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OVERVIEW
In the face of economic decline in the historic center of
San Angelo, TX and a disjointed urban fabric a R/UDAT was developed
to facilitate the community participation in a shared vision for
the future.
The R/UDAT fulfilled three identified tasks:
1. Provide a plan that links the Historic City Center to other
landmarks (the River walk, River Stage, Neff’s Amusement Park,
Fort Concho, and the Santa Fe Depot).
2. Identify and explain creative financing tools that are available
on a federal, state, and local level that can be utilized to
implement the proposed plans.
3. Recommend methods for coordinating efforts and resources.
The successful adoption of this recommendations and the process
facilitated by the R/UDAT enabled San Angelo craft Downtown
Core’s revitalization partnering with residents, private
enterprises and local institutions.
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BACKGROUND
About R/UDAT
Since 1967, the American Institute of Architect’s
Regional/Urban Design Assistance Team (R/UDAT) program has used a
grassroots, charrette-style approach to help create livable
communities. R/UDATs combine local resources with the expertise of
nationally recognized professionals to assist cities in dealing
with specific local issues. The team conducts an intensive four-day
workshop onsite, engaging all members of the community in creating
a vision for the future. To date, 138 R/UDATs have been completed
in communities throughout the United States and Canada.
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PROCESS
Introduction
Located in West Texas, on the banks of the Concho River,
San Angelo was established as a trading post after construction
began on Fort Concho in 1869. Fort Concho, which still stands as a
National Historic Landmark, included several units of “Buffalo
Soldiers”, establishing an African American presence that
continues today. Sheep ranching came to dominate the local economy,
leading in 1888 to the Santa Fe Railroad extending their line to
San Angelo. By the turn of the century, San Angelo was established
as the largest cattle center in West Texas. The local economy
dominated by sheep and cattle ranching was boosted in the 1920's
with the discovery of oil in a neighboring county. This generated a
boom in the late 1920's which escalated in downtown development
with the construction of a number of buildings that are still
landmarks. These include the County Courthouse, City Hall, Texas
Theater, and San Angelo’s tallest building, the 14 story
Cactus Hotel. After the Boom-Bust growth of the mid 1930's there
followed a slow steady growth until the 1960's when the Downtown as
a center began to swing to suburban shopping centers and a major
shopping mall. In the 1970's a well known City Planner, Victor
Gruen, was employed to “save” downtown. However, his
recommendations to create a downtown mall were never implemented.
This suburban decentralization, declining retail, and the oil
economy bust of the 1980's, left many vacant and handsome
Architectural reminders of a once rich and vibrant City
Center.
In 1986, an exhibit entitled “Visions and Choices“ was
held at the San Angelo Museum of Fine Art. Its purpose was to
challenge the community to think about its future. The exhibit and
comments from the general public made it clear that the most
prevalent concerns were for the quality of life and the built
environment in the city’s center core. During the time of the
exhibit, the museum hosted a forum on the AIA’s R/UDAT
program. The forum was lead by Bruce Kriviskey, Director of the
R/UDAT Program. Following the exhibit and forum, a group of
concerned citizen’s met informally to discuss some of the
ideas and concerns that had been developed from the exhibit. This
group led to the organizing of a R/UDAT steering committee in 1989,
starting the process leading up to the application submitted to the
AIA. R/UDAT Program. The anxiety about the current state of the
Historic City Center was a primary motivation for forming the
committee. Some of the major concerns identified by the committee
included:
1) a noticeable decline in the economic base in the Historic City
Center,
2) The area image suffered from the presence of empty buildings,
vacant lots and poor aesthetics,
3) Presentation of the area lacks focus or theme,
4) Properties of historic or aesthetic value are continually being
threatened with demolition despite efforts of several dedicated
organizations,
5) There are poor and disjointed land uses and regulations
resulting in projects that are often unrelated to adjacent areas or
that may negatively impede future development,
6) Several positive projects being undertaken in the area lack
unifying or connecting element.
With the approval of The American Institute of Architects, the
R/UDAT team “MAIN EVENT” took place on February 7-10,
1992. The team developed from their observations a plan
“Connecting the Past to the Future” for the
revitalization of The Historic Center. The San Angelo Standard
Times described the team’s visit as a catalyst. “It
provided a goal to be achieved and helped us understand why doing
that is important.”
Fourteen years after the visit, the R/UDAT plan is still alive with
some of the original recommendations being implemented. During this
time, millions of dollars in private and public investments have
been spent in the Historic Center, connecting, preserving and
restoring the city’s treasures and enhancing the
environment.
The R/UDAT team, chaired by an expert in urban and redevelopment
planning management, included experts in land use, real-estate law,
community development, transportation, historic preservation, urban
design, architecture, and landscape architecture. This eight member
team was selected following an evaluation visit which established
the expertise required. The team was assisted during the four day
event by eight senior architectural students, local architects and
volunteers. The team started the first day with an overview by the
city planner followed by walking and helicopter tours of the
historic city center. Following the site tours, the team conducted
interviews with community groups, corporate leaders and concerned
individuals. A community public hearing was held, at Fort Concho,
where citizens spoke out, while the team questioned and listened.
After intensive work sessions the R/UDAT Report was written,
illustrated and published on the last day. The four day event was
wrapped up with a press conference and presentation, to the
citizens, of the team’s recommendations and final report. The
local steering committee rose through cash and in-kind donations
over $ 37, 000.00 to finance the cost of the R/UDAT main event,
evaluation visit and post debriefing visits.
Observations
The R/UDAT team quickly identified the historic treasures
and natural assets, located in the Historic City Center. The river,
with its unique riverwalk system divides the Historic City Center
with Fort Concho, Santa Fe Depot/Warehouse and River Stage on the
South and Neffs Amusement Park, Cactus Hotel, Texas Theater, Concho
Street and most of the Downtown development on the North side of
the river. The major challenges to revitalization as identified by
the team were
1) Downtown suffers from a lack of connections to other
neighborhoods and activities, this results in the void of a
symbolic focus that identifies the center of the city. No sense of
arriving “ Downtown “.
2) The city center is pockmarked with empty store fronts and vacant
lots, and a declining economic base.
3) Within the city center, landmarks were deteriorating and
threatened by demolition.
4) The City of San Angelo was using codes, plans and regulations
that are out- of- date and unsympathetic to preservation.
Recommendations
The plan proposed by the R/UDAT team for the revitalization of the
Historic City Center included five key elements that were mutually
supportive:
1) The extend development of Concho Avenue into an Arts and
Entertainment District. Concho Street was one of the major tourist
areas in the city, but its shops are also patronized by residents.
Expansion of this area as an entertainment district with
restaurants, cafes, country music clubs, jazz clubs and comedy
clubs would promote the Historic City Center while simultaneously
providing more attractions for residents.
2) Introduction of residential uses and mixed use into the core of
the City Center. The Historic City Center is the site of five
significant tall buildings that are plagued by vacancy or disuse.
Each of these should be redeveloped for residential occupancy on
the above-grade floors. Residential use would provide another
Housing/lifestyle alternative within the local market, provide 24
hour presence in the core district and provide an immediate
customer base for nearby retail and entertainment activities.
3) The restoration and reuse of the four Architectural Icons.
Fort Concho: Current plans for the restoration/reconstruction of
the fort should be supported.
Cactus Hotel: The Cactus Hotel should be renovated as luxury
Condos, with ground floor and ballroom space studied for potential
retail and high-end restaurant use.
Santa Fe Depot/Warehouse: The current plans should be supported,
but can benefit from a more direct connection with Fort Concho and
with additional development, such as a Fiesta Plaza.
Texas Theater; A major Anchor in the core area and must be restored
as a key resource for expanded entertainment opportunities in The
Historic City Center.
4) Development of a connective sequence of open spaces for active
and passive recreational use. Provide connection of the
redevelopment elements through a series of open spaces each
distinct in its character and use, that provide pedestrian links as
well as nodes for outdoor activity.
a. The rival corridor is a key element.
b. Expansion of the parade ground at Fort Concho as a grassed open
space.
c. The plaza at the new festival marketplace at the
Depot/Warehouse. This public space should be modeled on traditional
Hispanic plazas.
d. The river stage park should be expanded with a pedestrian bridge
link between the river stage area and Neff’s Amusement
Park.
e. Neff’s should be maintained and reinforced as a significant
active open space.
5) Development of a system of “Pathfinders“ pedestrian
and vehicular connections can be strengthened through a system of
“pathfinders”. Street Banners, Signage and Street
Lights.
The renovated Cactus
Hotel
Image: Henry Schmidt, AIA
The team also listed short term goals which the community could
move immediately to implement. These goals included:
a. Design and construction of the pedestrian bridge link between
the River Stage area and Neff’s Amusement Park.
b. Form action groups for preservation of the Cactus Hotel and
Texas Theater
c. Develop a plan for moving the Library to the vacant Hemphill
Wells Department Store Building.
Implementation
The R/UDAT team suggested that redevelopment in the Historic City
Center start small. That there was no compelling reason to
undertake development on a large scale at this time, since it
should always be driven by the marketplace. The team suggested
starting with three significant projects - The Texas Theater,
Cactus Hotel and The Hemphill Wells Building, and begin with their
acquisition, market studies should be conducted as to feasibility
of use of the Cactus Hotel and Texas Theater. Also fundraising
should begin for the Texas Theater. The team pointed out that the
city resources should be used as wisely as possible, and all the
tools available to the city should be employed to accomplish
economic development efforts. They suggested a new structure for
economic development in San Angelo. The Chamber of Commerce would
concentrate on
1) Continual business development and retention.
2) San Angelo Industries.
3) The Business Survey.
The City function must be housed in a new economic development
department which would administer these programs:
1.) Reinvent Zones.
2.) Enterprise Zones
3.) Tax Increment Financing.
4.) Public Improvement District.
5.) Small Business Loans.
6.) Industrial Zones
7.) Any New Initiatives That Require City Investment of
Funds.
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OUTCOMES
The way the R/UDAT team made the public a part of the R/UDAT
process generated the rapid response of the city officials to
implement the plan. Within eight days, the city staff and steering
committee submitted to the City Council a Public - Private Joint
Venture Plan to construct a pedestrian bridge across the Concho
river. The plan was approved and the bridge was dedicated on July
3, 1993, and named “The Celebration Bridge”. By April
1992 the city staff had produced a redevelopment plan which
addressed the link from Fort Concho to the Celebration Bridge. The
Festival Marketplace (Mercado), future work at Fort Concho and uses
for the depot buildings. All projects were part of the R/UDAT
plan.
Celebration Bridge
Image: Henry Schmidt, AIA
The City began leveraging City Bond Funds against from ISTEA,
Community Development Block Grants, State Transportation Fund and
Local Private and Foundation Funds, and the work began. By the end
of 1995, substantial progress had been made on the city projects.
Restoration of Officer’s Quarters No. 1 and Barracks No. 1
(visitor center ) at Fort Concho were complete. The Santa Fe
Passenger Depot, restored in two phases, was open as a transit
center for the City bus service and railroad museum. The restored
Freight Depot had opened as a Senior Center providing recreation,
food and social services. The Mercado area named “El Paseo de
San Angela” was complete with twin pavilions, open grass
areas, tiered landscaped pedestrian mall leading to the river
stage, walkways leading to Fort Concho and the Depot buildings, a
covered Farmer’s Market, and large parking lots.
Since 1995, work has continued at Fort Concho with two additional
major restoration projects and more planned for the near future.
The San Angelo Museum of Fine Arts completed a new six million
dollar building along the El Paseo’s tiered mall, just South
of the Celebration Bridge. The El Paseo area has attracted other
growth, such as a State services center and Senior Center Annex (a
restored historic building adjacent to the freight depot). The
“Old Towne” area along the mall has five relocated,
restored historic buildings, which are leased to private business.
Development along the river has continued west of the Celebration
Bridge with a Kid’s Kingdom, a 14,000 square foot playground,
a skate park, a multimillion dollar Visitor Center with Chamber of
Commerce offices and a new YMCA building opening in December
2005.
Riverbridge with the Musem in the
background
Image: Henry Schmidt, AIA
In December of 1995 the R/UDAT Steering Committee initiated a
long-term community project “Concho Christmas
Celebration”. The vision of the committee was to see more than
one million lights along the Concho River, lights on the major El
Paseo buildings, lights on the trees, lights on the mall all the
way across the Celebration Bridge. The Celebration has just
completed it’s eleventh year, growing each year with more
lights and lighted scenes.
The Cactus Hotel, by the summer of 1992, had been acquired by a
Historic City Center Project, Inc. , a group formed to restore the
building.
Utilizing the space for non-profit organizations, the building
began to take on a life. Since 1992, the building space has been
used by San Angelo’s Cultural Affairs Council, Symphony
Society, San Angelo Museum of Fine Arts Children’s Museum and
Hospice of San Angelo, to name a few. The building also has retail,
private offices, apartments, coffee shop and the ballroom is widely
used for community events. Although not fully occupied, the future
of the building is stable and moving in the right direction.
The Downtown Core’s revitalization was spurred by the R/UDAT
plan and private enterprise. The Downtown has bloomed with
tourist-oriented business, small boutique-type shops, restaurants
and antique stores. Dozens of buildings have been rehabilitated.
Groups like the Junior League have undertaken restoration projects.
The League renovated a four story turn of the century building for
their headquarters and thrift shop. Shannon Hospital and four
downtown churches have contributed to the revitalization with
extensive expansion projects, The rehabilitation efforts have been
helped by the city addressing the concerns of the R/UDAT team by
creating a Historic overlay zone, establishing a Historic
Preservation Commission, introducing a tax abatement policy and
adapting a new building code more sympathetic to existing and
historic structures.
The Historic City Center still has challenges to be met, vacant
storefronts, empty buildings and lots, and unfulfilled plans. The
Texas Theater, now owned by local businessmen has been
“mothballed”, still waiting to be developed. Neff’s
Amusement Park has been closed and the rides sold, leaving an open
space waiting for a use. There has been no residential development
downtown except for some isolated individuals, and no
“pathfinder” system has been developed.
Even with the unfinished plans, the R/UDAT momentum has continued
in 2005. San Angelo was named a Texas “Main Street” city,
new downtown rehabilitation projects are slated for completion in
2006. An open air theater is being planned on Concho Avenue and Tom
Green County has approved a 13 million dollar plan to renovate the
Hemphill-Wells building for the County Library.
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RESOURCES
San Angelo, TX: Wikipedia Entry
City of San Angelo
Regional/Urban Design Assistance Team
Program
View Communities by Design Built Works: San Angelo TX R/UDAT (requires Google Earth)
Find Communities by Design Built Works: San Angelo TX R/UDAT (Google Maps)
R/UDAT Built
Works:
- Austin, TX R/UDAT
- Moose Jaw, Canada R/UDAT
- Salt Lake City, UT R/UDAT
- Springfield, IL R/UDAT
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