Crooked River Gaming: Weaving the New Casino into Cleveland's Existing Urban Fabric

Presents

Team Ahmed Abonamah Jason Bristol Fran DiDonato David Jurca Kevin Leeson Nick Martin Beth Sebian Gauri Torgalkar Graham Veysey Eric Wobser Rebecca Wolff Partners Cleveland Urban Design Collaborative, Kent State University The Levin College Forum, Maxine Goodman Levin College of Urban Affairs, Cleveland State University AIA Cleveland APA Cleveland City Club of Cleveland Kent State’s graduate students from the Masters of Architecture and Masters of Urban Design program For more information www.clevelandcoalition.org April 20, 2011

CONTENTS

Introduction ...........................................................................................................4 Part I EDUCATE

Event Overview........................................................................................6

Part II COLLABORATE

Overview................................................................................................ 12

Urban Connectivity.............................................................................. 13

Built Form/Architecture/Programming ........................................... 21

Quality of Life........................................................................................ 27

Economic Development...................................................................... 32

Part III ACT

Moving Forward.................................................................................... 37

INTRODUCTION ERIC WOBSER

The Cleveland Coalition is a 501(c)(3) organization of Clevelanders working to create and sustain a more vibrant, healthy, and connected community by building civic imagination, community participation, and leadership capacity. The Coalition was born out of discussions among several Cleveland residents who were excited about the potential and positive direction of the city but believed their voices were not being heard in policy-making decisions. Ultimately, the group decided the best way to encourage thoughtful policy decisions was to strengthen its voice by educating and collaborating with fellow Clevelanders on important issues, and ensuring positive results through action.

Determining which issue to focus on first was difficult. Many important opportunities and challenges exist within our community. Developing strategies to revitalize neighborhoods, connect to waterfronts, improve public transportation, and rebuild the economy are critical and seemingly overwhelming tasks. Instead of starting with higher-level policy issues, the decision was made to focus initially on one specific project that was likely to move forward, with the goal of impacting the outcome of that project in a positive way. The casino planned for downtown was a natural choice. The ballot issue had passed, the list of potential sites had been narrowed, and project planning had begun.

Historically, cities similar to Cleveland had turned to casinos as an economic development strategy with disappointing results. Revenue and job projections were lower than estimated. Casinos were not built to interact with their environment but instead to keep gamblers indoors in windowless boxes, taking energy from, rather than contributing to, the vitality of the host cities. Vulnerable populations suffered and gambling addictions increased.

In spite of these negative trends, the Cleveland Coalition’s goal was not to fight against the construction of the casino. The casino had been approved by the state’s voters, overwhelmingly so in Cuyahoga County. The goal of the Coalition was to educate Clevelanders on why casinos in other cities failed to produce expected results, to collaborate on strategies that would make our casino more likely to succeed, and to act on these strategies through advocacy in order to ensure that Cleveland’s casino could integrate into the city’s fabric and have a positive and transformative impact on the community.

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This report is the result of the Cleveland Coalition’s first attempt to impact local policy-making in a positive way. This report does not answer all of the questions, nor was it intended to provide definitive answers. The Coalition prepared this report as a foundation for important questions that should be further explored by our community.

Readers will notice overlap among the various sub-topic discussions; the Coalition intentionally preserved the autonomy of each group’s recommendations in order to allow the reader to discern various patterns and themes that emerged from the process.

The response to this exercise was overwhelming, with more than 200 people attending a forum at the City Club of Cleveland on a Friday evening to learn about casino design and the proposed sites for the Cleveland casino. Many more showed up at Cleveland State University’s Levin College of Urban Affairs to engage in a dialogue on how to maximize the positive economic impact of the casino on its host city. This effort might have in some small way contributed to the outcome of the proposed casino, as casino developer Rock Ventures has stated repeatedly that its goal is to design a casino that will integrate with and have a net positive impact on all of downtown Cleveland. The Coalition will act over the next two years to keep Rock Ventures true to this commitment.

Over the course of this year, the Coalition will seek to broaden its membership, tackle more specific initiatives and delve deeper into policy and systems issues that will allow it to accomplish its goal of enhancing quality of life, economic innovation and social equity.

Please contact the Cleveland Coalition at www.clevelandcoalition.org to learn more and to get involved.

Acknowledgements A big thank you to all of the local design practitioners, experts, concerned citizens and students who participated in the panel discussion and the charrette.

These events were made possible with the support of the Cleveland Urban Design Collaborative, The Levin College Forum, Maxine Goodman Levin College of Urban Affairs at Cleveland State University, AIA Cleveland, APA Cleveland, City Club of Cleveland, and Kent State’s graduate students from the Masters of Architecture and Masters of Urban Design program: Carmen Licate, Jason Rohal, Jesse Sweigart, Katherine Keller, Kristen Buckland, Kristina Zsigmond, Luke Treskovich, Marcus Schafer, Marissa Butts, Nick Faehnle, Phillip Erb, Sam Marcum, Travis Logsdon, Matthew Spencer. Thanks also to David Schwarz, Thomas Chema, Christopher Diehl, Len Komoroski and Eric Wellman who participated in our panel discussion, and to Terry Schwarz, Paul Alsenas, Jen Hillman, Michael Christoff, Paul Vernon, Joy Roller, Dru McKeown, Peter Whitt and Thomas Starinsky for facilitating the charrette’s groups. Special thanks to Carrie Miller and The City Club of Cleveland and The Levin College for providing space for the events, as well as the Coalition members who self-financed this project.

All the presentations from both events as well as this document are available online: www.clevelandcoalition.org

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PART I | EVENT OVERVIEW GRAHAM VEYSEY

March 5, 2010 @ The City Club 850 Euclid Ave. Panel Discussion Thomas V. Chema, President, Hiram College Christopher Diehl, Architect, Director of Design, URS Corporation Len Komoroski, President, Cavaliers/Quicken Loans Arena David Schwarz, President and CEO Of David M. Schwarz Architects, Inc. Moderator: Eric Wellman, Host Of Morning Edition On 90.3 WCPN Ideastream Videos available at www.clevelandcoalition.org The Northeast Ohio airwaves were dominated with pro- and anti-Issue 3 advertisements during the months building up to the November 2009 vote on a statewide ballot measure that would establish casinos in Ohio’s four largest cities.

Dan Gilbert, the founder of Quicken Loans and the owner of the Cleveland Cavalier,s used the Quicken Loans Arena as pro-Issue 3 campaign central, holding informational meetings on practice courts where he gave presentations on the economic benefits of a casino in Cleveland.

Opponents of Issue 3 plastered the state with billboards about the negative effects of gambling. When Issue 3 passed, the billboards were taken down, the television ads ceased, and the once contentious debate fell silent. However, fundamental questions remained, and the ambiguity of the law rose to the surface.

Of the four cities, Cleveland was the only one with multiple options for a casino location. A citizen group in Cincinnati started a dialogue after the election about moving the mandated location for that city’s casino, but in Cleveland no group had revived the conversation that began during the campaign. The Cleveland Coalition concluded it was an issue that needed to be discussed with the Greater Cleveland community.

The Coalition began reaching out to stakeholders. These groups included faculty from Kent State University’s Cleveland Urban Design Collaborative (CUDC) and Cleveland State University’s Maxine Goodman Levin College of Urban Affairs, journalists who covered the campaign and knew the casino legislation in great detail, journalists who specialized in urban connectivity and architecture, government officials at the city and county’s planning departments, and foundation and nonprofit leaders who spearheaded or participated in important civic dialogues in the past.

Fortunately, two of the members of the Cleveland Coalition’s organizing team are on staff at the CUDC where a graduate level design studio was exploring the 6 | Cleveland Coalition

Left: Len Komoroski, President, Cavaliers/Quicken Loans Arena; Right: Christopher Diehl, Architect, Director of Design, URS Corporation

future Cleveland casino design. The studio was taught by architect Christopher Diehl, who at that time was the director of the CUDC. One of the invited critics for the studio’s mid-term review was architect David M. Schwarz, whose current work includes the immense Harrah’s district in Las Vegas.

The Coalition asked Diehl, Schwarz, Rock Ventures and the City of Cleveland to participate in a public discussion at The City Club of Cleveland.

Although the City of Cleveland chose not to participate, Tom Chema, the President of Hiram College and former director of the Gateway District project agreed to share his perspective. Along with the revamped Convention Center and the new Medical Mart, the Cleveland casino is one of the largest downtown construction project since the Gateway District.

The purpose of the event was not to debate the merits of gaming, but to explore the opportunities that emerged from this large urban development. With nearly 200 people in attendance, IdeaStream host Eric Wellman moderated a discussion with Cavaliers President Len Komoroski (representing Rock Ventures), David Schwarz, Christopher Diehl, and Thomas Chema. Each participant was asked to reflect on the opportunities for integrating the casino into the existing urban fabric.

Christopher Diehl reaffirmed the fact that “Of the four cities in the state of Ohio, most of the other cities had one site specified in the constitutional amendment while [Cleveland] had four.” He also observed that “Location is crucial,…Being able to connect existing systems to new systems is vital so the casino does not function as a silo, but plugs into the economic resurgence of downtown Cleveland on East 4th Street, in the Warehouse District, with the Medical Mart, and the Convention Center and Public Square redesign.”

Using rich architectural renderings and map overlays not seen before in public, Diehl made a strong case for the locations that were subsequently chosen by Rock Ventures – the first four floors of the Higbee Building as a temporary site and the Huron Avenue site for the permanent location. Diehl finished by asking, “How do we do gaming in Cleveland in the strongest possible way that is authentic to this place and makes it as vibrant as possible?”

Architect David Schwarz – the only non-Clevelander on the panel – commented, “Two of the sites are clearly going to do nothing for downtown.” Schwarz framed Crooked River Casino Report | 7

Left: David Schwarz, President and CEO Of David M. Schwarz Architects, Inc.; Right: Thomas V. Chema, President, Hiram College

the casino in contemporary terms, defining “gaming” for the audience to illustrate the evolution of casinos from being places strictly for gambling to being places that offer a broader entertainment experience. However, Schwarz asserted that he knew of no casino that did not limit that entertainment experience to its own property and that if Cleveland did integrate the casino with the existing urban fabric, it could serve as a national model.

Rock Ventures representative and Caveliers President Len Komoroski responded by saying that, “The ultimate measure of our success will not be just how well the casino does, but how it impacts downtown. We know that there is excitement for the casino, and a number of people have thoughts and ideas. We look forward to hearing every one of them.” Because there was nothing that mandated any sort of a public process post election, it was a welcome signal from the casino developers that they were open to public input and even more so that the developers were measuring success not only by casino revenues but by the vibrancy of downtown.

Thomas Chema emphasized this distinction, commenting that, “The casino itself has to be economically successful for its owners and developers. Sometimes we forget about that when we think about these large projects.”

The event drew a diverse crowd to the City Club and generated press coverage that jump-started a public dialogue and established an informational baseline for the casino design charrette hosted by the Cleveland Coalition as its second event.

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Plan and view showing the four initial casino locations: 1. Riverview site 2. Scranton Peninsula site 3. W. 3rd Street parking site 4. Higbee building (Courtesy of graduate students from Kent State University)

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Cuyahoga river & the Riverview site (Courtesy of graduate students from Kent State University)

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View of Higbee building and Public Square (Courtesy of graduate students from Kent State University)

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PART II | OVERVIEW GAURI TORGALKAR

April 9, 2010 @ The Levin College Forum, Maxine Goodman Levin College of Urban Affairs, Cleveland State University Design Charrette & Public Presentation Participants worked on the topics of connectivity, built environment, quality of life, programming and economic development.

Videos available at www.clevelandcoalition.org

The second event was designed as a community charrette comprised of architects, designers, planners, city officials, lawyers, policy makers, students, and interested citizens. These individuals gathered at CSU’s Levin College where they were divided into groups according to their interests and expertise to brainstorm ideas for the casino project. Prior to the charrette, the registered participants received an information package designed to provide background informational and resources pertaining to Cleveland’s proposed casino. The package contained an agenda for the April 9 event, information regarding the various breakout sessions, and related reading and resources for review before the workshop. More than 70 participants spent the afternoon discussing ideas that were then presented to the entire group in the evening.

The design charrette participants were divided into 4 breakout groups:

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1.

2.

3.

4.

Urban Connectivity Built Form/Architecture/Programming Quality of Life Economic Development

PART II | URBAN CONNECTIVITY GAURI TORGALKAR & KEVIN LEESON Overview The Urban Connectivity group developed design recommendations that took into account 1) the spatial relationship between the casino and downtown Cleveland, and 2) the physical urban context. This group included architects, planners, engineers, designers, and interested citizens from a diverse field of expertise.

After architect David Schwarz’s presentation from the first event, the merits of the Riverview site as opposed to the other sites were apparent, so for better use of the participants’ time and expertise, the discussions focused on that site.

The Higbee Building, which may be best suited for a temporary casino, was also discussed to a lesser extent.

Theme The group looked at the casino location relevant to its urban context, proximity to other prominent Cleveland landmarks, and proposed public-private projects.

The theme that evolved during the charrette discussions was that of exchange: [EX]CHANGE This theme incorporates the idea of a two-way exchange in which the city provides certain amenities to the casino and in return the casino gives back to its city. Most existing examples of casino design, at best, turn their backs to the city, and at worst, adversely affect retail and other businesses in their vicinity. Very early on in the conversations the group determined that this theme of exchange – as a healthy, symbiotic relationship between the two entities – can allow for the $600 million investment to be used in a way that enhances and reinvigorates the city and helps establish a paradigm shift in casino design.

The following is a brief description of the main topics covered by the Urban Connectivity sub-group of the charrette: 1. Regional Casino Network The map on the following page shows the locations of other casinos in the Midwest region. Initial traffic studies project 8 million visitors per year, which is an average of 22,000 people per day. It is imperative to consider traffic flow, as well as take advantage of this daily influx of 22,000 people into downtown.

It is important to look at the multi-modal transportation system for potential enhancement additions and alterations to provide mobility options. Even though this population is headed to the casino, how can the physical space and design of the public realm around the casino encourage them to linger and experience the city?

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Regional Casino Locations

Existing Proposed

Map of regional casino locations (Courtesy of graduate students from Kent State University)

2. Multi-modal Transportation Infrastructure A comprehensive multi-modal transportation plan that takes into consideration the approach of casino visitors from the surrounding region and neighboring states, parking, walkability/pedestrian movement, and existing downtown public transportation options, is required. There is an existing network of transportation amenities that can be enhanced or connected to work together.

3. Public transportation: RTA Bus, Rail & HealthLine The proximity of the casino to Public Square connects it to RTA train lines at Tower City and the Euclid Avenue HealthLine corridor. The casino design should consider these connections when designing access points into the casino building.

4. Network hubs modes+nodes The new RTA Stephanie Tubbs Jones Transit Center on Prospect Avenue and the proposed Warehouse District transit center can be connected to the casino via loop circulators and the E-Line trolley.

The new RTA Stephanie Tubbs Jones Transit Center(Courtesy of www.downtownclevelandalliance.com)

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Map of existing parking facilities in downtown Cleveland (Courtesy of www.cleveland.com)

5. Parking network+loop circulator This map shows the location of existing parking in the downtown area. It would be a waste of precious space, and a duplication of resources to create additional parking capacity without taking into consideration these existing lots and garages.

A circulator bus route could be devised that utilizes these parking facilities, and the casino should only provide spaces to cover the deficit.

6. Connections to the airports: Hopkins and Burke Airports can be a significant source of revenue for the city considering the anticipated high volume of regular gaming visitors arriving via Hopkins, and the lower volume of high rollers arriving at Burke. The RTA Red Line can provide easy access to patrons arriving via Hopkins by increasing train frequency during the weekends. The Burke connection could become a part of the downtown trolley circulator system.

7. Pedestrian experience The pedestrian environment in the public realm surrounding the casino can be enhanced to improve the downtown experience by improving pedestrian crossings at intersections using raised crosswalks or colored pavers, and providing a downtown trolley/loop.

Beau Rivage Casino, Missisipi turns its back to the waterfront and the city (Courtesy of David Schwartz)

8. Connections to the Cuyahoga River/Lake Erie The photograph (page 16) shows the location of the river relative to the casino site. A typical casino relies on the principles of illusion, and seclusion from the real world, and is therefore designed to create closed-loop indoor mazes with attractions along the way. There are examples of casinos that have turned their backs on adjacent bodies of water, as seen in the case of the Beau River Casino.

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Spaces and amenities for residents

Cuyahoga river & the Riverview site (Courtesy of Graduate Students from Kent State University)

Cleveland has the opportunity to create a new casino prototype by providing outdoor lounge areas and open spaces for recreation and relaxation that take advantage of its proximity to the river and the fabulous vistas that the location provides. Ideas include: a. Create rooftop terraces from street level to the river edge to enhance the pedestrian experience b. Restore river edge; natural landscape c. Landscape river edge that connects to the Lake Link Trail d. Establish elevator tram going down to the river

THE MALLS THE DISTRICT DOWNTOWN

e. Create boarding station for excursion boats docked at the river, i.e. the Goodtime III

Connecting Downtown Cleveland

f. Support park-n-boat and other multi-modal mobility system g.

11 November 2010 Team with the water-sports groups (Cleveland Rowing Foundation, lmnGreat + GGN Lakes Jet-skis, 41 North Coastal Kayak Adventures) to include rowing, jet skiing, and boating as a part of the casino experience

h. Create observation deck to take advantage of the vistas.

9. Sustainable site design The casino’s high-profile location at the junction of downtown Cleveland and the Cuyahoga River provides it with an opportunity to showcase stormwater management technologies. By employing innovative green infrastructure techniques, the casino can simultaneously meet stormwater runoff regulations, create interesting spaces, provide natural habitats, and educate the public on responsible stewardship.

Surface parking facilities can use permeable pavement that allows rainwater to gradually be absorbed into the ground. Runoff from impermeable surfaces can be directed into bioswales and rain gardens instead of hardened retention basins, creating attractive and functional green areas. Rainwater could also be captured as a sustainable and cost-effective source for fountains or other water features.

Elevator tram in Brazil (Concept courtesy of Dean Dabson; Image courtesy of Wikipedia)

10. Casino as a portal into Cleveland The casino can be integrated with Cleveland’s existing entertainment experience by experimenting with multiple venue collaborations, brochures, and package deals to deliver a complete “Cleveland experience:” a. Developing interactive maps for mobile devices and smart phones for retail destinations, upcoming events, geocaching, and gaming activities

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at the casino and outside in the city along with a downloadable online version b. Interweaving the different city destinations into the casino ‘program’ c. Interspersing the gaming amenities around the city (food, theatre, cinemas, etc.) d. Supporting local retail business in downtown Cleveland, especially thriving districts like the Warehouse District, East 4th Street, Tremont, Ohio City and Detroit Shoreway is important. Even a small diversion of patrons could adversely affect these businesses. The casino can support local vendors by: i. Contracting with them for events and food ii. Not duplicating services, but providing easy access to and from these amenities iii. Working with the Playhouse Square District, Tower City and other entertainment venues to encourage use through vouchers e. Instead of the standard practice of making a casino into a singular destination, the casino should become a part of the neighborhood in its form, function and experience. f. Family-friendly design: New statistics show a general shift in casino culture from a gambling-dominated one to something that is more dependent on the gaming experience: 60% gaming; 40% gambling.

This allows for the inclusion of children and teenagers in the casino environment by designing experiences targeted for a variety of audiences.

The casino could promote child-friendly programming, special event nights, and day-care/children play area facilities to make it more appealing as a destination for evening excursions or weekend getaways.

11. Connections Through the design of connectors and enhanced pedestrian experience in the public realm, the casino could help stitch together the various amenities in downtown, directing traffic to other existing places of interest in the city: a. Rock and Roll Hall of Fame b. Sports venues/destinations: Cleveland Browns Stadium, Quicken Loans Arena, Progressive Field c. Great Lakes Science Center d. Playhouse Square District

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STEPS map for downtown Cleveland (Courtesy of Cleveland Department of Public Health & Cleveland Urban Design Collaborative)

e. Greater Cleveland Aquarium, river connections, fish ecology education f. Medical Mart & Convention Center g. West Side Market h. Tremont, Ohio City and Detroit Shoreway i. Retail destinations j. East 4th Street k. Warehouse District l. HealthLine, University Circle and Cleveland museums & galleries m. Cuyahoga Valley via the Cuyahoga Scenic Railway & Towpath Trail The Group Plan Commission Charrette: Setting a “Connection” Agenda Great strides have been made recently to develop a cohesive plan to integrate Cleveland’s many downtown projects. Spurred by $2 billion in funding, Cleveland’s new Group Plan Commission has been charged with the task of creating a unified vision for a downtown that is built around signature public spaces and the linking of catalytic development projects. Collectively, these projects have the potential to provide a continuous link from the Cuyahoga River, through and around the planned Cleveland casino, across Public Square to Malls A•B•C and the new Medical Mart and Convention Center, and onward to the lakefront. On November 30, 2010, approximately 80 local design practitioners participated in an afternoon charrette, facilitated by the Kent State

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Cleveland Urban Design Collaborative in partnership with the City of Cleveland, ParkWorks, and the Cleveland chapters of the AIA, APA, and ASLA. One of the groups looked at the connection between the Cuyahoga River and the casino and its connections into other major destinations downtown. The group explored the idea of using water as a connective strategy between Public Square, the casino, and the Cuyahoga River. The “water – hopping” concept provides a visual link between the fountains in Tower City to public spaces on either side of the casino that would have major water features, cascading down to the riverfront, where a pedestrian boardwalk would provide access along the river’s edge. Some other recommendations relevant to the casino project were: a. Connection to East 4th street by softening the intersection and continuing the streetscape b. Traffic calming at Ontario and Huron intersection with welcome walls displaying public art c. Streetscape improvements along Prospect and Ontario d. Water elements to aid in wayfinding and continuity e. Casino roof to act as a continuous public space For more information:, visit http://planning.city.cleveland.oh.us/grouplan 12. Green network connection: Downtown Cleveland has an network of green spaces and park areas. The open spaces on the casino property can be connected to the city’s open spaces via enhanced sidewalks and trellis structures, seating and bike amenities such as

Plan and view showing the “water-hopping” concept to link the casino & Public Square (Courtesy of the Group Plan Commission)

Map of upcoming investments in downtown Cleveland (Courtesy of the Group Plan Commission) Crooked River Casino Report | 19

water fountains and bike parking. Other open space connections: a. Parks/green connecting to the river and the lake b. Mall A, B, C c. North Coast Harbor d. Edgewater Park & Whiskey Island What’s in it for the casino?

The traditional casino model as an insular destination structure programmed to attract and retain patrons is outdated as the primary reason for casino visits changes from gambling to gaming. This is a radical shift of the reasons and values that define casino culture; from a winning/losing experience to a gaming and entertainment experience where patrons pay to have a good time without necessarily the hope of a ‘jackpot’. This allows the casino to move from a ‘trap and seduce’ model, to a more ‘free-range-patrons’ model, where the visitors can come and go as they please, experiencing the city along with the casino.

Utilizing existing resources and infrastructure in downtown Cleveland means less front-end investment, freeing up revenue for other capital improvements around the casino in the public realm.

With the advent of augmented reality, there are limitless options to include the venues around Cleveland as a part of the casino’s gaming experience, allowing visitors to explore the city. This presents the opportunity to explore a new typology for the Cleveland casino, one that makes this casino stand out among its competitors. It provides the opportunity for recognition and market definition, promising a new experience to residents of Ohio and neighboring states. It also allows for community buy-in and respect for the good faith efforts of casino operators. These qualities allow for a healthy exchange that will establish a paradigm shift in casino design.

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PART II | ARCHITECTURE, BUILT ENVIRONMENT &

PROGRAMMING DAVID JURCA Overview The Architecture/Built Environment and Programming groups combined their members during the design charrette. The large group included architects, urban designers, and representatives from arts and cultural organizations. The main discussions focused on recommendations for the physical form of the building, surrounding urban landscape, and potential to leverage existing cultural assets in the region. The issues addressed by the group were partially derived from the presentations delivered at the first Cleveland Coalition event at The City Club.

Assumptions At the outset of the design charrette, several assumptions were articulated regarding the design of the casino. Based on recommendations from architect David Schwarz, a speaker at the first event, the decision was made to rule out the Scranton Peninsula site and West 3rd Street site from consideration. The lack of connectivity to downtown and the huge expense required to build roadway infrastructure were sited as key reasons for dismissing the two sites as viable options. Although both the Higbee Building and the Riverview sites align with the desire for urban connectivity, only the Riverview site was considered during the design charrette. The Riverview site was assumed to be more attractive to the casino developer because of the site’s larger size.

It is worth noting that since the design charrette in spring of 2010, Rock Ventures has released plans to use both the Higbee Building and Riverview sites in a two phase strategy. The two-site scheme could potentially leverage each site’s unique assets and produce a more interesting development than only using a single site.

In November 2010, Rock Ventures released a concept plan for the Riverview site and in February 2011 declared that the Phase I casino will be operational in 2012.

View showing the four initial casino locations:

1. Riverview site 2. Scranton Peninsula site 3. W. 3rd Street parking site 4. Higbee Building

(Courtesy of graduate students from Kent State University) View of Higbee Building and Public Square (Courtesy of graduate students from Kent State University) Crooked River Casino Report | 21

Assumptions were also made on the square footage requirements for the various programmatic elements. The “gaming floor” was assumed to require 200,000 sq. ft. for back-of-house operations and 100,000 sq. ft. for the open gaming floor. On the Riverview site, the entire 300,000 sq. ft. gaming floor could be accommodated on one floor, because of its significantly larger size.

The Higbee building’s 80,000 sq. ft. floor plate would require multiple floors for gaming, which we understand is not ideal for casino operations.

Another casino element requiring a significant amount of space is parking. It is estimated that 4,000-10,000 parking spots will be needed for the casino. This could require up to 1.6 million sq. ft. of property, if it were arranged as surface parking.

Based on figures released by Rock Ventures, the casino will attract an estimated 8 million visitors per year. This breaks down to 22,000 visitors per day, which is roughly the number of attendees at a Cavaliers home game. The traffic congestion concerns brought up by this significant increase in downtown visits is a key design issue that needs to be addressed.

1. Minimizing Environmental Impact The incorporation of sustainable design practices was taken as a given by the Built Environment group. A position was established that sustainability is not an optional design element, but rather is embedded in the definition of “good design”. An interesting point made by Schwarz was that there is a difference between a LEED-certified casino and a sustainable casino. He argued that a LEED certified casino only needs to be less harmful to the environment than a typical casino. Since typical casinos consume such great amounts of energy, a sustainable casino would need to be much more efficient than a slightly better typical casino. The energy needs for transportation to the casino was highlighted as a main design consideration for making the casino more Section showing the elevation change affecting sustainable. If the significant number of visits to the casino could be made by connections between the casino, Cuyahoga River and more energy efficient means than single occupancy vehicles, then huge strides Tower City (Courtesy of graduate students from Kent could be made towards the casino’s overall environmental sustainability.

State University)

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Section diagram showing recommended massing to allow views from river boardwalk back up to the city skyline.

2. Site Challenges Initial discussions during the charrette work session centered on the various challenges presented by the Riverview site. Stretching along the banks of the Cuyahoga River, the Riverview site is long and narrow, presenting certain challenges for designing a functional building footprint. The relatively long distance from one end of the site to the other may be prohibitively far for casino visitors and employees to walk. Certain programmatic elements of the casino may also require close proximity, presenting additional building layout constraints.

Another site challenge is the change in elevation from the Riverview site to the streets above. The site’s location right along the river provides the opportunity for wonderful views of the surrounding Flats and the lake, but the site’s low elevation also creates many challenges in terms of connectivity to Downtown.

The Riverview site is approximately 90 ft. below the elevation of Huron Road, which is the primary access street for the casino.

As specified in the constitutional amendment, the Riverview site borders the Cuyahoga River, but does not stretch all the way east to Huron Road.

Addressing this gap between Huron Road and the actual site was a significant concern for the work group.

3. Bridging to Huron Road To address the previously stated site concerns, the workgroup suggested using the non-gaming functions of the casino to “bridge” over the gap to Huron Road.

It was the understanding of the group that the constitutional amendment defined specific site boundaries for gaming operations, but the non-gaming elements of the casino could conceivably be located outside of these confines. Nongaming parts of the site, such as a hotel, restaurants, retail shops, and outdoor green spaces should serve as connections between the main street access points on Huron Road and gaming areas below, near the river. This conceptual arrangement locates elements most conducive to pedestrian activity along Huron Road and Ontario Street allowing them to function as the “front faces” of the casino. In other words, the massing of the building could be separated, expanding the boundary of the Riverview site in order to provide better connectivity to the surrounding urban fabric.

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Map showing the location of impermeable surfaces in Cleveland, where water cannot infiltrate the soil.

(Courtesy of KSU Cleveland Urban Design Collaborative)

4. Parking The significant parking requirement for the casino creates many serious concerns, but also presents several opportunities for innovative design possibilities. Typically, parking lots are built as impervious surfaces, which do not allow rainwater to infiltrate the soil below. These surface barriers convey enormous amounts of polluted storm water into the sewer systems, contributing to combined sewer overflows during heavy rainfall. Increasingly, property owners are using permeable surface treatments for parking lots, which allow water to partially be absorbed back into the ground.

According to David Schwarz, reducing the reliance on single occupancy vehicles and providing easy access for visitors using alternative transportation modes, such as bus and rapid transit, would be one of the greenest design elements for the casino. Providing excessive parking encourages the use of individual vehicles as the main mode of transportation.

Locating the casino in close proximity to the rapid terminal at Tower City provides easy access for out-of-town visitors. Casino guests can fly in to Hopkins Airport, take the rapid and arrive at the casino without the need to rent a car. Providing an easy option for car-free visits helps reduce the need for costly parking infrastructure and saves visitors money, which they can spend downtown.

A dispersed parking strategy was also discussed. By leveraging the numerous existing parking garages surrounding the casino, the number of new parking spaces required on the casino site could be reduced. The nearby parking locations could be connected with a dedicated circulator bus, similar to the downtown bus trolleys. The attractive and iconic casino circulator buses could provide advertising exposure for the casino and offer safe, efficient and reliable tours of downtown Cleveland for visitors. An important benefit of the parking circulator is that casino visitors would be drawn out of the internalized casino environment typical of most gaming complexes. Visitors to Cleveland will experience more of the surrounding downtown area and potentially be encouraged to explore more of the city on their own.

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Diagram showing the location of existing parking structures in close proximity to the casino site and a proposed trolley route to connect the parking and casino.

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Possible main entrances to casino

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Proposed casino bus trolley route

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Existing parking structures

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5. Connectivity Several key recommendations surrounded the issue of connecting the casino to the surrounding urban fabric. As previously discussed, an important connection is between the casino and the multi-modal hub at Tower City. The connectivity to the surrounding Flats area could be provided by reinstating the water taxi service on the Cuyahoga River. The new casino development may provide the necessary incentive for this unique mode of transportation to again provide inexpensive shuttle service between the banks of the river. A new dock could be constructed adjacent to the Riverview site, carefully located to not interfere with industrial shipping. Offering casino visitors transportation choices across the river will benefit the casino, but also provide local residents with a fun and efficient riverfront amenity.

Related to the suggestion to bridge the casino up to Huron Road, the workgroup found it desirable for the casino to preserve view corridors from the river to the downtown skyline. The experience for pedestrians walking along the riverfront boardwalk would be diminished if views into to the city were blocked. The massing of the casino is recommended to take these visual orientation demands into account. Fortunately, it appears as though the topography of the site and the programmatic requirements will lend themselves well to this design feature.

Since the optimal arrangement places the gaming elements on just one floor, a low-slung building mass can be easily formed to preserve view corridors.

6. Massing In the context of the surrounding urban fabric, the casino should serve as an iconic object punctuating the terminus of key street axes. One of the most important of these axes is Ontario Street. Larger scale elements of the casino’s building mass located at the intersection of Ontario Street and Huron Road will provide a strong visual anchor for the Gateway District.

Locating a large building element directly across the street from the main entrance to Quicken Loans Arena would also establish a connection between the two entertainment destinations. The current intersection is a hostile environment for pedestrians, so the new addition could create an opportunity to Crooked River Casino Report | 25

significantly improve the streetscape amenities. A mutually beneficial association could be fostered by the casino design, introducing an iconic visual element and increased foot traffic, providing an incentive for making the surrounding area more pedestrian-friendly. Placing a distinctive visual element at Ontario Street and Huron Road could thoughtfully complement the Federal Courthouse tower, creating a visually striking symmetry.

7. Program Recommendations The Casino can be used as an opportunity to bring activities to Cleveland that are not currently available and that could serve as a draw for both local visitors and tourists. The Ritz-Carlton is currently downtown’s only luxury hotel. A trendy, chic hotel, such as a boutique hotel, would fill a void in downtown Cleveland. It would serve the needs of visitors looking for a more hip experience, and may be attractive to guests drawn to revitalized areas, like East 4th Street, and its renowned restaurants.

In concert with this hotel, the group also recommended the inclusion of upscale retail in the casino. Downtown Cleveland does not provide enough of these stores for downtown workers, residents, or visitors. Many of the area’s workers and residents must travel to the suburbs for their retail needs. The casino could capitalize on the large influx of people who travel to downtown on a daily basis, and the growing residential population. Also, wealthier patrons may be drawn to the casino by upscale shopping offerings. Those who receive large winnings from gambling at the casino might wish to indulge in these establishments as well.

While the Casino is a chance to bring new opportunities and activities to Cleveland, the group felt it important to stress that already existing local entertainment providers should not suffer. Instead, the casino should enhance them. By working with surrounding and regional arts and cultural organizations, the casino can capitalize on a symbiotic relationship with the existing community. The group recommended that the casino provide passes or packages for nearby attractions. Gambling winnings or hotel packages might include tickets for Playhouse Square, the Cleveland Orchestra, and other arts programs in Cleveland. The casino could also consider developing a relationship with Positively Cleveland, building on their Cleveland marketing program. The casino may save on costs by foregoing its own entertainment facilities and instead partner with existing venues in Cleveland to put on concerts and shows.

Such partnerships would decrease the casino’s marketing costs and operators could profit from greater attendance by community members who already attend these venues on a regular basis.

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PART II | QUALITY OF LIFE GAURI TORGALKAR BETH SEBIAN & JASON BRISTOL Overview The Quality of Life group was composed of representatives from the nonprofit community, government agencies, civic organizations, community development corporations, neighborhood associations, and local businesses. The group arrived at a list of factors that affect quality of life and two procedural elements that will define a healthy relationship between the casino and the local community. The two procedural elements are: 1. Leveraging existing infrastructure to capitalize on casino-induced improvements 2. Establishing a system of transparency to understand, assess and improve the new city-casino relationship in a way that benefits both entities Members of the group agreed that local partners must decide which quality of life issues are most important to them, and then how mechanisms for accountability and transparency should be incorporated.

Principles The casino represents a large capital project that will have a major impact on the quality of life for residents of Cleveland and the surrounding region. The casino will rely on these very communities and existing regional infrastructure to help attract and accommodate its patrons. The success of both partners depends on recognizing their mutual needs and collaborating to address the challenges and opportunities presented during the planning and operation of the casino. Toward this end, the planning of the casino must be undertaken with the following principles. The casino should: 1. Integrate into the fabric of the City of Cleveland 2. Concentrate on regionalism & sustainability 3. Be sensitive to regional community neighborhoods 4. Celebrate its urban location and not be insular 5. Give local residents reason to embrace the casino as an asset 6. Collaborate with community stakeholders in the decision-making processes (i.e. transparency) The success of this endeavor requires a strong commitment from all partners for mutually beneficial collaboration and cooperation. Evaluation and methods of accountability must be central priorities for every stage of the planning and implementation process. The planners should make a good faith effort to include community partners in planning decisions.

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The casino can advance a values-driven culture by defining and establishing core values: diversity, transparency, service, accountability, sustainability, partnership and accountability.

Quality of Life Issues The Quality of Life group started its discussion by outlining a series of issues that define quality of life in a community and then discussed these issues as they relate to casino design and operation. The topics included: 1. Safety: located in Cleveland downtown, the casino will be in a neighborhood that could use the presence of a 24-hour activity beacon to improve the actual and perceived safety in the city.

2. Interconnectivity: the casino should link to other venues and public spaces in the city.

3. Sustainability: green building standards should be used for both the built environment as well as the open space design using natural, local and sustainable materials and methods from design and construction to disposal and recycling.

4. Social Impact: the social impact of gambling addiction and other related addictions needs to be addressed.

5. Providing Choice: the ability of casino patrons to move in and out of the casino and partake in other activities around the city should not only be permitted, but also encouraged.

6. Wayfinding and Access: efficient wayfinding, marked routes and signage help orient visitors and encourage exploration without a feeling of discomfort.

7. Health/Wellness: the design and management/operation of the casino needs to foster a feeling of well-being and promote spaces, activities, food, etc. that encourage healthy behavior.

8. Affordability: the casino needs to cater to people of various economic levels.

9. Equitable Conditions: the casino needs to incorporate practices that promote social equity, especially with regard to its role as an employer.

The casino should also pay a “living wage.”

10. Identity: Cleveland’s post-casino skyline will be greatly impacted by the design of the casino, especially considering its location as seen from the automobile traffic on the approaching freeways and pedestrian traffic from both sides of the river. It is important for the casino to portray an image that complements the history and visual vocabulary of Cleveland’s downtown.

11. Reinvent/Preserve History: the casino should capitalize on opportunities (ex: interior artwork) to educate and celebrate Cleveland history.

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12. Cultivation of Culture: the casino should adequately inform visitors about cultural attractions and generally celebrate Cleveland cultural assets such as our thriving theater scene, local galleries, and museums.

13. Promotion of Diversity: Cleveland has a diverse population in terms of race, ethnicity, and social and economic class. The casino should take steps as an employer to incorporate hiring practices that take advantage of this diversity.

14. Percentage of Local Employees: the casino should be required to employ a certain percentage of residents (based on progressive industry standards) from Cuyahoga County.

15. Civic Pride: the casino will become a prominent visual and experiential icon in the city, and its success as a thriving Cleveland destination can help establish it as a desirable tourist destination and will generate civic pride among residents.

16. Symbiosis: the city and the casino need to have a symbiotic relationship where each benefits from the other.

Partnership Opportunities Based on the analysis of issues that directly relate to a casino, these are some of the ways in which the casino can help improve quality of life for residents of the City of Cleveland and Cuyahoga County: Transportation System The transportation system needs have a comprehensive multi-modal plan that takes into consideration the approach of casino visitors from the surrounding region and neighboring states, parking, walkability/pedestrian movement, and downtown public transportation options: a. Safety (pedestrian and cyclist friendly) b. Security (after-hours access) c. Accessibility (geographical access) d. Affordability (free or inexpensive transit for local sightseeing/retail district visit) e. Efficiency (interconnectivity, clean fuel) Education, Employment & Equity Cleveland has a number of premier educational institutions located in and around downtown. Casino operations will require training for staffing levels ranging from managers to Blackjack-dealers. The casino should look to these institutions as potential training centers for new casino employees, instead of hiring out-of-town consultants or investing in out of state training.

1. Partnering with local institutions (e.g. CSU, Tri-C, CWRU, local high schools)

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2. Job Training a. Green jobs expansion/education by teaming with local job-corps centers and high schools specializing in vocational training b. Target urban education, employment and career c. It is important to consider benefits packages for lower paying jobs, which can help employees reach higher tiers in education and wealth.

3. Local Evergreen Cooperatives are new and successful initiatives led by the Cleveland Foundation that could become excellent partners for the casino. For example, the Evergreen Cooperative Laundry could be contracted to work with the casino, or local food co-ops could team with the casino to manage a percentage of the casino’s food demand.

4. Employee Housing: a. Encourage hiring of local residents, especially for lower-income jobs b. Invest in enhancing housing in areas like Lakeview Terrace, and other public housing in downtown Cleveland and inner-city neighborhoods for lower-income employees 5. The casino could fund or participate in training opportunities in the fields related to casino construction, management and operation: a. Management b. Green industry c. Information technology d. Hospitality e. Local high schools 6. The casino should also collaborate with organizations that help individuals overcome gambling addictions.

Downtown Reinvigoration A $600 million investment in the heart of downtown Cleveland presents numerous opportunities for reinvigorating and reaching beyond the confines of the casino building. This entity can make a difference to the immediate vacinity by expanding some of its services into the surrounding neighborhood.

1. Community amenities like a visitor center, informational maps, public rest rooms, a coffee shop, and a bookstore located at the street level could make the building all-inclusive, especially to people who may not otherwise be patrons of the casino, making it a true community amenity.

2. Safety and security: The casino should work with existing law enforcement agencies and local organizations to help augment their efforts by:

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a. Aiding in crime prevention and increasing the perception of safety with the use of lighting, improved seating, visual access and open design in the public right of way. b. Providing supplemental funding to existing entities like Downtown Cleveland Alliance, which has its DCA ambassadors patrolling the streets of downtown on bikes. c. Establishing emergency service stations and police mini-stations at the casino that can provide 24-hour security support.

3. Developing public health partnerships with institutions such as the Cleveland Clinic and University Hospitals for projects such as a wellness center and first response clinic.

Philanthropy The casino is in a position to contribute philanthropically to causes that benefit the city’s various cultural and social activities. Opportunities include: 1. Charitable giving and community investment 2. Providing an event site for multi-sector fund raisers 3. Teaming with local foundations 4. Incorporating venues for use by small local cultural and social organizations that need space for performances and other events Transparency An open partnership between the casino and local partners is imperative for success. All stakeholders must take on an equal share of responsibility and share the work of ensuring transparency and accountability.

One idea for ensuring transparency and ongoing critical examination of the quality of life impact of the casino on the community is the creation of a fellowship at a Cleveland educational institution to evaluate changes in the region’s quality of life. The fellowship would assess directives and implement changes as necessary, creating metrics and a case study to help leverage and reinforce existing inter-educational relationships and community capital, while helping redefine the role and image of a downtown casino.

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PART II | ECONOMIC DEVELOPMENT FRAN DIDONATO, NICK MARTIN & AHMED ABONAMAH Overview Economic Development is one of the most important pieces of the casino puzzle. Many voters supported Issue 3 because they were told it would create jobs and help reenergize the state’s economy in a time of deep malaise. The assertions made by Issue 3’s proponents gave rise to a number of questions before and after the November 2009 election, but the one the economic development group focused on during the Cleveland Coalition’s design charrette was: How can this project help our economy grow and add jobs in the process?

Design charrette participants, informed by a substantial body of research, discussed this question and made recommendations they felt would help the casino achieve its goals to increase employment and grow the economy. The discussion around economic development was focused on three issues: job development, retail development and taxes. Recommendations were provided in an attempt to fully leverage the casino’s economic potential.

Background Participants at the design charrette received and reviewed an informational packet pertaining to economic development prior to the event. Economic development was the primary justification by Issue 3 supporters for amending Ohio’s constitution to allow casino gambling. Proponents of gaming claimed tens of thousands of new jobs would be created and millions of dollars would be added to state and local government coffers. Opponents of the measure claimed the numbers were inflated and that very little good would come of the casinos. As is often the case, a pre-election quarrel among interest groups did not bring to light the reality that the economic impacts of casino gambling did not fall into strict dichotomies. To that end, the Federal Reserve Bank of St. Louis, in an independently-created research report stated, “although economic development is used by the casino industry and local governments to sell the idea of casino gambling to the citizenry, the degree to which the introduction and growth of commercial casinos in an area leads to increased economic development remains unclear.”1 The Federal Reserve Bank of St. Louis framed its analysis similarly to the design charrette participants, focusing on: job creation, retail development, and taxes.2 Job Creation When discussing job creation, two critical questions arise: (1) Is unemployment 1 Garrett, Thomas. Bridges: Casinos and Economic Development: A Look at the

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Issues; http://www.stlouisfed.org/publications/br/articles/?id=638 2 Id.

decreasing? and (2) If yes, for whom? The Fed maintains that when assessing unemployment numbers as a direct correlation to the casino’s impact, the local unemployment numbers need to be analyzed in tandem with the state unemployment numbers. Only if local unemployment decreases more rapidly than statewide unemployment can one deduce that the casino has had a positive effect on unemployment for local residents.3 The “for local residents” phrase in the previous sentence is crucial. As the St. Louis Fed recognizes, a casino may add jobs to the local economy but have no positive impact on local unemployment. This is why it is important to ask the “for whom” question.

Essentially, to the extent jobs are created, they will be filled by individuals with the skills that match the job descriptions. If local residents do not have the skills, they will not get the jobs.4 Retail Development The casino’s potential impact on local retail development was identified as another important area for the design charrette participants to assess.

Opponents of Issue 3 argued that the health of Cleveland’s casino and retail industry were inversely related; a strong casino would suffocate downtown retail because local patrons would simply be reallocating their entertainment dollars to the casino instead of once-busy restaurants and shopping establishments. If this argument holds true, then the positive economic impact of Cleveland’s casino will, at best be dulled, and, at worst, be nullified.

If Cleveland’s casino thrives off of reallocated entertainment dollars at the expense of existing retail enterprises, the region will see little or no economic growth. However, if the casino causes new sources of revenue to flow into the region, the region will see economic growth. Addressing this issue, the St. Louis Fed stated, “Rural areas that have one or two casinos are more likely to experience a decrease in local retail sales than urban areas that attract a greater number of tourists.”5 According the St. Louis Fed’s analysis, cities like Cleveland would be less likely to suffer a fate similar to their rural counterparts. To that end: The issue of whether casinos help or hurt local retail sales, and taxes, has received the most attention in the academic literature. Essentially, the degree to which casinos attract visitors from outside the local area relative to local customers determines the casino’s impact on local retail sales. If the bulk of a casino’s clientele is local, then one would expect retail sales and tax revenue 3 To get a true sense of the Cleveland casino’s effect on employment, we will have to create 5 control groups – one comparing each casino – region to another and one comparing the Cleveland-region to the state’s non-casino regions.

4 This was highlighted by the St. Louis Fed analyzing the employment effects of a new local casino, stating, “However, it is important to realize that unemployment for the original, relatively less skilled population has remained essentially unchanged – only the higher skilled, new arrivals have found employment with the casino.”

5 Id.

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in the local area to be negatively impacted. This is the substitution effect; consumers substitute casino gambling for other consumption activities such as dining out or going to the movies. However, if casinos act as part of a “tourist vacation,” where non-local visitors spend several days gambling, touring museums and dining out, then local retail sales would likely increase.

Taxes The tax impact of allowing casino gambling in the state of Ohio was significantly debated during the lead-up to the election. Issue 3 supporters argued that casinos would provide a tax boon to county and municipal governments while Issue 3 opponents argued that the sunny tax forecasts were overly-optimistic and did not factor in the costs to government associated with legalized gambling.

Recommendations Although much has been debated about the effectiveness of casinos as engines of economic development, the ability of a singular, urban casino to drive economic growth is unclear. Despite that, and based on an in-depth review of scholarly literature, data, and newspaper accounts, the design charrette’s participants provide the following recommendations to each of the casino’s stakeholders as they work to build and operate a successful casino located in a vibrant urban area that is connected to other local attractions and does its part to create economic growth. The recommendations are as follows: (1) create new jobs with career development pathways, (2) use the casino as an economic development catalyst, and (3) use the taxes it generates to benefit Cleveland and the region.

1. Create New Jobs and Career Development Pathways The recommendation to create new jobs and career development pathways defines two main goals that need to be achieved in order for this recommendation to be successful: getting a commitment from the casino operator to hire locally and to find ways to decrease the local unemployment statistics. The recommendation becomes more specific in the steps that are needed to get there. Participants recommend that the casino operator take the same approach that was taken in East St. Louis (St. Clair County).6 For design and construction, the recommendation is for 90% of the labor to come from a seven-county region. For the permanent jobs, the recommendation is that 50% come from Cleveland, 70% from the seven county region, and 90% from the 16-county area. To achieve these goals, work will have to be done to bridge any skills gaps that may exist within the local community as community members seek casino employment. In particular, the group recommends that the casino’s owner and operator create a special program to train local residents for casino floor positions.

2. Use Casino as an Economic Catalyst 6 80% of labor was local.

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In order to use the casino as an economic catalyst, it is important to look at how it will operate and integrate into the fabric of the retail environment in downtown Cleveland. This recommendation advocates for three main goals: (1) augment and enhance entertainment options for residents and tourists, (2) recapture wandering entertainment dollars, especially gaming dollars currently spent out of state, and (3) create positive spillover effects for neighboring downtown businesses. One essential way to ensure that Cleveland’s casino brings new money into the economy is to build an iconic structure to house the casino. Erecting a signature home for the casino will enhance its tourist-attraction potential and, as discussed above, enhance the casino’s positive economic impact. The more the casino’s owner and operator can mitigate the local reallocation of entertainment dollars with extra-regional spending, the more successful this project will be as an economic development initiative. More specific ideas and steps that can be taken include creating shared parking strategies that provide for essential parking at the casino with additional parking options throughout downtown.

These parking options can be connected by a free trolley that casino-goers and residents can both utilize. This will not only connect casino-goers to the casino without having to walk but it will also create connections between and around downtown. Another idea is to create a “player’s card” where points accumulated can be used in businesses around downtown. This will create an incentive for people to play more if they can not only access the restaurants and shops in the casino but those around downtown as well. Another idea is to encourage a “Cleveland flavor” in the retail and restaurants inside the casino. Finally, it is important for the casino operator to follow the leadership of other institutions in the City of Cleveland and commit to local sourcing and purchase policies.

3. Use Tax Revenue to Benefit City and Region This recommendation advises that the tax revenue at the municipal and county levels be used for non-general fund expenditures. Further, this recommendation also contemplates an agreement with the Ohio General Assembly that local government funding will not be cut as a result of casino tax revenue. To the extent possible, the tax revenue from casino gambling should be utilized for capital improvements and other special expenditures at the municipal and county levels. By separating these dollars from the general fund, regional local governments will save themselves from the pain of a “slow” year at the casino and not have to cut basic services such as police, fire, trash pick-up, or education. The second part of the recommendation is to set up a tax increment financing (TIF) strategy that increases infrastructure to support and augment the casino, enhances connectivity projects like the trolley mentioned above, undertakes quality of life projects like enhancements to Public Square and Canal Basin Park.

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Conclusion The Cleveland Coalition and those who participated in the design charrette provide these modest proposals with the casino’s success as their primary motive. These recommendations represent only a portion of the various initiatives casino stakeholders could engage in creating a successful casino in Cleveland that contributes to city’s and region’s growth. They represent the continuation of a dialogue that began last January, the primary goal of which is to build awareness of and interest in this important civic issue. It is our goal that the delivery of these recommendations spurs greater dialogue within the community about what relationship Cleveland’s casino can have with Cleveland’s economic development agenda.

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PART III | MOVING FORWARD BETH SEBIAN

Next Steps The goal of the Cleveland Coalition’s Crooked River Gaming project is to facilitate a community dialogue to ensure that the casino is embedded in Cleveland’s downtown fabric and has a positive impact on our community.

Thanks to the input of many insightful stakeholders and experts at our events at The City Club and Cleveland State University’s Levin College of Urban Affairs, we now have a concrete understanding of ways the casino can enhance the downtown experience.

The task that remains – and it is no small one – is to ensure that the design, connectivity and programmatic elements we have highlighted are in fact incorporated in the project plans and that the collaborations we have outlined between the casino and other business and community partners are actualized.

We foresee three interdependent forms of action: Public Accountability Using this report as a touchstone, we invite those of you who have participated in this project or are reading our report now for the first time to share it with your friends, family, neighbors, and professional networks.

Widespread public awareness about an issue as important and complex as Cleveland’s casino is important because it allows for public commentary and lobbying on behalf of solutions that are viable and merited, and thus likely to gain traction in the public policy process. Public voices are amplified through outreach such as letters to elected officials and commentary through online and print forums. These efforts communicate to decision-makers in our city that high standards and thoughtful execution of projects like the casino are important to the people they are elected to represent.

Finally, those who support the process and recommendations put forward in this report must be mindful to support candidates and elected officials who put their weight behind a policy-making process that involves civic engagement, dutiful research, and thoughtful implementation.

Professional Collaborations Our second event at Cleveland State University’s Levin College of Urban Affairs yielded many promising programmatic and collaborative ideas to make the casino more connected to the city’s fabric.

We now invite business, nonprofit, and government practitioners to take the reins. Our fellow practitioners and activists should take a close look at the

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recommendations in this report and determine which can be championed effectively from the sectors they represent. The Cleveland Coalition invites you to partner with us to move forward on this initiative.

Coalition-Guided Advocacy Finally, achieving the outcomes we desire for this project requires that we disseminate these recommendations to elected officials, government administrators, and the business leaders who will be implementing the casino plans. One goal is a public commitment from casino and government administrators to incorporate the recommendations from this report in the planning, design and management of the casino. We have had the opportunity through our first two events to develop solutions to the challenges the casino presents for our city, and we would like to see the resources we developed put to productive use. If executed soundly, this casino will be a great success for our community. The Cleveland Coalition hopes that we will soon applaud it as model project for the City of Cleveland.

Thank you for taking the time to participate in the Cleveland Coalition’s process and consider acting on behalf of our vision for the City of Cleveland. We invite you to visit the Coalition website at www.clevelandcoalition.org for periodic updates on this and other upcoming projects.

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www.clevelandcoalition.org