Tuesday, February 14th, 2012

Louisville: A Tale of One City by Rollin Stanley

[ One of the Louisville sites I do still read religiously is Broken Sidewalk. Last month I saw there the article below which originally appeared on the blog of Rollin Stanley, Planning Director of Montgomery County, MD. If you’d like to know more about him, check out his blog, or read this piece from Greater Greater Washington called, The Quotable Rollin Stanley. This Louisville piece is very insightful and I am grateful he gave permission to repost it here – Aaron. ]

Downtown Louisville. (Branden Klayko)
Downtown Louisville. (Branden Klayko)

[Note from Branden Klayko, Editor of Broken Sidewalk: Rollin Stanley is the Planning Director at the Montgomery County, Maryland Planning Department. I first met him nearly a decade ago shortly after he was named Executive Director of the St. Louis Planning and Urban Design Agency while I was in college. He understands how cities work implicitly and is an outspoken advocate of good urban design and transit-oriented development. Stanley writes the Director’s Blog at Montgomery Planning on which this post was originally published.]

For Thanksgiving in 2011, my wife and I drove 900 miles to visit friends and family in St. Louis, Missouri. We drove an extra 50 miles to go the southern route via I-64 past Charleston, West Virginia and Lexington, Kentucky, before stopping over in Louisville for the evening. Despite the rain, it was a great opportunity to visit the city for the first time.

The cities of the Midwest are poised for resurgence. Filled with creative, energetic people and with a low cost of living, a new generation of artists, entrepreneurs and immigrants are seeking to establish themselves. In fact, recent surveys show cities like St. Louis are experiencing a more than 80 percent increase in young residents.

Initial impressions

First impressions are always important when you are pulling into a strange city after dark and in the rain. Louisville is no exception. The Google directions bringing us along the rain soaked I-64 along the Ohio River to our exit on South 9th Street didn’t show off the city’s best side. To a person unfamiliar with center core cities in the U.S., it could feel a bit like Chevy Chase traveling across America in the “Family Truckster” and reinforce the stereotypes held by many people about inner-city America.

This clip from the movie, Vacation, is funny, yet reflects the image of inner cities that many people have. The entry points to our cities are critical to bringing people to the inner core. If the video doesn’t display, click here.

The great scourge of industrial cities is the race to create as much parking as possible. Some civic leaders see demolition and paving as a sign of progress and Louisville along with Kansas City, is a prime example. William Whyte in his book City: Rediscovering the Center, says “If you tear down enough of your downtown for parking, pretty soon there won’t be any reason to go there and park.”

Fourth Street Live. (Rollin Stanley)
Fourth Street Live. (Rollin Stanley)

Sure enough, downtown Louisville has plenty of examples intended to prove this proverb. They have the waterfront development and “Fourth Street Live,” the Cordish downtown entertainment district similar to Kansas City. These developments are intended to draw people back downtown, the place they left kind of because, well, lots of stuff was torn down for parking lots.

And guess what? Nobody parks on those surface parking lots because they are too far away from Fourth Street Live for anyone to park there. And if someone did, they would not feel safe walking across all the vacant lots to get to the entertainment center.

Fourth Street Live mirrors similar downtown developments by the Baltimore-based developer Cordish. While it has many of the chains we are familiar with around the country, there are standouts like the Maker’s Mark Bourbon House and places with great names like “Howl at the Moon.” However, this two-block stretch of South 4th Street is disconnected from the river by several government buildings and the too often repeated downtown convention center.

Parking in Downtown Louisville. Red is surface parking, purple is single-use garages. (Erik Weber)
This aerial of the Louisville Central Business District south of the river highlights the vast areas taken up by surface parking (red) and single-use garages (purple). And then there is the big chunk in the middle, taken up by the convention center, another streetscape paralyzer. (Montage by Erik Weber)

The Louisville parking landscaping really hampers the potential to create depth to the downtown. As you move south away from the river along 4th Avenue, going over one or two blocks to the east or west you arrive at a sea of surface parking. Those parking lots spawn the decline of adjacent properties, the very places the surface parking was intended to help. The lots are vacant at night, so the places next to them begin to decline.

This is a great video from Rochester in 1964 touting the virtues of the city based upon the ease of parking. Wow, just makes you want to jump in and drive to Rochester. If the video doesn’t display, click here


Louisville is clearly a place of contrast, just like so many other cities in the Midwest. Pockets of success separated by surface parking lots and questionable decisions about frontages, highlight some of the toughest challenges with the core of the city. The challenge of creating “depth” to the success, linking the positive nodes, is so difficult when growth is first limited, then competing with the unlimited sprawl of the burbs.

Neon sign on Chestnut Street.
The neon sign is a historic resource that captures the history of urban decline. While the sign should be in a museum, the use is a sad reminder of how far the resurgence of Louisville has to go. One block away from some great businesses on South 4th Street, the beginning of the “surface parking district” extends many blocks to the east.

Louisville has some tremendous assets. But it has lost tremendous assets as well.

1. Louisville torn down a lot of stuff.

Downtown Louisville is an old architect’s dream, what remains is shaped like a T square. There are lots of buildings that parallel the waterfront, some good and some bad, and then there is the South 4th Street corridor stretching at right angles back from the river, forming the spine of activity, the “straight edge” of the T square. I love South 4th Street, but only the area south of the convention center.

So many cities tried to revitalize their downtowns by bringing in convention centers. While convention centers bring people into hotels and to patronize local business, almost all create sterile street frontages that mimic big box stores.

From any angle the Kentucky International Convention Center is not a friend of the streetscape of the downtown. It forms a physical barrier between the successful nodes of Louisville Live and the riverfront. It is just like a big box store or a mall. People stay inside, the walls are large, blank spaces, and it produces little pedestrian traffic, the key to the success of any inner city.

Government buildings are also a challenge, creating long expanses of inactivity that work against creating a vibrant neighborhood. They are like parks after dark. Nobody wants to walk past them. I learned a great lesson from an urban pioneer by the name of Joe Edwards in St. Louis. He singlehandedly revitalized the “loop” neighborhood, including bringing trolley lines back to the commercial district.

As Joe rehabbed commercial buildings, he would work to lease space to a variety of retailers. Too many restaurants would mean little happening during the day. Too many shops would leave the street vacant past after 9 p.m. So he would mix the uses, creating variety along the street. Both the convention centers and government buildings work against this principle.

Fourth Street.
This shot taken on S. 4th Street moving farther away from the central core, shows how many cities tore down buildings like those on the left, and replaced them with long blank frontages of nothing, like on the right. While retail is struggling on the left, there are small pockets of success which will spread to fill the gaps between them. Who knows, maybe the building on the right will be torn down in a few decades and be replaced with buildings with active frontages like those on the right. That would be irony.

2. Historic assets

Much of downtown Louisville is gone forever. There are pockets of underutilized historic resources where only the ground floor is being used. This is a real shame. These small pockets offer the potential for affordable redevelopment through the use of historic tax credits and other financing tools. With all the creative forces in the city, one has to believe there is a solid constituency for these spaces with rents being offset through the tax credit restoration.

Whiskey Row on Main Street.
While downtown Louisville has lost much of its historic fabric and lacks a cohesive historic commercial core, it has small pockets of great buildings which largely go unused. While the ground floor the buildings are leased, the upper floors go largely unused, missing a real opportunity to attract young urban pioneers.

Louisville Slugger Museum.
The Louisville Slugger Museum is a destination that brings lots of people into an area of the downtown. It could act as a catalyst through restoration and small-scale modern new construction on the parking lots to the south.

The Louisville slugger museum would not be the same if that big bat was leaning against some run-of-the-mill, recently constructed building? Could the small strip of historic buildings nearby has the bones for a terrific neighborhood, where people walk dogs, eat breakfast at the local eatery on Saturday morning, alongside tourists visiting the Slugger Museum or the Muhammad Ali Center just to the north along the river.

Louisville is not alone. In Atlanta, where I did some consulting work about eight years ago, I was shocked that city officials were not using historic tax credits to help revitalize. In St. Louis, we created over 4,000 new units of loft housing in the core of downtown historic tax credits and the like. Building the local capacity in the developer, legal and government sectors to make these things happen is critical.

The old Ohio Theater on Fourth Street.
While it probably would have been great to have the entire historic building left, this is a fun example of how a cool feature has been created on S. 4th Street. And it masks the parking garage located behind, although it is not a bad parking garage.

3. One-Way Streets

Other than saying they serve horse meat, nothing kills a restaurant faster than locating on a one-way street. One-way streets serve one purpose and one purpose only: getting people in and out of the core area as fast as possible. A driver needs to travel 25 mph or less to make eye contact with a pedestrian. So if you are trying to create vibrant pedestrian streets, how does a one way street that pushes cars through as fast as possible work toward that goal?

There are few places on the planet where retail succeeds on a one-way street. And these places have density, something Louisville does not have. Is there really a need for four lane roads running one way in front of the Louisville Slugger Museum?

Show me a city without congestion and I bet it is not a place where people go and members of Gen X and Y live. We want people to slow down, look out the window at the retail environment and have street parking to liven up the sidewalk.

Seelbach Hotel.
A historic postcard of the downtown Seelbach Hotel on S. 4th Street. It does not look too different today. A wonderful adventure into the past and a real asset to the core. If you stay, get a corner room looking up 4th Street.

Bright spots

In Louisville, I saw pockets of amazing creativity and resiliency. Take the grand old hotels. Louisville has some great ones like the Seelbach (we stayed here) and the Brown. I understand the wedding sequence from the Great Gatsby is modeled after the former. It has a great long wood bar with some real tradition.

And to contrast these great old hotels, there is the fabulous Museum Hotel over by the Slugger Museum. The restaurant/hotel is themed as an art museum and is one of the coolest concepts in North America. A terrific example of the creative energy in this city and the Midwest. Fun, unusual and full of energy, these are the spots that are the nucleus for change. This hotel and museum is the focal point to transform this neighborhood.

21c Museum Hotel.
The 21c Museum Hotel on West Main St. is one of the great finds in the city. Apart from the red penguins adorning the exterior, the building appears nondescript, yet step inside to find an amazing experience combining food, lodging, and art. These are the experiences that make a city interesting and attracts the potential to build new opportunities for revitalization.

The scale of the streets is another asset. Most are narrow, and where the buildings remain, framed right up to the sidewalk, giving a real urban feel. There are good examples of architecture from many eras and this is really noticeable when you stand along the waterfront and look back towards the downtown. And where the city has invested in those streets, they have created some great urban furniture and property owners created some great small urban spaces.

Street art.
There are some cool bike racks in the city. Sculpture that really enhances the public spaces. And look behind the lamp pole in the right photo to see one of the entry markers into this part of S. 4th Street. And then there is just some cool sculpture, mixed with the bins on garbage day.

Walking through any city, it is fun to look to discover hidden spaces that really open the potential of a commercial district, creating the intimate spaces that attract people to an area. With sidewalks, these are really the “public spaces” in an urban area that are most frequented.

Public spaces.
Two examples of “public space” in the core of the city. The wide open plaza may cater to office workers on a nice warm lunch break, but remains vacant otherwise. The small intimate restaurant courtyard offers a different experience and probably gets more use. Neither space is public in the true sense of the word, but both function as such.

Downtown Louisville is a case study on urban America. It can become one of the cooler places in the Midwest. It has a lot of assets: the obvious creative spirit of so many residents, the great bourbon selections in so many establishments. But it will require baby steps, moving forward one small area at a time. Ignore the quick fix ideas that require more buildings to come down, closing a street, or sterilizing the street activity through long blank walls. If a bank or pharmacy wants in, make them open up the facades, no walls that don’t have doors every 50 or 60 feet.

Explore the myriad of incentives that make downtown projects economically viable and attractive to everyone. Work with property owners and find new ones who have the energy and vision to make these projects work.

And, please, get rid of the one-way streets.

This post originally appeared in the Montgomery County Planning Director Blog on December 9, 2011.

Topics: Architecture and Design, Public Policy, Transportation
Cities: Louisville

17 Responses to “Louisville: A Tale of One City by Rollin Stanley”

  1. John Morris says:

    Thanks for this. Seems pretty obvious that just simple better design and basic urbanism would create space for another 100,000 or more folks living in the city itself.

  2. Jeff Gillenwater says:

    “Building the local capacity in the developer, legal and government sectors to make these things happen is critical.”

    This may be the most important sentence in the piece. Largely owing to the dominance of a singular ruling class, Louisville has suffered from very little local capacity development, a situation that doesn’t seem to be getting much better with its (finally) new mayor. The government tends to see its role as facilitating whatever that class wants to do. To the extent it’s positive, it happens. To the extent it’s negative, it happens anyway. With a few notable exceptions, a fairly small pocket of wealth determines overall direction.

    I’m being optimistic in saying that via the relative citizen successes of pressuring for change on the Ohio River Bridges Project and the partial overthrow of Fund for the Arts leadership, Louisville is beginning to incrementally change some decision making patterns. Until that happens on a broader scale, though, the positive, creative forces to which Stanley refers will largely be working against City Hall and “business leadership” rather than with it.

  3. RyderCup2 says:

    Ruling Class?

    Interesting comment. I am not sure it is really as accurate as it was ‘back in the day’ when many/most power/decisions occurred in the hallowed halls of The LCC, Pendennis and at 6th & Broadway.

    If you mean the ‘ruling class’ that does not include you…then I would suggest going to City Hall and volunteer your services.

    There are a number of local developers who have made their mark without much support of the ‘ruling class’.

  4. Adam says:

    we do miss mr. stanley here in saint louis… anyway, good observations on louisville. i pass through fairly often in driving between saint louis and charlottesville (VA), and am always impressed by the views of the city from I-64. they have a beautiful waterfront with exquisite bridges and a nice mix of new and historic architecture. last time through i stopped off for food and was really impressed with all the old, in-tact (but apparently under-occupied,) 5-story-ish street-walls downtown. but yeah, the KFC convention center that’s shaped like a chicken leg kind-of sucks. :)

  5. John Morris says:

    I’ll throw out an idea, which fits with at least my impressions of Louisville’s image, history, architecture and location.

    I remember, Aaron talking about the ‘pro urban” design of Cincinnati’s casino and the posibility it might actually become a real asset to the city.

    We have still yet to see a city or state allow an open playing field for small casinos. What I have in mind here, would be very small casinos focused on skill games like Poker sprinkled around the downtown and other parts of town.

    One would think, if there was any logic to gambling regulation, the goal would be to keep the poor and unskilled away, instead, it seems like most casino’s and lottery’s target that group while leaving very few options for skilled gamblers.

    Mostly, I am talking here about not much more than legal card rooms.

    Something like this could make Louisville a unique attraction without causing the crowds and anti urban impact of most tourism in a car oriented society.

    Just a thought.

  6. John Morris says:

    Here is an earlier post on here, Louisville: Vice City


    My impression is that the city has a great brand in what I would describe as high class, “vice”. River, bourbon, races.

  7. John Morris says:

    BTW, I see that the Kentucky governor has proposed putting a gambling legalization bill on the ballot.

    My guess, is that a sad, horrific group of car oriented slot based casinos and fake riverboats will soon be allowed.
    If this were done right and focused much more on small, skill based gaming, Louisville might really create a special niche for itself.

    I know the odds are long. This type of gambling is in the short runn less profitable. There is no “house” in poker, so one has to take a slice off the top. I honestly, do see this as more an urban ammenity-with some cash generating potential.

  8. JoeP says:

    That’s a problem I with casinos that are sprouting up everywhere – the state gives a license one casino is built with no imagination, in fact I think they go out of their way to look ugly and then it’s only one way atm machines… I mean electronic slot machines by the hundreds ready to take Social Security checks.

    And later on maybe, table games are added.

    Perhaps if a state said, ok we’re going to grant 2-3 licenses for the city, then competition would make them better and in fact, then a district could emerge around them instead of one big ugly casino surrounded by parking… as it seems to happen everywhere

  9. John Morris says:

    Right. It’s a real shame. They should give out a large number of licenses and let people compete. What i have in mind here, in particular are small casinos focused on table games, which could become a nice addition to a downtown.

    Anyway, I guess that ain’t gonna happen.

  10. John Morris says:

    I actually don’t have cable, but poker is pretty widely televised. My guess is a few really nice csainos would raise the city’s profile. It’s also a game that one can argue is not really gambling for skilled players–which is why casinos take a slice off the top.

    Anyway, this is still out there as an opportunity for a city that wants to try this. The skilled table game market is still very underserved. My guess is that most of these players hate the big slots oriented casinos.

  11. John Morris says:

    I took a google Streetview drive and noticed some nice and usefull old industrial buildings that would be considered a vital asset in mant cities.

    The I see–they plan to tear down a real nice tobacco warehouse for totally garbage type development with masses of parking.


  12. Walker Evans says:

    Sounds like Downtown Louisville faces a lot of the same problems that Downtown Columbus does… an abundance of surface parking lots (a lot of history fell to the wrecking ball decades ago), a large and active convention center that doesn’t connect with the streetscape at all, and government buildings that empty out at 5pm. We do have the Arena District and the Park Street area, which could be compared to Fourth Street Live, but I think works better as it’s more of a mixed-use development than entertainment only.

    Otherwise, pretty similar tales. Thanks for sharing this!

  13. John Morris says:

    anyone thinking about selling some of the governement buildings to put them in the hands of folks who might make better use of the potentially critical land?

    Cleveland may be selling it’s huge Board of Ed building downtown.


  14. John Morris says:

    I’d like to hear a lot more about other Louisville neighborhoods and how they might relate to each other, transit and the downtown. The few streetview drives I took seem to show that the downtown is bordered by a lot of industrial areas.

    Is there a Louisville version of a South Side, a Short North or an Ohio City?

  15. JB says:

    I have never been there, but I have impression that it has very similar problems to other big (yet regional) cities. I got the impression from the article that the biggest problem is that there is lack of life in the streets after everyone gets home from the work. There would be great to invite some street artists and do some happenings in the streets, like for example Improv in Toronto or Urban primitive…

  16. cc says:

    Southern city with northern problems.

  17. cc says:

    Plant some trees!!

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