1. AN AD VI SORY S E R V IC E S PA N E L R E P O RT
Jamestown Mall
St. Louis County,
Missouri
www.uli.org

2. Jamestown Mall
St. Louis County,
Missouri
Strategies for Transforming and Reinventing the Jamestown Mall
September 20–25, 2009
An Advisory Services Program Report
Urban Land Institute
1025 Thomas Jefferson Street, NW
Suite 500 West
Washington, DC 20007-5201

3. About the Urban Land Institute
T
he mission of the Urban Land Institute is to
 Sustaining a diverse global network of local prac­
provide leadership in the responsible use of tice and advisory efforts that address current and
land and in creating and sustaining thriving future challenges.
communities worldwide. ULI is committed to Established in 1936, the Institute today has more
 Bringing together leaders from across the fields than 30,000 members worldwide, representing
of real estate and land use policy to exchange best the entire spectrum of the land use and develop­
practices and serve community needs; ment disciplines. Professionals represented include
developers, builders, property owners, investors,
 Fostering collaboration within and beyond ULI’s architects, public officials, planners, real estate
membership through mentoring, dialogue, and brokers, appraisers, attorneys, engineers, finan­
problem solving; ciers, academics, students, and librarians.
 Exploring issues of urbanization, conservation, ULI relies heavily on the experience of its members.
regeneration, land use, capital formation, and It is through member involvement and information
sustainable development; resources that ULI has been able to set standards of ex­
cellence in development practice. The Institute has long
 Advancing land use policies and design practices been recognized as one of the world’s most respected
that respect the uniqueness of both built and natu­ and widely quoted sources of objective information
ral environments; on urban planning, growth, and development.
 Sharing knowledge through education, applied
research, publishing, and electronic media; and
©2010 by the Urban Land Institute
1025 Thomas Jefferson Street, NW
Suite 500 West
Washington, DC 20007­5201
All rights reserved. Reproduction or use of the whole or
any part of the contents without written permission of the
copyright holder is prohibited.
Cover photo by
St. Louis County Economic Council
2 An Advisory Services Panel Report

4. About ULI Advisory Services
T
he goal of ULI’s Advisory Services Program A major strength of the program is ULI’s unique
is to bring the finest expertise in the real es­ ability to draw on the knowledge and expertise of
tate field to bear on complex land use plan­ its members, including land developers and own­
ning and development projects, programs, ers, public officials, academics, representatives of
and policies. Since 1947, this program has assembled financial institutions, and others. In fulfillment of the
well over 400 ULI­member teams to help sponsors mission of the Urban Land Institute, this Advisory
find creative, practical solutions for issues such as Services panel report is intended to provide objective
downtown redevelopment, land management strat­ advice that will promote the responsible use of land
egies, evaluation of development potential, growth to enhance the environment.
management, community revitalization, brownfields ULI Program Staff
redevelopment, military base reuse, provision of
low­cost and affordable housing, and asset manage­ Marta V. Goldsmith
ment strategies, among other matters. A wide variety Senior Vice President, Community/
of public, private, and nonprofit organizations have Education Provost
contracted for ULI’s Advisory Services.
Thomas W. Eitler
Each panel team is composed of highly qualified Vice President, Advisory Services
professionals who volunteer their time to ULI. They
Cary Sheih
are chosen for their knowledge of the panel topic and
Senior Associate, Community and
screened to ensure their objectivity. ULI’s interdis­
Professional Development
ciplinary panel teams provide a holistic look at devel­
opment problems. A respected ULI member who has Caroline Dietrich
previous panel experience chairs each panel. Panel Associate, Advisory Services
The agenda for a panel assignment is intensive. It James A. Mulligan
includes an in­depth briefing composed of a tour of Managing Editor
the site and meetings with sponsor representatives;
hour­long interviews of key community repre­ Lise Lingo, Publications Professionals LLC
sentatives; and a day of formulating recommenda­ Manuscript Editor
tions. Long nights of discussion precede the panel’s
Betsy VanBuskirk
conclusions. On the final day on site, the panel makes
Creative Director
an oral presentation of its findings and conclusions
to the sponsor. A written report is prepared and Anne Morgan
published. Graphic Design
Because the sponsoring entities are responsible for Craig Chapman
significant preparation before the panel’s visit, in­ Director, Publishing Operations
cluding sending extensive briefing materials to each
member and arranging for the panel to meet with
key local community members and stakeholders in
the project under consideration, participants in ULI’s
panel assignments are able to make accurate assess­
ments of a sponsor’s issues and to provide recom­
mendations in a compressed amount of time.
St. Louis County, Missouri, September 20–25, 2009 3

5. Acknowledgments
O
n behalf of the Urban Land Institute, the Gray, and Steve Webb and Senator Tim Green. The
panel thanks Denny Coleman, president and panel also recognizes the numerous other businesses
chief executive officer of the St. Louis County and organizations that contributed to the effort:
Economic Council, and Charlie A. Dooley, St. Macy’s, Carlyle Group, JCPenney, Sears, Michael
Louis County executive, for sponsoring and lining up Kohan, North County Incorporated, the St. Louis
the political support for this project. Special thanks County Police, the cities of Black Jack and Florissant,
go to Timothy Tucker and Edgar Velazquez from the and surrounding area school districts. Interviews
St. Louis County Economic Council and Glenn Powers, conducted with numerous stakeholders, includ­
director of planning for St. Louis County, and their ing residents, business owners, and public officials,
respective staffs for their preparation of the briefing provided information and diverse perspectives that
book and organization of the briefing session and tour. aided the panel in its analysis. The panel thanks all
those who consented to be interviewed—especially
The panel extends particular thanks to Jackie Davis­ Ken Smith, for his active participation in the panel
Wellington, executive vice president of the St. Louis process. Finally, the panel wishes to thank Reverend
County Economic Council; the ministers and pastors Dr. Freddy J. Clark, Delores Tyus, and the Shalom
of the North County area churches; and several Mis­ Church City of Peace for hosting and providing the
souri state legislators: Representatives Bert Atkins, space for the public presentation.
Theodore Hoskins, Gina Walsh, Rochelle Walton
4 An Advisory Services Panel Report

6. Contents
ULI Panel and Project Staff 6
Background and the Panel’s Assignment 7
Market Potential 13
Planning and Development Strategies 18
Design and Planning 21
Implementation Strategies 24
Conclusion 28
About the Panel 29
St. Louis County, Missouri, September 20–25, 2009 5

7. ULI Panel and Project Staff
Panel Chair ULI Project Staff
Ray Brown Cary Sheih
Ray Brown Consulting Senior Associate
Memphis, Tennessee Community and Professional Development
Caroline Dietrich
Panel Associate
Panel Members Advisory Services
Charles Berling
Berling Equities LLC
Morrison, Colorado
Abigail Ferretti
Partners for Economic Solutions
Washington, D.C.
Brian Scott Hall
City of Virginia Beach
Virginia Beach, Virginia
Philip S. Hart
Hart Realty Advisors
Hollywood, California
Arun Jain
Urban Design Consultant
Portland, Oregon
Donna Lewis
Mercer County
Trenton, New Jersey
Dan Quinto
Roaring Brook Development
Southlake, Texas
6 An Advisory Services Panel Report

8. Smallwood
Thompson
on
Labrador City
Lake
Winnipeg
Background and the Panel’s Moosonee
Assignment Lake Nipigon
A
Amos
suggested a complete transformation of the mall site
t the invitation of St. Louis County and the
Timmins
St. Louis County Economic Council, the panel from its current outdated form into a lively, walkable,
Thunder Bay
human­scaled, and memorable town center.
nd Forks convened from September 20 to September
25, 2009, to examine opportunities for the St. Louis is the home of big, audacious ideas, matched
future of Jamestown Mall. The mall is located in Superior by the deeds and accomplishments of her
L. the only Trois-rivieres
far northern part of St. Louis County (North County), people. One legendary favorite son, Charles Lind­
Fargo intersection of Old Jamestown Road and North Sudbury North Bay Montreal
at the Duluth Marquette captured the attention and imagination of
bergh,
ahe Lindbergh Boulevard (U.S. Ironwood67) in the un­
Highway the entire world by daring to dream and having the
incorporated community known as Old Jamestown. Mountain and fortitude to make that dream a reality.
Iron courage
The mall lies approximately three miles from I­270, L. Huron
In honor of that illustrious history, the ULI Advisory
n
iga
the nearest interstate, and one mile west of Highway Services panel suggests naming the new, authentic Kingston
ch
Minneapolis approximately 142 acres; build­
367. The site covers Marinette town center “Lindbergh Place”—a place where new
Mi
ings and parking use 90 acres. Following an intense
Mankato histories can begin. Note that this name is simply one
Green Bay
the panel used in discussing the redevelopment; the Ontario
L.
week of briefings, site visits, stakeholder and citi­
Oshkosh community should select the ultimate name.
L.
ux Falls zen interviews, and planning discussions, the panel
Regional map.
e
Eri
oux City
Norfolk Detroit L.
Chicago Cleveland
Omaha Toledo
Wabash Philadelphia
Lafayette
St. Joseph Baltimore
Kansas City
ST. LOUIS
Wichita Louisville
Norfolk
d Owensboro
Bowling Green
Poplar Bluff
Tulsa
Memphis Chattanooga
Huntsville
Birmingham
Dallas
St. Louis County, Missouri, September 20–25, 2009 7
Savannah

9. L. Shelbyville
M
IS
SI
SS
IP
ILLINOIS R.
PI
R.
with high­quality merchandise at a different loca­
tion? If so, what size should that be and what will it
Illinois take to attract retailers to the site?
 Given the existing buildings’ conditions, ownership,
and tenants, what is the panel’s assessment of the
MADISON 70
highest and best use for the Jamestown Mall site?
Jamestown COUNTY
ST. CHARLES
Mall  Does the panel recommend that the existing struc­
COUNTY
MIS tures be reused or demolished, or some combina­
SO tion of each? If so, which buildings does the panel
UR ST. LOUIS
IR recommend keeping and demolishing?
ST. LOUIS CITY
CLINTON
COUNTY
64 COUNTY  What recommendations can the panel make to
ST. CLAIR improve the management, operations, or leasing
COUNTY at the mall on a short­term and long­term basis?
64 there anything that can be done immediately
Is 57
JEFFERSON
to reverse the declining fortunes of the mall? Are
COUNTY
there more viable retail tenants for this market, for
55
R.
alternative uses for retail spaces and anchor stores?
Missouri
ec
Are there uses (tenant types) the panel would rec­
ram
ommend prohibiting?
Me
 What can the public sector do to encourage the
Location map. mall owners to work together to adopt a compre­
The Panel’s Assignment hensive plan for the mall and commit to imple­
The sponsors asked the panel to evaluate the current menting the plan?
North County marketplace to determine whether  Does the panel think that the mall site is a viable
it has the capacity to support the million­square­
location for an alternative mixed­use develop­
foot Jamestown Mall, even if it were fully renovated,
ment? Does the panel believe that Jamestown
and on the basis of that evaluation, to recommend a
Mall can be redeveloped with some combination
future configuration that the market could support,
of retail, office, entertainment, housing, and
if any. Should retail alone prove an unsustainable use, 57
community uses? Under this scenario, how much
the sponsors requested that the panel suggest alterna­
retail, office, and residential space could the site
tive site development strategies that could create the
support? What period of time would it take to ac­
greatest quality of life and economic benefits for North
complish the development?
County citizens. Such strategies might include partially
or completely demolishing the existing structures  Given financial andO
market conditions, what role
24
H I play to
and reconfiguring the site into more useful devel­ should the public sectorO RIV positively affect
E
opment parcels. and stop the downward trend ofR Jamestown Mall?
Is public assistance necessary to ensure redevelop­
zark NSR During its deliberations, the panel addressed the fol­
ment of the mall? If so, when should it be applied?
lowing questions from the sponsor:
For example, should resources be applied before a
 How much commercial/clothing retail does the comprehensive plan is in place?
panel believe the North County area market can  From the perspective of best practices, what is
support? Does the panel believe that the North
the range of public assistance that similar “mall
County area is underserved by any particular seg­
turnaround” projects have received? What are
ment of the retail market? Can the market support
those projects?
a million­square­foot, fully renovated mall and
with what level of merchandise? As an alternative,  What are the future trends in retail and how will
can the North County area support a smaller mall they affect North St. Louis County?
8 An Advisory Services Panel Report

10. The intense five-day panel
includes an in-depth
briefing and a tour of the
site and community.
The panel’s assignment included offering a vision of The Panel’s Findings
how a redevelopment could look when completed
and a program of potential uses that would enliven Even with a 1995 expansion that added an anchor
and animate the redevelopment. The sponsors asked and additional in­line stores (stores between the
the panel to provide exemplars for officials to visit major anchors), the mall has steadily declined in
and learn from, and to catalog some of the strategies both the quality and the diversity of its tenant
required and the tools available to achieve the vision. retailers—a phenomenon not uncommon through­
The panel also considered strategies for public co­ out the nation, even before the contraction of the
investment—through private/public partnerships— economy. During its visit to the site, the panel found
to address the challenging economic and infrastruc­ cracked and weedy parking lots with few cars and a
tural needs. Finally, the panel was charged with main building in desperate need of substantial main­
formulating implementation strategies for achieving tenance. Two of the four major anchor stores have
its recommendations. closed. The mall contains an almost empty food court
St. Louis County, Missouri, September 20–25, 2009 9

11. Mall customer
traffic has waned,
especially in the
past few years,
as shown in these
photographs taken
at midday.
and virtually deserted concourses. At lunchtime on the four original anchor retailers own their buildings
a weekday, the panel observed fewer than half a and the adjacent parking. One owner­developer ac­
dozen shoppers in all. quired an anchor store and out parcels (land around
the perimeter of the mall) and recently sold all the
The mall contains more than a million square feet
in­line store space and some of the out parcels to
on 142 acres. It is a typical center­oriented regional
another developer.
shopping mall. Center­oriented malls are character­
ized by large anchor stores surrounding a core of The community perspective is that Jamestown Mall
smaller, in­line retail stores. As is typical, three of has joined the ranks of “dead” shopping malls. James­
town is one of many malls across the nation charac­
terized by high vacancy rates, low consumer traffic, a
dated configuration, and deteriorating facilities. The
county has, in the past several years, worked with one
of the developer­owners to redevelop the mall but has
been unable to obtain a comprehensive, viable plan
that addresses the whole mall. An obsolete retailing
configuration, fragmented ownership, limited shop­
pers, and significant over­retailing of the area have
proven to be formidable obstacles for the mall.
Multiple factors have contributed to the mall’s deterio­
rated condition. The original developers were counting
on explosive residential development like that which
was then occurring in west St. Louis County, which
never happened because the karst terrain (in particu­
lar, the sinkholes) to the north prevented building
in those areas. The original site selected for the
10 An Advisory Services Panel Report

12. mall was poor: it is located one mile from a major
intersection, at the edge of the residential popula­
tion concentration, and in a topographical bowl.
Without accessibility, visibility, or sufficient traffic
(daytime shoppers) and with increased competition
over the years, the mall has steadily declined. In
addition, the current perception that retailers have
misjudged the preferences of shoppers in North
County, the general misperception that the envi­
ronment at the mall is unsafe and that management
gives inadequate attention to customer service, and
the decline in the quality and selection of retailers
are contributing to the demise of Jamestown Mall.
In the past several years, the popularity of the subur­
ban shopping mall as a retail destination has waned
nationwide. More and more regional malls are failing.
Given the widespread availability of shopping on
the Internet, baby boomers and their children (the These kinds of places do not spring into existence St. Louis neighborhoods
so­called Generation Y) are seeking more active, ur­ but grow incrementally over time as people build like Central West End
bane, vibrant, and dynamic environments in which memories with them, thus developing attachments and the Delmar Loop
to shop—environments that are tied to lively public for them and merging the identity of the place with present examples of
places filled with things to see, do, and experience. their own. That emotional connection is the concept great place making.
called “sense of place” that characterizes special
Some, especially the young and talented, have chosen places and draws people to them. And where people
to move into the city in search of the kinds of experi­ gather, business and opportunity follow. The major
ences that reflect great place making, exemplified concept behind the panel’s plan is to create a place
in such St. Louis neighborhoods as the Central West that becomes the place in the community where
End or the Loop. Many would seek such experiences everyone wants to be. When people think of North
closer to home, if they were available. Lindbergh County they should tie their identities to this place.
Place can plant the seeds from which such a place can It should be a place that they are proud of and that
grow in North County. represents their community values.
St. Louis County, Missouri, September 20–25, 2009 11

13. A Vision for Lindbergh Place Lindbergh Place will be scaled to be comfortable. The
scale will encourage walking between destinations along
The panel recognized the significant strengths and streets filled with entertaining things to see and do. Pro­
opportunities inherent in North County and its resi­ grammed events such as art shows, concerts, holiday
dents. The recommendations set forth in this report celebrations, civic events, and festivals will continually
envision a mixed­use, active, vibrant center that can enliven and animate the central square or green space,
bring North Countians together to celebrate both their which will become North County’s town square.
diversity and their shared sense of community in a
walkable, green, clean, safe, and vibrant environment. Forward­looking and future oriented, Lindbergh
Place will be designed to boost the quality of life for
Built around a great central square, Lindbergh Place every member of the North County community,
will offer opportunities to experience entertainment, regardless of age, race, or income. It will combine
shopping, living, culture, education, and recreation. specialty retail that responds to the true needs and
It will provide convenient community services and desires of residents with other uses of civic impor­
both entrepreneurial and employment opportunities tance or for personal need, such as health care offices.
for the people of North County. People will enjoy be­ Sidewalk cafés and art galleries will overlook the
ing there, in part simply because they will feel that it central square, adding to the sense of safety and
belongs to them. It will be a place that exemplifies the security. High­quality residences that respond to
authentic identity of North County, both restoring the community’s needs and tastes will add to the
and reflecting the pride of residents. liveliness of Lindbergh Place.The development will
respect the natural environment, incorporating sus­
tainable strategies into design and construction.
The mix of retail
space, streetscape Highly visible and easily accessed, well lit and beau­
improvements, and tifully landscaped, defined by high­quality architec­
walkability along ture, and professionally and responsively managed,
the Delmar Street Lindbergh Place will become known for its quality.
corridor contribute That will engender a sense of pride and civic identity
to making it a among North Countians, who will come to regard it
great place. as their own special place.
The rest of this report expands on these ideas and of­
fers recommendations on how to revitalize the com­
munity’s core and reinvent the mall as a place that
expresses the compelling character of North County.
12 An Advisory Services Panel Report

14. Market Potential
T
o assess the market potential of Jamestown terns in St. Louis County and the MSA have echoed
Mall, the panel reviewed and analyzed a vari­ much of the residential growth patterns over the past
ety of uses. Given the size of the site, the long­ 30 years, expanding into the western suburbs of St.
term success of the redevelopment project Louis County and St. Charles County.
will demand multiple uses that feed on and support Underlying Fundamentals Weak
each other, enabling the project to change over time
as market support for different uses ebbs and flows. Overall economic conditions in the national and
Around the country, strong developments and com­ regional markets are affecting spending and develop­
munities—those that attract and retain users, ten­ ment opportunities. In the first six months of 2009,
ants, and residents over several years—benefit from the region lost 50,000 jobs. From September 2008
combining commercial, residential, arts, and other to September 2009, the median household income
uses in a high­quality environment that encourages dropped 10.4 percent over the preceding 12 months
pedestrian activity and interaction. Based on its mar­ and unemployment rates rose. The national credit
ket review, the panel believes that the Jamestown crisis has halted much of the St. Louis region’s new
Mall site is well suited to sustain a mix of uses that commercial development activity, because of the
both captures current market interests and builds on lack of financing and the weakening in the underly­
potential markets. This mix mitigates the risk of fail­ ing economic fundamentals.
ure for any one use.
During the 12 months from March 2008 to March
2009, the nation’s malls lost approximately 6.5 per­
The Mall’s Current Challenges cent of their tenants. On average, retailers reported a
decline in sales of approximately 7.3 percent in 2009.
St. Louis County and its metropolitan statistical area
Many older malls are experiencing lagging or declin­
(MSA) of 17 counties have grown modestly in recent
ing sales; those with sales per square feet of less than
decades. Since 2000, population growth has aver­
$250 are likely to continue to decline.
aged 2 percent annually in the county (with a recent
decline) and 4.4 percent annually in the MSA. Ac­ In the St. Louis MSA, retail continues to suffer from
cording to Claritas, in 2009 the estimated population the weakening in economic conditions. Retail va­
within five miles of Jamestown Mall was 135,000. cancy rates in the North County subarea reached 11.8
percent in the third quarter of 2009, with rents hold­
Growth at the Fringe ing steady at a relatively low $10.25 per square foot.
Over the next decade, population and employment Brokerage reports from CoStar, Marcus & Millichap,
growth in the St. Louis region is expected to remain and real estate professionals in the area indicated de­
stable, with declines in some of the urban and first­ clines that reflect both the state of the economy and a
ring suburban areas. In particular, the North County major oversupply of retail space.
area of St. Louis County will make only modest gains
The Issue of Density
in numbers of households and may even decline. Sub­
urban sprawl has tended to move west to St. Charles Density refers to the number of structures per acre
County and beyond. This direction may shift slightly in a category—residential, commercial, or retail. The
as some new development occurs east of the Missis­ area immediately surrounding the Jamestown Mall
sippi River along I­270 and south in St. Clair, in con­ site is characterized by low­density, single­family
junction with plans for increased employment at Scott housing. Because of the natural features of the Mis­
Air Force Base. The commercial development pat­ souri and Mississippi rivers and the karst area to
St. Louis County, Missouri, September 20–25, 2009 13

15. the north, density in this subarea will not increase Although the trade area has a sufficient level of
significantly in the future. At most it may rise to one disposable income to support retail, the mall has
dwelling unit per three acres in the karst area, not failed to attract and retain enough retailers to satisfy
enough to substantially increase density across North the needs and wants of local residents (figure 1). As a
County. This low density is intrinsically linked to the result, local residents often travel elsewhere to meet
economic viability of Jamestown Mall—or rather its their retail demand, choosing more competitive loca­
inability to generate enough in receipts for businesses tions throughout North County as well as elsewhere
in St. Louis County.
that locate there. Density translates directly into
more residents, shoppers, and visitors. Strong Competition, Weak Merchandise Mix
The panel received feedback from members of the Another challenge that faces Jamestown Mall is
North County community who are concerned about competition from the abundance of retailers, not
the effects on community safety of medium­ and only in North County but in the entire MSA. CoStar’s
high­density developments. Density, in and of itself, “Mid­Year 2009 Retail Report” identifies total retail
is often not a driver of crime and other illicit activities; commercial offerings in excess of 123 million square
feet in the MSA, including 12 million square feet in
as a matter of fact, high­density cities often have lower
regional malls. The market is saturated with all types
crime rates than smaller, lower­density cities. In the
of retail, from super regional malls to grocery store–
panel’s experience, quality design strategies (such as
anchored neighborhood centers to unanchored strip
incorporating pedestrian networks with an appropriate
shopping centers. Most notably, the Jamestown Mall
mix of product types) and the relationships between competes for apparel and department store custom­
buildings and sight lines have more to do with making ers with St. Louis Mills, Saint Louis Galleria, West
an area unattractive to crime than density does. County Center, Mid Rivers Mall, and Chesterfield
Mall because of their depth of selection and ameni­
In the case of the Jamestown Mall, the panel whole­
ties. These larger malls, with their wider range of
heartedly recommends increasing the density of future
retail tenants, continue to draw more customers and
redevelopment in order to make viable economic
dominate the marketplace.
development possible. Regional malls typically draw
from a base of 200,000 to 250,000 standard customers The panel repeatedly heard that the merchandise mix
within their primary trade areas. Within North County, at the Jamestown Mall is aimed at the wrong target
2009 estimates suggest that the 135,000 residents market; however, simply adjusting the merchandise
who live within five miles of the mall site have an mix is not the answer to the current challenges in this
average household income of $55,131. Although that market. The market influences that created the decline
at Jamestown Mall are still in place. Competition is
is slightly less than the desired income level, it does
getting stronger as the existing malls fight for the North
suggest sufficient disposable spending potential
County customer base, which is not growing. New re­
(approximately $16,500).
Figure 1
Supply: Typical Regional Mall Needs and North County Supply
Standard Needs North County
Residents 200,000–250,000 135,000
Area Workers 180,000 Less than 80,000
Traffic (ADT) 30,000+ 20,000
Note: ADT refers to average daily traffic.
14 An Advisory Services Panel Report

16. tail development, encouraged by local jurisdictions that accessibility, visibility, and the competitive environ­
seek higher sales tax revenues and provide incentives ment. Retailers also choose sites by evaluating several
and support for new retailers, has created a significant factors that characterize their target market, including
oversupply of retail space. As a result, Jamestown the number of households in proximity, household in­
Mall—on the outskirts of a low­density trade area— come, retail expenditures, the value of housing stock,
continually struggles against the newer competition. education levels, and family composition.
Online Shopping These factors are meaningful only in the context of
the competitive environment. Retailers have to think
Like catalog shopping in the 1990s, the Internet and
like consumers in considering whether in compet­
e­commerce are affecting the built retail environ­
ing with existing and planned retailers they can
ment and the potential for new retail construction in
capture an adequate share of consumer spending to
this decade. Over the past several years, Internet and
be successful. Among the reasons consumers choose
e­commerce sales have increased at an estimated an­
between shopping alternatives are atmosphere and
nual rate of 13.7 percent, according to data prepared
safety, convenience, variety of goods offered, and
by Development Metrics Consulting. Although this
familiarity with the store and product. Retailers need
increase has little to no impact on restaurants and
to understand existing shopping patterns and how a
drugstores, the expansion of e­commerce is under­
site measures up to the competition. Jamestown Mall
mining the success of standard retail models such as
does not successfully draw expenditures from area
regional malls, lifestyle centers, and power centers.
residents or from customers from outside the area.
In particular, Internet and e­commerce most affect
retail stores that stock apparel and accessories; elec­ Currently, retail trends indicate that retail supply in
tronics and appliances; and books, music, and sport­ the nation as a whole is contracting and development
ing goods. In summary, Jamestown Mall currently is clustering in a small number of highly competi­
faces these challenges: tive locations (those with accessibility, visibility, and
transit service). North County has an oversupply of
 A location on the northern edge of residential de­
retail space. Based on the performance of comparable
velopment, in an area that has natural barriers
projects in similar types of markets, the panel has
to additional development to the north;
identified the following mix of uses as sustainable:
 A lack of quality retail space;
 Up to six new sit­down restaurants;
 Better­located shopping centers with stronger
 One or two furniture or home furnishings stores;
anchors and market draw;
 One stand­alone or center­operated pharmacy
 A market base that is not growing with new resi­
with urgent care medical services; and
dential development; and
 One specialty grocer with beer and wine sales or a
 Competition from online shopping.
year­round farmers market.
Potential Demand The site should not be used for a regional shopping
center but rather for an environmentally sustainable,
The panel reviewed and analyzed a variety of informa­ mixed­use town center with a focus on community
tion to help it determine and set the context for viable retail and dining establishments. This redevelopment
retail and other uses at the Jamestown Mall location. would be augmented by other uses, discussed later.
Retail Entertainment and Food
An understanding of these conditions and challenges Entertainment uses occupy retail space and include
provides the backdrop for the panel’s analysis of establishments that allow users to participate in
the realistic potential for future retail. Demand for recreational activity. For this reason, food and bever­
retail space relates to a number of factors, including age sales associated with restaurants serving food or
household density, household incomes, site location, alcohol that is consumed on site may be one compo­
St. Louis County, Missouri, September 20–25, 2009 15

17. nent of the demand for food. Typical entertainment ity, the quality of the environment, and the number
tenants include sit­down restaurants, live­music and character of other area restaurants. Clusters of
venues, bowling alleys, movie theaters, performance restaurants can draw from a larger, more diverse area
theaters, sandwich shops, cafés, ice cream shops, because they offer customers more options. Restau­
fast­food restaurants, bars, recreational rental facili­ rants can also become strong attracting features, as
ties (bikes, skates, etc.), and other similar uses. destinations in themselves.
The Jamestown Mall site has a theater with 14 Office
screens, stadium seating, and digital surround sound
The St. Louis office market consists of approxi­
that offers up to five main showings a day. The exist­
mately 16 million square feet of office space in the
ing facility could remain viable in the short term,
West County submarket of St. Louis County and
with proper management of the complex to attract
13.3 million square feet in downtown St. Louis.
local residents. In recent years, a theater as an anchor
Most of the region’s Class A office market extends
to lifestyle centers has made financial sense. Trends
from the City of St. Louis into the western sec­
in 2008, however, showed stagnation in the theater
tion of St. Louis County. In the second quarter of
market as customers stayed home to watch movies
2009, rents in the Class A market of St. Louis County
on flat­screen, high­definition systems.
(which includes portions of the Mid­County sub­
The ability to capture customer spending on food and market as well as West County) ranged from $23 to
beverages away from home depends on the density $28 per square foot, according to CB Richard Ellis.
of the customer base, customer spending capac­ The overall vacancy rate for office space hovered at
The Jamestown
14 Cine could
remain viable in
the short term.
16 An Advisory Services Panel Report

18. 15 percent for the St. Louis office market as a whole, rounding the Jamestown Mall site by offering other
with just under a million square feet of sublease space types of educational programs.
available. In a healthy office market, vacancy rates
typically remain below 10 percent. Residential
Residential development within the Jamestown Mall
Larger corporate office users (for example, contrac­
area predominately consists of developments built
tors, architects, engineers, consultants, and other
in the early 1960s and 1970s, with homes priced in
professional services firms) tend to look for business
the mid $100,000s. The area’s supply of housing in­
park locations or for Class A office buildings with
creased in the first half of the current decade with the
prominent locations on transportation corridors,
development of new homes; however, the national
state­of­the­art building systems, and high­quality
mortgage crisis has affected this part of the county,
standard finishes. Additional factors that Class A of­
and North County has suffered from subprime
fice tenants consider are good access to support ser­
mortgage activity. Trends show householders losing
vices and retail, the proximity of executive housing,
smaller, older, less expensive homes as well as homes
the presence of a skilled labor force, and the quality
purchased in the previous 10 years at higher prices.
of neighboring office space. These aspects play sub­
The oversupply presents short­term challenges for
stantial roles in determining an area’s competitive­
the residential market in North County; however, the
ness and the demand for new office space.
panel anticipates that residential development may
The Jamestown Mall site does not offer many of the be supported in the mid to long term once the unsold
ideal characteristics for major office development inventory is reduced.
because of its isolated location, lack of visibility, and
Given the aging baby boomer population, oppor­
limited services and amenities, and the failing retail
tunities for housing for seniors are increasing. The
center. Its greatest opportunities lie in attracting
number of North County households headed by an
neighborhood­serving office tenants, such as den­
individual aged 55 or older has increased by approxi­
tists, real estate agents, tax preparation offices, and
mately 230 per year in the past few years. Although
the like. The overbuilt supply of strip shopping cen­
many will choose to “age in place” in their current
ters in the area fills much of the existing need in the
houses, others will seek housing for seniors within a
neighborhood­serving office market. A redeveloped
continuum of care ranging from independent living
mall could attract some of those businesses that value
to assisted living to nursing home care. Others may
the quality of their surrounding environment and the
seek living arrangements that preserve their inde­
image they project to customers.
pendence but reduce their yard care obligations. The
Nonretail and Other Commercial introduction of new product types with association­
provided maintenance services, such as townhouses
Other institutional office users in need of space or and small­lot, single­family houses to mix with the
satellite operations in the Jamestown Mall area of surrounding neighborhood, could help meet the
North County may be strong candidates for occupy­ demand from empty­nester households.
ing space at the site. These tenants might include the
community college, area hospitals or health­ and Because of the foreclosure crisis, the panel believes
wellness­related businesses, and nontraditional of­ that the overabundance of housing supply will not
fice users. Users that offer community services, such be absorbed until 2015 or later, at which point the
as a child care facility or adult activity center, may demand for additional housing units will continue,
be optimal tenants for surplus commercial space. especially if appropriate products can be added to the
Outdoor facilities such as a learning laboratory for housing stock. Based on analyses of similar markets,
educating children about nature and local wildlife the panel believes a conservative estimate for supply
might serve as a unique area attraction, like the Chain to be around 180 units over a five­year period, which
of Rocks Bridge and Columbia Bottom Conservation breaks down to two to five units per month or, more
Area. There is an opportunity to take advantage of conservatively, 36 units per year for five years.
the unique geological characteristics of the area sur­
St. Louis County, Missouri, September 20–25, 2009 17

19. Planning and Development
Strategies
T
he site is a good candidate for alternative, tion ages, this is an opportune time to examine the
mixed­use development. In 142 acres, there is feasibility of developing additional senior living
ample space to include a number of different centers in the area, including one at the reconfig­
uses. The panel encourages St. Louis County ured site. A possible location is on the parcels along
to be bold and forward looking. Like the 1927 St. Lindbergh Boulevard.
Louis business community in its support of the Spirit  Lifestyle and boulevard shopping is another pos­
of St. Louis flight by Charles Lindbergh, St. Louis sible use of some segments of the reconfigured site.
County must engage in a bold vision to give flight to Local residents are dissatisfied with the current
Lindbergh Place. stores and selection at the Jamestown Mall. The
Several uses should be considered in the transforma­ panel recommends creating a “Main Street” retail
tion of Jamestown Mall to Lindbergh Place, from an experience that accurately and successfully reflects
outdated suburban mall to a mixed­use develop­ the needs and wants of North Countians.
ment. Possible uses include the following:  Suburban and small business offices represent
 Senior living and activities represent a growing another potential use, although in the current eco­
segment of the market both locally, regionally, nomic environment the appeal of this use will lag
statewide, and nationally. As the local popula­ behind others because of the lack of both demand
Street signage orients
visitors to the Main
Street experience in
the Central West End
and the Delmar Loop.
18 An Advisory Services Panel Report

20. for office space and available financing. Govern­ A great street is active,
ment and civic services, including public safety comfortable, and safe.
and administration, such as a satellite government
office or a business development center, could be
located at Lindbergh Place. Public sector offices
would broaden the diverse mix of uses at the site
much more than a retail center would.
 Community recreation, both indoor and outdoor
activities, is another viable use. Currently Jame­
stown Mall is the site of informal walking groups
at various times throughout the day. This activity
brings foot traffic to the site. At Lindbergh Place
this activity could be a catalyst, retaining its infor­
mal function while taking on more formal expres­ site linked to the commercial, retail, county office,
sions. In addition, the site could be an ideal location and related uses. Many local child care facilities are
for basketball courts or other types of sports facili­ in churches. Once Lindbergh Place achieves a criti­
ties that are popular with the community. Such cal mass of commercial, nonprofit, professional, and
facilities would represent a positive investment in retail uses, the demand for on­site child care will be
Lindbergh Place by St. Louis County. apparent. Numerous benefits can accrue to tenants
of Lindbergh Place from on­site child care.
 Family-oriented activities such as a YMCA with a
teen center should be explored as a use. Although  Medical and health care facilities are other pos­
there is a YMCA in Ferguson, St. Louis County seems sible uses, given the site’s proximity to Christian
to be underserved by this type of agency, given the Hospital. Health care is a growing industry, and it
size of its population. In addition to its core func­ may be possible to capture this growth at Lind­
tions, a YMCA can also serve as a focal point for other bergh Place with the development of professional
activities that help bind a community together. office space that could house physicians’ offices as
YMCAs are also characterized by active boards of well as those of related professionals.
directors and volunteers, which in themselves can
bring traffic and dynamism to Lindbergh Place.  Entertainment and food, such as movie theaters
and restaurants, are other feasible uses. Jamestown
 Youth facilities and activities such as Boys & Girls
Mall has a history of restaurant and movie theater
Clubs are an extension of the YMCA­type use and uses. The 14­screen theater should be examined in
can address concerns about the limited structured a later phase of the project as a driver of foot traf­
activities for middle­ and high­school­age children fic. In other places first­run theaters have driven
in the area. Malls remain a point of congregation
traffic to mall retail sites. A good example is the
for these age groups. Augmenting such a draw with
Easton Town Center in Columbus, Ohio. An exhibi­
structured youth­serving activities at the reconfig­
tor experienced with first­run films should be
ured site could produce a beneficial synergy among
identified to manage the theaters. An experienced
these uses. Like YMCAs, Boys & Girls Clubs have
exhibitor can generally provide a safe, secure movie
strong and committed boards of directors and vol­
viewing experience for all ages, thus lessening con­
unteers capable of bringing traffic and dynamism to
cerns about intergenerational tensions in theaters.
Lindbergh Place. A successful example of a mixed­
Another possible movie theater experience could be
use project incorporating such a use is the Eastgate
similar to the video wall at the Old Post Office Plaza
Complex in Chattanooga, Tennessee.
in downtown St. Louis. That video wall is adjacent
 Child daycare is another potential use at Lindbergh to a waterfall feature which brings vitality and a
Place. Often YMCAs provide child daycare for mem­ community experience to the open space at this
bers and guests. It may also be useful to examine the site. The plaza is ideal for performances, weddings,
feasibility of a for­profit child daycare center at the classes, and more.
St. Louis County, Missouri, September 20–25, 2009 19

21.  A high-tech center is another viable use. This  Farmers markets are popular uses in cities and
center could be a focal point for research, devel­ towns throughout the country. Successful local
opment, sales, and marketing of energy­efficient examples include the markets at Soulard, Tower
products and services. Another element to consider Grove Park, and Clayton. At Lindbergh Place a
is an environmental engineering center, which market could also feature a nutrition center that
addresses health and wellness topics. Included in
could be run in conjunction with a local school or
this nutrition center could be a nutrition learning
university. Having both a green technology focus
laboratory and a demonstration kitchen facil­
and an environmental engineering use could bring
ity. Health and wellness retailers would be ideal
local universities into the programming and site tenants to retain or court in order to optimize the
planning for Lindbergh Place. farmers market and its related uses.
 A small business incubator and research and By including some of these uses, North Countians
development space can be adjuncts to the proposed can create a new center at Lindbergh Place that—
high­tech center. The incubator and research and coupled with thoughtful marketplace management—
development functions can bring in local univer­ encourages high utilization and rational circulation
sity resources, including technology transfer office patterns. The amount of development each proposed
and laboratory uses. The incubator use also creates use could support at this site should be established
through a comprehensive market analysis and report
the need for venture capital uses, a shared office
from a professional, experienced market research
service, and education and training functions.
firm. St. Louis County is fortunate to have excellent
 Community gardens are popular uses with the resources for researching, analyzing, and designing
general public. They provide access to fresh pro­ redevelopment projects. An appropriate local firm
should be engaged early in the process to assist St.
duce and plants while improving the neighborhood
Louis County in preparing appropriate vision and
and instilling a sense of community pride, as well as
development plans for the site. The panel believes
providing a connection to the environment.
that to achieve its maximum potential, the project
would take 15 to 25 years to accomplish.
An example of a
successful local Public Sector Financial Participation
farmers market,
at Soulard. Public assistance for similar projects has included
different types of federal, state, and local tax
credits, as well as temporary property tax relief,
tax increment financing, government purchase of
the site, grants, expedited entitlement and building
permit processes, and discounted development and
building fees. In addition to these options, St. Louis
County could utilize its eminent domain powers, if
necessary, to assemble the site and then initiate a
process to select a master developer. This process
should include a request for proposals (RFP) and re­
quest for qualifications (RFQ) to identify and qualify
capable developers. Once the RFP/RFQ process is
completed, the next step should be to select a mas­
ter developer for Lindbergh Place. After the county
gains control of the site, it can determine whether
its strategy should be to ground lease or to sell par­
cels in order to achieve development objectives.
20 An Advisory Services Panel Report

22. Design and Planning
T
he panel approached the Jamestown Mall pri­ needs and wants—ultimately delaying the transition
marily as an economic development challenge. into a modern, high­quality facility.
Many possible solutions emerged during the Partial Preservation
week and were evaluated against competing
ideas for the long­term economic health and vitality An alternative approach is partial preservation of
of the region. Historic changes and emerging trends the two department stores still in operation, Macy’s
were considered and incorporated into the evaluation and JCPenney. Large, existing anchors are generally
of solutions. The range of options included everything desirable because they have the ability to attract large
from refurbishing the existing facility to preserving numbers of shoppers. These department stores are
and repurposing portions of the existing structure, to also local employers, supporting families within the
eliminating the existing structures and creating an en­ community. Although the panel members discussed
tirely new entity. Of the three scenarios, transforming a partial preservation approach in some depth, they
the site would create the greatest value for the proper­ thought that retaining two of the anchor facilities
ty owners and the county. would cause the reinvention of the mall to remain
unrealized. In panel members’ experience, keeping
The panel’s discussions of a site concept that will existing stores so compromises the redevelopment
remain viable into the future revolved around five effort with additional risks and constraints—not only
primary ideas: community, beauty, intensity, balance, in the present, but especially in the future phasing—
and imagination. These five ideas not only mirror the that more economic momentum would be created by
national trend in the redevelopment of malls, but also starting fresh than by saving the stores.
address the major amenities required to attract a broad
array of modern businesses, contemporary commu­ Comprehensive Redevelopment
nity uses, and people of all demographic groups. The proposed approach, a comprehensive develop­
Renovation ment plan, requires the assembly of site parcels under
single ownership and demolition of the existing
One option that the panel considered was refur­ facilities. These efforts would make approximately
bishing the existing structure and bringing in new 142 acres available for redevelopment. The plan leaves
tenants. In the panel’s view, this option did not ample space for open­space amenities that include
lend itself well to community development goals and agriculture and parks. This open space will enable the
would leave substantial space either vacant or under­ overall density of the development to remain compat­
leased. In addition, the mall has already undergone ible with the density of surrounding areas and permits
several renovation efforts that have yielded lackluster some land banking (keeping the land in reserve with
results. The panel believes that a similar effort would no active development until demand rises).
have even less success now, in an environment that
is both more competitive and less robust for retail The primary element of the plan is a central gather­
occupancy than it was during the 1990s. Even cos­ ing space and town green, which will be readily vis­
metic improvements to the physical facilities would ible from Highway 67 and extend visibility well into
not address the three main reasons for previous the site. The central green space would be bounded
failures to attract new shoppers and new retailers: on both sides by buildings that house retail on the
location, market strength, and population density. ground floor and offices and residential uses above.
The opinion of the panel was that renovating the The recommendation also includes a significant
existing facility would perpetuate the status quo and farmers market fronting the green space, which
consequently fall short of responding to community is intended to bring a strong presence of health,
St. Louis County, Missouri, September 20–25, 2009 21

23. One possibility of 1: Central Green Space
what a detailed 2: Chain of Lakes
development plan
11
6 3: Hike & Bike Trail through Park
for Jamestown Mall 7
might look like. 7 7 4: Farmers Market
4 1 7 5: Movie Theater
12
8
6: County Office Building
5
8
13 7: Office over Retail
14
8 10 8: Residential over Retail
9
15
9: Agricultural Uses
2
10: Townhomes
11: Medical Office Buildings
12: Small Offices
3
13: YMCA
14: Environmental Research Facility
15: Daycare Facility
food, social activities, and connection to the natural  Intensity: To create a place that supports the most
world as well as to be entertaining for everyone. intense activity within the region that it serves.
That involves multiple overlapping activities—
In the proposed scheme, the green space extends into multiple reasons to visit, to work, to live, to shop,
the area that is currently undeveloped. This greenbelt to learn, to be with other people. The panel proposes
offers a variety of amenities. The proposal incorporates that entertainment facilities be woven throughout
a chain of lakes, which serve a stormwater manage­ the property in the forms of a central video screen,
ment function as well. Around the lakes, a hiking and electronic kiosks, and wireless access.
biking trail meanders through parkland within view
of the existing stream that winds its way around the  Beauty: To create a place that reflects beauty.
southern end of the site. Whether natural or built, beauty is one of the best
and most universal attractions. Stately buildings
Incorporating residential components will increase that accommodate multiple uses over time add to a
the intensity of site use, making the area lively for sense of classic beauty. A variety of landscape set­
more of the day and consequently safer, with more tings from wild and natural to highly clipped and
eyes on the street. Where offices are located above manicured is also an attraction.
retail space, the offices add to the customer base for
the retail and the retail provides an amenity for the  Balance: To create a place that offers balance
offices, reinforcing each use. through variety. The panel recommends a broad
array of land uses from intense ones such as
The panel recommends that the mix of uses include street­level retail to pastoral ones such as agri­
these or similar components in order to promote cultural uses. The concept is to encourage bal­
economic development in the area. Toward that goal, ance between work and family, indulgence and
the panel recommends five other goals: health, and development and sustainability.
 Community: To create a place that serves and
 Imagination: To create a place where the develop­
strengthens the community. It should be a place ment astounds and delights. Imagination is the
that engenders pride, as well as a place where peo­ most elemental tool of value creation: it builds on
ple want to be—to watch people, to meet friends, to knowledge and creates higher levels of utility and
make new friends.
22 An Advisory Services Panel Report

24. efficiency to reach higher standards of quality and
excellence.
Other Considerations
Achieving the goal of creating a place that success­
fully attracts business and the community to the site
depends on setting the bar high. A mix of densities
and proximity to an attractive natural landscape are
tremendous assets to the development and will serve
as amenities for both residents and office workers.
The streetscape and public spaces should follow
prevailing standards for town center development.
Among these are sidewalks lined with shopfronts
that have large display windows. The sidewalks
should be wide enough to allow for street trees and
sidewalk dining, and should be lined with on­street
parking. Signage and awnings are needed as an ad­
ditional layer of detail that enlivens the streetscape.
There should be a continuous accessible pedestrian
route along the sidewalk.
The central public green space should be landscaped to
make it possible for large crowds to gather. It could be
designed to accommodate performances around or in
front of the proposed video screen. The programming
of the public space is as important as the design of it.
To ensure that there are frequent events and reasons
to be there, and to keep the space lively and attractive,
a management entity will be required.
Finally, the importance of active participation by the
St. Louis County Economic Council cannot be over­
stated. Its role is to reach out to potential tenants and
business owners to get them to join in the revitaliza­
tion effort to create Lindbergh Place.
Examples of mixed­use projects that are underway
throughout the Midwest include the following:
 Easton Town Center (Columbus, Ohio);
 New Albany Market Square (New Albany, Ohio); The panel recommends incorporating such elements
as a central public green space and active retail streets
 Park Place (Leawood, Kansas); into the redevelopment plan.
 Randhurst Village (Mount Prospect, Illinois); and
 Zona Rosa (Kansas City, Missouri).
St. Louis County, Missouri, September 20–25, 2009 23