtown area as well as to periphery parking lots. Consider this in concert with thecirculator bus program.

Short Term Implementation (6 months to 1 year)• Continue to implement the

recommendations of the DestinationDowntown Buffalo 2002 Report. Thereport focused much of its attention onparking and public transportation. Manyof the recommendations have beenimplemented or are underway. Onerecommendation, which is a publicpriority that has not been implemented, isthe expansion of Metro Rail.

• Complete two-way conversions ofFranklin Street from Court to Churchand Washington and Ellicott Streetsbetween Goodell and the BNMC.

• Secure funding and completepreliminary design for Multi-modalAccess and Revitalization of Main Street.

• Develop a Downtown Accessmarketing campaign including acomprehensive access map – online andhard copy. There is often confusion aboutparking (how much and where), MetroBus and Rail, Amtrak, pedestrian andbicycle routes. A comprehensive campaignand physical improvements could help toeliminate the perception that it is hard toget around.

• Create an Access Fund to supportDowntown transportation-relatedprojects. An alternative funding sourcethat could be used for innovativetransportation projects such as a circulatorbus or free-fare bus zone is needed. Thisfund could be supported through publicand private resources. The goal is to usethe money for improvements to thetransportation system that cannot befinanced through traditional budget lines.

• Increase focus on bicycle andpedestrian access. This includes creatingnew bicycle lanes and parking options,working with the NFTA to get bike rackson buses, enhanced crosswalks and otherwalkability enhancements.

The speed of traffic moving to and from theI-190 ramp on the south and from route 33on the north separates Downtown from the

near East Side neighborhoods. The plancalls for improved pedestrian friendly

crossings on the Elm/Oak corridor andother traffic mediation measures.

(Source: Buffalo Economic RenaissanceCorporation)

• Develop a comprehensive DowntownAccess Master Plan. A comprehensiveplan would determine neededimprovements for all modes oftransportation including automobile,bicycle, pedestrian, bus and light rail.Many transportation and access agenciesprepare capital budgets five years inadvance. Working with the necessaryagencies to prepare a plan that can thenbe worked into their capital budgets is thebest way to move most projects forward.

• Develop a study of the feasibility of intra-city passenger rail linkingNiagara Falls, Buffalo, and Toronto.

Medium Term Implementation (1 to 3 years)• Convert selected one-way streets to

two-way. Continue the program of two-way street conversions with Seneca Streetwest of Washington Street, Swan, Pearl,Tupper, and Goodell Streets.

• Secure funding, complete final designand build Phases 1 and 2 of the MainStreet Multi-Modal Access andRevitalization Project. Phase I includesconverting the 700 block of Main Streetto a two-way street, and shared vehicularuse of the train way between Tupper andHuron Streets. Phase 2 would be designand construction between Huron andChurch Streets.

• Coordinate transportation effortswith the BNMC. There are manyopportunities for the traditionalDowntown core and BNMC to cooperateincluding a circulator bus, expandedparking opportunities and coordinatedtraffic patterns.

• Create one coordination entityresponsible for managingDowntown’s access system includingon- and off-street parking and a shuttle orcirculator bus system. Currently there areat least ten organizations that are directlyinvolved in managing parking and access.


The Work Plan 77

One entity that could coordinate andmanage the various aspects of the systemwould increase efficiency, decreaseduplication and reduce costs.

• Develop and implement a circulatorbus program. A circulator bus would be used to both move people aroundDowntown and to move people toperiphery parking lots. Consider usingcompressed natural gas or otheralternative fuels. Use of alternative fuelsincreases the opportunity to obtainfunding from alternative sources such as the U.S. Department of Energy andmakes the service more marketable toenvironmentally conscious users.

• Improve HSBC event station. This lightrail rapid transit station is used onlyduring events at HSBC Arena. Expandingavailability and improving this station willenhance access to the waterfront andlower Main Street.

• Begin renovations of MetropolitanTransportation Center. This center forintra- and inter-urban transportation islong overdue for renovations to improvethe look and efficiencies. Renovations willmake this arrival point to Buffalo moreattractive, modern and inviting.

Long Term Implementation (3 to 5 years)• Implement recommended changes

to the Elm-Oak corridor.

• Complete the final design andconstruction phase of the Main StreetMulti-modal Access and Revitalizationproject between Church and DivisionStreets and Scott Street.

• Complete Erie Canal Harborinfrastructure and inter-modaltransportation center project.

The Metropolitan TransportationCenter is slated for refurbishment

improving its exterior relationshipto the streets and the quality of

public spaces and offices on theinterior. (Source: Niagara Frontier

Transportation Authority)

One of the alternatives explored asa way of returning cars to Main

Street involved creating separatelanes. The review process has led

to the selection of a phasedprogram where the track bed

would be shared. (Source: NiagaraFrontier Transportation Authority)

The preferred alternative to carssharing Main Street is for cars to

share the track bed.(Source: Buffalo Place Inc.)


78 The Work Plan

Access Downtown draft tasks,participants and schedule.

(Source: Downtown Buffalo 2002!)


The Work Plan 79

Work to Date• Planning/Organizational Completed

– Short-Term Parking Plan– Destination Downtown Buffalo 2002 – Desman Associates Report– Report of the Mayor’s Parking

Advisory Committee– Report of the Downtown

Parking Committee– Feasibility of Cars Sharing Main Street– 1995 Central Business District

Parking Study– Cars Sharing Main Street Staff Analysis– Main Street Multi-Modal Access

and Revitalization Project FinalEnvironmental Assessment

– Park N’ Go Shuttle

• Planning/Organizational UnderDevelopment– Implementation of the Access

Infrastructure Task Force Work Plan

• Capital Projects Completed– Improve Lighting Downtown– Two-way Street Conversions of Huron,

Ellicott, Franklin and Washington

• Capital Projects Under Development– Expansion of the Adam Parking Ramp– Expansion of the Augspurger Parking

Ramp– Chippewa Street Improvements– Erie Canal Harbor– Street Circulation Revisions– Metropolitan Transportation Center– Intermodal Transportation Center– Main Street Multi-Modal Access

and Revitalization Project

ACCESSING IN BRIEF

Measures of Success

Increased Metro Ridership Into Downtown

Increased and Better Use of On-StreetParking

Maintain High Ramp Occupancy

Decrease Percentage of One-Way Streets

Increase in Park ‘N Go Ridership

Ratio of Parking Spaces to Occupied SquareFeet, City vs. Suburbs

Reduced Total Area of Surface Parking

Reduced Single Occupant Vehicle Trips toDowntown Through Car-Pool, Transit Use,Bicycle, Walking, etc.

Top Rules for Accessing DowntownAction Plan

Use common sense approach that recognizesfiscal reality.

Create an intermodal system.

Make more efficient use of real estate andinfrastructure.

Access brings mobility brings opportunity.

Establish access priorities; parking is not theonly issue.

Seek better coordination between accessproviders and modes, inter- and intra-agency.

Emphasize relationship between access andbusiness development.

Improve signage, wayfinding, and gateways.

Reduce surface parking and increase use ofmulti-use/pedestrian friendly parking facilities.

Urban Design and ManagementDowntownIt will be a great Downtown when…

• aesthetics are understood as part of theperformance in each activity and principle.

• the success of Downtown is measured by urban qualities instead of suburbanstandards.

• people want to get out of their vehiclesand walk.

• quality urban design is understood as a prerequisite to a good return on investment.

The work plan goal is to institutionalizethe requirement to make every act ofinfrastructure and new development inDowntown contribute to the quality of the public realm and its maintenance.Downtown is a unique asset to the region.With an impressive stock of historicbuildings, a unique working atmosphere,and a large employment base, Downtown is and will continue to be the symbolic heart of the region. It is therefore vital to adequately manage Downtown andensure its attractiveness.


80 The Work Plan

Below: A great Downtown requires a cohesive system of open spaces defining the public realm. A comprehensive urbandesign action plan will develop such a system for The Queen City Hub. (Source: The Urban Design Project with GIS

data from the Office of Strategic Planning, Data Analysis Section)

■ Green or open space infrastructure in the greater Downtown


The Work Plan 81

Outside of the Buffalo Place district of Main,Washington and Pearl Streets there is no oneorganization that focuses on maintenanceand Buffalo Place does not have the structureor authority to focus on needed capitalimprovements or design guide compliance.

Current Status• Pearl and Washington are the main

vehicular entrances to Downtown andhave been ignored. Their appearanceneeds to be dramatically improved.

• Existing ramps and surface parking lotsare some of the main detractors from the appearance of Downtown.

• It is often unclear to visitors how to accessthe waterfront.

• Some sidewalks are broken and crackedand in need of replacement.

• There are no signs or gateways thatcelebrate the arrival into Downtown.

• There are a number of vacant buildingsthat are improperly mothballed. Thenegative look of these buildings affectsthe image of Downtown.

Problem StatementThe public realm of Downtown needs basiccapital improvements, higher maintenanceand landscape design standards throughoutDowntown, and higher expectations in thearchitectural design of new infill construction.In addition, Downtown has becomeseparated from the neighborhoods and thewaterfront through buildings, high speedroads, and poor streetscape design. Portionsof historic districts are in disrepair and lackconsistent enforcement of their designstandards or even basic code compliance.Buffalo is also a city that has some extremesnow conditions, while Downtown inparticular often experiences strong winds.However, there seems to be little attention to making Buffalo an excellent winter city.There is no comprehensive plan or system to identify and address urban design issues.

Another aspect of an urban design action plan would establish design review procedures that ensure future architecture can take its place along with the best of Buffalo’scurrent stock of buildings. (Source: The Urban Design Project and Buffalo Place Inc.)

The 1892 Market Arcade links Main and Washington Streets

with equal attention to detail forboth streets.

(Source: Buffalo EconomicRenaissance Corporation)

Right: The Urban Design ActionPlan will also need to develop thedetails of The Queen City Hub greatstreets program. The concept aboveis intended to illustrate theadjustment of six lanes to four onChurch Street leaving room forsignificant landscape treatment andimproving the pedestrianexperience at the crossing.(Source: The Urban Design Project)


82 The Work Plan

Action Items

Short Term Policy (6 months to 1 year)• Increase focus on the importance of

Washington and Pearl Streets. TheMain Street pedestrian mall is a qualitypedestrian environment that many enjoy.However, due to Main Street’s lack ofvehicular traffic, Washington and PearlStreets have become the primaryentrances into Downtown. The pedestrianmall has been well maintained anddeveloped. More of this type of attentionneeds to be given to Washington andPearl because although they are the“back door“ to Main Street, they are the doors that are used most.

• Establish a moratorium on permits for new surface parking lots. In orderto create a new surface parking lot, anexisting building has to be taken down.Much of the urban fabric has beensacrificed to surface parking andadditional lots would only further erodethe character and uniqueness of the area.

• Enhance public access to the water.The history of Buffalo is based on itsconnection to the water. The public hasrepeatedly expressed a desire to enhanceand maintain waterfront access whenever possible.

Short Term Implementation (6 months to 1 year)• Develop an Urban Design Action Plan.

– Conduct urban design inventory –public and private spaces.

– Develop urban design guidelines with special standards for strategicinvestment areas, historic districts, and priority residential areas.

Strategies Create an Urban Design Action Plan thatdefines the standards for a quality publicrealm, identifies priority areas, makesDowntown greener, and identifies jointfunding opportunities. The plan shouldaddress:

• Changing what have been the “backs of buildings“ on Washington and PearlStreets into fronts.

• Using key streets like Genesee, Church,Erie and Main to emphasize relationshipsto water.

• Working on the street infrastructure toinsure that needed sidewalk, crosswalk, andbasic infrastructure standards are fully met.

• Connecting Downtown to theneighborhoods through a system of“great streets“ based on the key elementsof Joseph Ellicott’s radial and grid streetpattern and Olmsted’s incorporation ofthe pattern in his park and parkwaysystem design.

• Developing detailed design guides forneighborhood areas, historic districts, and strategic investment areas so there is variety Downtown even while aconsistent standard of quality ismaintained. We need one Downtownwith many attractions.

The Chippewa entertainment strip.(Source: The Urban Design Project)

Blending downtown living with activeentertainment presents several design

challenges that should be addressed in theUrban Design Action Plan.


A comprehensive Urban Design Action Planwill also help assure transparency at the street

level and active first floor uses. We shouldavoid the blank wall architecture of the 70slike this Pearl Street façade for the Buffalo

Convention Center.(Source: The Urban Design Project)

URBAN DESIGN DOWNTOWNSNAPSHOT: THINGS THAT AFFECTURBAN DESIGN…

• Scale

• Density: building height, full corners,infill of vacant lots

• Landscaping

• Streets/ streetscape

• Lighting (street, sidewalk, on buildings,from buildings)

• Building design

• Cleanliness


The Work Plan 83

• Focus on the greening of Downtown.Adding green space to the urbanenvironment has both visual andecological benefits. Public and privateentities should collaborate on landscapeplanning to soften the edges, markspecial passages, and beautify theDowntown area.

• Develop and enforce surface parkinglot and parking ramp designstandards. City code currently mandatesscreening standards for new parking lots.However, there are no design standardsfor new or existing parking ramps. Newstandards are required to enhancescreening and ensure designs and mixed-use spaces to retain pedestrian friendlyand animated streetscapes. Removegrandfathering of existing lots to requirethey install adequate screening consistentwith modern standards.

Medium Term Analysis (1 to 3 years)• Develop winter city design standards.

A realistic assessment of what other citieshave done to celebrate winter througharchitecture and urban design must beundertaken. Buffalo winters can be harshand can create extreme wind conditionson Main Street. An investigation andrecommendations of ways to mitigatethese problems will enhance the year-round life of Downtown.

Medium Term Implementation (1 to 3 years)• Enhance connections to the

neighborhoods and waterfront.Public access to the waterfront is a priorityfor the community. Make existingconnections more inviting through simpleimprovements. Visual improvements suchas banners, lighting, improved sidewalksand landscaping will greatly enhanceexisting connections to the waterfront.

• Dedicate a code officer to Downtown.Currently, code enforcement for Downtownis not as aggressive as it needs to be. Acode enforcement officer has Downtownas part of his responsibilities. However,due to the unique needs of the area, oneofficer needs to be assigned solely to theCBD. Included in the responsibilities forthis officer would be sidewalks, parkinglots, signage, and buildings.

Medium Term Policy (1 to 3 years)• Develop a mixed-use land use plan

for Downtown. Current land usepatterns within the CBD are based on asingle zoning standard (DO – DowntownOpportunity). This standard may notreflect the variety of uses and developmentneeds that Downtown is now facing.Focusing future development where it will be complementary will build on the current success of the areas and willstrengthen them further. A land use planand revised DO zoning standards willrecommend locations for retail, office,residential, open space and other physicaldevelopments including transportationalong with design standards consistentwith the range of uses.

The Buffalo Niagara Medical Campus Master Plan calls for greening the connections along Allen Street through the Allen Street transit station.

(Source: The Buffalo Niagara Medical Campus Master Plan, Chan Krieger and Associates)

The Robert Adam Parking Rampand street frontage (top) compared

with a parking structure on the main commercial street in

Downtown Denver, CO (bottom).Note how the Denver facility is

animated with ground floor retail.(Source: The Urban Design Project)


interest in vacant places that currentlydetract from the urban feel of thestreetscape. Finally, buildings that areunderutilized will be occupied anddeterioration may be prevented. Variousgrant programs can be used to implementthis type of program such as those fromthe New York State Council on the Arts.

• Enforce and strengthen coderequirements for boarding up vacantbuildings. Section §341-13 of the Citycode requires that vacant buildings beclosed so that they are not accessible tounauthorized persons. It also requires thatthe boarding up of the building be doneso that it is not harmful to thesurrounding area. Greater definition ofwhat is visually harmful and strictenforcement would help to alleviate thevisual harm done by vacant buildings.

Long Term Implementation (3 to 5 years)• Reconnect Downtown to the

neighborhoods by enhancing theradial pattern. The radial street planfrom which Buffalo grew is one of thethings that make the city unique. Inplaces, buildings or high capacity streetshave disrupted this street plan. Throughvisual improvements such as trees,banners and landscaping greaterconnection between the neighborhoodsand Downtown can be established.

• Offer an advocacy category ofmembership in Buffalo Place. Issuesthat affect the Central Business District do not respect artificially drawn lines.Currently there is no unified voice forDowntown to advocate for issues locallyor at a state level. Expanding Buffalo Place through different categories ofmembership would provide a single voicefor Downtown property owners, tenants,and residents.

• Revamp Downtown signage. On anystreet corner there are likely to be at leastthree or four signs including way-finding,street names, traffic regulations and otherinformation. However, the signs weredeveloped at different times and withoutrespect for each other. This gives theimpression of a disorganized and clutteredarea. A new system for signage that has aunified design theme will make the streetslook better, improve wayfinding, and givethe area a more cohesive feel.

• Require and enforce capitalreplacement of sidewalks. ManyDowntown sidewalks are uneven andcrumbling, and in some cases have holes.Property owners are responsible forsidewalk maintenance. The City mustwork with owners to encourage sidewalkupgrades and, when necessary, fineuncooperative properties.

• Improve all gateways intoDowntown. Gateways are used tocelebrate the arrival to a special place.Signage and landscaping at the primaryentrances into Downtown will improvethe look and image of the area.

• Create live/work art space in vacantstorefronts to provide street-level activity.A program like this will benefit both theartists and the property owner – the artist has a quality place to work and gets greater exposure for his or her work.Additionally, the artist establishes life and

Sites like this underpass connecting thewaterfront to Main Street on Erie Street

deserve special landscape and streetscapedesign to enhance the connection between

Downtown and the waterfront.(Source: The Urban Design Project)

Below: All of the gateways to Downtown require special attention with landscape, signage, and traffic calming.(Source: Buffalo Economic Renaissance Corporation)


The Work Plan 85

Urban Design draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)

Top Rules of Urban Design andManagement Action Plan

“It’s Simple Stuff“

Ensure ongoing and systematic code enforcement(maintain assets by protecting them).

Adopt a sense of stewardship and advocacy for Downtown.

Create a Downtown block club for soft advocacy.

Stop demolitions for surface parking.

Plant trees; greenscape Downtown.

Improve gateways.

Conduct urban design inventory.

Make the economic argument for aestheticimprovement.

Measures of Success

Change in Number of Code Violations Issuedin Downtown

Increase in the Number of Urban FriendlyTrees Downtown

Increase in the Number of Parking Lots thatare Adequately Screened and Landscaped

Number of Restored Storefronts/Buildings

Decrease in the Percentage of DowntownCovered by Surface Parking

Increase in the Percentage of DowntownCovered by Greenscape

Increase in the Percentage of Streets Adequatelyand Properly Signed According to Standards


86 The Work Plan

Work to Date• Capital Projects Completed

– Improved lighting on Main Street– Washington street trees

Part of good urban design is taking full advantage of the important vistas our street plan and relation to water afford. This image illustrates some of the potential of the Erie Street Vista.(Source: UB’s School of Architecture and Planning Urban Design Studio, 2003)

• Capital Projects Under Development– Buffalo Place gateway project– Chippewa Street improvements

URBAN DESIGN AND MANAGEMENT IN BRIEF


The Work Plan 87

PreservationDowntownIt will be a great Downtown when…

• there is consensus that preservinghistorically significant buildings, spacesand districts is an important componentof redevelopment.

• preservation is understood as essential toeconomic development and sustainability.

• preservation is balanced with demolitionand new construction according toenforced procedures.

• all developments incorporate respect for our history.

PurposeThe work plan goals are to: 1) establish apractical and powerful system for protectingand rehabilitating historic structures, districtsand related neighborhoods and 2) developan appreciation of historic preservation as a tool in Buffalo’s economic and cultural development.

Problem StatementThe problem with historic preservationDowntown is best described in terms of the opportunity. Buffalo, and especiallyDowntown, delivers a history of Americanarchitecture to all who would visit, whethertourists, workers, or residents of the region. The resources beg for protection,interpretation, marketing, and creative but viable economic use.

There is an unfortunate history of significantbuilding demolition based on a failure of theadvocacy organizations, property owners,and governmental officials to see and realizethe economic opportunity. There is nosystematic inventory of historic structuresexcept for those with formal designation.There is limited venture capital, foundationfunding and public money available forrestoration or reuse activity.

The Mansion on Delawarerepresents a recent victory

for preservation.(Source: The Urban Design Project)

Shelton Square at the turn of the century shows the relationship between Church and Erie Streets related to Main Street.(Source: The Library of Congress)


88 The Work Plan

• Other resources in the 700 and 800 blockof Main Street relate to the TheatreDistrict and Allentown historic districtdesignations linking Downtown to theBuffalo Niagara Medical Campus. Afteryears of neglect by private owners, theyare now being considered for appropriateredevelopment, yet they are still at risk for developer-supported demolition.

• Another preservation and historicinterpretation opportunity lies in the Erie Canal Harbor and Waterfront Districtwhere resources like the western gatewayof the Erie Canal, the Commercial Slipand Central Wharf, the CobblestoneHistoric District, the USS The Sullivans, theEdward M. Cotter fire boat, and severalhistorically significant grain elevators.

• Additional work is underway to create a Michigan Avenue Historic Area relatedto the resources like the Michigan AvenueBaptist Church, the Jesse Nash House,and the Colored Musicians Club.

In addition, there is a weak framework ofpolicies and educational tools in place thatwould relate the historic resources to otherdevelopment priorities using each to supportthe other. Restoring individual propertiesshould spur investment in neighboringproperties. Capital projects for historicstructures that ignore long term structuralviability and maintenance are flawed. Thereis no program devoted to mandating howbuildings should be stabilized to preventdeterioration while they await viable useproposals. Current lack of inventory analysisand enforcement of standards results inuncertainty for developers and preservationists.

Current StatusThe history of Buffalo and Western New Yorkis, perhaps, best expressed through DowntownBuffalo’s stock of historic buildings.

• There are four historic districts in theDowntown area but they are constantly at risk of losing the resources that led to their designation.

• Several key historic properties have been saved from the wrecking ball orhistorically inappropriate developmentand form the nucleus of Downtownrevitalization in several of the strategicinvestment areas. For example, The Shea’sBuffalo Theatre and the Market Arcade in the Theatre District; the GuarantyBuilding, McKinley Monument, the M&TBank Gold Dome and the Old CountyHall, in the Government Center andFinancial District; and the old U.S. PostOffice (now Erie Community College)anchoring the newly developingEducation and Public Safety Campus.

A number of serious challenges topreservation exist Downtown. The Schmidt’s

Garage property (top) and the VernorBuilding (bottom) on the 700 Block of Main

Street, for example, are contributingbuildings to the historic district, but years of

neglect make them vulnerable. Even so,planning continues to discover ways to

preserve important elements of the structuresas part of the 700 block renewal. (Source: The

Urban Design Project)

Another challenge being confronted is theErie Canal Harbor and Waterfront District.

Current thinking on the master plan forinterpretation is to recognize the range ofhistory on the site from the pre-canal era

through the heyday of the Erie Canal and therailroad era that followed.

(Source: The Urban Design Project Archives,German Post Card Image, undated)

The proposed elevation for Michigan Avenue illustrates a creativeinterpretation of the lost building fabric on the Avenue without

actually replacing in kind. The approach holds the street edge andinvites the visitor into an interior court.

(Source: Hamilton Houston Lownie, Architects, PC)


The Work Plan 89

Current organizational work builds on the recently completed National Trust forHistoric Preservation Pittsburgh Exchangetrip facilitated by the Landmark Society ofthe Niagara Frontier. That trip resulted inthree core recommendations that are indifferent stages of development:

• The development of a land and buildingmanagement strategy to improve theequity and efficiency of the City’sapproach to such management.

Master Plan concept for the proposed Michigan Avenue Historic District. (Source: Courtesy of the Hamilton Houston Lownie, Architects, PC)

Sometimes history is made in humble places like the Jesse Nash house within the Michigan Avenue historic area.(Source: Courtesy of the Hamilton Houston Lownie, Architects, PC)

Rev. Jesse Nash House36 Nash StreetRestored View Hamilton Houston Lownie Architects


90 The Work Plan

It is important to place historicpreservation projects in the

context of larger communitypreservation and rehabilitation

efforts. The diagram aboveindicates a number of projects

in different stages ofdevelopment that will help

revitalize communities alongMichigan Avenue from North

Street in the Buffalo NiagaraMedical Campus all the way tothe Buffalo River. (Source: The

Urban Design Project)

• A preservation plan effort under theauspices of the City Preservation Board.This effort, also facilitated by theLandmark Society of the Niagara Frontier,will work with a full complement ofpreservation advocates to achieve aconsensus vision, review and prioritizehistoric resources, and review andimprove municipal procedures based onanalysis of recent successes and failures.

• Development of a strategic investmentfund devoted to the creating the financialbase to implement the preservation vision.

Strategies• Engage the full complement of

community based organizations, privatedevelopers, foundations, financialinstitutions, and governmental agencies in the preservation enterprise.

• Do the necessary inventory, emergencystabilization, and policy work to assurethe vitality of historic resources. If done,surrounding communities will makeincreasingly larger contributions to the quality of life Downtown.

• Develop and implement the city-wide“community preservation“ program currentlyunderway with the Preservation Board.

T H E M I C H I G A N A V E N U E C O R R I D O R


The Work Plan 91

PRESERVATION DOWNTOWN SNAPSHOT: DOWNTOWN TREASURES…

Name Address Local National National NationalLandmark Register Register Register

Eligible Listed Landmark

Ashbury Methodist Church 80 W. Tupper x

Ashbury Methodist Church 80 W. Tupper Street x

Brisbane Building 395 Main Street x

Calumet Building 46-58 W. Chippewa Street x

City Hall 65 Niagara Square x

Colored Musicians Club 145 Broadway Street x

The Diocese of Buffalo 795 Main Street x

Dun Building 110 Pearl Street x

Durham Memorial AME Zion Church 174 East Eagle Street x

Erie Community College 121 Ellicott Street x

– City Campus

Edward M Cotter (Fireboat) Michigan Street Lift Bridge x

Greystone Building 24 Johnson Park x

J.A. Webb Company 92 Pearl Street x

L L Berger Department Store 500-520 Main Street x

Lafayette Hotel 391 Washington Street x x

Liberty Building 416 Main Street x

M & T Bank (Gold Dome) 1 Genesee Street x x

M. Wile and Company 77 Goodell Street x

Factory Building

Macedonia Baptist Church 511 Michigan Avenue x

Market Arcade Building 615 Main Street x

McKinley Monument Niagara Square x x

Niagara Mohawk Building 20 Huron Street x

Old County Hall 95 Franklin Street x x

Prudential Building 28 Church Street x x

Shea's Buffalo Theater 642 Main Street x

Soldiers and Sailors Monument 415 Main Street x x

St. Joseph’s Old Cathedral 50 Franklin Street x

St. Louis Roman Catholic Church 780 Main Street x

St. Paul’s Episcopal Church 128 Pearl Street x x

Trinity Episcopal Church 371 Delaware Avenue x

USS The Sullivans (Destroyer) 1 Naval Park Cove x x

Young Men’s Christian Association 45 W Mohawk Street x

– Central Building


92 The Work Plan

Local Landmarks

National Register Eligible

National Register Landmark

National Register Listed

Downtown Historic Districts

Historic Districts

Allentown

Theatre

West Village

Ellicott

Cobblestone

Location map of historic properties Downtown. (Source: The Urban Design Project with data from the Buffalo Preservation Board)

A

T

W

E

C

A

T

W

E

C


The Work Plan 93

• Develop guidelines for buildingdemolition when that is the onlyremaining choice, saving facadeswhenever possible.

Medium Term Action (1 to 3 years)• Work to infill historic districts

in Downtown with compatibledevelopments, with a focus on usingsurface parking lots as building sites.

• Work with existing advocacyorganizations, financial institutions andfoundations to establish a consolidatedapproach to financing the adaptive reuse of historically significant buildingsand spaces.

• Conclude work on the CitywidePreservation Plan.

Long Term Action (3 to 5 years)• Create a financially viable Historic

Buffalo Foundation charged with theacquisition and rehabilitation of structuresidentified as important to Buffalo’s history.

Action Items

Short Term Actions (6 months to 1 year)• Take full advantage of the National

Trust Historic Exchange program toframe a preservation agenda for the cityand outline implementation procedures.Recently, representatives from the City of Buffalo visited Pittsburgh, PA toobserve current historic preservationpractices. This type of activity increasesawareness of opportunities and resourcesto facilitate historic preservation, andshould occur regularly.

• Initiate a comprehensive inventoryof the condition, ownership, and potentialof historic structures throughout the city,starting with Downtown. Fist phases ofthis work are currently under contract to the City of Buffalo’s Office of Strategic Planning.

• Develop an emergency stabilizationplan for historic structures that are inimmediate danger of structural damage.

The Lafayette Hotel is a Local Landmark and is National Register Eligible. (Source: The Urban Design Project)


94 The Work Plan

Work to Date• Capital Projects Completed (recent)

– The Mansion– The Bellasara– M. Wile – Century Centre II– The Stokes Seed Building

• Capital Projects under Development– Erie Canal Harbor– Old County Court House renovation– Asbury Methodist Church– The Greystone– Trico – Century Centre I– The Sidway Building– The Guaranty Building

The photo above is Buffalo in 1853 illustrating the historic importance of Main Street and the location of the CentralWharf to its immediate left. The wharf, in turn, borders on the Commercial Slip, the western gateway to the Erie Canal.The new Erie Canal Harbor master plan seeks ways to interpret this historical condition even as it prepares Downtown

for a viable 21st century program of activities on the waterfront.(Source: Courtesy of Mr. Henry Baxter as published in A Canal Conversation, 2001)

Preservation draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)

PRESERVATION IN BRIEF

Measures of Success

Number of historic structures preserved for active re-uses

Clear and enforced design standards for historic districts

Clear and enforced policy on neighborhooddevelopment abutting historic properties and districts

Top Rules for Preservation Action Plan

Do not tear down historic structures.

Establish coordinated public/private sectorplan for historic properties and districts.

Fabric, not just historically significantbuildings, is important.

Make the economic case for preservation and “take it to the bank.“

Create a financing capacity for renovation in collaboration with an alliance ofpreservation organizations and foundations.

Continue to refine changes to building codes to promote preservation.


The Work Plan 95

Energy and GreenDesign DowntownIt will be a great Downtown when…

• increased usage of energy-efficiency and green design strategies reduces the use of energy in Downtown Buffalo.

• the ecology of Downtown is sustainable.

• the quality of life is improved throughbetter environmental practices.

• the importance of this issue is understoodand accepted as general practice.

The work plan goals are: 1) to increaseawareness and encourage the utilization of the best available energy efficient and environmentally sustainable practices,and 2) to emphasize the substantialeconomic and environmental advantages of employing green design practices, with a primary focus on reducing operating costsand improving amenities which increases the competitive demand for space.

The and density of the Downtown core invites exploration of shared energy infrastructure including the potential for district heating.(Source: City of Buffalo)

The strategies are primarily tied toeducational programming and new policies to increase attention to therelationships among energy, environmentand economic development.

Problem StatementOne of several obstacles to businessretention and new business recruiting in Downtown is the high cost of energycompared to competing regions. In addition,local government facilities and operationalpractices do not take advantage of eitherimmediate or longer-term potentials to save energy and thus reduce the cost ofenergy used.

Environmental quality is closely related to both the costs of energy and the qualityof life Downtown. There is no organizationalprocess that integrates the energy, environ-mental and community (quality of life) concerns necessary to assure asustainable Downtown.


96 The Work Plan

Current Status Energy is an important part of the history of Buffalo and Western New York.Beginning over 100 years ago when electricpower was harnessed from Niagara Falls to the current discussions of developing new sources of energy from Lake Erie winds,the ability to produce energy has helped to define our region and economic viability.The importance of electrical energy toWestern New York is reemerging as acentral issue, as power becomes moreexpensive and its availability becomes moreproblematic. Currently, New York Stateimports in excess of 90 percent of its energyneeds. A decreased reliance on energyimports translates directly to greater localeconomic activity and wealth.

The positive economic impacts of anincreased focus on energy efficiency andgreen design are real. At a micro level,improving energy efficiencies leads tosignificantly higher rental margins and

The 1901 Pan American Exposition described Buffalo as the “City of Light.”It was a celebration of energy creation and consumption. The Buffalo of the

21st century could be described as a leader in energy conservation.(Source: Buffalo and Erie County Historical Society)

results in substantially lower annualmaintenance expenditures. The marketingand public relations benefits of promotingourselves as “green“ are incalculable. At amacro level, the environmental benefits willbe felt for many years.

New York State Energy and ResearchDevelopment Authority (NYSERDA) can playa significant role in advancing a Downtownenergy and green design program.NYSERDA recently opened a regional officein the Market Arcade Complex and at theurging of Erie County has designated MainStreet in Downtown Buffalo as a RebuildNew York Community Energy Target Zone.Other significant participants include the U.S. Department of Energy, the U.S.Environmental Protection Agency, the New York Power Authority, and theUniversity at Buffalo Green Office andSchool of Architecture and Planning.


The Work Plan 97

Strategies• Inform policy makers of the relationship

between economic and environmentalconcerns.

• Focus on comprehensive environmentalapproaches to Downtown developmentand management. A comprehensiveenergy efficiency and green design policywill require a blend of economics,environmental design and active publicand private partnerships.

• Leverage NYSERDA’s interest in support of the acquisition of energy related grantresources to enhance proposed office,residential development andtransportation projects.

• Energy conservation and efficiency willhave modest short-term and dramaticlong-term effects on Downtown – some of these effects will be felt years into the future.

Locally, Erie County government is takingthe lead in actively promoting energyefficiency and incorporating green designand construction practices into many of itsfacilities including the newly completedFamily Courthouse and the Youth DetentionCenter. The County has committed bothstaff and resources towards increasing theawareness and implementation of thisimportant strategy. Niagara Mohawk andNational Fuel are also important corporateparticipants in this effort.

Adding to this is Governor Pataki’s ExecutiveOrder Number 111 that mandates improvedenergy efficiency in existing state ownedand occupied buildings, green designstandards for new construction, andincreased reliance on alternative sources of power for all state agencies. The impactof this order is considerable, as it will havefar-reaching effects on properties that NewYork State leases. State agencies occupynumerous offices Downtown and areexpected to increase occupancy over time.

Alternative and conventional energy resources all benefit from energy conservation measures. Downtownbecomes a more competitive destination in which to do business as energy costs are minimized.



98 The Work Plan

The Fleet Bank Building in Fountain Plazapays special attention to daylighting and

energy conservation, earning Cannon Designnational recognition in energy efficient

design. (Source: Owens Corning DesignAwards Program, 1981)

ENERGY AND GREEN DESIGN SNAPSHOT:

Because this principle has not been part of significant Downtown planning for decades, a brief review of available technologies and organizational strategies follows:

WHAT IS…?

Bio-diesel: A renewable, biodegradable fuel that can be made from any fat or vegetableoil. It can be used in any diesel engine with few or no modifications and can be blendedwith diesel at any level or used in its pure form.

Bio-mass: a renewable energy source composed of materials such as sawdust, treetrimmings, rice straw, alfalfa and switchgrass, animal wastes, industrial waste, and thepaper component of municipal solid waste.

Clean Power: Energy produced from renewable sources such as wind, solar, biomass,geothermal, hydropower, and ocean energy

Cogeneration: The simultaneous production of heat and power in a single thermodynamic process.

Commissioning: An analysis performed in new and existing buildings to ensure thatheating, ventilating, air-conditioning, lighting, and other building systems perform optimallyaccording to design intent and owner needs.

District Heating: District heating systems distribute steam or hot water to multiplebuildings. The heat can be provided from a variety of sources, including geothermal,cogeneration plants, waste heat from industry, and purpose-built heating plants.

Energy Star: A program of the Environmental Protection Agency that helps businesses and consumers identify and utilize programs, appliances, and systems that can reduceenergy costs.

Energy Target Zone: A joint program between NYSERDA, Rebuild America and theWestern New York Energy $mart Communities partnership. The goal of the program is to increase awareness of energy efficiency and conservation programs and to work with developers to increase energy efficiency in both rehab and new-buildings inDowntown Buffalo.

Green Gold: A strategy developed by the City of Buffalo designed to attract and promotecompanies that offer environmental services.

LEED: Leadership in Energy and Environmental Design. A performance based buildingrating system designed by the U.S. Green Building Council designed to promote better use of green and sustainable strategies in building construction and renovation.

NYSERDA: The New York State Energy Research and Development Authority (NYSERDA) is a public benefit corporation created in 1975 by the New York State Legislature. NYSERDAderives its basic research revenues from an assessment on the intrastate sales of New YorkState's investor-owned electric and gas utilities, and voluntary annual contributions by the New York Power Authority and the Long Island Power Authority.

Rebuild America: A program of the U.S. Department of Energy. The goal of the partnershipis to utilize renewable and energy-efficient technologies to preserve and improve structures,attract and retain businesses, improve residential affordability, and educate communitiesthroughout the region by demonstrating the numerous benefits of energy efficiency.


The Work Plan 99

Short Term Analysis (6 months to 1 year)• Research “Energy Star“ equipment

bulk buying program. The cost ofupgrading office equipment can beprohibitive to small businesses. Partneringwith larger companies through a bulk-buying program can reduce unit costs and increase use of Energy Star and otherefficient products.

• Determine impact of GovernorPataki’s Executive Order Number 111on state-occupied and state ownedbuildings and begin developing animplementation plan.

• Research and develop a baseline data set of energy use to measurefuture progress.

Short Term Implementation (6 months to 1 year)• Organize an Energy/Green Design

Task group (multi-disciplinary with apoint-person) to develop and monitorimplementation of a full-scale energypolicy for Downtown and the City ofBuffalo. Rely on work done in other cities(Portland, Berkeley, etc).

• Create an Energy Office within theCity of Buffalo to help coordinate andfacilitate internal and external initiatives.Consider asking one of the energycompanies to loan an executive on a short-term basis.

• Set up pilot recycling stations on Main Street to determine effectiveness.

• Develop an energy efficiencyimprovement guide for Downtownsimilar to the UB Campus Ecology/GreenComputing Guides. These guides offersuggestions ranging from equipmentpurchasing to reducing paper waste and conserving energy.

Action Items

Short Term Policy (6 months to 1 year)• Require the use of energy efficiencies

and green design standards in projectsseeking public subsidy.

• Encourage all new construction ormajor building renovations to adoptLEED or similar green building design standards.

• Encourage local government to adoptLEED or similar green building designstandard for owned and leased spaces.

• Promote awareness and better use ofgreen space within buildings. Goodday lighting, use of plants and otherimprovements to the atmosphere improveproductivity and employee satisfaction.

• Set energy improvement goals forDowntown. Improve efficiencies byadopting a percent reduction goal, e.g.reduce aggregate energy usage by 20percent over the next five years as measuredby BTU per kilowatt-hour per square foot.

• Support efforts to determine thefeasibility of developing alternativesources of power, such as an urbanwind farm and/or distributive co-generation/district-heating program,through marketing, education andappropriate land use planning.

Existing ProtectedGreen Infrastructure

Existing Non-ProtectedGreen Infrastructure

PotentialGreen Infrastructure

2002: THE GREEN INFRASTRUCTURE OF THE DOWNTOWN BUFFALO AREA

Any green design strategy must include the wise use of public outdoor spaces and landscape to help moderate wind and dissipate heat islands in urban spaces.

(Source: The Urban Design Project and the Friends of the Buffalo and Niagara Rivers)


100 The Work Plan

Medium Term Implementation (1 to 3 years)• Develop an “Energy Usage/Green

Practice Audit“ for Downtownbuildings and businesses to examinerecycling, Energy Star usage, writtenpolicies, waste reduction, energyconservation, buying recycled products,etc. Identify one or two smaller entitiesthat can serve as a pilot program.

• Develop a district-wide multi-material(computers, paper, constructiondebris, etc.) recycling programorganized by a neutral agency. Seek in-kind donations from energy providers andcorporations (e.g. trucks, manpower, etc).

• Encourage commissioning, re-commissioning, and improvementsto buildings. Market this as preparationfor conversion to alternative energy systems.

• Continue annual Energy and theEnvironment education workshopsfor property owners and developers. Use local results to highlight benefits.

Long Term Implementation (3 to 5 years)• Construction and implementation of

alternative sources of power to serveDowntown such as a district heatingsystem and/or an urban wind farm.

• Conduct Downtown-wideEnergy/Green Practice Audit andestablish schedule for follow up.

• Encourage all commercial andresidential property owners toconduct NYSERDA Flex-Tech orsimilarly approved building energyaudits. Set an initial goal of ten buildingsper year.

• Enroll building owners in the RebuildAmerica Energy Target Zone project to obtain better access to energy-efficiency resources.

• Hold a series of Energy and theEnvironment education workshopsover the next year for property owners,property managers, developers and tenants.

• Tap into Green Gold Initiative toidentify companies or agencies that can provide environmental services to Downtown property owners and businesses.

Medium Term Policy (1 to 3 years)• Consider allowing greater code

variances when systems that are moreefficient are installed.

• Encourage one major new buildingand one major redevelopment of a model green building in theDowntown area. Allow local architects,property owners and developers to reviewthe process to increase awareness.

Medium Term Analysis (1 to 3 years)• Explore using permeable parking lot

surfaces to improve storm waterdrainage and reduce runoff.

• Analyze the use of photovoltaics(solar panels) on Downtown rooftopsand parking structures to provideadditional sources of alternative energy.


The Work Plan 101

The energy and Green Design draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)Chart continued on page 102.

ENERGY AND GREEN DESIGN IN BRIEF

Measures of Success

Percentage of buildings that have madeimprovements (scaled ranking)

Total value of grant money issues byNYSERDA, DOE and other agencies

Measures of kWh, BTU’s used

Number of buildings incorporating green design and higher LEED ratings (e.g. Bronze to Gold)

Value of energy saved

Cost/benefit ratio

Dollars spent vs. energy saved

Improved emissions standards

Use of distributive/renewable generation

Number of alternative fuel vehicles employed

Reduction of energy use in select or all buildings (BTU per square foot)

Work to Date

• Legislative / Policy Under Development

– NYS Draft Energy Plan

• Planning / Organizational Completed

– NYSERDA Promotional Materials

– LEED Green Building Rating SystemVersion 2.0

– Think Green: a UB guide to campus ecology

– The University at Buffalo’s GreenComputing Guide


102 The Work Plan

Continued from page 101.


The Work Plan 103

Problem StatementDowntown has a negative public image that is no longer an accurate reflection of its health and potential. The reality is thatDowntown remains the economic core andcultural heart of the region. Yet perceptionsof crime, the high cost of parking, and thelack of activity are pervasive even as crime is no longer a serious problem, parking iseasier to manage than ever before, andsignificant new venues deliver over 7 millionvisitors to Downtown every year.

The perception is that “nothing ishappening Downtown,“ but the reality isthat Downtown has had significant levels of reinvestment, is increasingly vibrant, andalready deserves a far better reputation thanit enjoys. Even so, the history of announcedprojects that did not occur has created aclimate of skepticism.

The work in progress in The Queen City Hubshould alter the reality even more to thepositive and the image needs to improve inlike fashion. There is a lack of understandingabout who is marketing Downtown, atwhat level and for what purpose.

Current Status • As Western New York gains a better

understanding of its interdependence, italso gains a better sense of the need forcooperation. At a macro level, this hasbeen expressed through the creation ofthe Buffalo Niagara Enterprise.

Image of DowntownIt will be a great Downtown when…

• the mention of Downtown elicits theresponse “I love Downtown!“

• accurate, objective reporting clearlyidentifies Downtown as a prosperous,clean, safe, friendly place to live, workand play.

• Downtown is for everyone and thatdiversity is understood as essential toeconomic vitality and quality of life.

The work plan goal is to create an imageof Downtown consistent with the vision of The Queen City Hub plan. DowntownBuffalo should be understood to be a clean,safe, friendly place in which it is great tolive, work and play. The strategies includecoordinating marketing activities, celebratingcurrent success and promoting realisticpotential. The strategies also includeprogramming to educate media, communitybased organizations, and businesses onDowntown’s role in the region and in the city.

Imagine Downtown as a place that is supported by and supports solid neighborhoods and a great waterfront.(Source: Buffalo Economic Renaissance Corporation)

Imagine Downtown as a placewhere the details matter.

(Source: Architectural Detail fromthe Erie Community College/Old

Post Office, Buffalo EconomicRenaissance Corporation)

Imagine Downtown as on the waterfront.(Source: The Urban Design Project)


104 The Work Plan

StrategiesDevelop a fully coordinated image campaignbased on creating:

• An inventory of current marketing efforts

• A benchmark survey of current attitudesabout Downtown

• A program to manage communicationson The Queen City Hub implementationprogram

• A case for marketing Downtown and seeking funding support

• Training for local leadership in both the business and government sectors to ensure a broad cross section ofrepresentatives speaking clearly andpositively about Downtown

• Make the plan the basis for a full imagecampaign branding Downtown as thehub of the region

Action Items

Short Term Analysis (6 months to 1 year)• Examine current marketing inventory.

Determine what organizations advertiseevents, destinations or products inDowntown. Examine the budget spent,target audience and method ofadvertising. Look for overlap andopportunities for collaboration.

• Conduct an attitudinal study. There is subjective evidence that Downtown has an image problem. However, therehas not been detailed research into thevalidity of this claim. A study thatexamines perceptions of users and non-users of Downtown will help identifyproblems. A survey of Western New Yorkand Southern Ontario residents isrecommended to determine if weunderstand the image correctly.

Imagine Downtown as up to thechallenge of restoring historic structures

in a way that contributes to the quality oflife and economic stability of the region.


Imagine Downtown as a place of “greatstreets” and as a great place to play.


Imagine great architecture in the past challenged by even greaterarchitecture in the future. (Source: The Urban Design Project)

Imagine Downtown as a great place to live.(Source: The Urban Design Project)

Short Term Implementation (6 months to 1 year)• Develop an approach to managing

communications on the details ofQueen City Hub implementation.Manage expectations and realisticallyproject potential. There needs to be an active publicity campaign to inform the public about the status of initiativesand projects.

Medium Term Policy (1 to 3 years)• Showcase success stories and

challenges Downtown in an annualaccounting of progress on planimplementation for broad distribution.


The Work Plan 105

Imagine Downtown as a regional center where residents, employees and visitors live, work and play. Imagine it as a Downtown for everyone.(Source: The Urban Design Project)

V I S I O N


106 The Work Plan

Image draft tasks, participants and schedule. (Source: Downtown Buffalo 2002!)

Medium Term Implementation (1 to 3 years)• Institute training/capacity building

for local leaders to better work with the media.

• Formalize an Image Campaign that will:– Convene groups that market

Downtown.– Approach businesses, foundations

and others for donations.– Create an umbrella organization to

design and implement the campaign.– Focus on local audiences, Downtown

users, children and others.

Long Term Analysis (3 to 5 years)• Conduct follow-up on the attitudinal

benchmark study. The intent of thefollow-up is to help measure progress on local and regional attitudes aboutDowntown and to adjust the imageprogram based on data.

Long Term Implementation (3 to 5 years)• Promote the successful progress in

Downtown growing out of theimplementation of the strategic plan.

IMAGE IN BRIEF

Measures of success

Improved results from attitudinal survey

Revised inventory of marketing products that are more effective and comprehensive in promoting Downtown assets


References 107

References

The following list of reports has formed the base for The Queen City Hub. The plan has grown out of work implementing the Downtown Buffalo Strategic Plan produced by Hamilton Houston Lownie Architects PC, Wallace Roberts & Todd, Hammer Siler George Associates (1999) for the City of Buffalo. That plan is available on the web atwww.downtownbuffalo2002.org. In April of 2002, a revised draft plan was issued forcomment with an interim report. Results from the comment period were published in the Fall 2002 Downtown Buffalo 2002! newsletter. Additional comments were acquired throughDecember from participants in the Implementation Council. Survey results from both a paper and web based survey on priorities and invitations for comment continued to informThe Queen City Hub through May of 2003.

American Institute of Architects. 2001. A Blueprint for Living in a Downtown: Buffalo R/UDAT (See www.buffalorudat.org ).

American Institute of Architects. 2001. NYS Proposed Tax Exemption for Residential – Commercial Reuse.

Bergmann Associates. 2002. Route 33 – Kensington Expressway Safety Study Report for the Greater Buffalo Niagara Regional Transportation Council and the New York StateDepartment of Transportation.

Buffalo Economic Renaissance Corporation. 1999. Byte Belt.

Buffalo Economic Renaissance Corporation. 2001. One-on-One Retention Program.

Buffalo Economic Renaissance Corporation. 2001. Extension of Empire Zone Credits to Residential Mixed Use.

Buffalo Economic Renaissance Corporation. 2001. Empire Zone.

Buffalo Niagara Partnership. 2001-2003. Buffalo Niagara Now Initiative.

Buffalo Place. Inc. 2002. Vacancy Analysis.

Buffalo Place Inc. 2001. Downtown Housing Marketing Packet.

Buffalo Place Inc. 2001. Downtown Buffalo Business and Employment Trends.

Buffalo Place Inc. City of Buffalo. Greater Buffalo-Niagara Regional Transportation Council. Niagara Frontier Transportation Committee. 2001. Cars Sharing Main Street; a Staff Analysis.

Buffalo Place, Inc. 2001. 2000 Pedestrian Study.

Buffalo Place. Inc., Buffalo-Niagara Enterprise, the Buffalo Economic Renaissance Corporation, City of Buffalo Office of Strategic Planning, County of Erie. 1999. The Retail Opportunity in Downtown, Buffalo NY.

Buffalo Place, Inc. 1998. Downtown Buffalo Business and Employment Trends.


108 References

References (continued)

CB Richard Ellis. 2000. Western New York Office Market Review.

Calumet Institute. 1999. The Strategic Plan for Downtown Buffalo: a response and critique.

Chan Krieger & Associates. 2002. Buffalo Niagara Medical Campus Master Plan.(Prepared for the Buffalo Niagara Medical Campus).

City of Buffalo. 2001. Inventory and Analysis of Office Space in the City of Buffalo Central Business District from 1982 through 2000. (Prepared by the Office of Strategic Planning).

City of Buffalo. 1998. Empowerment Zone Application.(Prepared with The Urban Design Project, University at Buffalo).

City of Buffalo. 2001. Acquisition and RFP for the 800 Block of Main Street.

City of Buffalo. 2002. 700 Block Urban Renewal Plan.

City of Buffalo and Buffalo Niagara Partnership. 2001. City of Buffalo Permitting Reform.

City of Buffalo Division of Traffic Engineering. 2001-2002. Street Circulation Revision Plans.

City of Buffalo, City of Lackawanna and Fannie Mae. 2002. Renewal Community Designation.

Erdman Anthony. 2000. Feasibility Study for Accommodating Motor Vehicles within the PedestrianMall on Main Street. (Prepared for Greater Buffalo-Niagara Regional Transportation Council).

D.K. Shifflet & Associates Ltd. 2000. Top Line Overnight Leisure Travel Profile.(Prepared for Greater Buffalo Convention & Visitors Bureau).

Danter Company, The. 1998. A Downtown Multifamily housing Analysis in the City of Buffalo, New York. (Prepared for Heart of the City Neighborhoods).

Dennison Associates. 2001. City of Buffalo Housing Study. (Prepared for City of Buffalo, Office of Strategic Planning).

Desman Associate with Economic Research Associates. 2000. Destination Downtown Buffalo 2002: A Roadmap for an Accessible Community.

Downtown Buffalo Parking Infrastructure Task Force. 2000. Destination Downtown Buffalo 2002: A Roadmap for an Accessible Community.

Downtown Buffalo 2002! 1999-2003. www.downtownbuffalo2002.org including:

Downtown Buffalo 2002! 2000. Downtown Buffalo Strategic Plan Review.

Downtown Buffalo 2002! 1999-2002. Downtown Buffalo 2002! Newsletters (three volumes, seven issues).

Downtown Buffalo 2002! 2002 Buffalo Responds to the R/UDAT.


References 109


Duchscherer Oberst Design PC with Clough, Harbour & Associates, Edwards and Kelcey and Gruzen Samton. 1997. Buffalo Intermodal Transportation Center – Feasibility Study.(Prepared for City of Buffalo Department of Community Development).

Ecology and Environment, Inc. 2002. Draft Environmental Impact Statement for the Proposed New Buffalo Convention Center. (Prepared for Erie County Department of Environment and Planning).

Environmental Resource Management, with Erdman Anthony and KLD Associates. 2002. City of Buffalo Main Street Multi-Modal Access and Revitalization Project. Final EIS for City of Buffalo, NFTA, Erie County, Buffalo Place Inc. and New York State DOT.

Erie Canal Harbor Project. 2003. Supplemental Draft Environment Impact Statement Erie Canal Harbor Project Final Scoping Report.

Focused Marketing Associates. 2001. Taste of Buffalo Economic Impact Study. (Prepared for Taste of Buffalo).

Focused Marketing Associates. 1997, 2000. Thursday at the Square Marketing Study. (Prepared for Buffalo Place Inc.).

Greater Buffalo Convention and Visitors Bureau. 1997. Convention Center Feasibility Study.

Greater Buffalo-Niagara Regional Transportation Council. 2001. 2025 Long Range Plan for Erie and Niagara County.

Greater Buffalo-Niagara Regional Transportation Council and Buffalo Place Inc. 1998. 1998 Downtown Employee Survey.

Hamilton Houston Lownie Architects PC, Wallace Roberts & Todd, Hammer Siler George Associates. 1999. Strategic Plan for Downtown Buffalo. (Prepared for City of BuffaloDepartment of Community Development).

Hoyt, Sam, Assemblyman. 2001. Proposed Historic Tax Credit Legislation.

Jambhekar Strauss Architects PC (now part of Fox Fowle) with Flynn Battaglia Architects PC and Mathews Nielsen Landscape Architecture PC. 1999. The Buffalo Inner Harbor ProjectMaster Plan.

KPMG. 2002. Report to the Buffalo Niagara Enterprise: Buffalo Niagara Economic Development Agencies Performance Audit.

Jackson, Bruce interviewing Mark Mendell, 2001, Blue Dog Press, “Building Buffalo.“ 5: 42. http://csac.buffalo.edu/buildingbuffalo1.html

Militello, Jim. 2001. The Downtown Buffalo Office Market.

New Buffalo Convention Center Site Selection Study. 1998. Convention Center Site Selection Study. (Prepared for Erie County Department of Environment and Planning).


110 References


New York Department of State. 2003. Building Code of New York State, effective January 1.

New York State Energy Planning Board. 2001. New York State Draft Energy Plan.

New York State Energy Research Development Authority. Various dated. NYSERDA Promotional Materials.

Niagara Frontier Transportation Committee. 1997. Phase 2 Economic/Demographic Overview Study Final Report September 1997.

Parsons Brinckerhoff. 2001. NFTA Strategic Transit Assessment.

Pollack D., Linda. 1998. The Burchfield Quarter. Strategic Initiatives, LLC.

Shibley, Robert and Bradshaw Hovey, Ed; Urban Design Project, University at Buffalo. 2001. A Canal Conversation: A community forum on Buffalo’s Inner Harbor development and the Erie Canal, Kevin P. Gaughan Founder and Chairman published in collaboration withThe National Trust for Historic Preservation.

Shibley, Robert and Bradshaw Hovey, Ed; Urban Design Project. 2001. A New Convention Center for Buffalo: Whether? Where? How? – A roundtable discussion sponsored byWorking for Downtown.

Shibley, Robert and Bradshaw Hovey, Ed; Urban Design Project and the Waterfront Regeneration Trust. 2001. Re-Thinking the Niagara Frontier.

Shibley, Robert and Bradshaw Hovey, Ed: Urban Design Project, 2002. If Gambling Comes: The Location, Design and Management of Urban Casinos, 2002 – A rountable discussionsponsored by working for Downtown.

UB Green Office of University Facilities. 1999. Think Green: A UB guide to Campus Ecology. (Prepared for Think Green Campaign).

U.S. Green Building Council. 2000. Green Building Rating System Version 2.0.

U.S. Bureau of the Census. 2001. 2000 Census of Population.

U.S. Department of Transportation, UMTA. 1977. Buffalo Light Rail Rapid Transit Project, Project No. NY -03-0072.

Urban Design Project of The University at Buffalo and Buffalo Place Inc. 1993-2001. Downtown Buffalo Housing Sourcebook.

Quinn, Larry, Mark Mendell, Bill Greeley, Charles Gordon, Dean Gowen, Chris Guerra, Carl Paladino, Harry Warren, “Vision for Buffalo,“ 2001 unpublished but referenced in Blue Dog Press in an interview with Mark Mendell by Bruce Jacksonhttp://csac.buffalo.edu/buildingbuffalo1.html

Simpson, Walter, Energy Officer, University at Buffalo. (2000). The University at Buffalo’s Green Computing Guide.


Acknowledgements 111

Acknowledgements

Founding Members

The Downtown Buffalo 2002! Implementation Council These are the chief executives who have responsibility for the projects in the implementationcampaign. They met quarterly to assess progress and address obstacles to action under theleadership of Anthony M. Masiello, Mayor

Keith M Belanger, M & T Bank * Randall Benderson, Benderson Development Company � Anthony J Colucci III, Colucci & Gallaher PC � Brian C. Davis, Buffalo Common Council,Ellicott District � Albert DeBenedetti, Erie County Legislator, District 6 � Alan H. DeLisle,Buffalo Economic Renaissance Corporation � Bruce Fisher, Erie County Executive’s Office � Joel A. Giambra, Erie County Executive � Joseph N. Giambra, City of Buffalo Commissionerof Public Works � Eva M. Hassett, City of Buffalo, Commissioner of Administration & Finance� Luiz F. Kahl, NFTA, Board of Commissioners � Vincent J. Lovallo, City of Buffalo, Office of the Mayor � Steve McGarvey, Signature Management Group � Carl P. Paladino, EllicottDevelopment Co. � James W. Pitts, Buffalo Common Council � Lewis D. Rich, Empire StateDevelopment WNY Region � Laurence K. Rubin, Commissioner, Erie County Department of Environment & Planning � Joseph E. Ryan, City of Buffalo, Office of Strategic Planning.

The Action Team

The Action Team met monthly to advance projects and record learning from the experiencefor use in the revised strategy.

Brian C. Davis, Buffalo Common Council, Ellicott District � David Stebbins, Buffalo EconomicRenaissance Corp � Bruce Fisher, Erie County Executive’s Office � Richard Franco, BendersonDevelopment Company � Thomas Gallagher, City of Buffalo Board of Parking � Joe Giusiana,Signature Management at Century Centre II * Paul Gregory, Ellicott Development Co. � Bonnie Kane Lockwood, City of Buffalo, Office of Strategic Planning � Dan Kreuz, City of Buffalo, Department of Public Works, Park and Sanitation � Thomas A. Kucharski, BuffaloNiagara Enterprise � Richard Morrisroe, Heart of the City Neighborhoods, Inc. � Hal Morse,GBNRTC � Richard Ogorek, City of Buffalo � James W. Pitts, Buffalo Common Council � Laurence K. Rubin, Erie County Department of Environment & Planning � Michael T.Schmand, Buffalo Place Inc. � Leonard G. Sciolino, Parking Enforcement * W. Morgan Smith,Buffalo Place Inc. � Sean P. Spiesz, M & T Bank � Chuck Thomas, City of Buffalo, Office ofStrategic Planning � Craig W. Turner, Erie County Legislature, Majority/Republican Office � Walter D Zmuda, NFTA, Surface Transportation.


112 Acknowledgements

Acknowledgements(continued)

The Downtown Buffalo 2002!Project TeamRobert G. Shibley, AIA, AICP, Director

The City of Buffalo, Mayor’s Office ofStrategic Planning. Tim Wanamaker,Executive Director June 2003; Joseph Ryan,Executive Director; David Sengbusch, Acting Executive Director; Bonnie KaneLockwood, Downtown Buffalo 2002!Coordinator; Charles Thomas, AICP, DeputyDirector of Planning.

Buffalo Place Inc. Keith Belanger,Chairman; Michael T. Schmand, ExecutiveDirector; JoAnne E. Loughry, AICP, AssociateManager of Planning and DowntownBuffalo 2002! Project Manager; Debra L.Chernoff, Manager of Planning; NadineMarrero, Project Planner; Margaret Beardsley,Associate Director.

The Urban Design Project, School ofArchitecture and Planning, University atBuffalo, State University of New York.Robert G. Shibley, AIA, AICP, Director;Bradshaw Hovey, Ph. D., Associate Director;Jocelyn Dolby and Laura Scarisbrick, ProjectAssistants; the urban design, photography,graphics and web site team: Anirban Adhya,Rishawn Sonubi, Marie Carone, Amy Darin,Jessica Jamroz, Eric Shepherd, JustinSteinbach, Steven Watchorn, Kenneth Vail.

Focus Group Participants Sixty-five people worked with theDowntown Buffalo 2002! team in the initialframing of the work plan associated withboth the activities and principles of TheQueen City Hub. Their participation in focusgroup meetings and in plan review helpedto solidify the final planning framework.Many of these same participants worked todeliver the December 1999 and April 2002Downtown Summits which were used tohelp set priorities and review key features ofThe Queen City Hub vision and work plan.



Acknowledgements (continued)

Activity Focus GroupsLiving: Robert Bannister, Fannie Mae of Western New York � Michael Clark, Local InitiativesSupport Corporation � Kent Kleinman, University at Buffalo School of Architecture and Planning� Richard Morrisroe, Heart of the City Neighborhoods Inc. � Joseph E. Ryan, City of Buffalo � Brian Smith, Community Preservation Corporation � Gerald Strickland, American Institute ofArchitects / Buffalo RUDAT 2001 � Jenna Strazzulla, Heart of the City Neighborhoods Inc. � Fechner A. Stecker, City of Buffalo � Suzanne Taylor, New Millennium Group of WNY � PaulGregory, Ellicott Development � Bonnie Kane Lockwood, City of Buffalo � Jennifer Gorczynski,Buffalo Niagara Partnership � Fred Heinle, City of Buffalo � Danielle Paladino, Ellicott Development.

Working: Alan DeLisle, Buffalo Economic Renaissance Corporation � Matthew Enstice,Buffalo Niagara Medical Campus � David Gamble, Chan Krieger & Associates � RamonGarcia, Federal Reserve Bank of WNY � Thomas Kucharski, Buffalo Niagara Enterprise / ECIDA� James Militello, Militello Real Estate � Laurence K. Rubin, Erie County Department ofEnvironment and Planning � James Allen, AIDA/ECIDA � Jennifer Gorczynski, Buffalo NiagaraPartnership � Debra Chernoff, Buffalo Place Inc.

Visiting: Margaret Beardsley, Buffalo Place Inc. � Alan Dewart, Theatre District Association � Steven Joseph, Buffalo Place Inc. � David Lacki, Greater Buffalo Convention and VisitorBureau � Ken Neufeld, Studio Arena Theatre � Rick Serra, Theatre District Association � James Sandoro, Buffalo Transportation Museum � W. Morgan Smith, Buffalo Place Inc.

Shopping: Sam Gullo, Crinzo and Gullo Jewelers � Florine Luhr, Buffalo Niagara Enterprise � Joan Miller, Definitely Buffalo � Donna Gonser, Working For Downtown / Lumsden andMcCormick � Julie Salvo, Allee King Rosen & Fleming � Debra Chernoff, Buffalo Place Inc.

Principles Focus GroupsAccessing: Justin Booth, Wellness Institute � Thomas Gallagher, City of Buffalo Board ofParking � Paul Knab, New York State Department of Transportation � Timothy Trabold,Greater Buffalo Niagara Regional Transportation Council � Vito Sportelli, Niagara FrontierTransportation Authority � William Leslie, New York State Thruway Authority � DavidStebbins, Buffalo Economic Renaissance Corporation � Debra Chernoff, Buffalo Place Inc

Energy/Green DesignGlen Aichinger, Niagara Mohawk � Isabell S. Berger, Erie County Department of Environmentand Planning � Heather T. Clark, New York State Energy Research and Development Authority� Mark B. Mitskovski, Erie County � Margaret A. Neville, New York State Energy Researchand Development Authority � Walter Simpson, University at Buffalo � Robert Sprague,National Fuel � Stewart Hainey, Erdman Anthony Associates / NYSERDA

Urban Design and ManagementColby Smith, Ciminelli Development � W. Morgan Smith, Buffalo Place Inc � Thomas Harmon,National Fuel � Jennifer Gorczynski, Buffalo Niagara Partnership � David Sengbusch, City of Buffalo

ImageMargaret Beardsley, Buffalo Place Inc. � Steven Joseph, Buffalo Place Inc. � Jocelyn Dolby,New Millennium Group of WNY � Carolyn Murray, Working For Downtown � JenniferGorczynski, Buffalo Niagara Partnership



Urban Design Assistance TeamPictured from left to right: Alan Mallach, ACIP Municipal Housing,Buffalo R/UDAT ProjectTeam Leader � Joe Champeaux, FAIA Planning / Urban Design, Champeaux Landry, LakeCharles, Louisiana � Curtis Davis, AIA Municipal Urban Design, Rebuildit Collaborative,Boston, Massachusetts � Todd Lee, FAIA Urban Designer, Mixed Use, TLCR Associates, Boston, Massachusetts � Jack Hambene, Finance, Housing, McCormack Baron & AssociatesInc, St. Louis, Missouri � Jim Lindemon, RA Architecture Housing � Lindemon WinckelmannDepree, Millville, New Jersey � Paul Kitsakos Transportation and Parking, Parsons Transportation,Chicago, Illinois � Mickey Zeppelin, Developer, Housing, Zeppelin Development, Denver, Colorado � Marta Borsanyi Market Analyst, Housing, The Concord Group, San Francisco, California.

Steering Committee MembersMatthew Meier, AIA Buffalo Small Business, Hamilton Houston Lownie Architects, BuffaloR/UDAT Steering Committee Chair � Gus Pratchett, African American Community, NAACP � Gerald Strickland, Jr., AIA Buffalo Chapter of AIA, AIA Buffalo / Western New York �Don Erb, RPA Buffalo Building Owners, BOMA of Buffalo � Laura St. Pierre, Buffalo BusinessDevelopment, Buffalo Niagara Partnership � Laura Gang, Buffalo Business Development,Buffalo Niagara Partnership � Debra Chernoff, Buffalo Downtown Business, Buffalo Place, Inc.� JoAnne Loughry, Buffalo Downtown Business, Buffalo Place, Inc. � Celeste Lawson, BuffaloCultural Institutions, Arts Council in Buffalo and Erie County � Sister Denise Roche, GNSHBuffalo Universities, D’Youville College � Jacquelyn Ross Brown, Buffalo Schools, BuffaloBoard of Education � Tom Scime Buffalo Schools, Buffalo Board of Education � Laurence K.Rubin, Government: Region, County of Erie Department of Environment & Planning �Tom Dearing, Government: Region, County of Erie Department of Environment & Planning � Chuck Thomas, Government: City, City of Buffalo Department of Planning � Andres Garcia,Hispanic Community & Medical Institutions, Kaleida Health � Rich Morrisroe, Buffalo Housing,Heart of the City Neighborhoods � Patricia Pitts, Parking & Charter Schools, Buffalo NiagaraPartnership � Brenda McDuffie, Urban Work Force, Buffalo Urban League, Inc. � CharlesGrieco, Young Buffalo Business People, New Millennium Group � Robert Shibley, AIA, AICPBuffalo Master Plan, Downtown Buffalo 2002! � Maria Gambacorta, Buffalo DevelopmentActivism, Working For Downtown � Joe McIvor Builders – Housing Development, NiagaraFrontier Builders Association

Student TeamUniversity at Buffalo, School of Architecture and Planning, Urban Design Project, FacultyCoordinator, Robert G. Shibley � Team members: Kevin Casey � Anthony Vallone � DeepaliWeyand � Rebecca Martino � Allita Steward � Tim Burke � Jessica Jamroz � Kevin White �Charles Davis � Marie Carone � Gabe DiMaio.


R/UDAT Participants




Additional Contributions to The Queen City HubLiterally thousands of people participated in Downtown Buffalo 2002! and The Queen CityHub development effort. In some cases the participation was as simple as organizingpresentations of the plan in process and offering comments, in other cases the involvementoffered technical or professional reviews of the work in process. In still other cases theyinvolved participation in summits, focus groups, surveys, or workshops. Each of eightDowntown Buffalo 2002! newsletters were mailed to over 7,000 people who kept tabs on theprocess. And traffic on the www.downtownbuffalo2002.org web site continues to be brisk.

A special thanks is offered to individuals representing the following organizations:

City of Buffalo Government

Board of Parking

Common Council

Department of Administration & Finance

Department of Public Works, Parks and Streets

Office of the Mayor

Office of Strategic Planning

Preservation Board

Colucci & Gallaher PC

Community Preservation Corporation

Crinzo and Gullo Jewelers

Definitely Buffalo

Downtown Neighborhood DevelopmentCorporation

Ellicott Development Co.

Empire State Development WNY Region

Erdman Anthony Associates / NYSERDA

Erie County Government

County Executive’s Office

Department of Environment & Planning

Industrial Development Agency

Legislature, District 6

Legislature, Republican Majority

Rebuild America

Fannie Mae of Western New York

Access Infrastructure Task Force

Amherst Industrial Development Agency

Allee King Rosen & Fleming

American Institute of Architects, Western New York Chapter

American Planning Association, Western New York Section

Arts Council for Buffalo and Erie County

Benderson Development Company

Black Leadership Forum

Buffalo Civic Auto Ramps

Buffalo Convention and Visitors Bureau

Buffalo Economic Renaissance Corporation

Buffalo Niagara Enterprise

Buffalo Niagara Medical Campus

Buffalo Niagara Partnership

Buffalo Place Inc.

Buffalo Transportation Museum

Burke Brothers Development

Cannon Design

Chan Krieger & Associates

Ciminelli Development

Citizens for Rapid Transit



Special thanks (continued)

Federal Government

Amtrak

Department of Transportation

Housing and Urban Development

Federal Highway Administration

National Trust for Historic Preservation

Federal Railroad Administration

Federal Reserve Bank of WNY

Federal Reserve Board

Good Neighbors Planning Alliance

Greater Buffalo Convention and Visitor Bureau

Greater Buffalo Niagara RegionalTransportation Council

Green Gold Corporation

Hamilton Houston and Lownie, Architects, PC

Heart of the City Neighborhoods, Inc.

HSBC Bank

Key Bank

Landmark Society of the Niagara Frontier

Leadership Buffalo

Local Initiatives Support Corporation

Lumsden and McCormick

M & T Bank

Militello Real Estate

National Fuel Gas Company

New Millennium Group of WNY

New York State Government

Department of Transportation

Energy Research and Development Authority

Historic Preservation Office

Thruway Authority

Niagara Frontier Transportation Authority

Board of Commissioners

Surface Transportation

Niagara Mohawk

Partners for a Livable Western New York

Preservation Coalition of Erie County

Signature Management Group

Small Business Administration

Small Business Assistance Center

Studio Arena Theatre

Theatre District Association

University at Buffalo, The State University of New York

Center for Urban Studies

Institute for Local Governance and Regional Growth

School of Architecture and Planning

The Urban Design Project

Urban League

Wellness Institute

Working for Downtown


Appendix 117

Appendix

The Queen City Hub and “A new story about Downtown Buffalo“Published as “Upbeat About Downtown,“ Reprinted from the Buffalo News SundayViewpoints Cover, May 25, 2003, Special to the News, Robert G. Shibley

It is time to start telling a new story about Downtown Buffalo. We know the old one.We have told it to each other over and over again. Downtown is dead. Nobody goes there.Everyone is leaving. There is no plan or vision for Downtown.

There are just two problems with the old story. First, it’s not true anymore. Second, continuingto tell this out-of-date story works against efforts to make Downtown better because itdiscounts work already accomplished and in progress.

Civic stories are self-fulfilling prophecies. If we tell a story that only emphasizes problems andfailures, then we make our work even more daunting. But if we also tell a new story aboutrecent accomplishments and opportunities along with the challenges, we make our successmore likely.

This is not a call for wishful thinking or denial. It’s a call for a new attitude. Portland, Oregon’ssubway has about the same ridership per capita as Buffalo’s, but theirs is seen as a success,ours a failure. Why? Some of the answer is in our attitude, and attitude makes a difference.

Yes, there are serious problems to overcome to make Downtown the place we all want, likean office vacancy rate of about 25 percent. But, we have a much better chance of whittlingthat number down if we acknowledge the strides we have taken and work together to buildon that positive energy.

Planning and actionContrary to stories you may have heard, Mayor Masiello has established a consensus plan forDowntown Buffalo and business and government are working together to implement it. It is aplan that makes difficult choices about where to invest public resources, builds on a successfulhistory of past investments, and is expanding the critical mass of mixed-use places we needfor a great Downtown.

The new Queen City Hub: A Regional Action Plan for Downtown Buffalo, to be released earlynext month, was built on a foundation laid by the Strategic Plan for Downtown Buffalo issuedby the Mayor in September of 1999. The new Queen City Hub plan was created byDowntown Buffalo 2002! even as its participants implemented the earlier plan. The planningteam worked with 18 public and private sector organizations and the broader Downtownconstituency to identify and implement priorities on “Living,“ “Working,“ and “Accessing,“Downtown. For example:

• Living: More than $90 million is being invested in priority neighborhoods to create morethan 600 housing units in existing buildings and related infrastructure; a new DowntownNeighborhood Development Corp. is linking private and public action; local and State codesand permit procedures have been revised to make it easier to rehabilitate and reuse existingbuildings. Recent construction includes Ellicott Lofts by Burke Brothers Development, the ElkTerminal lofts by First Amherst, work on several sites by Ellicott Development Corporation,and work in progress on many other projects.


118 Appendix

Appendix (continued)

• Working: Adaptive reuse projects are helping create new vitality through the reincarnationof the old Jackson Building as the new Hampton Inn and Suites at Chippewa and Delawareand the rehabilitation of the former M. Wile facility as the Century City I office building atWashington and Goodell. The historic Guaranty Building is under restoration for renewedoccupancy. There are two new office buildings in the Theatre District, one completed lastyear and one breaking ground this spring.

• Access: Several one-way streets are now two-way; Main Street will be opened toautomobile traffic; there is new lighting on Main; the intermodal transportation center ismoving ahead; and a comprehensive approach to parking has already freed up 2,000spaces in the core through revised on-street parking zones, shuttle system implementation,and the creation of new incentives for transit users; and, new capacity in the core is comingon line in a mixed use facility on Huron.

Based on the pace of public and private sector development in the first three years of thisdecade, the 2000s are projected to see well more than twice the level of investment thatoccurred during the 1990s. Such concrete action is heartening precisely because it adheres to the strategic vision of The Queen City Hub plan.

Strategic investment areas DowntownThe new Queen City Hub plan directs investment to five strategic areas that represent our current economic base and best potential for future job growth.

The Theatre District is one of Downtown’s most continuous successes. The District fromChippewa to Tupper on Main has been almost completely reconstructed with 15 significantprojects in two decades. Nearby blocks on and near Chippewa continue to attractinvestments following ten significant projects from 1990 to 2002. All of these build on the Fountain Plaza redevelopments of the 1980s.

The Buffalo Niagara Medical Campus on the northeast corner of Downtown is one of the region’s most important economic ventures. Investments by partner institutions willexceed $250 million in this decade. They promise to generate 3,000 to 5,000 new jobs,related economic spin-offs, and help adjacent neighborhoods improve. This is in addition to $250 million invested in the 1990s at places like the Roswell Park Cancer Institute and the Pillars Hotel.

The Downtown Education and Public Safety Campus, an initiative announced just lastyear, already in the planning stages, will bring thousands more regular daytime visitors toDowntown and boost markets for housing, restaurants, entertainment, and shopping. Thisinvestment will enable the redevelopment of a large corner of Downtown and help furtherconnect it to near eastside neighborhoods.

The Erie Canal Harbor and Waterfront District, with a combination of heritage, recreation,sports, entertainment, transportation, housing, and retail attractions will leverage over $100million in private investment and provide another economic anchor in the tourism industry.

The Roswell Park Cancer Institute (Source: The Buffalo News/Robert Kirkham)

Main Street pedestrian area (Source: TheBuffalo News/Robert Kirkham)


Appendix 119


The Government and Finance District, long the mainstay of the regional center economy,is the site of several hundred million dollars of reinvestment. The new Erie County FamilyCourt Building, a planned U.S. Federal Court, a new office building and renovations to theRath Building, Old County Hall, the historic Guaranty Building and 25 Delaware are importantreinforcements of Downtown’s role as a regional government and business center.

The newly constructed Erie County Family Court Building (Source: The Buffalo News/Robert Kirkham)

Strategic Activities and Principles for ActionThe plan also calls for investments in key Downtown activities that link the strategicinvestment areas to the surrounding ring of neighborhoods and to the waterfront.

Buffalonians understand that new residents are required for Downtown to be great. The plan identifies four priority areas for neighborhood development – and that’s exactly wheredevelopers and the City are investing.

Shopping has suffered a long-term decline. The plan says how to rebuild shopping byattracting daytime workers, nighttime residents, visitors, and residents of adjacentneighborhoods as the combined market for new stores in the core. Strategies for investing in “Working Downtown“ and visitor-based economies will support this growing retail market.For example, new restaurants were more numerous Downtown than anywhere else in theregion last year.

Likewise, the plan sets down other principles for making a good Downtown including makingit accessible for pedestrians, transit riders, and cars; reusing our valuable stock of historicbuildings and carefully infilling our historic districts; promoting good urban design andmanagement; implementing strategies for energy conservation and green building design;and, promoting a positive image.


120 Appendix


The key to continued success is disciplined and detailed planning, implementation, andmonitoring endorsed by the people that are responsible to make it happen. They will carryeach one of these principles forward. Every strategic investment area, key activity, andprinciple for making a good Downtown is connected to action items, schedules and key participants.

Finally, The Queen City Hub: A Regional Action Plan for Downtown Buffalo is a key part ofthe Queen City in the 21st Century: Buffalo’s Comprehensive Plan. As such it will be part ofthe legal framework for planning in our city and builds on relationships among the waterfrontand our access to it, a 21st century interpretation of the 1804 Ellicott radial street plan as wellas the Olmsted Park and Parkway System.

Challenges AheadDowntown Buffalo has some difficult challenges ahead: filling empty buildings, implementingan integrated parking and access strategy, improving the pedestrian experience, as well asimproving its planning and economic development delivery system. Increased office tenancy inthe center city requires available space in desirable locations and configurations. So, we needa judicious expansion of technologically up-to-date space combined with the reuse of olderoffice buildings all tailored to meet new demands. This approach is helping reduce thevacancy rate without stunting economic growth. It is what happened with the Hampton Inntransformation on Chippewa, and it is what is happening right now with the renovation ofthe Sidway building at Main and Goodell for apartments. The approach is reinforced withnew office space at several other sites.

Downtown Buffalo suffers from an overabundance of surface parking, something thatthreatens to suburbanize what should be a uniquely urban and pedestrian environment.Twenty-eight percent of the land area of Downtown is parking, mostly surface lots and a fewparking structures. Buildings only cover twenty-seven percent of the land area. This meansthat the reasons to come Downtown – offices, shops, restaurants, theaters, and other places– are dominated by the places to put your car when you get there. Parking lots don’t makefor a very appealing Downtown environment.

The solution is to redevelop our expansive surface parking lots as mixed-use buildings thatincorporate structured parking with retail, entertainment, offices, and housing. Such buildingsuse Downtown property much more efficiently, make it possible to create lively streetscapes,and put parking capacity where it is needed. In concert with a new emphasis on transit, thiswill create a new urban density and improve access.

All of Downtown faces a continuing shortfall in the resources needed to maintain a qualitypublic realm. While Main Street gets special care from Buffalo Place Inc., Metro Rail capitalimprovements and cars sharing Main Street will also reinforce it soon. Even so, much ofDowntown needs additional capital and maintenance attention. Sidewalks, crosswalks, busshelters, street lights, sidewalk lighting, building lighting, benches, landscaping, trees, flowerbaskets, banners and trash receptacles – all high-quality – are needed both for those who liveDowntown and those who visit for any reason. Imagine such investments on key radial andgrid streets in the Ellicott plan – all as envisioned in the call for different levels of “GreatStreets“ in The Queen City Hub plan.


“A New Story About Buffalo” 121

“A New Story about Buffalo”A Shared Responsibility

There will always be people who want to know “who lost National Fuel?“ or whateverinstitution has decided to relocate from Downtown. Part of telling a new story aboutDowntown has to involve an end to simplistic finger pointing and blaming. The process of citymaking is too complicated and involves too much multi-party collaboration to allow for that.

Instead, we need to embrace a shared responsibility for the future of our city center. We needto learn from and accept responsibility for our collective successes and failures. We also needto continue to implement the structural reforms that support collaboration and efficiency ineconomic development, business retention and planning. Finally, we need to stop greetingsuccess with the cynical, “It is about time!“ and start cheering while we work still harder onthe challenges.

Those of us who support Downtown think institutions that choose other locations will missthe identity, excitement, centrality, and conveniences of Downtown. Some decision-makershave obviously made a different calculation. Downtown isn’t for everyone. Still, some alsobelieve that departing corporations often leave with unmet civic responsibilities.

Even as National Fuel departs, we see new commitments by M&T and by Blue Cross/ Blue Shield, and by all levels of government to find new space Downtown. Sensing thisenthusiasm, developers have provided the first new office buildings in more than a decade.

Concentrating on making Downtown increasingly competitive with other business locationsmeans not demanding charity from governments or companies. Downtown is a uniqueproduct and must compete in the market on its own merits. We need to increase ouruniqueness as a regional center instead of trying to be more like our suburban campus and car culture alternatives.

Urban analysts from Toronto’s Jane Jacobs to Charleston’s Mayor Joe Riley agree: Downtownsare vital to the fate of their regions. Case after case around the country shows that healthyregions have healthy central cities, and healthy central cities have strong and vibrantDowntowns.

Downtown remains the economic core of the region. Forty percent of all business activity inthe city occurs there. It is the heart of our job base and tax base. It is also the hub that holdstogether an array of regional cultural entertainment resources and revitalizing neighborhoods.Downtown is the neighborhood of neighborhoods for all of Buffalo Niagara.

Downtown is the special event capital of the region, drawing over 2.2 million visitors annually.More than seven million a year visit Downtown for sports, festivals, theater, libraries,conventions, religious services, and special events. Downtown is the core of our identity as a regional community.

So, we have a new story to tell about Downtown. It is that things are changing. Downtown is reviving and restructuring to meet the demands of the new century. We have a plan andwe are working together to make it real. “We“ is a full consortium of business, government,colleges and universities, and citizen organizations. No one of us can do it alone. All of usneed to do it better.

Inside the Market Arcade (Source: The Buffalo News/

Robert Kirkham)

Construction at Main and Chippewa

(Source: The Buffalo News/Robert Kirkham)

“Beauty is universal… everybody needs it andthere’s never any excuse for anyone, certainly ingovernment, to ever build anything that doesn’tadd to the beauty of a city.”

JOSEPH E. RILEY, Mayor, Charleston, SC

in a speech to the Buffalo Renaissance FoundationNOVEMBER, 2001

hub - regional-institute.buffalo.edu

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