PROMOTING LOCAL CULTURAL IDENTITY,CHANGING PERCEPTIONS,& REVITALIZING THE COMMERCIAL CORRIDOR

Davis Allen - Professor Jong Hyun Lim - HIPR 425 Downtown Revitalization - March 11, 2015

TABLE OF CONTENTS !

PROJECT INTRODUCTION

HISTORICAL CONTEXT

OVERVIEW

EARLY DEVELOPMENT

TRANSPORTATION BRINGS COMMERCIALIZATION

WATERS’ ECONOMIC HEYDAY

A NEIGHBORHOOD IN ECONOMIC DECLINE

CURRENT NEIGHBORHOOD SITUATION

OVERVIEW

ANALYZING SOCIAL AND ECONOMIC FACTORS

SITE OBSERVATIONS

CRIME AND PERCEPTIONS

PAST REVITALIZATION ATTEMPTS

FUTURE REVITALIZATION STRATEGIES

OVERVIEW

SOLUTION 1 - ENHANCEMENT OF PUBLIC COMMUNICATION

SOLUTION 2 - SPECIAL EVENTS

SOLUTION 3 - COMMUNITY MARKET

SOLUTION 4 - URBAN DESIGN IMPROVEMENTS

SOLUTION 5 - INCREASING FUNDING

EXPECTED RESULTS

BIBLIOGRAPHY

1-2

CHAPTER 1

3

4-6

7-9

10-13

13-16

CHAPTER 2

17

17-18

19-22

22-23

24-25

CHAPTER 3

26

26-27

27-29

30-31

31-33

33-34

34-35

36-37

PROJECT INTRODUCTION

Visitors to Savannah are drawn to the city’s idyllic buildings, squares, and landscaping in

the downtown historic district. Because of the tourism industry, the city has invested heavily into

improvements to the downtown area where visitors and tourist attractions are located. While

further improvements to downtown could still be made, the areas for the greatest possible

improvement in terms of economics and quality of life lie outside of the National Register

Historic District. The Waters Avenue Corridor, located to the east of downtown Savannah, has

developed as a secondary Main Street within the context of Savannah, and has been on an

economic decline for 60 years. The neighborhood is in need of revitalization.

A simple drive down Waters Avenue can give a lot of insight into the district. There is

evidence of a previously existing commercial district that is in distress - once thriving businesses

have windows that are boarded up, and empty lots that previously contained businesses are now

vacant or used as parking lots. The area is not completely abandoned, however, and still contains

has a handful of locally owned businesses, community centers, and churches that contribute to

the life of the street. Several changes, which will be discussed in this report, could be made to the

area that would allow the area to grow to the commercial center that it once was.

A comprehensive plan for revitalization would be very beneficial to Waters Avenue.

Although it lies outside what is typically considered the downtown center of Savannah, it has

many qualities that classify it as a traditional downtown. Re-investing in the area and re-branding

it as a hub for harboring the growth of local businesses could be a way to alleviate the problems

that are arising in Savannah’s downtown historic district. The rise of tourism and the increase of

upscale national chain stores in downtown Savannah has begun to increase rents and force local

1

businesses to close their doors or move to more affordable locations. Ben Carter’s recent

developments along Broughton Street demonstrate that these changes are taking place at a

surprisingly rapid rate. There is going to be a need for lower rents on commercial spaces in

Savannah so that local businesses can continue to thrive. If Waters Avenue is improved and

revitalized, the district will have the potential to attract local businesses that cannot afford the

rents of downtown Savannah. Revitalizing the district would have the potential for economic

improvement to Savannah and to business owners, as well has potentially improving the quality

of life of residents in the neighborhood.

2

CHAPTER 1 - HISTORICAL CONTEXT

OVERVIEW

Although Waters Avenue does not share the same timeframe of history as

Savannah’s downtown Historic District, the street is still historically significant. The

Waters Avenue corridor is a cultural landscape that has been shaped by the historical

development of the city of Savannah. Early settlement patterns, transportation, the rise

and fall of commercialism have all left their mark in shaping the way the street appears

today.

Waters Avenue runs North to South on the east side of downtown Savannah. The

street is bound on the north by Wheaton and continues south for several miles, all the

way to the suburban south-side of Savannah. The street lies approximately halfway in

between downtown Savannah and the Truman Parkway, which is a controlled access

highway that runs parallel to Waters Avenue. For the purposes of downtown

revitalization, the focus area of this street will be a 1.1 mile segment between Gwinnett

Street and Victory Drive. (see figure 1) This segment of Waters Avenue is, and has, for

the most part of history, been a mixed-use community. There is both residential and

commercial space that occupies the street. The streets running east to west which

intersect Waters are residential streets. Since people live close to the commercial spaces

and the area is walkable, it does follow the traditional pattern of “Main Street.” However,

the high amount of vacant commercial spaces makes the neighborhood currently lack the

sense of a Main Street.

3

!EARLY DEVELOPMENT

The initial English settlement of Savannah began in 1733 by James Oglethorpe.

Upon landing on a high bluff above the Savannah River, Oglethorpe began to lay out the

town. Oglethorpe’s original plan was a ward system with building lots surrounded by

central squares. The city was surrounded with a town common, and then garden lots and

farm lots. Waters Avenue was developed much later than Oglethorpe’s original 1

settlement, and does not follow the original town plan around central squares. However,

Oglethorpe’s plan did influence the later development of the street by setting up a system

of wards and influencing the orientation of the street grid.

Luciana Spracher, When The Meadows Became Van Clark (Savannah: 2004), 2-3.1

Figure 1. Map of target area in relation to downtown Savannah, GA.

4

In Savannah’s early days, the Waters Avenue corridor was swampy, sparsely-

populated farm land. A map from 1812 labels one of the landholders in this area as

“Waters”, which is likely where the name of the street originated. By 1854, the city of 2

Savannah pushed its boundary eastwards to extend to Waters Avenue, and by 1868, a road

labeled “Waters Road” had appeared. At this time, the area was still very sparsely 3

populated because of the swampy landscape. A canal system draining the swampy eastern

portion of Savannah was implemented in 1876, which allowed much of the land east of

East Broad Street to be developed. 4

As the city of Savannah grew, development along Waters Avenue initially began

at the north and gradually moved towards the south.. Imagery from Sanborn Insurance

Company Maps show that in 1898, the street was mostly comprised of wood frame

dwellings. (see figure 2) The highest concentration of these houses was at the north end 5

of the street near its intersection with Wheaton Street. The 1898 map shows development

on Waters reaching southwards to Anderson Street. The number of buildings that are on

Waters Avenue dissipate towards the south, with a majority of residential development

occurring on the east-west streets. 1916 Sanborn maps show a much higher concentration

of buildings on Waters Avenue. A mixture of residential, commercial, and light industrial

Thomas Gable, Jr., A History of the Government of Savannah, Georgia, from 1790 to 2

1901, (Savannah: Savannah City Council, 1900), 29; “City of Savannah” (1812), M5 1018 Waring Map Collection, Vol. 2, Plate 12, GHS.

Luciana Spracher, When The Meadows Became Van Clark (Savannah: 2004), 6-7.3

Ibid.4

“Savannah 1898.” Sanborn Map.5

5

uses are represented, and development by this time had reached southwards to Victory.

Overlays glued to the maps show additional commercial development which increased

during the following three decades. (see figure 3)

Figure 2: 1898 Sanborn maps, showing a higher concentration of buildings on the North end

Figure 3: 1916 Sanborn maps, showing imagery of Waters avenue between 37th and Victory, with a higher concentration of buildings as well as overlays of commercial spaces added after 1916.

6

TRANSPORTATION BRINGS COMMERCIALIZATION

The development of the Waters Avenue corridor at the turn of the 20th century

was due to the rise of the electric streetcar as transportation. The streetcar gave life to

some of the first suburbs in Savannah, as people living in town were able to move further

away from the city center. Many of these people were seeking the space that the outskirts

of the city provided, but still had the convenience of streetcar travel to quickly reach in-

town services. According to the Savannah Morning News in 1892:

The extended limits of the city south, east, and west are building up at a

remarkable pace and the places known only a short time once as the suburban

commons are becoming young towns. The extension of the street railways is what

has brought about these gratifying results. 6

Real estate companies during the turn of the century used the streetcars as a way to

develop the land and turn a profit. The company typically put in the tracks and divided

the land on the outskirts of town, which drew residences and businesses out along the

streetcar lines. The same appears to be true for Waters Avenue. A schedule of the Electric 7

Railway Company, published in the 1895 city directory, states a specific streetcar route

that left the city market in downtown Savannah and went south on Waters Avenue

between Anderson Street and present day Victory Drive before connecting with the Isle of

Savannah Morning News, September 3, 1892.6

Mary Beth Alonzo. Streetcars of Chatham County: Photographs from the Collection of 7

the Georgia Historical Society. (Charleston, S.C.: Arcadia, 1999).

7

Hope Railroad. A later photograph from 1931 shows the intersection of Waters Avenue 8

and Bolton Street, with streetcar tracks running down Bolton, but not on this portion of

Waters. (see figure 4) Several small businesses are located at the intersection, although

automobiles were also a major factor of urban transportation by this time.

The personal automobile transformed the way American cities grew and

developed. Automobiles provided freedom from laid tracks and timed schedules, to those

who could afford it. Savannah embraced this new form of transportation relatively early

in its history. A postcard from 1911 shows that a portion of Waters Avenue, slightly south

“Savannah City Directory, 1891,” (Savannah: The Morning News Print, 1895) 57.8

Figure 4: Intersection of Waters Avenue and Bolton Street, with streetcar tracks on Bolton. Augusta K. Corday, photographer. “Waters Avenue at Bolton Street” Photograph. Savannah. 1931. From Georgia Historical Society: Foltz Photographic Studio, 1899-1960

8

of the target area, was used as part of the racecourse for the Vanderbilt Cup. (see figure 9

5) This race was considered to be “of international interest and importance” at the time,

and demonstrates that Savannah embraced the new technology. The rise of Savannah’s

Automobile suburbs of Ardsley Park and Chatham Crescent to the target area’s

immediate south reinforce this idea, and are the results of another wave of

suburbanization. Waters Avenue, once a suburb on the outskirts of town, now acted as an

automobile thoroughfare between downtown and the new suburbs. During this time

period in Waters Avenue’s history, rapid expansion of businesses occurred.

“Waters Road - Automobile Race Course.” Photograph. Savannah. 1910. http://9

www.vanderbiltcupraces.com/blog/article/then_now_1911_vanderbilt_cup_race_course-_waters_street_savannah

Figure 5: Waters Avenue as part of the racecourse for the Vanderbilt Cup

9

WATERS’ ECONOMIC HEYDAY

The commercialization of the early 20th century gave Waters Avenue a unique

character as a walkable traditional “main street” located slightly outside of the downtown

area. Figure 6 shows four historic photographs businesses located within the target area.

These photos were taken between 1935 and 1950, during Waters Avenue’s commercial

heyday. Two particularly compelling photographs show an automobile service station and

an early example (1946) of a suburban-style shopping center. These businesses

demonstrate that Waters Avenue embraced early automobile travel and benefitted

economically from it.

Figure 6: Historical photographs taken between 1935 and 1950 of businesses in the target area. Images were collected from the Georgia Historical Society’s Digital Image Catalog

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It is also interesting to point out that the makeup of the neighborhood before its

economic downturn during the second half of the 20th century. The target area was part

of a neighborhood that was economically and socially mixed. There was a mixture of

African American and white residents, a mix of home owners and renters, and a mix of

working class and professionals. An archaeological study showed that people living 10

near Waters avenue in the early 20th century were “fully integrated into the commercial

economy of the City of Savannah, and relied almost entirely on goods purchased from

stores.” Many of the items that these residents owned, which were found on the 11

archaeological dig, were likely purchased at retail stores on Waters Avenue.

Archaeological evidence from commercial locations shows signs that the businesses on

Waters avenue were often cultural gathering spots for the neighborhood. Discarded

animal bones and Coca-Cola bottles discovered in front of retail locations show that

people were likely gathering and socializing in addition to solely buying goods.

Businesses acting as a community gathering place were part of Waters Avenue’s

intangible cultural heritage. This aspect has carried over into the present day, with the few

shops that remain open. Just like during the early 20th century, people still gather in front

of businesses to socialize, eat and drink.

!

Working Class Savannah: Studying the Waters Avenue Neighborhood through 10

Historical Archaeology. Atlanta, Georgia: TRC, 2006.

Ibid.11

11

With an increase in transportation, an increase of commercialization along Waters

Avenue occurred during the first half of the 20th century. A collection of data from City

Directories shows how the number of active businesses in the target area have risen and

fallen during the last century. (see figure 7)

The data collected tells a great deal about the history of commercial activity along Waters

Avenue. The number of businesses prior to the 1920s, the timeframe associated with the

streetcars was relatively low. However, once the automobile became popular, the

commercialization along the Waters Avenue corridor boomed. Although growth was

slightly slowed, the area even continued to gain businesses during the depression years

Figure 7: Rise and fall of commercial activity within the target area

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between 1930 and 1940. The postwar era also showed a period of booming business, and

the number of businesses peaks in 1950 with a total of 91 businesses. After 1950 and

continuing to the present day, there has been a steady decline in the number of active

businesses within the target area.

!A NEIGHBORHOOD IN ECONOMIC DECLINE

Suburbanization was not new to cities during the 1950s, but at that time, the scale

was increased to sprawl. This change in cities which had a detrimental effect on

commercial areas closer to the city, and figure 6 shows that effect in a clear, graphical

form. The Civil Rights movement also created racial tension across the country. In

Savannah, this led to a “mass movement of upper class white residents from the

downtown suburbs towards the south side and island suburbs, creating a segregated

community that for the most part had been a very integrated area.” As wealthier citizens 12

moved out, the businesses followed. Small grocery stores which once lined Waters

Avenue were phased out by large-scale supermarkets and shopping centers. By the 1980s,

most of the people left behind on Waters avenue were “the elderly who did not want to

leave and those who couldn’t afford to leave.” 13

The persistent economic decline on Waters Avenue during the latter half of the

20th century had a huge impact on the community today. The abandonment and

Luciana Spracher, When The Meadows Became Van Clark (Savannah: 2004), 176.12

Ibid. 17713

13

dilapidation of buildings following the

economic downturn was cause for some residents to move away from the area. One

resident was interviewed, and stated that “a lot of the people moved away, because of the

buildings, they were run down.” Historic photographs show the progression of a 14

property within the target area which echoes the simultaneous downturn of the Waters

Avenue corridor. (Figures 8, 9, and 10) Figure 8, an undated photograph which was likely

from the 1940s, shows the property during Waters Avenue’s commercial prosperity. 15

There are cars and bicycles on the street as well as signs of economic activity within the

store. Figure 9, an image from Google Maps street view, shows that by 2007 the property

was a vacant storefront which resulted from the population and economic shift over the

Gladys Turner, Benjamin Van Clark Neighborhood Oral History Collection Project. #19.14

Figure 8: undated photograph, likely from the 1940s, which shows a building at the intersection of Waters Avenue and 31st street.!!Dixie Studio, photographer. Konter’s Market. Photograph. Savannah, c1940. Savannah. From Georgia Archives: Vanishing Georgia. web.

Figure 9: By 2007 the property was a vacant storefront which resulted from the population and economic shift over the previous 50 years.!!Savannah, GA. Google Maps Street View. 2007. Google. Web.

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previous 50 years. Figure 10 shows a more recent photograph of the property which has

been demolished to create a vacant lot on Waters Avenue.

During the last 30 years, some attempts have been made to alleviate the symptoms

of the economic downtown and revitalize the district. During the 1980s, the city zoned

much of the target area to prohibit alcohol sales. The area had seen a rise in crime and the

city attributed the crime to people loitering and drinking on the street. That zoning was 16

overturned during the following decade, however as recently as 2008, the city has

attempted to change the zoning of the area to prohibit alcohol sales for the same reason. 17

Figure 10: The property has been demolished and is currently a vacant lot.!Savannah, GA. Google Maps Street View. 2014. Google. Web.

Pureterrar Witcher. “Waters Avenue Redevelopment Means Curbing Alcohol 16

Proliferation,” The Business Report & Journal, August 25, 2008.

Ibid.17

15

Other efforts by the city to revitalize the area have included business loan programs, tax

credits, infrastructure improvements provided by a Special Purpose Local Option Sales

Tax, and investment in business development through the Savannah Entrepreneurial

Center. Although some attempts have been made to revitalize the area, most have not had

a substantial impact on the area.

Although money is being put in to the district for improvements, the target area is

still in a severe economic slump. It seems that projects closer to the city center have taken

precedence over Waters Avenue in terms of funding and attention. Waters Avenue has

been formed and shaped by its unique history. The steps that the city and the community

take during the present and the near future could determine if that unique history is

preserved through restoring economic activity back to the district.

!!!,

!!!

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CHAPTER 2 - CURRENT NEIGHBORHOOD SITUATION

OVERVIEW

Although Waters Avenue was once a bustling business corridor, a view of the

street today shows signs of a historic commercial district in distress. There are some

indications of the street’s heyday, but the signs of the neighborhood’s gradual economic

downtown of the past 50 years have grown to dominate the contemporary landscape

along Waters Avenue. Hopefully, future revitalization efforts will be able to alleviate

many of these problems.

!ANALYZING SOCIAL AND ECONOMIC FACTORS

Maps and statistical data provide insight on many social and economic factors in

the area. The target area of Waters Avenue has the reputation of being an impoverished,

but this is not necessarily the case. A map of the median household income shows that the

target area certainly does not have as much wealth as Ardsley Park or downtown. (See

figure 11) However, there are two large portions of the target area that have household

incomes well above the city average of $33,167. The west side of Waters between Victory

and 38th has a median income of $48,148, and the east side of Waters between 34th and

38th has a median income of $46,050. The northern parts of the target area have

significantly lower household incomes, with the lowest being $15,679 on the east side of

Waters between Bolton Street and Henry Street. Most of the home values in the

surrounding neighborhood are below the city average of $140,600. The only exception

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being the western portion of Waters Avenue between Victory and 38th, which has a

slightly larger home value of $148,596. 1

Maps with racial demographics show that the neighborhood surrounding Waters

Avenue is currently a majority African American neighborhood. (See figure 12) Over

90% of the residents on the blocks immediately bound by waters are African American.

The same map shows a clear racial divide within the neighborhood. Victory drive, the

southern boundary of the target area, separates the primarily African American

neighborhood on the north from the primarily white neighborhood on the south.

!

"Savannah, Georgia." City Data. Accessed February 14, 2015. http://www.city-1

data.com/city/Savannah-Georgia.html.

Figure 11. City-data map showing median household income, with purple demonstrating higher income. Target area is outlined in Green.

Figure 12. City-data map showing African American populations, with purple demonstrating higher percentages of African American residents. Target area is outlined in Green.

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SITE OBSERVATIONS

An on-site observation shows an interesting perspective on the target area.

Looking at maps or driving through the might give an impression of a walkable

neighborhood, because there are commercial spaces are very close to residential sections.

However, a walk down the street shows that the street is not as walkable as it seems. The

sidewalk is rough and uneven and the crosswalks are flooded even for several days after

rainfall. The street is full of empty lots and vacant buildings, which discourage people

from walking down the street. A high number of vacant lots make a walk through the

neighborhood seem longer and uneventful. Additionally, vacant lots and vacant buildings

are magnets for crime, since they are widely un-patrolled. Criminal activity, or the

perception of criminal activity, that is associated with vacant buildings and lots

discourage pedestrian activity on Waters Avenue. Although walkability along waters is

not as developed as it could be, many people still walk along the street between

businesses and residences. Bicycle, automobile, and bus traffic is also currently present

on the street.

Many historic commercial spaces are vacant and deteriorating, while the

immediate residential areas are well maintained. The quality of the commercial buildings

in the district are not the problem — there are many significant commercial buildings

along the street dating from the early to mid 20th century. There are several examples of

streamline moderne architecture along the street, which emerged in the 1930s and was

popular up through the 1950s. One commercial space on the corner of Waters avenue and

19

40th street is a streamline moderne building which is vacant, but still standing. (See

figure 13) The corner of the building is a large curve that contains the entrance, and the

exterior is a smooth stucco finish with light blue tile accents. Another streamline moderne

building, currently being used as a restaurant, was part of an early 1940s shopping center.

(See figure 14 & 15) Half of the original shopping center has been demolished. A

building at the corner of Waters and 42nd has an elegant art deco facade. (See figure 16)

Contemporary curtain walls show that the building was likely recently renovated, and

signs indicate that a law office is located within the building. However, there are not

signs of activity in or around the building, and the facade is beginning to show signs of

Figure 13. Streamline moderne building located at the corner of Waters Avenue and 40th Street.

Figure 14. Streamline moderne shopping center. The left portion of the building is a restaurant, and the right is vacant.

Figure 15. Foltz Photography Studio, photographer. “1908 Waters Avenue” 1946, photograph. from: Georgia Historical Society, Digital Image Catalog

Figure 16. Streamline moderne shopping center. The left portion of the building is a restaurant, and the right is vacant.

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minor deterioration. In fact, there are many commercial spaces along Waters Avenue that

have business signage but are difficult to determine whether or not a business is actively

located within. This conflicting information can leave a pedestrians and potential

customers with a sense of confusion.

Although many of the commercial buildings are not actively being used, there are

still businesses and neighborhood gathering spaces along Waters Avenue. There are a

large number of religious institutions, including several churches and a community center

for the Baha’i faith. Several local restaurants, small bars, and lounges are operating in the

area as well. A barber school and multiple barber shops are active businesses along the

street as well. During a site visit, a yard sale was taking place on a vacant lot that once

contained a commercial building. Presently, the most active businesses seem to be those

associated with car culture. Businesses with the most amount of human activity during

the site visit included gas stations, car washes, and convenience stores. Unfortunately,

convenience stores might be where the most impoverished nearby residents have access

to foods. A meat and seafood market is present along Waters Avenue, but there are no

grocery or produce stores for residents to buy affordable, nutrient-rich foods.

Waters Avenue still has a unique identity to those who presently live or work in

the area. Restaurants, Lounges, and religious cultural centers all serve as places of

gathering and socialization. Several buildings in the area have vibrant paint colors, which

provide a very appealing contrast to the abandoned commercial spaces or vacant lots.

Many businesses have a tradition of hand painted signs. Bright colors are also present in

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the paint colors of these signs, as well as stylized versions of the commercial products

sold within stores. Hand-painted script fonts which are seen on these signs is seen all

along Waters avenue and other parts of the city of Savannah. It could be argued that these

images and text, hand painted by business owners and community members, are a

culturally significant vernacular art form. (See figures 17 & 18)

!CRIME AND PERCEPTIONS

To many Savannahians, Waters Avenue has a reputation for being a high crime

area. In the recent past, this perception of criminal activity has certainly been a barrier to

redeveloping the area. Just like in most urban neighborhoods, crime is certainly present

along Waters Avenue. However, crime statistics how that the impression of Waters

Avenue having an unusually high concentration of criminal activity is simply a

Figure 17. An example of a hand painted sign, depicting images of commercial items that can be purchased at this specific store.

Figure 18. Another example of a hand painted sign, which is very common among Waters Avenue businesses.

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perception, and not a reality. (See figure 19) This map from the Savannah Chatham

Metropolitan Police shows a density map of crime statistics over the last year. Crimes

like robbery, burglary, theft, aggravated assault, and motor vehicle theft have been

present along Waters Avenue in the past year. However, the crime density map shows that

the crime along Waters is not unusually high in relation to other parts of downtown

Savannah. The south end of the target area has relatively low crime density for the city of

Savannah. Other parts of town, including the metropolitan district and downtown, have

much higher crime density than Waters Avenue. Although downtown has a much higher

crime density than Waters, it has still attracted recent development, especially along

Broughton Street.

Figure 19. Crime density map from the Savannah Chatham Metropolitan Police, with areas of higher density of crime in red and lower density of crime in blue. The target area is outlined with a dashed line.

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PAST REVITALIZATION ATTEMPTS

The city has recognizes that Waters is in need of revitalization and has been

making piecemeal attempts to do so. One specific concern with the area, as addressed by

business owners and residents, has been with the area’s flooding following rainfall. Bret

Bell, a city spokesperson, responded and said that a $14 million dollar project to improve

drainage for the “Bilbo Box” has been planned and will help with drainage issues along

Waters Avenue and other eastside neighborhoods. This drainage project is being funded 2

by the SPLOST, or Special Purpose Local Option Sales Tax, which is a 1% sales tax

within the city of Savannah. The city website states that the project is still in the design

phase. It seems that currently, the city is interested in cosmetic changes bringing about

neighborhood revitalization. The city’s website also states that $1.5 million dollars are

being used to install ornamental lighting, brick sidewalks, and pedestrian crosswalks. 3

Although it is listed as a “project in progress”, no signs of installation of streetscape

improvements were witnessed during a site visit.These improvements are being funded

by the SPLOST. According to the website, over $3 million of SPLOST dollars have gone

towards streetscape improvements along MLK. Perhaps the city is more focused on

revitalization along MLK because it is much more visible to tourists in the city who stay

in the downtown Historic District.

Eric Curl. "City Moving Forward with Waters Avenue Improvements." Savannah 2

Morning News, August 22, 2013.

“SPLOST.” Savannah, GA. Accessed Fabruary 5, 2015. http://www.savannahga.gov/3

index.aspx?NID=1300

24

Although these improvements will certainly help with the Waters Avenue’s

walkability and nighttime safety, more efforts will need to be undertaken to revitalize the

neighborhood. According to the East Savannah Gateway Transformation Plan by the

Housing Authority of Savannah:

“Recognizing the unique character and potential of Waters Avenue, the City has

committed to streetscape improvements and marked the corridor for potential

long-term streetcar transit. New housing associated with the Ashley Midtown

HOPE VI has stabilized the north end, and a planned adaptive reuse of the

Romana Riley School into senior apartments will improve and activate the East

Anderson / East Henry commercial node. Continued investment in rehabilitation

and small business development is key to transforming the larger Gateway, which

Waters Avenue bi-sects.” 4

While the improvements currently being made by the city are a good start for the Waters

Avenue corridor, it is vital to recognize measures must be taken to help small business

development along Waters Avenue so that vacant commercial spaces can be utilized

again.

!

East Savannah Gateway Transformation Plan. Housing Authortity of Savannah, 2014. 4

12. http://www.eastsavannahgateway.com/wp-content/uploads/2013/09/East-Savannah-Gateway-Tranformation-Plan-FINAL_052014update1.pdf

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CHAPTER 3 - FUTURE REVITALIZATION STRATEGIES

OVERVIEW

There are currently several businesses and residents located along the Waters

Avenue corridor, but the area has declined from the commercial hub that it used to be and

descended into a state of higher vacancy and disrepair. As formerly stated in chapter 2,

there are many issues with the target area that could be improved. These issues include

uneven sidewalks, drainage problems, inadequate lighting, underutilized commercial

buildings, a high amount of vacant lots, the lack of a grocery store, and negative

perceptions of the neighborhood by people who do not live there. The city of Savannah is

addressing some of these issues, but there is a substantial gap which must be bridged.

Although a challenging feat, a true revitalization of Waters Avenue must address all of the

issues and work with the stakeholders in order to make the corridor a better place to work

and live.

!SOLUTION 1- ENHANCEMENT OF PUBLIC COMMUNICATION

Community involvement is vital for a successful neighborhood revitalization. If

top-down plans are made to revitalize the street and the wants and needs of the residents

and stakeholders are not taken into consideration, it will only result in conflicts. There are

many stakeholders for the revitalization of Waters Avenue including property owners,

business owners, and the city. While there are currently organizations in place for

individual stakeholder groups, there is not a significant amount of conversation occurring

26

among the parties. If the city plans a revitalization attempt in the future, improving

communication lines between parties will be vital.

Since Waters Avenue is a boundary line for many neighborhoods, there are several

neighborhood associations to consider, including the Midtown Neighborhood

Association, the Baldwin Park Neighborhood Association, and the combined

neighborhood association belonging to the Eastside, Benjamin Van Clark, and Live Oak

neighborhoods. The Waters Avenue Business Association is a nonprofit organization that

represents the business owners in the area. The city should reach out to these stakeholder

groups to create smoother communication between all three parties in the form of a

public forums or meetings. If all parties come together, it will be a way to unite

grassroots interests in revitalization and make sure all voices are heard. Establishing an

online forum can also be a way to including the voices of younger generations or people

who cannot find the time to come to meetings. The resources necessary for this solution

involve a small amount of planning and funding, on the city’s behalf.

!SOLUTION 2 - SPECIAL EVENTS

Utilizing special events could be a way to attract Savannahians to experience

Waters Avenue. Establishing a similar event similar could showcase the positive aspects

of Waters Avenue and help to change people’s perceptions about the area. An infrequent

event, perhaps bi-monthly, could potentially showcase local culture including food,

music, and arts. These cultural assets are already available on Waters Avenue. Restaurants

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featuring local cuisine, artists studios, and a Jazz and Blues Lounge all lie within the

project boundary. Bringing these different aspects of Waters Avenue together for a special

event one night every few months could be a wonderful way to showcase what Waters

Avenue has to offer. This type of event could also be a way to temporarily activate the

empty lots that used to contain commercial buildings. The city currently owns several

consecutive plots of vacant land on the southwest corner of Waters Avenue and Anderson

Street, which could be an ideal place to set up event booths for information, food, artists,

or other local vendors. (see figure 20)

There are several resources necessary for this event, including funding and time

for planning and executing the event, as well as space to host it. One similar special event

Figure 20. Series of city-owned vacant lots, outlined in red, which could be utilized for an event space.

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that already takes place in Savannah is the First Friday Art March, which showcases the

arts and creative businesses in the Starland district south of Forsyth Park. (see figure 21)

The event has become very successful and draws a lot of attention to the growing

neighborhood. On the First friday website, sponsors for the event include the city of

Savannah, the Georgia Council for the Arts, the National Endowment for the arts, as well

as several local businesses and newspapers. The event is organized by Art Rise 1

Savannah, a nonprofit organization committed to providing creative and financial

opportunities to local artists. To make an event like this be successful on Waters Avenue,

making similar partnerships will be crucial to funding the project and ensuring its

continued success.

"First Friday Art March." Accessed March 2, 2015. http://artmarchsavannah.com/.1

Figure 21: The First Friday Art March has been a way to enliven the streets, showcase the neighborhoods positive aspects, and given local vendors an economic opportunity.

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SOLUTION 3 - COMMUNITY MARKET

Establishing an occasional, temporary community market could have several

positive impacts on the area. First, it would be a way to make nutritional produce

available to residents. Currently, there is no grocery store within the project site. While

the city of Savannah is currently trying to find a grocery store to become a tenant in the

shopping center located at the corner of Waters Avenue and 37th, the community market

could be a less expensive and temporary to bridge the gap until a more permanent

grocery store moves into the neighborhood. Additionally, the market could provide

spaces that could be incubators for local entrepreneurs who cannot initially afford rent of

a commercial space. There is a need for this along Waters Avenue - during site visits,

informal open-air commercial activities were taking place. If these spaces were offered

during an open-air farmers market, which could also attract more customers, an increase

in profit could potentially allow entrepreneurs to make enough money to transition into a

more permanent location.

Establishing a temporary farmers market could also take place on the city-owned

vacant lots shown in figure 1, which could be offered to vendors at little to no cost, with

city cooperation. However, there would be a cost to the city associated with cleaning up

and maintaining the empty lots. Currently, there is a mobile version of the Forsyth

Farmers Market, called Farm Truck 912, which is sponsored financially by Gulfstream

Aerospace Corporation’s Live Well Be Well initiative. The truck delivers fresh local

produce to different low-income locations around town, and accepts and double SNAP

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and EBT benefits. One of these stops is at the WW Law Community Center, located on

Bolton street immediately west of the project site. It would be beneficial to reach out to

Farm Truck 912 and ask them to consider setting up a stop along Waters Avenue, and

potentially build partnerships grow a larger farmers market.

!SOLUTION 4 - URBAN DESIGN IMPROVEMENTS

There are many issues along Waters Avenue that could be addressed through

design improvements. The city has currently funded SPLOST dollars to build ornamental

lighting, brick sidewalks, and pedestrian crosswalks within the target area. Although

these projects are not yet underway, they will make vast improvements within the

commercial corridor. All of the streetscape improvements will have a positive impact on

the pedestrian experience. An improvement of street lighting will have a positive impact

on the safety of the street at night. Another problem with the area involves post-rain

flooding. The city has also allotted SPLOST funds to finance a project to improve

drainage for Eastside neighborhoods, including Waters Avenue, which will supposedly

alleviate the issue. Neither of these projects have taken place yet, but it will be crucial for

the city to follow through with these plans in order to revitalize the neighborhood.

Accommodating transportation is crucial to the area. Parking is noted as an issue

along the street, but the problem is more of a perception than a reality. Although Waters

Avenue is narrow and does not provide substantial on-street parking, there is ample street

parking on the residential streets intersecting Waters, and a multitude of large parking

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lots. There has been talk about reintroducing a streetcar to Savannah which will

potentially run along Waters Avenue and Martin Luther King Jr. Boulevard. However,

these would be massively expensive for the city and would not pay for itself through

ticket sales. More feasible options for improving transit connectivity would be to

improve the bus and bike experience. There are 9 CAT bus stops along the target area, but

very few benches or shade shelters by the bus stops. Adding these amenities could help

improve the bus-riding experience and entice more people to take public transit.

Accommodating cyclists could also be valuable asset to Waters Avenue. Site visits

have shown many cyclists passing through the street. The target area is a cycling

thoroughfare between surrounding residential areas on the East, West, and South, and is

also connected to nearby Daffin Park. Adding unique decorative bike racks along Waters

Avenue could convince cyclists to stop along the corridor and visit local businesses.

Another improvement could be the addition of a bike lane. The road currently seems too

narrow to support a bike lane. However, it has this perception because there are

occasionally cars that are street-parked along Waters Avenue. There does not seem to be

enough room for street parking — cars in travel lanes have to maneuver partially into

lanes of oncoming traffic to avoid hitting street-parked cars. Perhaps a better option

would be to forbid street parking on Waters Avenue by painting the curbs yellow and

directing cars to park either on side streets or in larger parking lots. If this was

undertaken, there would be room for a bike lane so cyclists could safely share the road

with automobiles. If a safe bike lane and bike racks were introduced to the target area, a

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greater number of cyclists would ride through the area, which could potentially attract

more commercial activity. However, these improvements would require monetary

resources through the city.

!SOLUTION 5 - INCREASING FUNDING

All of these improvements could help to revitalize the neighborhood, but are not

possible without capital. Although the city of Savannah can help to fund some

improvements along Waters Avenue, they cannot fund the entire revitalization of the

district, since they have to balance a budget for the needs of the entire city. There are

several strategies that could be made to help secure funding for revitalization attempts

within the target area.

Most of the target area currently lies outside of any National Register Historic

District. Only the north and south extremities lie within districts. Unfortunately, the bulk

of in-tact commercial architecture lies in the middle. Because of this, they are not eligible

for the 20% Historic Rehabilitation Tax Credit. Many of the historic commercial spaces

also do not qualify for the 10% historic tax credit, since it does not apply to buildings

built after 1936. Most of the commercial spaces along Waters Avenue were built shortly

after this time period. If the remaining parts of the district were listed as a National

Register Historic District, tax credits could help to incentivize outside development and

rehabilitate existing commercial buildings. One possibility could be establishing a

partnership between the city and Savannah College of Art and Design. Students of

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Historic Preservation and Architectural History could gain experience in researching and

nominating a district to the National Register, and the city would benefit from their work.

Reaching out to the Historic Savannah Foundation (HSF) in regards to their

revolving fund could also be beneficial to help secure funding. HSF’s revolving fund has

saved over 350 historic buildings in Savannah. This process involves HSF’s acquisition

of properties through donations, options, or purchase. Then, the building is stabilized and

sold to a preservation-minded buyer with protective covenants attached to the deed.

Currently, HSF only uses its revolving fund for buildings located within one of

Savannah’s National Register districts. If the neighborhood is nominated to the National

Register, the Historic Savannah Foundation could likely use its revolving fund to help

find investors to rehabilitate the commercial spaces along Waters Avenue.

!EXPECTED RESULTS

With the changes suggested, a livelier Waters Avenue will result. Increasing

available funding to rehabilitate historic commercial buildings could create more spaces

for local businesses to operate. Increasing communication between stakeholders will

allow revitalization efforts to encompass multiple viewpoints and involve more people.

Occasional special events and a farmers market could showcase the positive aspects of

Waters Avenue and change people’s perceptions of the neighborhood while drawing

attention from locals in nearby neighborhoods. Urban design improvements could

improve the circulation spaces along the corridor and make walking and transportation

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more pleasant. With all of these combined solutions, a more active business corridor

should be a result.

Economic activity will take place in the district again, and local residents will be

able to utilize commercial spaces close to home. The neighborhood could cultivate

entrepreneurship as small business owners would have a more affordable place to set up

restaurants, shops, or businesses away from the expensive and tourist-oriented downtown

Landmark District. There will be more people walking along the street, and an increase in

human eyes will allow for natural surveillance to further reduce crime in the area. The

neighborhood could provide an affordable place to live, work, and buy commercial

goods. Currently, neither downtown Savannah nor the suburbs can offer that. Waters

Avenue, lying between downtown and the suburbs, could be the ideal setting for a

renaissance of this closely tied commercial and residential community.

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BIBLIOGRAPHY !City of Savannah Research Library and Municipal Archives. Savannah, Georgia

Spracher, Luciana. "Historic Benjamin Van Clark Neighborhood Trolleys to Today." In When The Meadows Became Van Clark. Savannah, 2004.

Working Class Savannah: Studying the Waters Avenue Neighborhood through Historical Archaeology. Atlanta, Georgia: TRC, 2006. !

Curl, Eric. "City Moving Forward with Waters Avenue Improvements." Savannah Morning News, August 22, 2013. !East Savannah Gateway Transformation Plan. Housing Authortity of Savannah, 2014. 12. http://www.eastsavannahgateway.com/wp-content/uploads/2013/09/East-Savannah-Gateway-Tranformation-Plan-FINAL_052014update1.pdf !Georgia Archives, University System of Georgia

Dixie Studio, photographer. “Konter’s Market.” Photograph. Savannah, c1940. Savannah. http://cdm.georgiaarchives.org:2011/cdm/singleitem/collection/vg2/id/3697/rec/3 !

Georgia Historical Society Foltz Photographic Studio Photographs, 1899-1860;

Cordray, Augusta K., photographer. “Waters Avenue at Bolton Street” Photograph. Savannah. 1931.

Foltz Photography Studio, photographer. “1111 Waters Avenue” Photograph. Savannah. 1947.

Foltz Photography Studio, photographer. “1516 Waters Avenue” Photograph. Savannah. 1950.

Foltz Photography Studio, photographer. “1908 Waters Avenue” Photograph. Savannah. 1946.

Foltz Photography Studio, photographer. “2201 Waters Avenue” Photograph. Savannah. 1935.

“Savannah 1898.” Sanborn Map. “Savannah 1916.” Sanborn Map.

Thomas Gable, Jr., A History of the Government of Savannah, Georgia, from 1790 to 1901, (Savannah: Savannah City Council, 1900), 29; “City of Savannah” (1812), M5 1018 Waring Map Collection, Vol. 2, Plate 12

“Savannah Southward Expansion.” Ward Notebook !"Interactive Crime Mapping." Savannah Chatham Metropolitan Police. Accessed February 14, 2015. http://www.savannahga.gov/index.aspx?NID=632. !!

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Live Oak Public Library, Savannah, Georgia. Alonzo, Mary Beth. Streetcars of Chatham County: Photographs from the Collection of

the Georgia Historical Society. Charleston, S.C.: Arcadia, 1999. City Directory, City of Savannah, Georgia, 1891 City Directory, City of Savannah, Georgia, 1917 City Directory, City of Savannah, Georgia, 1920 City Directory, City of Savannah, Georgia, 1930 City Directory, City of Savannah, Georgia, 1940 City Directory, City of Savannah, Georgia, 1950 City Directory, City of Savannah, Georgia, 1960 City Directory, City of Savannah, Georgia, 1970 City Directory, City of Savannah, Georgia, 1980 City Directory, City of Savannah, Georgia, 1990 City Directory, City of Savannah, Georgia, 2000 City Directory, City of Savannah, Georgia, 2010 !"Savannah, Georgia." City Data. Accessed February 14, 2015. http://www.city-data.com/city/Savannah-Georgia.html. !"SPLOST." Savannah, GA. Accessed February 5, 2015. http://www.savannahga.gov/index.aspx?NID=1300. !“Waters Road - Automobile Race Course.” Photograph. Savannah. 1910. http://www.vanderbiltcupraces.com/blog/article/then_now_1911_vanderbilt_cup_race_course-_waters_street_savannah

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