jefferson barracks master plan

JEFFERSON BARRACKS MASTER PLAN i

Jefferson Barracks Master Plan

Prepared for St. Louis County Economic Council

Prepared by Woolpert, Inc.

In association with

Quinn Evans Architects ERA/AECOM

Vector Communications Corp.

December 2009

Funding provided by U. S. Department of Defense, Office of Economic Adjustment

Federal Identifier No. RA0825-08-01 This study was prepared under contract with the Economic Council of St. Louis County, with financial support from the Office of Economic Adjustment, Department of Defense. The con-tent reflects the views of the Economic Council of St. Louis County and does not necessarily

reflect the views of the Office of Economic Adjustment.

ii JEFFERSON BARRACKS MASTER PLAN

Acknowledgements St. Louis County Government Charlie A. Dooley, County Executive St. Louis County Economic Council Denny Coleman, President & CEO Timothy M. Tucker, Vice President, Real Estate & Community Development Elizabeth A. Noonan, Assistant Vice President, Real Estate & Community

Development Elizabeth D. Letscher, South Sector Specialist, Jefferson Barracks Master Plan

Project Manager Jefferson Barracks Master Plan Steering Committee Timothy M. Tucker, St. Louis County Economic Council Elizabeth A. Noonan, St. Louis County Economic Council Elizabeth D. Letscher, St. Louis County Economic Council John D. (J.D.) Magurany, St. Louis County Parks Department Marc E. Kollbaum, St. Louis County Parks Department Col. David Newman, Commander, Jefferson Barracks National Guard Base Jeff Barnes, Jefferson Barracks National Cemetery Peter McBrady, VA Medical Center Art Schuermann, Jefferson Barracks Community Council William Florich, Jefferson Barracks Heritage Foundation Frank J. Ziegler, Jr., Jefferson Barracks Heritage Foundation Mark L. Trout, Missouri Civil War Museum John L. Marauth, Missouri Civil War Museum Barbara Hehmeyer, Lemay Chamber of Commerce/Lemay Development

Corp. U.S. Department of Defense Office of Economic Adjustment (OEA) Michael P. Gilroy, Project Manager Joan Sigler

JEFFERSON BARRACKS MASTER PLAN TOC-1

Executive Summary ..................................................................................ES-1 Section 1—Introduction 1.0 Background of the Planning Study .......................................................1-1

1.1 Introducing the Planning Team .............................................................1-3

1.2 Identifying the Study Area .....................................................................1-4

1.3 Objective of the Planning Study ............................................................1-5

1.4 Components of the Plan ..........................................................................1-5

1.5 Public Engagement Activities ................................................................1-6

1.6 The Planning Horizon .............................................................................1-6 Section 2—Background 2.0 Introduction to the Master Plan .............................................................2-1

2.1 Jefferson Barracks Historical Perspective .............................................2-1

2.2 A Brief Chronology of Jefferson Barracks ............................................2-7

TOC-2 JEFFERSON BARRACKS MASTER PLAN

2.3 Partnerships Sustain Jefferson Barracks ............................................... 2-8

2.4 Existing Studies of the Jefferson Barracks Area .................................. 2-16

2.5 Public Input .............................................................................................. 2-19

2.6 Analyzing the Site’s Strengths, Weaknesses, Opportunities and Threats ..................................................................... 2-20

2.7 Assessing the Site ..................................................................................... 2-23

2.8 Analyzing the Site .................................................................................... 2-24

2.9 Assessing the Market .............................................................................. 2-33

2.10 Case Studies............................................................................................. 2-34 Section 3—Concept Plan 3.0 Introduction .............................................................................................. 3-1

3.1 Suitability for a Museum District .......................................................... 3-1

3.2 Key Planning Issues for Jefferson Barracks ......................................... 3-9

3.3 Conceptualizing the Jefferson Barracks Plan ....................................... 3-12

3.4 Jefferson Barracks Master Plan Opportunities .................................... 3-15

3.5 Jefferson Barracks Sustaining Partners.................................................. 3-27

3.6 Public Input .............................................................................................. 3-27 Section 4—Master Plan 4.0 Overview of the Master Plan .................................................................. 4-1

4.1 Developing Partnerships and Tie-Ins ................................................... 4-2

4.2 Elements of the Master Plan ................................................................... 4-3

4.3 Building the Museum District ............................................................... 4-19

4.4 Organizing & Funding Historic Jefferson Barracks ............................ 4-25

4.5 Conclusion ................................................................................................ 4-31

JEFFERSON BARRACKS MASTER PLAN TOC-3

Section 5—Community Impacts 5.0 Introduction ..............................................................................................5-1

5.1 Previous Studies .......................................................................................5-3

5.2 Current Community Projects .................................................................5-5

5.3 Jefferson Barracks Community Ties.......................................................5-6

5.4 Business Development Implications .....................................................5-7

5.5 Business Development Issues & Objectives .........................................5-9

5.6 Recommendations ....................................................................................5-11

5.7 Conclusion .................................................................................................5-38

Appendix A—Historic Building Assessment Appendix B—Development Strategy Appendix C—Investment

List of Figures Section 1 Figure 1.1 - National Setting..........................................................................1-2 Figure 1.2 - Regional Setting..........................................................................1-2 Figure 1.3 - Jefferson Barracks Complex......................................................1-4 Figure 1.4 - Jefferson Barracks Study Area .................................................1-5 Section 2 Figure 2.1 - JB Site Inventory.........................................................................2-3 Figure 2.2 - JB Property Owners/Leases .....................................................2-5 Figure 2.3 - JB Key Events 1826—1918 .........................................................2-9 Figure 2.4 - JB Key Events 1922—Present....................................................2-11 Figure 2.5 - Natural Resources ......................................................................2-27 Figure 2.6 - Development History ...............................................................2-29 Figure 2.7 - Site Analysis................................................................................2-31

TOC-4 JEFFERSON BARRACKS MASTER PLAN

Section 3 Figure 3.1 - Conceptual Land Use Districts ................................................ 3-13 Figure 3.2 - Master Plan Opportunities ...................................................... 3-23 Figure 3.3 - Master Plan Opportunities Detail............................................ 3-25 Section 4 Figure 4.1 - Jefferson Barracks Master Plan ................................................ 4-9 Figure 4.2 - Jefferson Barracks Master Plan (Enlargement A).................. 4-11 Figure 4.3 - Jefferson Barracks Master Plan (Enlargement B)................... 4-13 Figure 4.4 - Jefferson Barracks Master Plan (Enlargement C) .................. 4-15 Figure 4.5 - Jefferson Barracks Museum District Perspectives................. 4-17 Figure 4.6 - Gateway Features Matrix.......................................................... 4-21 Section 5 Figure 5.1 - JB Area Transportation Features ............................................. 5-3 Figure 5.2 - JB Access Routes & Signage ..................................................... 5-13 Figure 5.3 - JB Streetscape Corridors ........................................................... 5-14 Figure 5.4 - JB Commercial Corridors.......................................................... 5-15 Figure 5.5 - JB Commercial Districts ............................................................ 5-20 Figure 5.6 - JB Park District Overview......................................................... 5-24 Figure 5.7 - JB Park District Development Strategy................................... 5-25 Figure 5.8 - JB Museum District Overview ................................................. 5-28 Figure 5.9 - JB Museum District Development Strategy ........................... 5-29 Figure 5.10 - JB National Cemetery District Overview ............................. 5-32 Figure 5.11 - JB National Cemetery District Development Strategy ....... 5-33 Figure 5.12 - JB Medical District Overview................................................. 5-36 Figure 5.13 - JB Medical District Development Strategy........................... 5-37

ES-Executive Summary

ES

Executive Summary

3rd Squadron 4th Calvary and 2nd Squadron 8th U.S. Calvary at Jefferson Barracks ca October 24, 1902

The photograph shows the parade grounds looking north towards the Officer's Quarters. Most of the Officer's Quarters were demolished in the 1950s and 1960s.

(Source: St. Louis County Parks Collection.)

JEFFERSON BARRACKS MASTER PLAN ES-1

Section 1—Introduction The St. Louis County Economic

Council received a grant from the Office of Economic Adjustment, Department of Defense, to complete a master plan for the Jefferson Bar-racks National Guard Base, the greater Jefferson Barracks complex, and the surrounding Lemay com-munity, in response to the effects of BRAC 2005 on Jefferson Barracks and the St. Louis region.

The objective was to prepare a plan

on how the greater Jefferson Bar-racks complex can best be posi-tioned as a regional and national visitor attraction through preserva-tion and enhancement of the overall physical, historical, educational, rec-reational, and commercial visitor experience, and how to capitalize on development already occurring or planned for the area to diversify and maximize the economic develop-ment return for Lemay and the St. Louis City/County region in re-

sponse to the effects of Base Re-alignment.

Section 2—Background The Jefferson Barracks complex is

comprised of the Jefferson Barracks Missouri National Guard Base, the Jefferson Barracks and Sylvan Springs County Parks, the National Cemetery, and the VA Medical Cen-ter, representing approximately 1,000 acres of the original 1,700 acre Historic Jefferson Barracks.

Historic Jefferson Barracks was

founded in 1826 as a U.S. military installation and served primarily as an induction, training, and ord-nance storage facility until being de-commissioned as a Federal military post in 1946. The post is historically significant in its military functions, buildings, and people—including Generals Grant, Lee, Davis and Sherman.

ES-2 JEFFERSON BARRACKS MASTER PLAN

The historic post, ordnance section, and original cemetery have been recognized as local Historic Districts by the National Park Service’s Na-tional Register of Historic Places, and National Historic Landmark status is being sought by the propo-nents of Jefferson Barracks.

The primary organizations at Jeffer-

son Barracks preserving and pro-moting its history are the Jefferson Barracks Community Council, Friends of Jefferson Barracks (County Park), Jefferson Barracks Heritage Foundation (Citizen Sol-dier Museum), and the Missouri Civil War Museum.

The Vision for Jefferson Barracks

and Lemay, created through a stakeholder visioning workshop, is to develop Jefferson Barracks as a national military history tourism destination with museums, re-enactments, historic trails, and sce-nic river overlooks.

Section 3—Concept Plan An analysis of Jefferson Barracks’

historic buildings, historic land-scape, potential visitor market, and partnership opportunities with as-sociated museums and organiza-tions validated its suitability for de-velopment as a nationally-significant military history attrac-tion.

For planning purposes, the greater

Jefferson Barracks complex was di-vided into Land Use Districts based on their unique contribution to the history and interpretation of the

complex—from north to south these include: • Recreation and Ordnance Dis-

tricts in the Jefferson Barracks County Park

• National Guard Base District

• Museum District around the

west parade ground

• Sylvan Springs County Park District

• National Cemetery District

• VA Medical Center District

The leading opportunities identified

for development of Historic Jeffer-son Barracks were separated into Building, Visitor Experience, or Cir-culation Opportunities. Opportuni-ties in each category were priori-tized through a stakeholder work-shop.

• Top Building Opportunities

were a new Interpretive Center, a Presidential Museum & Li-brary, and use of the National Guard Base Barracks for muse-ums.

• Top Visitor Experience Oppor-

tunities were Gateway Features at the four primary complex en-trances, improved river views, and Great Rivers Greenway (GRG) riverfront trail.

• Circulation Opportunities fo-

cused on improving the Sherman and Sheridan Road


corridors and internal circula-tion improvements.

Section 4—Master Plan Master Plan recommendations

begin with developing partnerships and tie-ins with regional visitor at-tractions and related regional and national historic sites and organiza-tions. Leading opportunities in-clude: • St. Louis major visitor attrac-

tions—Zoo, Science Center, Bo-tanical Garden, History Mu-seum, and Grant’s Farm

• St. Louis public assembly ven-

ues—major sports teams and ca-sinos

• St. Louis historic sites and or-

ganizations—Jefferson National Expansion Memorial, US Grant NHS, and the National Park Service Midwest Partnership Of-fice

• National military & westward

expansion sites, civil war sites, military museums, and heritage organizations

Physical improvement recommen-

dations were then developed within the master plan for each of the Land Use Districts. • Museum District—in-progress

Jefferson Barracks Heritage Foundation’s Citizen Soldier Museum and the Missouri Civil War Museum; new Jefferson Barracks Interpretive Center and

Museum/Presidential Library; reconstructed duplexes framing the parade ground and provid-ing opportunities for small mu-seums, shops, and cafes; and in-terpretation of the former river-front railroad depot.

• Ordnance District (JB County

Park)—existing pre-Civil War powder magazines (museums), visitor center, stables and labor-ers’ house, North Gate sentry buildings, and Veterans Memo-rial Amphitheater; interpreta-tion of the former WWII troop intake center; and Mississippi River overlook enhancements, static displays and monuments.

• Recreation District (JB County

Park)—construction of the Le-may Aquatic/Community Cen-ter and an interpretive structure for the former Southern Electric R.R. Co., trolley system from downtown St. Louis to JB.

• Sylvan Springs County Park—

restoration of the WWII Bever-age Garden.

• National Guard Base—

construction of the Armed Forces Reserve Center, on-going building renovations, added military tenants, and improved grounds.

• National Cemetery—improved

gateway features, Sheridan Road access corridor enhance-ments, landscape screening, and options for future expansion.


• VA Medical Center—construction/renovation total-ing $200-300 million, convey-ance of 30 acres to the National Cemetery, and improved gate-way features.

• Private Partners—partnerships

with private owners of historic buildings and landscapes to en-hance and incorporate them into the overall visitor experience, including the Mehlville School District, St. Bernadette’s Parish, Sylvan House, and private resi-dents.

The estimated investment required

to transform the collection of build-ings, landscapes and organizations into a cohesive Historic Jefferson Barracks national visitor attraction is $68 million. Costs have been allo-cated by Category (e.g., existing buildings, new buildings, new visi-tor experience, etc.), District (e.g., Museum, Ordnance, Recreation, etc.), Phase (5 years, 10 years, or 20 years), and Sponsor (JBHF, Civil War Museum, Presidential Mu-seum, St. Louis County, etc.).

Organizational Options were

evaluated for Historic Jefferson Bar-racks, resulting in a recommenda-tion for an evolving organizational structure. As the attraction grows, the organization should evolve from volunteer committee to membership organization of independent part-ners, to regionally-funded organiza-tion, to an end-state umbrella or-ganization/corporation potentially combined with State or National Park Service ownership or man-

agement. The unifying element in this evolutionary process is the im-portance of building a lasting rela-tionship with the National Park Ser-vice.

Funding Options would include a

Special District (such as the St. Louis Zoo and Museum District), Cultural District (similar to a CID in Mis-souri), Tax Increment Financing, and Historic Tax Credits. Unfortu-nately, the public ownership nature of the Jefferson Barracks complex limits the applicability of most of these tax-related funding options. The keys to success will be with a public-private mechanism to cap-ture the increase in area property and economic activity revenue, con-tinued fund-raising efforts by the private independent museum or-ganizations, and the financial sup-port of County, State and Federal government.


Section 5—Community Impacts The Jefferson Barracks complex has

a direct and indirect economic im-pact on the surrounding commu-nity—primarily the unincorporated South St. Louis County communi-ties of Lemay and Mehlville. The most direct impacts are on specific commercial corridors (the primary access routes to Jefferson Barracks) and districts (located at the four gateways to the JB complex).

The recommended Historic Jeffer-

son Barracks Master Plan is pro-jected to generate the following eco-nomic impacts in St. Louis County.

• The impact of construction of

existing and Phase 1 Master Plan projects will be 500 new jobs and $100 million in direct and indirect annual expendi-tures over the next 5 years (2010 to 2015).

• The impact of the growth in

employment and spending at Jefferson Barracks following completion of existing projects and Phase 1 of the Master Plan (in 2015) will be 300 new jobs and $16 million in annual ex-penditures.

• The impact of the projected

180,000 to 250,000 new visitors to Historic Jefferson Barracks at the completion of the Master Plan (in 2026) will be an addi-tional 60 new jobs and $6 million in annual expenditures.

• In the surrounding communi-ties, this will drive near-term support for 40-60,000 SF of commercial space.

• Primary Access Routes should

be treated with a system of di-rectional signage and streetscape improvements that highlight the route to Jefferson Barracks. The primary routes are South Broadway, Reavis Barracks Road, Telegraph Road, and Koch Road.

Community Commercial Corridors

were recognized as the areas most likely to benefit from increased ac-tivity at Jefferson Barracks based on proximity, commercial use, traffic volume, and redevelopment poten-tial. Land and facility use, public realm design, and private realm de-sign recommendations were pro-vided. These corridors are South Broadway south of Hoffmeister, Telegraph Road from I-255 north to Reavis Barracks Road, and Koch Road around the I-255 interchange.

Community Commercial Districts

were identified as specific locations within the Commercial Corridors with unique potential to develop a synergy with the growth of Jeffer-son Barracks. The districts are lo-cated around road intersections at the four primary entrances to the JB complex. • JB Park District at South

Broadway, Kingston & Grant Road. Strategy: Develop com-plementary uses to Jefferson Barracks and traditional com-


munity services around three commercial nodes. Potential Park expansion to the north around Teddy Avenue.

• JB Museum District at Tele-

graph, Reavis Barracks, King-ston, Jefferson Barracks & Sherman Avenue. Strategy: De-velop convenience and small-scale visitor amenities. Potential reconfiguration of the Reavis Barracks/Telegraph Road inter-section and the renaming of Reavis Barracks Road to Jeffer-son Barracks Road.

• JB National Cemetery District

at Telegraph, Sappington Bar-racks & Sheridan Road. Strat-egy: Develop convenience gas and retail, hotel and restaurant, and large event spaces. Potential expansion of the National Ceme-tery to Sylvan Springs Park and Telegraph Road.

• JB Medical Center District at

Koch Road & I-255. Strategy: Develop regional convenience and visitor amenity facilities. Po-tential development of MODOT, Mehlville School District, and other ground around the inter-change with the revenue linked to improvements at Historic Jef-ferson Barracks.

1.0

Introduction

1.0-Introduction

Jefferson Barracks ca May 30, 1919

“Firing Regulation Salute of 21 guns at Jefferson Barracks decoration May 30 1919. Many very old [Civil] War veterans visited there this day.” (caption taken from back of photo).


JEFFERSON BARRACKS MASTER PLAN 1-1

1.0 Background of the Planning Study Under the Base Realignment and Clo-sure (or BRAC) Commission recom-mendations in 2005, the U.S. Depart-ment of Defense called for the closure and realignment of several military operations in the St. Louis region: clo-sure of the Defense Finance and Ac-counting Service; realignment/closure of the U.S. Army Human Resources Command; closure of the 131st Fighter Wing (Air National Guard unit) at Lambert-St. Louis International Airport; and realignment of the 157th Air Opera-tions Group and 218th Engineering Installation Group (Air National Guard units) at Jefferson Barracks. In response, the St. Louis County Eco-nomic Council (SLCEC) helped form and organize a regional task force charged with developing recommenda-tions to address the worker and eco-nomic impacts of the realignment and closures. Recognizing that the changes in employment and activity at affected

installations would have direct impacts on the surrounding communities, the task force recommended evaluating the economic development opportunities around each of these installations. These evaluations would help the re-gion and the immediately surrounding communities adjust to the impacts and identify potential opportunities for growth. Jefferson Barracks in south St. Louis County immediately emerged as a tremendous economic development opportunity. Military and community investment in and around this historic installation and the surrounding Lemay community was already underway, creating momentum for growth to offset the negative effects of BRAC on the St. Louis region.

1-2 JEFFERSON BARRACKS MASTER PLAN

The Missouri National Guard was expanding its presence at Jefferson Barracks with a new Army Reserve Center under construction to host train-ing for Reserve and National Guard units. A Missouri Civil War Museum and a Citizen Soldier Museum were gearing up with renovated facilities and fund-raising activities. And in Lemay, a major casino-based entertainment complex was under construction. Historic Jefferson Barracks, which is listed on the National Register of His-toric Places (NRHP), has significant importance as a military assembly and troop training center. Through these and other private-public efforts, the creation of a museum district at the historic post was conceived. The Mis-souri National Guard has been actively engaged in the effort to create the museum district.

The greater Jefferson Barracks complex also includes two St. Louis County Parks (Jefferson Barracks and Sylvan Springs), the Jefferson Barracks National Ceme-tery established in 1866, and a Veterans’ Admini-stration (VA) medical center. The VA has an-nounced that it will invest more than $200 million in construction and upgrades at the hospital.

The activity at Jefferson Barracks is augmented by other entertainment and tourism related developments in sur-rounding unincorporated Lemay, in-cluding the River City casino complex, the construction of a new access road from I-55, and associated improvements in the community such as baseball fields, an outdoor entertainment venue, and a community aquatic center. Sig-

Figure 1-1 – National Setting

Figure 1-2 – Regional Setting


nificant work also is planned or under-way on a trails system through the Lemay area, part of the development of a regional greenway system. While these key development projects were underway in and around Jefferson Barracks, it was determined that a comprehensive plan to integrate these exciting developments with the Jeffer-son Barracks complex would enhance their overall economic and community potential. As a result, the St. Louis County Eco-nomic Council initiated this study to identify cooperative actions and en-hancements to Jefferson Barracks and the surrounding community that would accommodate the expansion at the National Guard facility and support the educational, recreational, and enter-tainment projects in and around the historic post. These enhancements are important to assist the Lemay commu-nity in adjusting to the Missouri Na-tional Guard’s expansion and expand-ing economic opportunities of the other investments noted above, in order to offset the St. Louis region’s employment and economic loss resulting from BRAC 2005.

1.1 Introducing the Planning Team The Jefferson Barracks Planning Study provides recommendations related to military, educational, recreational, entertainment, and commercial devel-opments within the Jefferson Barracks/ Lemay area of south St. Louis County. The investment in this area was deemed critical to the economic growth and prosperity of the region, so particular emphasis was placed on determining how best to ensure the success and impact of promising new develop-ments. The plan was funded by a fed-eral grant from the U.S. Department of Defense, Office of Economic Adjust-ment. The SLCEC planning team was led by Woolpert, Inc., and included economic development (Economics Research Associates, Inc.—a division of AECOM), historic and cultural architec-ture (Quinn Evans Architects), and public engagement (Vector Communi-cations Corp.) specialists. To provide guidance throughout the planning process, a Steering Committee of key stakeholders was assembled to include representatives of the St. Louis County Economic Council, the St. Louis County

Photo 1-1 – Public Visioning Workshop #1


Parks Department, the Jefferson Bar-racks National Guard Base, the Jeffer-son Barracks Historic Foundation, the Jefferson Barracks Community Council, and the Lemay Chamber of Commerce. Other key Jefferson Barracks complex stakeholders consulted during the process included the Veterans’ Admini-stration Hospital, the National Ceme-tery, and the Missouri Civil War Mu-seum. 1.2 Identifying the Study Area The study area was defined based on the projected impact on and from the various investments planned at Jeffer-son Barracks. The primary study, or focus, area is the Jefferson Barracks Historic District which is also the focal point for an envisioned Museum District. The Historic District encompasses the historic post and portions of St. Louis County’s Jefferson Barracks Park. The secondary study area was defined as the greater Jefferson Barracks complex, encompassing not only the Jefferson Barracks Historic District, but other large land owners within the former Jefferson Barracks military post. This included all the property occupied by

the Jefferson Barracks National Guard Base, St. Louis County’s Jefferson Bar-racks and Sylvan Springs Parks, the Jefferson Barracks Veterans’ Admini-stration Hospital, and the Jefferson Barracks National Cemetery; as well as properties of the Mehlville School District, the St. Louis Archdiocese, and numerous private property owners.

Figure 1-3 – Jefferson Barracks Complex


Outside the boundaries of the greater Jefferson Barracks complex, the focus of the planning study was on the unincor-porated areas (Census Designated Places or CDP’s) of St. Louis County known as Lemay and Mehlville. And finally, the outermost boundary area (or area of influence) was defined by the River Des Peres on the north, the Mis-sissippi River on the east, I-255 on the south, and I-55 on the west. 1.3 Objective of the Planning Study The objective of the study was to pre-pare a plan on how the greater Jefferson Barracks complex could best be posi-

tioned as a regional and national visitor attraction through preservation and enhancement of the overall physical,

historical, educational, recreational, and commercial visitor experience. Equally, the plan would capitalize on develop-ment already occurring or planned for the area to diversify and maximize the economic development return for Le-may and the St. Louis City/County region in response to the effects of Base Realignment. 1.4 Components of the Plan The planning study is organized around three primary components—a master plan for the Jefferson Barracks Historic/Museum District, a plan to tie the Historic/Museum District to the

greater Jefferson Barracks complex, and a Commercial Corridors Plan for the area outside the bounds of Jefferson Barracks. The purpose of the master plan for the Jefferson Barracks Historic/Museum District is to create a historic, cultural district bringing together all related existing entities and interests to form a cohesive destination for adults and chil-dren interested in military and U.S. history. This District is then tied to the

larger Jefferson Barracks Complex that includes the Jefferson Barracks National Guard Base, the two County Parks, the VA Medical Center, and the National

Figure 1-4 – Jefferson Barracks Study Area


Cemetery. The final component of the plan is a Commercial Corridors Plan functionally and economically tying the Historic District and the larger Jefferson Barracks Complex to the surrounding Lemay and Mehlville communities. 1.5 Public Engagement Activities A tailored public engagement program was used to generate representative and focused discussion regarding the devel-opment of the Historic/Museum Dis-trict and its implication for economic development in and around Lemay and Mehlville. It consisted of a variety of public outreach, community engage-ment, and communications activities that aided the planning team in under-standing local issues and values, ensur-ing access to technical information, and gathering public input on the plan. Ultimately, these activities enabled the team to establish positive relationships with area stakeholders and residents that enhanced project decision-making and will likely aid in future project implementation efforts. 1.6 The Planning Horizon The plan attempted to envision Jeffer-son Barracks 15 to 20 years from now, targeting the year 2026—the 200th anni-versary of the founding of Historic Jefferson Barracks.

Photo 1-2 – Public Planning Workshop #2

2.0

Background

2.0-Background

Jefferson Barracks Sanitation Camp ca August 4-17, 1940

Sanitary troops worked with/as part of the Medical Corps.



2.0 Introduction to the Master Plan The master planning process was based on a thorough investigation of current conditions within the Jefferson Barracks complex as well as the surrounding community. Basic knowledge of Jeffer-son Barracks’ storied 180-year history established the underlying framework from which many site development decisions were made. As part of the planning process, available previous studies and plans were reviewed to increase knowledge of the JB complex and to assist in understanding the management of the land and facilities. The planning process also included input from organizations that have a stake in the JB complex. Such stake-holders include the St. Louis County Parks Department, the Missouri Na-tional Guard, and the VA’s National Cemetery and Medical Center. The following section provides a his-torical perspective for JB, an overview of the current stakeholders and relevant

previous studies, and the current vision of success. It reviews the site’s strengths and weaknesses, summarizes the cur-rent conditions of its natural and his-toric resources, and provides a brief analysis of the complex. The section explores the economic potential of JB and concludes with case studies of successful similar historic complexes for consideration. 2.1 Jefferson Barracks Historical Perspective The JB campus is one of the most his-toric and significant military installa-tions in the United States. See Appendix A for a map and description of the buildings at Jefferson Barracks. The installation was first established in 1826 as a successor to Fort Bellefon-taine, and was intended to be an infan-try training school. When the troops first arrived, a temporary encampment was established at Sylvan Springs until permanent buildings were constructed closer to the Mississippi River.


The permanent base was in the ap-proximate location of the existing Build-ings 28 and 29 and the parade ground to the north, and consisted of a rectan-gular organization of soldier barracks and officer quarters around a drill ground, with other support buildings located nearby. In the early 1850s, an ordnance depot was marked off from the north portion of the military post. The ordnance was originally stored in sunken pits (or sinkholes), with limestone and brick buildings constructed in the pit locations in the 1850s and 1860s. The military post was an important training ground throughout the 19th century, producing thousands of troops. Dozens of Civil War generals on both sides passed through the post in the decades prior to the outbreak of war in 1861. These would include Jeffer-son Davis, Robert E. Lee, Ulysses S. Grant, and William T. Sherman. In the late 1890s, the facilities were substantially rebuilt, taking the form mostly seen today. The Civilian Conservation Corps (CCC) also con-structed facilities on both the post and the ordnance depot in the 1930s. Jefferson Barracks saw the height of its development during World War II, when the facility was an intake and training ground for Army soldiers. An intake facility with temporary barracks was constructed at the northeast corner of the ordnance depot, and temporary housing and other buildings were constructed throughout the grounds. These included housing (tents were erected throughout the grounds be-

tween the post and ordnance depot), mess facilities, training grounds, medi-cal facilities, and recreational areas. In 1939, a beverage garden was con-structed in the spring area at Sylvan Springs, and two years later the enlisted men from Jefferson Barracks built a 6,000-seat amphitheater where the USO hosted many nationally known shows, boxing matches and concerts through-out the war years. Such entertainers as Judy Garland, Bob Hope, Rita Hay-worth, and Jimmy Dorsey performed at the amphitheater at Sylvan Springs.

In 1946 the Barracks closed and the land was excessed by the federal govern-ment to public entities and private bidders. Most of the land, particularly the area from the north side of the parade ground to the ordnance depot and the Sylvan Springs area, was trans-ferred to St. Louis County in 1950 for the Parks Department. Private housing was constructed between the Barracks and Sylvan Springs. The majority of the former Barracks buildings were trans-ferred to the State of Missouri for use by the Missouri Army and Air National Guard. These Barracks remain an active military facility today.

Photo 2-1 – Sylvan Springs Amphitheater, ca 1940s (Source: St. Louis County Parks Collection)

Legend


SITE INVENTORY

SCALEIn Feet

0’ 800’ 1600’ 2400’

Woolpert, Inc., December 2009

FIGURE 2.1MAP OF

JEFFERSON BARRACKS

Legend


PROPERTY OWNERS/LEASES

SCALEIn Feet

0’ 800’ 1600’ 2400’


FIGURE 2.2MAP OF

JEFFERSON BARRACKS


2.2 A Brief Chronology of Jefferson Barracks The history of Jefferson Barracks is the focal point for the vision of a Jefferson Barracks Museum District. Although the master plan is not intended to pro-vide primary research to further schol-arship on the history of the Jefferson Barracks complex, a very brief descrip-tion of the chronology of Jefferson Barracks is provided to help establish the master planning framework. This section is primarily taken from a pam-phlet produced by the St. Louis County Parks Department and provided to park visitors. It is supplemented by excerpts from the Jefferson Barracks Heritage Foundation’s “Chronological History of Jefferson Barracks”. There are many options for further reading to gain a deeper understanding and appreciation of the history of Jeffer-son Barracks and its role in military history and the western expansion of the United States. The Visitor Center at Jefferson Barracks County Park is a great resource for many books on the subject. One primary example is Gate-way to the West—The History of Jefferson Barracks from 1826-1894, Volume I, by Marc E. Kollbaum. Volume II is cur-rently in research. Jefferson Barracks was established in 1826 as the site for the first Infantry School of Practice in the United States of America. It was intended to replace Fort Bellefontaine, which was established in 1805 in north St. Louis. This fort had been constructed in an unhealthy loca-tion near the confluence of the Missouri and Mississippi Rivers and was in disrepair. Jefferson Barracks was to

serve as the primary training and gath-ering place for the Army of the West. A site was selected by Generals Henry Atkinson and Edmund Gaines. It con-sisted of approximately 1700 acres previously part of the common fields of the Village of Carondelet. The citizens welcomed the post as it offered the community a ready market for their goods and produce. The land was given by Carondelet to the United States government for use as a military post for the small sum of $5.00. The deed for the land was signed on July 8, 1826. Two days later, Stephen Watts Kearny led units of the First Infantry to occupy the site. Kearny called the camp Cantonment Adams in honor of President John Quincy Adams. Other names later given to the tempo-rary camp were Camp Miller (a gover-nor of Missouri) and Camp Barbour (then Secretary of War). The post was officially designated as Jefferson Bar-racks in October of 1826 to honor Presi-dent Thomas Jefferson. Jefferson had died on July 4th of that year. The infantry school was closed after only two years, but Jefferson Barracks continued to play a vital role in the westward expansion and military suc-cess of the nation throughout its 120-year military history from 1826 to 1946. Prior to the Civil War, troops gathered at the post to provide protection to emigrants and merchants heading west. These troops escorted travelers on the many western trails and established and garrisoned frontier posts. During this period almost every regiment in the Army was stationed, at least in part, at Jefferson Barracks.


During the Civil War, the Barracks served as a major medical facility for the Union Army. It was also a primary ordnance depot for the Federal Army. Many of the most significant members of the Army have been stationed or visited the Barracks. Some of these people included Jefferson Davis, Zach-ary Taylor, Robert E. Lee, Ulysses S. Grant, William T. Sherman, Phillip Sheridan, Albert Sidney Johnston, Joseph Johnston, Braxton Bragg, John J. Pershing, Dwight D. Eisenhower, and many others. 2.3 Partnerships Sustain Jefferson Barracks One of the key strengths of the Jefferson Barracks community is the existence of multiple independent, complementary organizations working to preserve or enhance some portion of the Jefferson Barracks complex and its history. These partners include government, churches, schools, volunteer organizations, pri-vate businesses, and a host of County, State, and Federal elected officials and their staffs. Their continued existence and cooperation will be vital in the implementation of the varied compo-nents of the Jefferson Barracks master plan. Federal Government Partners Jefferson Barracks National Ceme-

tery—The National Cemetery, es-tablished from the original Post cemetery founded in 1826, was cre-ated by an Act of Congress during the Civil War 1862-1863 and final-ized after the war in 1866.

Jefferson Barracks VA Medical Center—The Jefferson Barracks Di-vision of the St. Louis VA Medical Center is a multi-building complex overlooking the Mississippi River serving veterans from eastern Mis-souri and southern Illinois. It pro-vides psychiatric treatment, spinal cord injury treatment, a nursing home care unit, geriatric health care, rehabilitation services, and a reha-bilitation domiciliary program for homeless veterans.

Fisher House at Jefferson Barracks

VA Medical Center—The Fisher House at Jefferson Barracks pro-vides convenient lodging for Veter-ans’ family members (at no charge) to allow the families constant access to help in the healing process. A new complex is currently under construction.

State Government Partners Missouri National Guard at Jeffer-

son Barracks—The current owner/operator of the Jefferson Barracks military post is the Mis-souri National Guard under the command of Brigadier General Stephen L. Danner, Missouri Adju-tant General. The host unit at Jeffer-son Barracks is the Missouri Air Na-tional Guard (ANG).


Figure 2.3


Figure 2.4


cilities include the Hancock Elemen-tary School and Central Administra-tion Office on South Broadway, a new Middle School, and a Senior High School on West Ripa Avenue. The District enrolls approximately 1,600 students.

Volunteer Organization Partners Jefferson Barracks Community

Council (JBCC)—The JBCC was re-cently created as a volunteer-based collaboration of individuals, organi-zations, and businesses who have an interest in preserving and en-hancing historic Jefferson Barracks.

Friends of Jefferson Barracks—

Located in the old 1850s-era lime-stone barn at St. Louis County’s Jef-ferson Barracks Park, they are one of the oldest historic preservation groups at Jefferson Barracks, operat-ing since the 1960s.

Jefferson Barracks Heritage Foun-

dation (JBHF)—Located in the old Post Red Cross Building, their main mission is to build a museum dedi-cated to the Citizen Soldier to be lo-cated on base.

Missouri Civil War Museum at

Historic Jefferson Barracks— Lo-cated in the old 1905 Officer's Post Gymnasium Building since 2002, the museum is planned as an educa-tional learning center dedicated to the preservation and study of Mis-souri and its involvement in the American Civil War.

20+ Armed Forces Association— Organizing Boy Scout Trails through Jefferson Barracks program.

Jefferson Barracks Park Rangers—

The park ranger program is County-wide and offers many programs and services including public safety, archery classes, outdoor skills pro-grams, nature walks, bicycle tours, and special events. Park rangers in-clude full-time employees and vol-unteers.

AT&T Pioneers’ Telephone Mu-

seum—The AT&T Pioneers is a na-tionwide network of AT&T employ-ees and retirees providing volunteer community services. The local chap-ter has proposed a telephone mu-seum in one of the two remaining historic Officers’ Quarters at Jeffer-son Barracks.

Jefferson Barracks WWII Intake

Center Barracks Restoration—Effort to rebuild one of the old WWII wooden military barracks, or find an original barracks building, many of which were removed from Jefferson Barracks.

Civilian Conservation Corps (CCC)

Museum—Unfortunately, the local organization recently disbanded and left Jefferson Barracks.

Jefferson Barracks (National Ceme-

tery) Chapel Association, Inc.—Responsible for planning, funding, and executing chapel expansion and enhancement projects.

WWI Jefferson Barracks Chapel

Fund—The Rollo-Calcaterra Ameri-can Legion Post 15 is raising funds


to recognize the 100th Anniversary of WWI with a permanent display at the Cemetery Chapel.

Mid-America Chapter, Military

Vehicle Preservation Association (MVPA)—The MVPA is dedicated to the restoration and preservation of historic military vehicles and re-lated equipment.

St. Louis Gateway Chapter Veter-

ans of the Battle of the Bulge —Dedicated to honoring and perpetu-ating the memories of the sacrifices and courage of those involved in the Battle of the Bulge in WWII, the greatest battle ever fought by the U.S. Army. A monument is located just north of the Powder Museum in Jefferson Barracks Park.

St. Louis Service Women’s Post

404—The only all-women American Legion post in the state of Missouri and the southern half of Illinois; women veterans helping women veterans.

Inter-Veterans Memorial Day

Committee Private Business Partners J. D. Streett & Co., Inc. Lemay

(Jefferson Barracks) Terminal—J.D. Streett is a multi-faceted petroleum company maintaining a terminal and transportation facility on the Mississippi River adjacent to Jeffer-son Barracks.

Sylvan House—A residential care

facility located next to St. Bernadette Church.

Old Odd Fellows Cemetery—aka South County Memorial Gardens, located at the north entrance to Jef-ferson Barracks where veterans are buried, some of whom were sup-posed to have been buried at JB Na-tional Cemetery.

Pinnacle Entertainment/River City

Hotel & Casino—Construction is underway on the first phase of a $375 million riverside entertainment complex in Lemay on approxi-mately 80 acres leased from the St. Louis County Port Authority. Open-ing in 2010, the complex will in-clude a casino, nightclub, and sev-eral restaurants.

2.4 Existing Studies of the Jefferson Barracks Area Much of the data acquired during the information gathering phase of the planning process was from reports and plans prepared for an area as broad and regional as the Great Rivers Greenway Regional Plan, or for a much smaller area such as the Jefferson Barracks National Guard Base. These reports were used to generate a basic under-standing of the potential issues to be addressed in this planning study. Samples of the plans reviewed include the following: St. Louis County Department of

Planning’s Lemay Comprehensive Plan—This report addressed exist-ing conditions, conducted a market assessment, and provided a long-range guide for revitalization and economic growth of the Lemay area. This portion of South County is physically adjacent to Jefferson Bar-


racks Park and can be beneficially impacted by large events and visita-tion in the Jefferson Barracks com-plex.

St. Louis County Port Authority

and Pinnacle Entertainment’s Le-may Investment Plan—Through the lease agreement between Pinnacle Entertainment and the St. Louis County Port Authority for construc-tion and operation of the River City Casino & Hotel, Pinnacle agreed to construct or provide money for various community facilities, in-cluding a Lemay access road, park amenities, and an aquatic-community center. In addition, the Port Authority will invest a portion of the money it receives from the project directly into Lemay for eco-nomic development, such as com-mercial/ retail investment, infra-structure investments, and business attraction, retention, and expansion purposes.

St. Louis County Parks Depart-

ment’s Jefferson Barracks Park Master Plan—The Jefferson Bar-racks Park Master Plan was com-pleted in 1990. The master plan rec-ommended the establishment of five major use areas for the following functions: historic district; active athletics; natural areas; passive ar-eas; and a community center. Al-though there are opportunities for active sports and the renovation and reuse of Grant’s Shelter for a com-munity center, the primary “focal point” of the park would be the re-sources in the historic district.


ment’s Sylvan Springs Park Master

Plan—A Master Plan for Sylvan Springs Park was completed in 2003. The Master Plan proposed four phases of renovation for the en-tire park: Phase 1 included im-provements to an open playfield, play village, tot lot playground, spray pool, shade pavilion, picnic shelters, restrooms and parking; Phase 2 included improvements to the main playground, spray pool, amphitheater, Historic Ordnance Shelter and parking; Phase 3 in-cluded improvements to a teen rec-reational area, open play lawn, pic-nic shelters, restrooms and parking; and Phase 4 included improvements to an open play lawn, picnic shel-ters, restrooms and parking. Phase 1 work was completed in 2005.

St. Louis County Department of

Planning’s Sixth County Council District Community Area Study—The St. Louis County Planning De-partment completed this study in 2000 for a large area in South County (the 6th County Council District). The report addressed transportation, corridor revitaliza-tion, and neighborhood conserva-tion. This report included recom-mendations to enhance commercial competitiveness and improvements to transportation access for primary corridors such as Lemay Ferry Road, Telegraph Road, and South Broadway Avenue.

Missouri National Guard’s Inte-

grated Cultural Resources Man-agement Plan—The Missouri Na-tional Guard prepared an Integrated Cultural Resources Management Plan (ICRMP), meeting all applica-ble federal laws for cultural re-


source compliance. The ICRMP cov-ers all Missouri National Guard fa-cilities in the state and describes cul-tural resources at each facility and the management actions and com-pliance procedures. The ICRMP recommended a comprehensive ar-chaeological survey be completed for Jefferson Barracks and that the National Register of Historic Places (NRHP) nomination be updated. The comprehensive archaeological survey is underway and the NRHP nomination is planned to be up-dated with the intent to upgrade the Historic District to National Historic Landmark status.

Missouri Army Reserve Center’s

Environmental Assessment—The Environmental Assessment (EA) evaluated the proposed actions as-sociated with the Base Realignment and Closure Commission (BRAC) recommendations and non-BRAC real estate actions by the Missouri Army National Guard at Jefferson Barracks. The EA addressed con-struction of the Army Reserve Training Center and the mitigation required by the State Historic Pres-ervation Officer (SHPO).

University of Missouri-St. Louis’

Jefferson Barracks Building Archi-tecture and History—This report is a very comprehensive study of all the historic structures at the Mis-souri National Guard installation which informs the historic structure assessment and rehabilitation ele-ments of this planning study.

University of Missouri-St. Louis’

Jefferson Barracks: A Celebration of the Citizen Soldier—This 2001

concept plan for a museum complex at Jefferson Barracks was prepared for the Missouri National Guard to generate support for the protection, enhancement, and accessibility to the historic site. While the important themes of the plan—including “celebrating the citizen soldier” and “the story of arrivals and depar-tures”—are still relevant today, the physical development components envisioned in the plan are not feasi-ble with the expanding presence of the Missouri National Guard on the grounds of Historic Jefferson Bar-racks.

Jefferson Barracks Archaeological

Study—An archaeological study is being conducted by the Missouri National Guard to identify high probability areas for archaeological resources, the footprints of non-extant structures, and other historic features such as former structures or landscape features. The knowledge generated by this study will influ-ence future museum district site planning and implementation.

Jefferson Barracks Veterans Af-

fairs’ Medical Center Master Plan—The St. Louis VA Medical Center at Jefferson Barracks is be-ginning a $200-300 million redevel-opment of the medical center com-plex. The master plan for the medi-cal center includes demolition of structures; relocation of clinics into a new multi-floor building; con-struction of a consolidated educa-tion and training center; patient therapy facilities; new structures for facility management operations; and conveyance of approximately 31


acres of excess ground to the Jeffer-son Barracks National Cemetery.

Jefferson Barracks National Ceme-tery Capital Improvements Plan—No master plan for capital im-provements exists for the National Cemetery, however the demolition of structures at the VA Medical Cen-ter complex will allow a 31-acre ex-pansion of the cemetery to the southeast.

Great Rivers Greenway District’s

Citizen-Driven Regional Plan—The Great Rivers Greenway District (GRG) prepared a plan for a re-gional greenway system, known as the River Ring, to link parks, trails, and neighborhoods in the greater St. Louis region. The River Ring is be-ing implemented and the Grant’s Trail portion of the system has be-come an extremely popular recrea-tional attraction. Grant’s Trail ex-tends into South County, just west of the Jefferson Barracks complex. The Jefferson Barracks complex will be connected to a proposed trail ex-tended from along the River des Peres to the Mississippi River. A po-tential riverfront trail through Jef-ferson Barracks is envisioned.

2.5 Public Input A Vision of Success In May of 2009, almost 50 members and guests of the Jefferson Barracks Com-munity Council met with the consulting team to assist in developing the master plan for Jefferson Barracks. Initially, participants heard a presentation cover-ing the study’s process and timeline and the research conducted by the

consulting team. Then, attendees were divided into four groups and partici-pated in a facilitated discussion which included formulating a vision and identifying barriers to and facilitators of successfully fulfilling the vision.

Planning participants used their imagi-native skills to envision what Jefferson Barracks and Lemay would look like in 2026 when the plan is actualized. The facilitators used a cover story vision exercise to help participants think ex-plicitly about the community’s future achievements. The cover story vision began with participants envisioning the headlines, photographs and quotes of a magazine, website or television pro-gram. From this information, vision themes were compiled to provide a visual of the future. Examples included: “Jefferson Barracks: Westward HO!”—Travel + Leisure Magazine “The Ellis Island of the Military”–-Preservation (Natl. Trust for Historic Preservation)

Photo 2-2 – Public Visioning Session


“Highlighting Authentic U.S. Military History at Jefferson Barracks”—National Geographic Magazine “Jefferson Barracks: A Handshake Across Time”—American Heritage Magazine “Jefferson Barracks: A Ride through Time”—Civil War Times Magazine “Jewel of the Historic Midwest”—The Travel Channel “St. Louis Expands Claim as the Gate-way for Western Expansion”—The History Channel The Vision Statement By the year 2026, Lemay will be one of the region’s economic engines, generat-ing revenue for the County and region, as Jefferson Barracks becomes a nation-ally known military history and tourism destination. While preserving its unique contribution to history and natural beauty, Jefferson Barracks will attract large crowds of multi-generational visitors by offering an array of first-class amenities and attractions, such as: Experiential museums depicting

military history; Military re-enactments, buildings,

tent cities, and machinery; Lush natural areas connected by

trails and guided by historic plaques, wayfinding signs, and in-teractive kiosks; and

Views of the Mississippi River, unrivaled in the region.

Surrounding Jefferson Barracks within Lemay, one will find thriving, histori-cally-designed commercial corridors

populated by a variety of retail estab-lishments, restaurants and hotels. The hospitality industry sustains Lemay. The vision will be fulfilled by taking advantage of the common facilitators, such as: A critical mass of active organiza-

tions and partnerships; Complementary amenities like the

River City Casino, Mississippi River, Grants Trail, and Mississippi River Greenway;

Available open space; and A rich historical and educational

curriculum. However, the following common barri-ers were noted as potential impedi-ments to this vision: Multiple organizations with poten-

tially competing interests; Fragmented funding sources and

lack of financial resources; Lack of a singular government and

unified leadership; and Lack of consistent character and

wayfinding within the area. 2.6 Analyzing the Site’s Strengths, Weaknesses, Opportunities and Threats Stakeholder interviews and the public workshop held during the information gathering phase of the planning study provided an understanding of the strengths and opportunities (also known as “facilitators” of the future vision for Jefferson Barracks), and weaknesses and threats (also known as “barriers” to the vision) to the success of Jefferson Barracks as a national his-


toric and military visitor destination. The findings are provided below. Strengths & Opportunities Facilitate the Vision Telling the Story Jefferson Barracks (JB) was the

Gateway to the West and the mili-tary incursion that supported the westward expansion.

JB has significant historic structures within the historic district.

The proposed museum district can become a significant asset to the community and region.

The County’s museum collections are extensive and impressive; how-ever most of the collection is in stor-age.

The railroad along the riverfront could provide transportation to the site and serve as a historic railroad and depot display.

The Site JB Park possesses unique assets for a

County park, including natural beauty that should not be de-stroyed; a depth of potential eco-nomic resources, large enough to accommodate large events; a very active park in terms of attendance, programming, pedestrian trails, etc.; and situated to function as a major destination point.

The parks provide great open space that is unique for this portion of the metro area.

The Mississippi River could provide water views or access to JB.

Underutilized land in the JB County Park could have some function.

Visitor Amenities A hotel could be sited at the I-255 or

I-55 interchanges. A lodge/visitor center could be

sited at the JB County Park over-looking the river.

The old Nurse’s Quarters building could become a Bed and Breakfast.

A shuttle or tram service could be used to enhance connections in the historic district.

A primary entrance to the museum district should be established and a visitor contact facility sited.

Consider locating an RV Park at the Casino complex, Sylvan Springs or JB County Park, or private property.

Use of technology, such as cell phones, could help interpret the many stories associated with JB.

Potential for Partnering JB possesses numerous partnership

opportunities, including the breadth and strength of the new JB Commu-nity Council.

The Civil War Museum can be a great regional/statewide resource.

Volunteers are the great “opportu-nity” to make these programs work in JB.

A common concept/theme could be developed to tie everything to-gether.

Open programming between the VA Medical Center, National Ceme-tery, MO National Guard Base, and County Park allow open access and supportive activities for each others’ events.

A centralized “phone bank” could be activated to ease communication from visitors and others in attempt-ing to reach a certain facility in the complex.


A web page could be established for the museum district that also has links to other facilities in the JB complex.

Economics River City Casino will drive eco-

nomic development in Lemay. Significant pursuit of grants by the

players in the museum district would benefit the complex.

Weaknesses & Threats are Barriers to the Vision Telling the Story County Parks’ staff may need to

expand their resources to manage a national museum and cultural re-sources attraction.

The Site JB historic district has poor location,

poor visibility, inconvenient access, as well as limited on-site parking and inefficient traffic circulation sys-tem.

There are site constraints such as the landfill, sinkholes, and a potential wetland area in JB Park.

Infrastructure is degraded in the JB complex.

Potential conflict with existing residents over large influx of visi-tors to the complex.

Visitor Amenities No hotels or quality restaurants are

close to Jefferson Barracks. No RV Park is close to JB.

Potential for Partnering The many players in the JB complex

makes it difficult to get agreements and common goals; their diversity

of missions has to be addressed; there is a limited understanding of the benefits of partnerships and the economic benefits associated with working together between the play-ers.

There is limited regional coordina-tion/partnership at this time.

Although there is a “Friends” of JB group, there is no St. Louis County system-wide parks “Friends” pro-gram that would provide a broader resource base.

There is a lack of marketing focus, methodology and organization for the JB complex.

Economics There are limited funding sources or

dollars available. There has been benign neglect and

deferred maintenance for most of the facilities. There is little funding for building maintenance; roofs are a big problem.

The cross-marketing opportunities between the casino operations and the Lemay commercial areas for pa-trons are limited.


2.7 Assessing the Site The planning assessment conducted of the greater Jefferson Barracks complex was arranged according to either natu-ral resources or historic resources. Natural Resources The natural resources assessment broadly covered the location and condi-tion of vegetation and landforms. Tree coverage is most prominent

along the Mississippi River, the western portion of JB County Park, and in Sylvan Springs Park.

There are no apparent undisturbed stands of historic or old growth vegetation.

The drainage swale in Sylvan Springs Park is eroding.

There are no identified potential wetlands within the National Wet-lands Inventory; however a branch of Marigney Creek in the Cemetery has some wetland characteristics.

The bluffs of the Mississippi River have been altered.

The general vicinity is underlain by karst geology and many sinkholes are visible throughout the site.

Historic Resources The historic resources assessment ad-dressed existing and removed build-ings, as well as existing and removed cultural landscape features and noted historic sites. Several periods of con-struction were identified throughout the Jefferson Barracks complex. The construction periods can be classified as Pre-Civil War, Pre-World War I (includ-ing the Civil War), Pre-World War II, and during World War II. Remaining Pre-Civil War buildings

exist only in the old Ordnance Sec-tion of the JB County Park.

Most of the existing large structures that comprise the Jefferson Barracks National Guard Base are from the Pre-World War I period.

Remaining cultural landscape fea-tures include the original Jefferson Barracks Cemetery, the original limestone quarry, the railroad corri-dor along the Mississippi River, and

Photo 2-3 – View of eroded drainage swale. Photo 2-4 – View of Ordnance District buildings constructed in the 1850s.


the Sylvan Springs Beverage Gar-den.

Removed cultural landscape features include the old Post Gates on the west and south, the location of the electric railway station and tracks, and the U.S. Grant house; and many WWII sites such as the Intake Center, WAAC barracks area, Jeep Hill and Tent City, and the amphitheater at Sylvan Springs.

2.8 Analyzing the Site Upon touring the Jefferson Barracks complex and identifying features and issues, four primary topics emerged: Viewsheds, Wayfinding, Circulation and Land Use. Viewsheds Visibility of surrounding features is

important, but some adjacent land uses are visible from the park that should be screened for aesthetic and privacy purposes. Those include the commercial areas to the south-west, Beasely Elementary School and the intersection of I-255 and Koch Road to the south, and Corps of Engineers riverbank stabilization to the east.

Certain functions should also be screened from visitors such as main-tenance sheds and storage com-plexes.

Trees and vegetation hamper views of internal features and monuments.

Views from areas identified as potential river overlooks are blocked by vegetation and power lines.

Wayfinding There is a lack of signage for desti-

nations in the County Parks along Telegraph Road.

Entrance monuments are not lo-cated at all County Park entrances.

Adequate lighting is lacking. There are no established connec-

tions with surrounding neighbor-hoods.

Directional signs consist of small brown street signs along street cor-ridors. These signs are separate but co-mingled with other commercial advertising, making these signs dif-ficult to see.

Photo 2-5 – In some areas overgrown vegeta-tion and overhead power lines block views to the river.

Photo 2-6 – JB Signage at South Broadway.


Circulation The two County Parks have multi-

ple points of access. Access to the Missouri National

Guard Base is shared with park en-trances.

Access to the VA Hospital is via I-255, exiting onto Koch Road. The entrance to the site is highly visible with entry monuments and signage.

Interstate 255 borders the south side of the site and provides access to the main entry road for the site which is Telegraph Road.

Vehicle circulation routes are indi-rect and confusing.

Several intersections in the park have unusual configurations.

The road system through the historic Ordnance Area is confusing and lacks access to portions of the area. Land Use There are opportunities in existing

open space areas within the ceme-tery that could be enhanced with landscaping or monuments.

Several areas of adjoining land use conflicts were noted.

Uses of Sylvan Springs Park, other than the defunct Beverage Garden, have no connection to the rest of the complex.

The potential Museum District currently lacks a sense of place.

Photo 2-7 – View of VA Hospital monu-ment signage.

Photo 2-8 – View of awkward intersection at Grant Road and South River Rd.

Photo 2-9 – View of Sylvan Springs WWII Beverage Garden.


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2.9 Assessing the Market Assessment of the market for Jefferson Barracks within the context of the St. Louis region included identifying cur-rent site demand drivers and evaluating them in terms of current utilization trends and impacts; summarizing resi-dent markets (including support ameni-ties) and tourist markets (including regional attractions); and providing case studies of similar museum districts to identify best practices. Economic Drivers (Key Demand Drivers) The greater Jefferson Barracks complex is comprised of the Missouri National Guard Base, the V.A. Medical Center (VAMC), the National Cemetery, the St. Louis County Parks Departments’ Jefferson Barracks and Sylvan Springs Parks, and two start-up museums—the Missouri Civil War Museum and the Citizen Soldier Museum. Each entity’s financial capabilities and resources were explored, as well as the potential sources and means of generating new revenue for development, maintenance, and on-going operations of Jefferson Barracks assets. In other words, how does each entity drive demand and ultimately impact the broader economy. Each entity located in the Jefferson Barracks complex is described below in terms of current visitation, expenses, and employment.

Utilization Trends and Financial Impacts Visitation Total visitation at Jefferson Barracks is estimated at 1.7 million per year. The County Parks generated approximately 1 million visitors, while the VAMC generated almost 400,000 visitors and the National Cemetery and National Guard Base another 300,000. Since the museums are not yet fully operational, no significant visitation was recorded. Operating Expenses Estimated operating expenses were dominated by spending at the VA Medical Center, with $165 million of the $175 million expended by all entities at Jefferson Barracks last year. Capital Expenses Within the Jefferson Barracks complex, nearly $300 million is planned to be spent on completing building projects within the next 5 years. These include $230 million or more for the VAMC, nearly $40 million at the Guard Base, and an estimated $15 to $20 million (if fund-raising is successful) for the museums. Employment Total employment at the complex of nearly 1,500 full-time equivalents (FTE) is dominated by the more than 1,200 employees at the VAMC. Other organi-zations at JB contribute close to 300 additional FTE employees.


Wage Expenses As with employment, the large majority of expenses for wages were paid by the VAMC (almost 95% of the total). Total wage expenses for the Jefferson Bar-racks complex were approximately $130 million. Estimated Overall Economic Impact In addition to direct expenses and employment at Jefferson Barracks, the visitor traffic generated by these facili-ties also benefits the local community, County, and region. In turn, all of this spending leads to further indirect and induced spending, multiplying the economic impact of Jefferson Barracks. The estimated overall economic impact of the $175 million in current operations spending at Jefferson Barracks is ap-proximately $300 million across St. Louis County and nearly $400 million across the St. Louis region; a more than two-to-one return. Similarly, the total impact of the 1,500 FTE jobs at JB is an estimated 2,400 jobs across the County and 4,000 jobs across the region. Clearly, the economic impact of spend-ing and employment at the Jefferson Barracks complex will result in signifi-cant indirect and induced returns re-gion wide. Likewise, future investments and job creation related to the devel-opment of a Museum District, and reinvestment and growth by other entities within the complex, can be expected to generate greater benefits to the County and regional economies.

2.10 Case Studies To determine best practices and lessons learned applicable to the envisioned Jefferson Barracks, case studies of simi-lar museum districts and historical attractions across the country were surveyed.

Many of the museum districts and attractions are owned and operated by the National Park Service, with some receiving support from state funds and/or non-profits. While the highest attended attractions drew from larger population bases, not all attractions with large markets were heavily at-tended, emphasizing the need to offer an appealing visitor experience. More rural attractions reflected higher per-centages of regional/overnight visitors. Their limited population bases create a need to appeal to the larger regional market, and successful attractions must be able to penetrate this larger market.

National Heritage Museum, Lex-ington, MA—The National Heritage Museum is a history museum that includes exhibits on Freemasonry, symbolism of Masonic & fraternal organizations, and patriotic iconog-raphy.

Abraham Lincoln Presidential

Library & Museum, Springfield, IL—The Museum exhibits docu-ment the life of Abraham Lincoln and the course of the American Civil War.


Colonial Williamsburg, VA—Colonial Williamsburg is the largest living history museum in the United States designed to facilitate an un-derstanding of the origins of Amer-ica.

Fort Larned National Historic Site,

KS—Fort Larned offers the oppor-tunity to see a fairly intact Indian Wars period fort, get a feel for life in the 1860s, and see part of the Mail Route Trail.

Fort Point (Presidio), San Fran-

cisco, CA—Fort Point is a 29-acre historic site located within Presidio National Park. Fort Point and Pre-sidio represent a mixed-use, public-private reuse of a historic site.

Fort Scott, KS—Fort Scott is a Na-

tional Historic Site that offers an in-terpretation of events that occurred between 1842 and 1873.

Fort Snelling State Park, MN—

Fort Snelling has four original and 14 reconstructed buildings that il-lustrate military life in the 1820-1830 time period as well as a History Center.

Fort Vancouver, WA—Fort Van-

couver is a historic interpretation site involving federal, state, local, and private sponsorship.

Fort Hancock/Gateway National

Recreation Area, Sandy Hook Unit, NJ—Fort Hancock at Sandy Hook is a National Historic Site located on over 20,000 acres of the Gateway Recreation Area in New Jersey and is visited for educational, recrea-tional, and environmental purposes.

Governors Island National Monu-ment, NY—Governors Island is a historic site under joint manage-ment between the Department of In-terior and a preservation commis-sion administered by the State of New York.

Shiloh National Military Park,

TN—This 4,000 acre national park commemorates the Battle of Shiloh and interprets life during the Civil War. The community of Corith, TN works closely with the NPS regard-ing tourism and economic devel-opment.

Madison Barracks, NY—Madison

Barracks was a historic site, but is now considered a Historic District and is mostly being renovated and occupied for residential purposes.

Other Military Museums—Ten other museums were identified for examina-tion based on their use of unique exhib-its, themes related to Jefferson Barracks, or use of partnerships for day-to-day operations. They included the Ulysses S. Grant National Historic Site in St. Louis, the National Museum of the Marine Corps, the National World War II Museum, the National Museum of the US Air Force, the 1st Division Museum at Cantigny, the D-Day Memorial, the USS Arizona Memorial, the Mississippi Armed Forces Museum, the National Constitution Center, and the National Civil Rights Museum.

3.0

Concept Plan

3.0-Concept Plan

Jefferson Barracks Co A 6th Infantry ca 1920s

Post Gymnasium and Exchange buildings in background were constructed in 1905 and 1918 respectively. These buildings were restored prior to 2011, the 150 year anniversary of the start of the Civil War, to house the collection of the Missouri Civil War Museum.



3.0 Introduction The inherent assets of Jefferson Bar-racks’ location and natural resources, the long and storied history of the Jef-ferson Barracks military post, and the changing landscape of the greater Jef-ferson Barracks complex over the past nearly 200 years creates a unique and exciting opportunity. The story of Jef-ferson Barracks can be told through thoughtful site preservation, enhance-ment, and interpretation. The concept of a museum district focusing on west-ward expansion, early American mili-tary history, and the role of Jefferson Barracks can serve as the focal point for the broader complex of natural and his-toric sites, buildings, and experiences. This section explores and evaluates these concepts and, ultimately, the fu-ture of Historic Jefferson Barracks.

3.1 Suitability for a Museum District Historic Buildings The buildings on the site span the pe-riod from the 1850s to the 1940s. Al-though many buildings remain from World War II and before, the site has a complex history of development. Over the decades, many structures were con-structed as temporary space to accom-modate increased numbers during times of war, and then demolished as the emergency subsided. The most sig-nificant diminishment of permanent buildings occurred after the County Parks Department acquired the north side of the parade ground, when most of the officers’ duplexes and the bache-lor officers’ quarters were removed. As a result, the sense of enclosure around the parade ground has been lost on this side. The removal of the U-shaped bar-racks building on the south side of the parade ground between Barracks Build-ing 27 and St. Bernadette Church has left a similar gap.


The remaining buildings on the site generally represent two separate func-tions and periods of development. The cluster of buildings at the north end of the park represent the circa 1850s-1860s development of the Ordnance Depot. Two stone magazines have been well maintained by St. Louis County Parks and are currently functioning as mu-seum exhibit buildings. One of the brick magazines is in active use as a mainte-nance building. The second brick maga-zine was also previously used by main-tenance staff, but is currently vacant. Three former magazine buildings no longer exist.

The Visitors’ Center complex includes the Visitor Center itself, formerly a barn, the Laborers’ house, and a second barn. All three are in good condition and functioning as interpretive and visi-tor amenity space. At the north entrance is a complex of buildings including the former water tank, now a maintenance facility; the pump house, serving as of-fice and collections space, and the gate-house. These buildings, while in good condition, are perhaps not serving their highest and best use within the park.

The second, and larger, complex of buildings is the Barracks complex at the south end of the site. These buildings generally represent the redevelopment of the Barracks in the 1890s and con-tinuing until World War II. The major-ity of the buildings, including barracks, mess hall, administration building, sta-bles, and other support buildings, re-main under the control of the Missouri Army and Air National Guard. A clus-ter of buildings at the northwest corner of the Guard Base are either owned by the State of Missouri or by St. Louis

County and are vacant or leased for other functions.

Barracks building 25, its annex, 250, and building 48 (Quartermaster store house), are all vacant. Barracks build-ings 26 and 27, along with their annexes 260 and 270, and buildings 65 (subsis-tence storehouse) and 66 (band bar-racks) have all been adapted for office space.

The remainder of the buildings to the west and north of the parade ground are no longer part of the functioning base and have a variety of functions. The former Red Cross building is cur-rently museum/exhibit space for the Jefferson Barracks Heritage Foundation, and the old Post Gymnasium and Post Exchange are slated to become the Mis-souri Civil War Museum. A potential AT&T Pioneers’ Telephone Museum is located in one of the two remaining Of-ficers’ Quarters. The former Post Hospi-tal is now owned by the Mehlville School District. The Nurses’ Dormitory and the other remaining Officers’ Quar-ters on the north side of the parade field are vacant.

Photo 3-1 – View of former Nurses’ Quar-ters Building.


Due to the ever-evolving nature of the site, many buildings that were located on the site, both temporary and perma-nent, are now gone. The most signifi-cant of the removed buildings were the ones demolished after World War II. These include the duplexes along Offi-cers’ Row, the Bachelor Officers’ Quar-ters, the train station, and the Grant House.

Historic Landscape The Jefferson Barracks landscape has also had a complex evolutionary his-tory. Intensive periods of development and use during wartime alternated with relatively quiet periods. For most of its history, the landscape would have been chiefly utilitarian in character, accom-modating permanent and temporary camps, training facilities, and storage. Today, while the portions retained by the guard base retain their working military character, the County Parks land has been transformed into a recrea-tional ground, with only hints of its formerly military character around the ordnance museum buildings.

Despite its current use as a recreational park, some historic elements remain in the County Park-run land. The major circulation routes, including Gregg, Grant, Hancock, and Sherman Roads and the railroad, remain in their historic configurations. The topography of the site appears to be relatively unchanged, including the characteristic sinkholes that originally served as ordnance stor-age sites and the sloping ground to the river.

Although their context has been some-what obscured, many historic landscape elements also remain, including the

north entry gate and walls, a wall at the foot of the parade grounds, the gate at the Grant House, and one of the posts marking the boundary between the Bar-racks and the Ordnance Depot. One of the most outstanding landscape fea-tures remaining is the Beverage Garden at Sylvan Springs, a sunken terrace with stone walls and a stream running through it.

However, a number of the landscape elements have been compromised since World War II. The spatial organization of the site, defined in part by its circula-tion patterns and buildings, retains much of its integrity, but the loss of all but two of the Officers’ Quarters build-ings and one of the Barracks has re-sulted in the loss of a sense of enclosure around the parade ground.

While the presence of the National Guard base continues with the military use of that part of the Barracks, the rec-reational use of the rest of the complex has obscured its historic function. Little to none of the historic vegetation pat-terns remain; as a working military fa-cility, major portions of the site would have been denuded of vegetation at various times to provide space for tem-porary barracks and training grounds. Remnants of street trees in front of the buildings ringing the parade ground do remain, but not in any recognizable pat-tern. Finally, the trees and brush along the river have been allowed to grow up, obscuring what would have been a stra-tegic view of the Mississippi River.

Given the long history of the site, the landscape as a whole is judged to have a very high probability of yielding ar-chaeological artifacts. A number of building foundations related to the


World War II intake center at the north-east corner of the site are still visible, and more are likely present in the un-dergrowth. Market Position and Potential for a Museum District Introduction The following assessment compared historic demographic and economic fac-tors for Jefferson Barracks and city, county, regional, state, and national benchmarks to estimates for the current market situation. These inputs were collected and analyzed with the goal of putting Jefferson Barracks into a re-gional market context. Neighborhood Demographic Analysis Trade Area Size—The Jefferson

Barracks Market Area was defined as the area bounded on the east by the Mississippi River, on the south by I-255, on the west by I-55, and on the north by the River des Peres.

Growth Factors and Demand Driv-

ers—Evaluations were made for Population Change, Median House-hold Income, Median Age, Average Household Size, Age Co-horts/Population Projection, Educa-tional Attainment, and Employment by Business Sector.

Support Amenities—Retail, hotel,

and restaurant clusters in the Lemay Area were identified.

Traffic Patterns—Traffic counts for

key arterials in proximity to Jeffer-son Barracks were recorded.

Summary of the Resident Market Several key demographic facts were identified that will influence future evo-lution of the Jefferson Barracks area: While the Jefferson Barracks Market

Area’s population decreased from 1990 to 2008, nearby Oakville saw a population increase of about 5,400 residents, driven by broader subur-banization trends.

While the Jefferson Barracks Market

Area’s estimated 2008 per capita in-come is lower than noted bench-marks, the area did sustain growth in incomes on par with inflation.

The Jefferson Barracks Market

Area’s average household size (2.2) is lower than the national and state figures but similar to the surround-ing areas with the exception of Oak-ville, which has the highest average household size of 2.8. The lower average household size relates to the reality that the Jefferson Bar-racks area has a notably higher per-centage of residents in the 55+ age bracket than the nation, state, and Metropolitan Statistical Area (MSA).

The Jefferson Barracks Market Area

has a lower percentage of residents who received a college degree than the nation, state, MSA, county, and surrounding areas; 36% graduated from high school and 21% attended some college.


Summary of Visitor Markets It is anticipated that a site as populated with active and historical uses as Jeffer-son Barracks will be a major regional economic generator. Therefore, al-though Jefferson Barracks is vital to the surrounding area’s continued develop-ment, it is also important to look be-yond its immediate borders to spot op-portunities, trends, and challenges with an eye on the St. Louis region. The overview of the Visitor Market consid-ered several subsectors: Day Trip, Overnight, and Convention visitors as well as regional attractions and atten-dance. Based on these three subsectors, from 2008 to 2013 the proposed Jefferson Bar-racks Museum District is projected to draw from a total available market base of approximately 17 million people. Partnerships and Tie-ins for a Museum District Partnership Opportunities Common museum partners include other museums of the same or related field, museums related geographically, schools, libraries, philanthropies, com-munity organizations, and government entities. Museums and other institu-tions often form partnerships for a vari-ety of reasons, some of which include: Educational information exchange Management information exchange Exchange of travelling exhibits Visitor referrals Research coordination Provision of volunteers

Representative primary regional part-nerships would include the Jefferson National Expansion Memorial and St.

Louis’ Old Courthouse, the Ulysses S. Grant National Historic Site, and Fort Belle Fontaine Park. Fort Belle Fontaine Park, MO—

Established in 1805, this was the first U.S. military post established in the Louisiana Territory after its pur-chase from France. The fort was closed in 1826 and its operations moved to Jefferson Barracks.

Ulysses S. Grant National Historic

Site, MO—Also called White Ha-ven, the historic site was home to Ulysses Grant and his family. Jef-ferson Barracks was Grant’s first as-signment after graduating from West Point.

Jefferson National Expansion Me-

morial, MO—The park is a memo-rial to Thomas Jefferson’s role in opening the West, to the pioneers who helped shape its history, and to Dred Scott who sued for his free-dom in the Old Courthouse. The memorial includes the Jefferson Na-tional Expansion Museum, the Gateway Arch, and the Old Court-house.

Jefferson National Parks Associa-

tion—Jefferson National Parks As-sociation provides quality educa-tional products and related services that enrich public understanding and appreciation of America's na-tional parks, public lands and his-toric places.

Tie-in Opportunities Less formal than a Partnership, a Tie-In is the utilization of the connection be-tween Jefferson Barracks and another organization. The connection can be a


historic event, activity, person, or geog-raphy. The actual Tie-In can be as sim-ple as a link on a website or a brochure displayed on location. Historic Tie-Ins with Jefferson Barracks can be related to any number of the following interpreta-tion opportunities: National Register of Historic Places Westward Expansion & Early

American Military History Civil War History Military History (WWI to present) Presidential History/Gen. U.S.

Grant History Civilian Conservation Corps (1930s) National Cemeteries (1866) Veterans Administration Hospitals Libraries (such as Presidents Grant

or Lincoln) Infantry School of Practice Dragoons/Cavalry (1833) Recruit Depot Ordnance Department Medical Department (1862) US Army Engineer Department

(1867) Ironclads and Naval Yard after the

Civil War History of Military racial and female

diversity and improvement through time

Military and Westward Expansion Sites Fort Scott National Historic Site,

KS—Fort Scott played an important role pertaining to the opening of the West, the Permanent Indian Fron-tier, the Mexican-American War, Bleeding Kansas, the Civil War and the expansion of railroads. The 1st U.S. Dragoons stationed at Fort Scott were organized, trained, and stationed at Jefferson Barracks.

Fort Larned National Historic Site, KS—Fort Larned had a similar mis-sion as Jefferson Barracks in that soldiers stationed there protected mail coaches, freighters and other traffic on the Santa Fe Trail.

Fort Smith National Historic Site,

AR—Fort Smith is similar to Jeffer-son Barracks in relation to period of operation and location on a river.

Santa Fe National Historic Trail,

CO, KS, OK, MO, NM—The His-toric Trail identifies the route trad-ers and travelers used to move through the western territories of the early U.S. from 1821-1880. The Santé Fe Trail and Jefferson Bar-racks are both linked to the story of westward expansion.

Fort Kaskaskia State Historic Site,

Ellis Grove, IL –-Fort Kaskaskia was constructed by the French ca. 1759 to protect the town of Kaskaskia (the first Capitol of Illi-nois 1818-1820) just southeast of Jef-ferson Barracks across the Missis-sippi River in Illinois.

Fort de Chartres State Historic Site,

Prairie du Rocher, IL—The current reconstructed Fort de Chartres was built in the 1750s and abandoned in 1771. From 1720 to 1763 the French administration of the Illinois Coun-try was centered at the site in three successive forts.

Civil War Sites Several Civil War battlefield sites have been preserved in the form of national and state parks and historic sites in the region. These parks provide a Civil War themed tie-in to Jefferson Barracks.


Wilson’s Creek National Battle-field, MO—The Battle of Wilson’s Creek was the first major battle of the Civil War fought west of the Mississippi River. The Union forces in the battle were part of the De-partment of the West and com-manded from JB.

Fort Donelson National Battlefield,

TN—The National Battlefield com-memorates the Civil War Battle of Fort Donelson. Ironclads built in the St. Louis area were part of the attack on the Fort. This site also has a National Cemetery, which no longer accepts interments.

Pea Ridge National Military Park,

AR—The Battle of Pea Ridge was a pivotal Civil War encounter west of the Mississippi River, the outcome of which insured that Missouri (and Jefferson Barracks) remained in the Union.

Other Missouri Parks Confederate Memorial State Park Battle of Lexington State Historic

Site Battle of Carthage State Historic Site Battle of Athens State Historic Site Fort Davidson State Historic Site

Other Arkansas Parks Jacksonport State Park Prairie Grove Battlefield State Park

Army Military Museums Military museums, particularly ones with Army emphasis, present an oppor-tunity to create networks for informa-tion exchange, marketing, visitor refer-rals, and management practices.

Local Soldiers Memorial Military Mu-

seum, St. Louis Regional National World War I Museum,

Kansas City Frontier Army Museum, Fort

Leavenworth, KS Museum of the Kansas National

Guard, KS U.S. Army Military Police Corps

Regimental Museum, Fort Leonard Wood, MO

U.S. Army Engineer Museum, Fort Leonard Wood, MO

U.S. Army Chemical Corps Mu-seum, Fort Leonard Wood, MO

Arkansas National Guard Museum, Camp Robinson, AR

National National Civil War Museum, Har-

risburg, PA The National Museum of Civil War

Medicine, Frederick County, MD The Texas Civil War Museum, Fort

Worth, TX Buffalo Soldiers National Museum,

Houston, TX National World War II Museum,

New Orleans, LA Confederate Soldiers Museum, New

Orleans, LA U.S. Calvary and 1st Infantry Divi-

sion Museum, Fort Riley, KS 1st Calvary Division Museum, Fort

Hood, TX 3rd Armored Calvary Regiment

Museum, Fort Hood, TX 4th Infantry Division Museum, Fort

Hood, TX Air Defense Artillery and Fort Bliss

Museum, Fort Bliss, TX


U.S. Army Medical Department Museum, Fort Sam Houston, TX

U.S. Army Field Artillery and Fort Sill Museum, Fort Sill, OK

45th Infantry Division Museum, Oklahoma City, OK

82nd Airborne Division War Memo-rial Museum, Fort Bragg, NC

National Infantry Museum, Fort Benning, GA

The Airborne & Special Operations Museum, SC

Army Air Corps Library and Mu-seum

Military and Westward Expansion Organizations The organizations below represent a sampling of independently funded or-ganizations that preserve heritage sites and/or disseminate information regard-ing historical events and sites. These organizations can be used to expand Jefferson Barrack’s network of informa-tion exchange, marketing, and visitor referrals. Local Missouri’s Civil War Heritage

Foundation Regional Monnett Battle of Westport Fund,

Kansas City, KS Civil War Heritage Trust Oregon-California Trails Associa-

tion, Independence, MO Santa Fe Trail Association, Larned

KS The Dole Institute, Lawrence KS –

The Dole Institute operates a digital photo library of WWII veterans from Kansas.

National The Army Historical Foundation U.S. Army Heritage Center Founda-

tion U.S. Army Center of Military His-

tory Civilian Conservation Corps Museums/Sites/Organizations The National Association of Civilian Conservation Corps Alumni headquar-ters was located at Jefferson Barracks, but recently closed at the site. All his-toric artifacts and memorabilia that were once stored at Jefferson Barracks were moved to the Smithsonian Insti-tute in Washington, DC. Opportunities exist to link the CCC experience at Jef-ferson Barracks to several state and na-tional parks and agencies associated with the CCC, including: National Park Service U.S. Forest Service Civilian Conservation Corps Leg-

acy, VA Missouri State Parks Roaring Rivers State Park Devil’s Den State Park, AR Crowley’s Ridge State Park, AR

Miscellaneous Organizations, Sites and Museums Missouri History Museum, St. Louis Bellefontaine Cemetery, St. Louis Lincoln Presidential Library and

Museum, Springfield, IL Truman Presidential Library and

Museum, Independence, MO


3.2 Key Planning Issues for Jefferson Barracks Key planning issues emerged through the planning process that helped guide the master plan for Jefferson Barracks. These issues included strengths as well as weaknesses, natural features as well as cultural, and physical site related is-sues as well as organizational. Circulation—Access to the pro-

posed Jefferson Barracks Museum District is inefficient, requiring a strong wayfinding system. The cir-culation pattern within the Jefferson Barracks complex is also confusing.

Connectivity of Features—A num-

ber of historic buildings and land-scape features within the Jefferson Barracks Historic District exist; however there is a physical separa-tion between many of these ele-ments. This separation is problem-atic in telling the complete story of Jefferson Barracks.

Definition of Edges/Boundaries—

Without a consistent approach to site development, there are numer-ous locations throughout the com-plex where unwanted visual intru-sions exist. Residential development has a common boundary with the National Cemetery, with minimal visual buffers to provide separation between the two land uses. Another instance is the direct line-of-sight into all areas of the Jefferson Bar-racks National Guard Base.

Gateways—No gateways exist to in-

form visitors that they have arrived at the Jefferson Barracks complex.

Greenways and Trails—Greenways and trails are expanding throughout the St. Louis region. The Jefferson Barracks complex is in a prime loca-tion for trail access and can be util-ized to connect multiple regional trails.

Interpretation—With the exception

of some static displays and educa-tional signage in the Heritage Foun-dation building, and the future opening of the Missouri Civil War Museum, there are currently no in-terpretive exhibits or interpretation ongoing for the buildings and land-scape at the proposed Museum Dis-trict. Interpretive signage and active interpretation of the Ordnance Dis-trict in Jefferson Barracks Park is ongoing. Special events are held each year to celebrate military his-tory and the history of Jefferson Barracks Park.

Landfill—A long-abandoned land-

fill just north of the proposed Mu-seum District in Jefferson Barracks Park has limitations for potential development and site use.

Lemay Community Center—The

proposed aquatic/community cen-ter for the Lemay community will be constructed in the vicinity of the north Jefferson Barracks Park en-trance. This facility could poten-tially be used for purposes associ-ated with the proposed Museum District including meetings and spe-cial events.

Military Footprint and Perimeter

Fence—Although the Jefferson Bar-racks military footprint is signifi-cantly smaller than during World


War II, there is still an important military presence at the Jefferson Barracks National Guard Base. There are issues related to line-of-sight into the base as well as other antiterrorism and force protection (AT/FP) concerns that have to be addressed for Museum District im-plementation.

Mississippi River—Access to the

Mississippi River is a limiting factor for the entire St. Louis region. There are very few public access points and Jefferson Barracks Park poten-tially provides a significant oppor-tunity for exploration of the river-front.

Museums—The museums are the

focal point of the proposed district and should be integrated into an overall Museum District Master Plan.

National Personnel Records Center

Archives—The National Personnel Records Center, Military Personnel Records (NPRC-MPR) located in St. Louis is the repository of military personnel, health, and medical re-cords of discharged and deceased veterans of all services during the 20th century (records prior to WWI are in Washington, DC). The De-partment of Defense and the Na-tional Archives and Records Ad-ministration (NARA) signed an agreement in 2004 to make the Offi-cial Military Personnel Files a per-manent series of records, transferred to NARA custody, 62 years after the service member's separation from the military. In 2005, the Archival Programs Division at the National Personnel Records Center in St.

Louis opened to the public. The Na-tional Archives has discussed locat-ing a historic records research center open to the public at Jefferson Bar-racks.

Natural Features/Wildlife—Natural

features of Jefferson Barracks Park are a benefit in the urban area, but these features also affect proposed site uses. Sinkholes and potential wetlands will limit facility devel-opment. Because the two County parks (JB and Sylvan Springs) are heavily wooded and in a relatively natural state, there are numerous wildlife species that have adapted well and flourished. A primary ex-ample is the white-tail deer herd that calls the Jefferson Barracks complex home.

Signage/Wayfinding—Wayfinding

signage directing visitors to the Jef-ferson Barracks complex is limited. The Missouri Department of Trans-portation (MoDOT) has erected di-rectional signage along Reavis Bar-racks Road, Telegraph Road, and the I-55 and I-255 interchanges. Op-portunities exist to enhance way-finding to improve visitor access to the Jefferson Barracks Museum Dis-trict and complex.

Sustainability—Establishment of a

Museum District needs to follow a pragmatic vision that balances re-source conservation, implementa-tion costs in an era of limited fund-ing, and the return on investment that benefits the surrounding com-munity.


Theme—Although a general “con-cept” of a Jefferson Barracks Mu-seum District has been established, no overall theme has been estab-lished to influence site and design decisions. Establishment of a gen-eral theme for the Jefferson Barracks Museum District will aid in devel-oping appropriate partnerships, branding, and marketing materials.

Train Depot—The Jefferson Bar-

racks Depot was constructed by the St. Louis & Iron Mountain Railway from blueprints drawn in 1902, and later operated by the Missouri Pa-cific Railroad as it functioned as the arrival and departure for thousands of WWII troops. Potential recon-struction and interpretation at the site of the old train depot provides a unique visitor attraction opportu-nity.

Trolley/Tram—Circulation

throughout the complex is confus-ing to the casual visitor. The overall complex is large and the visitor ex-perience would likely be enhanced through a scheduled transit service that connects the complex and in-cludes interpretation.

U.S. Grant Presidential Library &

Museum—Potential exists for de-velopment of the U.S. Grant Presi-dential Library & Museum, or other large-scale relevant library or mu-seum experience at the Jefferson Barracks complex. While this type of facility is a long-term goal, short-term identification of a logical loca-tion within the complex would aid in implementing this vision.

Views—The cultural landscape of the Jefferson Barracks complex of-fers numerous (with the potential for many more) viewsheds of his-toric and natural resources. These views have not been managed com-prehensively in the past. Improve-ments to current obstructed views and safeguarding existing views are critical.

Visitor Amenities—Although the

Jefferson Barracks complex is in an urbanized area, there are no visitor amenities such as food service or lodging within the complex and limited opportunities in the sur-rounding community.

Visitor’s Center—The visitor’s cen-

ter at the north end of Jefferson Bar-racks Park is the only visitor contact facility related to the Jefferson Bar-racks complex. It is physically sepa-rated from the proposed Museum District and not on the primary en-try route to the proposed Museum District as established by MoDOT.


3.3 Conceptualizing the Jefferson Barracks Plan With a foundation of knowledge gained through the exploratory process, the master plan for Jefferson Barracks can now be conceptualized as a system of interrelated land use districts or zones. These districts recognize the unique role that component areas within the greater complex can play in preserving and enhancing historic Jefferson Bar-racks. This “districting” of future uses then becomes the guide map for the de-velopment of specific master plan ele-ments related to function, form, and connectivity. The Land Use Districts identified for Jefferson Barracks include the primary institutional land owners (the VA Hos-pital, the Jefferson Barracks National Cemetery, the Jefferson Barracks Na-tional Guard Base, the Sylvan Springs County Park, and the Jefferson Barracks County Park), specially identified func-tional areas within the institutional ar-eas (such as the proposed Museum Dis-trict, Recreation and Interpretive areas, the old Ordnance District, and Entry Zones to the complex), as well as Pri-vate Property within the bounds of the historic Jefferson Barracks complex and the residential/commercial community surrounding Jefferson Barracks.


SCALEIn Feet

0’ 600’ 900’ 1200’ 1500’

CONCEPTUAL LAND USEDISTRICTS


FIGURE 3.1MAP OF

JEFFERSON BARRACKS


3.4 Jefferson Barracks Master Plan Opportunities Based upon input from stakeholders, public meetings, research, and observa-tions, numerous opportunities for im-provements to the existing conditions and opportunities for new development were identified for Historic Jefferson Barracks. These opportunities have been categorized as Building, Visitor Experience, or Circulation Opportuni-ties, ranked by the stakeholders, and il-lustrated on the Master Plan diagram. The following list of opportunities is in rank order by category and corresponds to the numbers on the accompanying drawing. Building Opportunities 1. Jefferson Barracks-Relevant Mu-seum and/or Library The site of the former Bachelor Officers’ Quarters (BOQ) would be an ideal loca-tion for constructing a significant build-ing such as a presidential library and museum. With a long-term goal to at-tract a Presidential Library & Museum, or similar facility, to the Jefferson Bar-racks complex, the identification of this high profile location will aid in imple-menting this vision. 2. Interpretive Center An ideal site for a new Interpretive Cen-ter for the entire JB complex is the park-ing lot between St. Bernadette Church and Barracks building #27. This space originally contained a large U-shaped barracks building. When this building was removed it created a visual gap along the parade grounds that should be filled with a new building. The In-

terpretive Center could include a thea-ter space for orientations and other events, classrooms, restrooms, a book-store/gift shop, a small café and office space. To allow for the development of an Interpretive Center that will tell the story of the entire history of JB, an agreement for shared use of a portion of St. Bernadette Church (Archdiocese of St. Louis) property should be pursued. 3. Barracks Building #27/270 This historic facility is one of the most prominent reminders of the significance of Jefferson Barracks in U.S. military history. While controlled by the Mis-souri National Guard, it is an important part of the future Museum District, both visually and functionally. This building is scheduled to be leased and renovated by the Jefferson Barracks Heritage Foundation for the Citizen Soldier Mu-seum. Parking areas, road access, pe-rimeter fencing, and landscaping should be configured for the new use. 4. Train Depot The riverfront train depot was a promi-nent feature throughout JB’s history. It is important to have a building in the same location to help with the interpre-tation of the site as a whole. It may not be cost effective to recreate an exact copy of the original train depot; how-ever, a contemporary but compatible structure could be constructed as a pub-lic facility and/or interpretive element. Other possible uses could be exhibit space, service facility, restaurant, com-fort station, and/or bicycle way station. 5. Lemay Community Center This site is the proposed location for the Lemay Aquatic/Community Center . The facility is planned to provide activi-ties for everybody, from kids to senior


citizens. Community suggestions for the facility include indoor and outdoor aquatic areas with pools, a current channel, play structures, and water slide. Also suggested was a gymnasium with basketball and volleyball courts, a running track, weight and cardiovascu-lar areas, a multi-purpose room, and a baby sitting area. 6. Powder Magazine This vacant building in the Ordnance District has a history of flooding. The flooding issues should be addressed and a tenant identified for this building. One possibility is the Military Vehicles Preservation Association (MVPA) which has expressed an interest in im-proving the building for their use. 7. WWII Intake Center Area The WWII period is significant in JB’s long history, but there is little interpre-tation of this period. The Intake (Recep-tion) Center at the northern boundary of JB should be cleared of overgrown vegetation to expose the foundations of the numerous 63-Man Temporary Bar-racks buildings and other intake foun-dations located in this area so they can be part of a WWII interpretation experi-ence. As with the Train Depot, it may not be cost effective to recreate the Re-ception Center and Barracks buildings; however, a compatible structure could be constructed as an interpretive ele-ment with signage re-created in the area replicating the WWII experience. 8. Officers’ Row This area included a row of Officers’ Quarters (duplexes) along the north side of the parade grounds dating from the 1890s. After WWII, when this por-tion of JB was turned over to St. Louis County Parks, most of the quarters

were demolished, although two build-ings remain today. Infill of up to three (3) buildings is needed in this area to create a physical and visual sense of en-closure for the west parade ground. Of-ficers’ Row facilities could house small museums, gift shops, and restaurants. 9. Pump House The Pump House at the northern en-trance of the JB complex should be re-stored to properly serve as the Park caretaker residence, meeting space, and/or other similar purposes. Since this building is the current location of the JB historic collections/archives, a new location for the collections needs to be determined that will be large enough to accommodate the collections and be climate controlled. If it would be too costly to renovate an existing building in the Museum District to meet the re-quirements, then part of the suggested Interpretive Center should be used for collections and archiving. 10. Nurses’ Quarters To help tell a part of the WWII story and JB’s role in support of the war, an opportunity exists to re-create previous buildings in this location. Mapping from the 1940s indicates that this loca-tion originally contained three Nurses’ Quarters buildings, with only one re-maining today. Given the strategic loca-tion adjacent to the parade ground, mu-seum complex and recreational areas, the area would be ideal for the recon-struction of the two missing quarters buildings. Improvements in this area could start by renovating the existing Nurses’ Quarters into a boutique hotel or bed-and-breakfast facility. As de-mand increases, more buildings could be developed to meet the need for on-site lodging.


Visitor Experience Opportunities 11. Grant House Overlook Site improvements are required in this area where the former Ordnance Depot commander’s house, known as the U.S. Grant House, once stood. The existing plaza pavement is deteriorated and too large for the current use. The existing vegetation along the riverfront should be selectively thinned and the overhead power lines relocated or buried to allow better viewing of the Mississippi River. 12. Trolley/Tram Route The potential for a people-mover sys-tem serving the Jefferson Barracks com-plex, with particular emphasis on the Museum District, should be evaluated. The feasibility of such a system, and the requirements for its length, number of stops, and frequency of service, will ul-timately drive the routing decisions. 13. GRG Trail Connections Continue coordination with the Great Rivers Greenway District (GRG), St. Louis County, and Pinnacle Entertain-ment to provide a trail connection from the River des Peres Greenway along the Mississippi River to Jefferson Barracks. Also coordinate with GRG for the de-velopment of a direct trail connection through Jefferson Barracks, parallel to the river, to the south end of the com-plex at I-255. 14. Museum District Parking Areas Existing off-street parking in the Mu-seum District is limited. New surface lots adjacent to the museum buildings, interpretive center, and parade grounds should be developed.

15. Gateway Features Gateway features for the greater Jeffer-son Barracks complex should be devel-oped at the four (4) primary entrances at Broadway, Sherman, Sheridan, and Koch Road. Secondary gateway features to create thresholds into the Recreation District, Ordnance District, Museum District, National Guard Base, National Cemetery, and VA Medical Center also should be developed at interior loca-tions. Gateway elements could incorpo-rate static displays and historic building materials including stone and wrought iron. For example, at the southern boundary of the Ordnance District a single stone column remains along Grant Road that was part of the original gate. To improve the interpretive op-portunities for the Ordnance District, a stone column on the west side of Grant Road could be constructed as well as a section of a rustic wood fence to help define the boundary. The rustic wood fence could extend to the trail and in-clude interpretive signage. At the northern boundary of the Ordnance District along Grant Road more rustic wood fence could be developed to rein-force and distinguish the Ordnance Dis-trict. 16. West Parade Grounds The parade grounds were a very impor-tant part of daily life at JB. This area should function as the core of the Mu-seum District and house numerous static displays from all of the significant periods in JB’s history. A portion of the old drill path and review stand could be developed as another interpretive ele-ment. This space is envisioned as a pe-destrian friendly area. The streets sur-rounding the parade grounds should be developed with colored pavers or cob-blestones, historic looking streetlights,


street trees for shade and sidewalks on both sides. Since this area is within the Jefferson Barracks Guard Base, the pa-rade grounds could be enclosed within a secure wrought iron and stone pe-rimeter fence system with public access granted for special events when needed. 17. Quarry Overlook The quarry, located within the Missis-sippi River bluffs of the Ordnance Dis-trict, where the limestone for many of the original Jefferson Barracks struc-tures was quarried, represents a good location for the expansion of the exist-ing river overlook. Historic photo-graphs indicate that there was little if any vegetation on top of the quarry. This area is currently overgrown with vegetation and views to the Mississippi are limited. A small pavilion and patio exist at this location, accessed by a con-crete trail from the Amphitheater. The obstructing vegetation should be cleared, the shelter expanded, the patio/overlook extended to provide views of the quarry face, and safety fencing installed where needed. 18. Southern Electric Trolley Interpretation The significance of the trolley that oper-ated since the 1880s from downtown St. Louis to Jefferson Barracks is not inter-preted currently at the site. The old trol-ley route extended down South Broad-way onto the Post via Gregg Road to a turnaround just north of the west pa-rade ground. The location suggested is the approximate place where a trolley station existed and is a trail junction for the existing County Park pedes-trian/bike trail network. A replica of the trolley station could be developed to function as a shelter for the existing trail. Interpretive signage and a static

display of trolley related artifacts could be located here. 19. Mississippi River Overlook and Dock This area could potentially provide the opportunity for a public access point at Historic Jefferson Barracks for explora-tion of the Mississippi River and water-front. This feature could include a pe-destrian overlook, a river dock for rec-reational and excursion boats, a fishing pier, and small storefronts or kiosks for contracted food, beverage, fuel, conven-ience, and gift vendors. 20. Sylvan Springs Beverage Garden The primary recommendation for the original Jefferson Barracks settlement, Sylvan Springs County Park, is to re-store the WWII Beverage Garden to its former glory. This could include the construction of a special events facility to host large events such as weddings, and/or a contracted food and beverage service facility. Interpretive signage re-lating to the role of this area and the history of JB also should be installed throughout the Park. The former com-muter lot should be removed or redes-igned and properly paved. 21. Static Displays & Monuments The visitor experience at Historic Jeffer-son Barracks will be greatly enhanced by the generous placement of interpre-tive and interactive static displays, stat-ues, monuments and other special out-door displays. This element also pro-vides the opportunity for a great many organizations and individuals to par-ticipate in the celebration of JB through sponsored monuments/sites.


22. Landscaped Screening Various locations in the National Ceme-tery need additional screening to buffer views to off site areas and maintenance buildings. Circulation Opportunities 23. Sheridan Road Access Corridor Sheridan Road should serve primarily as the entrance to the National Ceme-tery. Road improvements in the Sheri-dan Road access corridor should be im-plemented to improve access from Telegraph Road. Due to the large num-ber of daily funeral processions, capac-ity improvements are needed primarily on Sheridan Road between Telegraph Road and the National Cemetery en-trance. Additional improvements are needed to properly circulate traffic from Sheridan Road into the Museum Dis-trict as an alternative to using Sherman Road. 24. Sherman Road Access Corridor Sherman Road should serve primarily as the entrance to the Museum District. The roadway network around JB has developed in a piecemeal fashion over time and resulted in numerous conflicts and confusing intersections. First, ca-pacity improvements are needed on Jef-ferson Barracks Road/Sherman Road between Telegraph Road and the Mu-seum District. Second, a hierarchy of primary and secondary access roads should be recognized to reduce con-flicts. In this area, Sherman Road should be recognized as the primary ac-cess road to the Museum District and intersecting roads should be treated as secondary.

25. Gregg Road and Hancock Avenue In order to improve circulation and ac-cess to the Museum District, a round-a-bout is recommended on Gregg Road. This can also function as an entry fea-ture and contain a static display. In this location a trolley related display would be most appropriate as Gregg Road was the original location of the Southern Electric Trolley line. Circulation would also be improved if Hancock Avenue was re-aligned to intersect with Gregg Road at the suggested round-about. A minor adjustment of the existing trail is necessary to accommodate the sug-gested re-alignment of Hancock Ave-nue. 26. CCC Road To improve circulation in the Ordnance District, it is recommended to extend CCC Road as a public street (currently a Park maintenance road) to provide a southern access to the Amphitheater parking lot and complete the roadway loop. 27. River Road and CCC Road The intersection of River Road and CCC Road is full of conflicts and is not ap-propriate for future traffic conditions. The suggested re-routing eliminates the conflicts and provides an opportunity to create separation and develop ap-propriate streetscape improvements. 28. Grant Road and Merritt Place The existing intersection of Grant Road and Merritt Place is awkward and does not allow for good traffic flow. Slight realignment of the roads will provide much better traffic flow.


Property Opportunities When the original Jefferson Barracks military post was decommissioned fol-lowing WWII, large parcels of land were conveyed to various public and private parties. Today, private residen-tial and commercial activity is con-ducted within the broader boundary of the Jefferson Barracks complex, some of which is incompatible with a nationally significant Museum District. Ideally, this property, and inherently these uses, would be centrally controlled by the Historic Jefferson Barracks partners so that the proper integration of this land into the overall JB Master Plan can oc-cur over time. National Landmark Status The Jefferson Barracks Historic District (1971) and the Jefferson Barracks Na-tional Cemetery (1998) were each nomi-nated and placed on the U.S. Depart-ment of the Interior/National Park Ser-vice “National Register of Historic Places”. In addition, the Jefferson Bar-racks Historic District nomination rec-ognizes the omission of several histori-cally significant areas adjacent to the Historic District “worthy of further study”; primarily the North Gate area and Sylvan Springs Park. The next step in the evolution of His-toric Jefferson Barracks is nomination and recognition as a National Historic Landmark (NHL) by the National Park Service (NPS). National Landmark status could apply to the greater JB complex including the County Parks, Missouri National Guard Base, National Cemetery, VA Medical Center, and par-ticipating private partners. The complex could be recognized as a District based

on the “location where nationally sig-nificant historical events occurred.” Benefits of recognition include a stronger partnership with the National Park Service, NPS funding priority, networking with NHL peers, and on-going information and public education materials. Architectural Style Any new structures built or major renovations undertaken at Jefferson Barracks should be designed so that the structure/renovation will be compatible with the existing historic architectural style(s) and materials. The projects should incorporate Leadership in En-ergy and Environmental Design (LEED) sustainable design principles and con-tribute positively to the architectural context of the Jefferson Barracks His-toric District. Designers should strive to meet or exceed a LEED Silver point level. The US Green Building Council certification process shall be followed at the discretion of the project funding en-tity. The Missouri National Guard’s Joint Readiness Center is an excellent exam-ple of collaboration between the Mis-souri National Guard, Corps of Engi-neers, and the State Historic Preserva-tion Office to design a building com-patible with the current and future his-toric preservation/enhancement mis-sion at JB. The predominant architecture at JB is actually set in two distinct periods. The Missouri National Guard Base, focal point of the Museum District, is set in the 1890s to 1900s with red brick as the primary building material. The Ord-


nance District in the Jefferson Barracks County Park to the north is set in the 1850s to 1870s where the primary build-ing material is natural limestone that was quarried from the site. Site and Landscape Style The character of the site and landscape elements should help reinforce the mili-tary theme of Jefferson Barracks, en-hance the architectural features, and help provide visual clues of a historic era from the 1850s to the 1940s. Brick and limestone were the predominant materials used during that timeframe for the permanent buildings at JB. These materials should be used for site ele-ments such as site walls or sign bases and for any new structures that are built at Jefferson Barracks, even in the recreation areas. Other materials that should be used in the site are wrought iron, or aluminum that is made to look like wrought iron or rustic wood. Historically, any wood products that would have been used at JB would have most likely been milled locally from the abundant tree stands within Jefferson Barracks. Rough sawn or split rail lumber should be used to reinforce the historic image. The discussion that follows includes a brief description of existing and sug-gested conditions for site features within Jefferson Barracks such as plant materials and site furnishings. Plant Materials The existing vegetation at Jefferson Bar-racks includes significant areas of ma-ture oak-hickory forests and native grasses. The diverse landscape provides food and shelter for a variety of wildlife

which helps to attract many nature lov-ers to Jefferson Barracks for hiking and bird watching.

Invasive species such as honey suckle and poison ivy are prevalent in many areas of JB. Wooded areas along the Mississippi River have stayed relatively untouched for many years and the natural growth of the vegetation has led to a reduction of the available views to the river from overlooks at the site. Planting Suggestions The planting suggestions for Jefferson Barracks are to: Remove non-natives, weeds and

invasive species from wooded areas. Restore natural habitats. Investigate opportunities to expand

native grass plantings to reduce the need for mowing.

Selective thinning, at the direction of a certified arborist or a landscape architect, of vegetation along the Mississippi to open viewsheds to the river.

Future plantings including predominantly Missouri natives to help reduce maintenance.

Photo 3-2 – View of wildlife at Jefferson Barracks County Park.


Recommended Missouri native plant materials include the following: Overstory Trees Oak, Kentucky Coffee Tree, Black

Gum, Bald Cypress, Hickory, Walnut, Sycamore, Maple and Pine

Understory Trees Ash, Buckeye, Sassafras,

Serviceberry, Hawthorn, Dogwood, Redbud, Fringe Tree, Holly, Hornbeam and Sumac

Shrubs Viburnum, Hypericum, Hydrangea,

Dogwood, Spicebush, Buttonbush and Golden Currant

Grasses & Sedges Prairie Dropseed, Sideoats Grama,

Switch Grass, Little Bluestem and Fringed Sedge

Perennials Wild Geranium, Aster, Missouri

Black-eyed Susan, Cardinal Flower, Cliff goldenrod, Cream Wild Indigo, Coneflower, Iris, Missouri Primrose and Liatris

Site Furnishings & Lighting At Jefferson Barracks a variety of mate-rials and styles for the benches, trash containers and other site furnishings have been used throughout the site. Most of the styles are tied to the specific location and year of installation. There is a lack of consistency of styles and a lack of a unified theme. The existing lighting at Jefferson Bar-racks exhibits a similar variety of mate-rials and styles as the site furnishings. Light poles in parking areas, streets and near sidewalks vary in color from white

to light brown to black. The styles of the light poles vary from contemporary to historical. The inconsistency of these elements tends to detract from the overall historic theme and creates a dis-jointed appearance.

Site Furnishings & Lighting Suggestions The site furnishings and lighting sug-gestions for Jefferson Barracks include: All new installations of site

furnishings should be dark bronze or black in color.

Style should be historic. Furnishings should include at least

30% post consumer recycled material.

Investigate the use of LED light fixtures for reduced energy consumption and lower maintenance.

Renovation projects should include the replacement of site furnishings and lighting that do not include recycled content or that are not energy efficient .

Photo 3-3 – Existing light fixtures.


SCALEIn Feet

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MASTER PLAN OPPORTUNITIES


FIGURE 3.2MAP OF

JEFFERSON BARRACKS


Not to SCALE

MASTER PLAN OPPORTUNITIES DETAIL


FIGURE 3.3MAP OF

JEFFERSON BARRACKS


3.5 Jefferson Barracks Sustaining Partners The preceding sections talk a lot about the physical nature of the Historic Jef-ferson Barracks complex and the oppor-tunities for building new museums, in-terpretive structures, monuments, and trails. But just as importantly, the future success of the Museum District will lie with the organizations and the volun-teers who drive these organizations. Building a cohesive, successful national attraction from a collection of historic buildings, landscapes, and experiences, and a loose-knit group of independent public and private entities, is not an easy undertaking. However, the professionals and volun-teers that have thus far been engaged in the preservation and enhancement of Jefferson Barracks provide a great foundation from which to build. It is this existing group of leaders who will inherit the mission to sustain and grow JB. Leading organizations include the newly formed collaborative Jefferson Barracks Community Council (JBCC), the oldest historic preservation group at Jefferson Barracks—the Friends of Jef-ferson Barracks, the museum-oriented Jefferson Barracks Heritage Foundation (JBHF) and Missouri Civil War Mu-seum, the St. Louis County Parks De-partment, and the master plan’s spon-sor—the St. Louis County Economic Council. Other contributing groups and volun-teer efforts (in no particular order) in-clude the 20+ Armed Forces Associa-

tion, Jefferson Barracks Park Rangers, AT&T Pioneers, the effort to rebuild the WWII wooden military barracks associ-ated with the former Reception Center, the Jefferson Barracks (National Ceme-tery) Chapel Association and WWI Jef-ferson Barracks Chapel Fund, the Mili-tary Vehicle Preservation Association and Veterans of the Battle of the Bulge, St. Louis Service Women’s Post 404 and the Inter-Veterans Memorial Day Committee, to name just a few. 3.6 Public Input In August of 2009, members of the Jef-ferson Barracks Community Council met to provide input on the master plan’s development. Participants worked in small groups to validate the results of the earlier Visioning Work-shop, to confirm that the assessment of existing conditions was “on-target”, and to prioritize the master plan project opportunities. Confirming the Vision Presented with the ten vision elements created at the first workshop, partici-pants were asked to rate their impor-tance in achieving the Jefferson Bar-racks vision. The highest rated vision statements were to preserve Jefferson Barracks’ military history; attract multi-generational visitors by offering first class attractions and amenities; restore historic buildings; and enhance Jeffer-son Barracks’ natural beauty.


Prioritizing Opportunities As presented earlier, opportunities for enhancing Jefferson Barracks were cate-gorized as Building, Visitor Experience, or Circulation Opportunities; ranked by the stakeholders; and illustrated on the Master Plan. The workshop also al-lowed the group to identify Quick Wins and Major Projects for each opportunity category based on their impact on achieving the vision and required level of human and financial effort. Quick Wins were defined as having a high impact on the future vision, but a relatively low effort to achieve. Major Projects were those that also had a high impact, but an accompanying high effort. Building Opportunities Tops among the Building Opportunities were: Construct a new Interpretive Center

for the entire JB Complex. Preserve a location for a Presidential

Library, museum, or similar attraction.

Convert National Guard Barracks Buildings to museums.

Quick Win: Clear vegetation and ex-pose foundations of former barracks buildings at the WWII Intake Center. Major Project: Construct a new Inter-pretive Center for the entire JB Com-plex. Visitor Experience Opportunities The top three rated Visitor Experience projects were: Improve the Grant House Overlook

as a river view Create gateway features at primary

entrances

Provide GRG trail connections through the site and along the Mississippi River.

Quick Wins: Improve the Grant House Overlook as a river view and restore Sylvan Springs’ Beverage Garden. Major Project: Provide trolley/tram service throughout the JB Complex. Circulation Opportunities For Circulation Opportunities, the top projects were: Improvements to the Sherman Road

corridor. Improvements to the Sheridan Road

corridor. Improvements to internal road

Gregg Road. Quick Win: Re-establish CCC Road as a through road in the Ordnance District. Major Project: Re-route Sheridan Road to provide more direct access to the Museum District.

4.0

Master Plan

4.0-Master Plan

Jefferson Barracks Reservation Map ca 1892

When this map was produced, Jefferson Barracks functioned as a Cavalry Recruit Depot. It remained a recruit depot until October 1894 when troops of the line moved back. These first troops were part of the 3rd Cavalry. They remained until 1898 when they left for the Spanish-American War. Also at this time Missouri volunteers rendezvoused at Jefferson Barracks and mustered into Federal service. Most of them went to Ft. Thomas, Chickamauga Park, Ga. (Source: Marc Kollbaum, St. Louis County Parks)



4.0 Overview of the Master Plan Historic Jefferson Barracks is a unique composition of historic buildings and landscapes stretching back nearly 200 years, a heavily-used outdoor recrea-tional complex, large-scale federal and state government complexes, and fledg-ling museums and restoration projects. The objective of the master plan was to determine how the greater Jefferson Barracks complex could best be posi-tioned as a regional and national visitor attraction through preservation and en-hancement of the overall physical, his-torical, educational, recreational, and commercial visitor experience. To be successful, Jefferson Barracks should capitalize on development already oc-curring or planned for the area to diver-sify and maximize the economic devel-opment return for Lemay and the St. Louis City/County region in response to the effects of Base Realignment. The following section outlines a process whereby Jefferson Barracks, over time, can position itself to capture its rightful

share of the regional and national visi-tor market and provide an economic benefit to the surrounding community. Steps will need to be taken to develop partnerships and tie-ins with other his-toric destinations, restore and enhance the historic fabric of the site, enhance the visitor experience through contem-porary amenities and exhibits, create a partnership between all the principal landowners, and find the means to or-ganize for and fund the needed capital improvements and operating budget. Much can be learned by examining similar places and organizations. Places like the Lincoln Library and Museum, Colonial Williamsburg, and the Chicago Park District, or smaller venues like Fort Larned and Fort Scott National Historic Sites in Kansas, and Fort Van-couver, Washington, provide excellent examples of successful organizational and funding strategies. Locally, evalua-tion of the workings of the St. Louis Zoo and Museum District, Regional Arts Commission, and Forest Park Forever provide other valuable insights.


4.1 Developing Partnerships and Tie-ins Much of the success of Historic Jeffer-son Barracks as a visitor attraction will be based on its ability partner or create a tie-in with other nationally significant historic destinations. Partnerships and tie-ins can be based on a historic event or person, location, or related philan-thropic or government sponsor. They can provide for exchange of research, education, management, and visitor in-formation. Examples of likely partners for Historic Jefferson Barracks include large re-gional attractions, regional historic and National Park Service sites, associated military sites, other regional Civil War sites, military museums, and independ-ent organizations preserving significant heritage sites and events. Following is a summary of specific recommendations on partnerships and tie-ins to be pur-sued for Historic Jefferson Barracks. Regional Partnerships Within St. Louis, several key regional attractions are responsible for a large share of the visitor market. These be-come ideal regional partners for Jeffer-son Barracks for cross-marketing and related event planning. The largest at-tractions in Missouri are the St. Louis Zoo, the St. Louis Science Center, Mis-souri Botanical Garden, Missouri His-tory Museum, and Grant’s Farm. The top public assembly venues include all the Major Sports Teams, as well as the Jefferson National Expansion Memorial (the Arch grounds). The region’s casi-nos are also major draws to the area, so

a tie to the new River City Casino in Lemay would be particularly beneficial. Regional Historic Sites The historic relationship between Jeffer-son Barracks and other museums and sites in the St. Louis region also are im-portant partnership opportunities. Pri-mary among these are the National Park Service’s Jefferson National Ex-pansion Memorial and Ulysses S. Grant National Historic Site (NHS), and St. Louis County’s Fort Belle Fontaine Park, the site of the original military post near St. Louis prior to its relocation to Jefferson Barracks. The Midwest Re-gional Office of the National Park Ser-vice operates a Partnership Office and should be an early focus for building re-lationships. Military & Westward Expansion Sites Historic tie-ins between Jefferson Bar-racks and other sites or organizations can be an important means of reaching potential visitors through brochures, website links, and cross-marketed or packaged events. Primary sites based on strong historic and geographic links include Fort Scott and Fort Larned, Kansas, and Fort Smith, Arkansas, all early American military outposts and National Historic Sites; and the Santa Fe National Historic Trail from Missouri to New Mexico and its role in westward expansion.


Civil War Sites Civil War-themed sites would include Wilson’s Creek National Battlefield in Missouri, Fort Donelson National Bat-tlefield in Tennessee, and Pea Ridge Na-tional Military Park in Arkansas, as well as links to a number of Missouri State Historic Sites including the Battles of Lexington, Carthage, and Athens, and the Confederate Memorial State Park. Military Museums Military museums provide an excellent opportunity for the exchange of market-ing, management, and interpretive in-formation, particularly those associated with existing military installations like the Frontier Army Museum at Fort Leavenworth, Kansas, and the U.S. Army Engineer Museum at Fort Leo-nard Wood, Missouri. Others that should be pursued include the nation-ally recognized Civil War Museum in Harrisburg, PA; World War I Museum in Kansas City; and the World War II Museum in New Orleans. Heritage Organizations And finally, teaming with independ-ently funded organizations preserving significant heritage sites and events can expand Jefferson Barracks marketing and resource network. Important tie-ins include military and westward expan-sion organizations, Civilian Conserva-tion Corps associations, and Presiden-tial museums and libraries. Examples include the Missouri History Museum, the Army Historical Foundation, the Civilian Conservation Corps Legacy, and the Lincoln (Springfield, IL) and

Truman (Independence, MO) Presiden-tial Libraries. 4.2 Elements of the Master Plan The Master Plan for Historic Jefferson Barracks considered the site’s many physical, historical, and cultural assets before concluding that a nationally-significant visitor attraction could be successful. The plan assessed its inher-ent location and natural characteristics, the suitability of the historic buildings and landscape, the resident and visitor market potential, marketing and man-agement partnership opportunities, and economic development spin-offs. For planning and implementation pur-poses, the Jefferson Barracks complex was divided into unique planning dis-tricts based on location and date of sig-nificance. These districts include the Museum District, the JB County Park Ordnance District, the JB County Park Recreation District, Sylvan Springs Park District, Jefferson Barracks National Guard Base, Jefferson Barracks National Cemetery, the Veterans Administration Medical Center, and Private Partners. The resulting master plan incorporates use of existing buildings, construction of new buildings and interpretive struc-tures, new visitor experience amenities, traffic and circulation improvements, and partnerships with adjoining prop-erty owners and entities across these planning districts.


Jefferson Barracks Museum District The core of the Historic Jefferson Bar-racks complex is the Museum District—the buildings, events, and organizations clustered around the western half of the historic parade ground. The eastern half of the parade ground will be preserved for the Missouri National Guard mis-sion, while the western half should be opened to the public. The Museum Dis-trict, located within the Jefferson Bar-racks National Historic Site, consists of the following elements: Existing Contributing Buildings The Museum District contains the ma-jority of the remaining 1898 (reconstruc-tion period) to 1946 (WWII) buildings located outside the National Guard Base to include the Jefferson Barracks Heritage Foundation and the Missouri Civil War Museum projects, St. Louis County Park buildings, and recently ac-quired Missouri National Guard du-plexes. New Buildings New buildings planned for the Mu-seum District represent the principal icons for the historic site. These include a new Jefferson Barracks Interpretive Center, a proposed Presidential Mu-seum and Library (ideally President Grant), reconstruction of several visu-ally important buildings framing the parade ground, and an interpretive ex-hibit at the site of the former train depot near the riverfront. New Visitor Experience Amenities are planned throughout the Jefferson Barracks complex to transform the collection of buildings, landscapes,

and infrastructure into a comprehensive visitor experience. Features such as en-hancement of the parade ground, a tram route, Mississippi River overlook and dock, off-street parking lots, and numerous static displays and monu-ments will all add to the Museum Dis-trict experience. In addition, primary gateway features are planned for each of the main entrances to the JB complex as well as secondary features indicating the boundaries of the various districts within the overall complex. New Circulation Road improvements are suggested in the plan to first provide convenient ac-cess to the Jefferson Barracks complex, then to provide a safe and efficient means of distributing traffic throughout the complex. Related to the Museum District, circulation improvements are planned to direct off-site traffic to the Museum District via Sherman Road, provide an attractive perimeter route around the west parade ground, and create a round-a-bout to improve traffic flow at Gregg Road & Hancock Avenue. Partnership Opportunities Not all of the buildings and properties of significance to the historic interpreta-tion of Jefferson Barracks is owned by the plan’s principal sponsors—St. Louis County, the State of Missouri, the Na-tional Cemetery, and the Veterans Ad-ministration. Partnerships may be pur-sued by the plan’s sponsors to enhance, interpret, and include in the overall visitor experience these other owned properties. Within the Museum District, these include the Mehlville School Dis-trict, the Archdiocese of St. Louis/St. Bernadette’s Parish, Sylvan House, and private residences.


Jefferson Barracks County Park Ordnance District The Ordnance District is located within the National Historic Site and Jefferson Barracks County Park, distinguished by its historic buildings primarily con-structed for the purpose of storing ord-nance prior to and during the Civil War (1851-1867). Existing Contributing Buildings The Ordnance District contains the re-maining powder magazines used for storing ordnance prior to and during the Civil War, stables, a laborers’ house, the Ordnance Sergeant’s Quarters, the former potable water pump house and reservoir buildings, and the North Gate sentry buildings. The District also con-tains the Veterans Memorial Amphi-theater, constructed in 1988 and capable of accommodating up to 5,000 persons for concerts and other events. New Buildings The master plan proposes to construct an interpretive structure at the site of the former WWII Intake (Troop Recep-tion) Center. Several of the former 63-man wooden barracks foundations have already been uncovered for display. New Visitor Experience Improvements should include inclusion in the Museum District tram route, Mis-sissippi River overlooks at the former U.S. Grant House (which served as the Ordnance Department Commander’s home) and the limestone quarry (which was the primary source of stone for the foundations of the original Post build-ings on the parade ground and the powder magazines), and various static displays and monuments. Gateway fea-

tures are also recommended at the north and south entrances to the Ord-nance District. New Circulation Intersection improvements should be made at Grant Road and Merritt Place, at Grant Road and River Road, and at Grant Road and CCC Road to increase safety and efficiency. CCC Road should also be extended to complete the double loop road system serving the Ordnance District. Partnership Opportunities The extension of the regional Great Riv-ers Greenway (GRG) trail system through Jefferson Barracks should be pursued to connect with the River des Peres Greenway and Grant’s Trail on the north and the eventual connection to the Cliff Cave Park Trail and the Meramec Greenway on the south. Jefferson Barracks County Park Recreation District The Recreation District is recognized as the portion of Jefferson Barracks Park located outside of the National Historic Site and containing none of the other historic buildings clustered around the former North Gate. This area accom-modates the County Park athletic fields (baseball, softball, football, soccer and cork ball), a field archery range, a disc golf course, a nearly three mile park trail and exercise system, small event shelters, and picnic sites.


Existing Contributing Buildings Existing buildings in the County Park Recreation District are all contemporary structures and include several open-air shelters and one large enclosed recrea-tion facility, kiosks, picnic sites, and athletic fields. New Buildings No new historic interpretation build-ings are planned. New Visitor Experience The plan envisions an interpretive structure on Gregg Road near the County Park trail for the former South-ern Electric R.R. Co. trolley system that provided service to and from down-town St. Louis at the turn of the 19th century, as well as enhanced gateway features for the Park. New Circulation No circulation improvements are planned. Partnership Opportunities A site at the northern edge of the Park has been reserved for the new Lemay Aquatic/Community Center. Sylvan Springs County Park Existing Contributing Buildings No existing historic buildings were rec-ognized. New Buildings No new historic interpretation build-ings are planned.

New Visitor Experience Sylvan Springs Park is the former site of several significant improvements made by the troops stationed at Jefferson Bar-racks just before WWII. These included a Beverage Garden, open-air amphi-theater, and recreation fields. The Bev-erage Garden is still intact and with planned improvements could be re-stored to its former glory. New Circulation No circulation improvements are planned. Partnership Opportunities The St. Louis County Parks Department and the National Cemetery are discuss-ing a potential partnership at Sylvan Springs. Jefferson Barracks National Guard Base The military installation at Jefferson Barracks, founded as a U.S. military post in 1826, is now owned by the State of Missouri and operated primarily as a National Guard Base. The site includes many of the historic buildings dating to the late 1800s, but is also the site of a new $25 million Armed Forces Reserve Center authorized under BRAC 2005. Much of the property designated for the Museum District is actually owned by the State of Missouri, including the west parade ground, and several of the buildings on the southern and western perimeter of the parade ground. Almost the entirety of the Jefferson Bar-racks National Guard Base is located in the National Historic Site and is an im-portant contributor to the Historic Jef-ferson Barracks experience. This portion


of the overall complex will be required to be maintained as a secure military in-stallation under Anti-Terrorism/Force Protection (AT/FP) regulations. How-ever, views of the historic buildings are amply visible from the Museum District and the installation may be opened on occasion for special tours and events. Jefferson Barracks National Cemetery The National Cemetery was initially es-tablished as the original Post cemetery in 1826 and officially designated a Na-tional Cemetery by Congress in 1866. While none of the historic buildings remain in the cemetery, the roster of buried soldiers and list of monuments and memorials are very historically sig-nificant. The Jefferson Barracks Na-tional Cemetery will be an important part of the overall visitor experience at the historic site. Several actions are pro-posed for the cemetery under the mas-ter plan, including improving gateway features, expanding the Sheridan Road corridor to better accommodate the large and frequent funeral processions, adding landscape screening around the perimeter, and evaluating options for future land acquisition. Veterans Administration Medical Center The Veterans Administration Medical Center (VAMC)—Jefferson Barracks Division is a multi-building medical complex constructed adjacent to the Na-tional Cemetery. A $200-300 million construction/renovation project is planned to begin soon to demolish 14 sub-standard structures and construct five new buildings. The VAMC will also

convey approximately 30 acres of excess property to the National Cemetery. A separate project is underway to con-struct a Fisher House at the VAMC for the temporary lodging of families of pa-tients. The Jefferson Barracks Division has a staff of more than 1,200 and treated an estimated 370,000 patients (including inpatient and outpatient visits) in 2007. The patient and family visits to the complex will be significant contributors to the overall Historic Jefferson Bar-racks experience. The plan calls for the creation of gateway features at the VAMC entrance that are compatible with the overall Jefferson Barracks complex. Private Partners Private partners are located within the current (or proposed expanded) Na-tional Historic Site and generally en-hance the Historic Jefferson Barracks complex. These partners include the Mehlville School District and their dis-trict office and operations complex housed in the former 1909 Post Hospi-tal, prominently located on a small hill overlooking the west parade ground; St. Bernadette’s Church and Rectory in the former Post Theater (1933) and Recruit-ing Barracks (1908) just off the parade ground; Sylvan House group residence in the former Hospital Administration building next to the church; and nu-merous privately-owned family houses and duplexes lining the primary en-trance into the Jefferson Barracks com-plex along Sherman Road. Partnership opportunities could include simple agreements for use of facility facts and photos in marketing materials,


agreements for facility maintenance and improvement, public access to facilities or grounds, or actual change in owner-ship to one of the Museum District sponsor organizations. Whatever the approach, a continuous process to in-form and engage these private partners in the planning and development of the Jefferson Barracks complex should be pursued.

Key Map

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NOT TO SCALEWoolpert, Inc., December 2009

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FIGURE 4.4MAP OF

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Image #1 - View looking northeast across the Parade Ground with the In-terpretive Center in the foreground and Offi cer’s Row and the Presidential Library & Museum in the background.

Image #2 - Bird’s-eye view looking east along the south side of the Parade Ground from the Citizen Soldier Museum (Bldg. 27) in the foreground to the Missouri National Guard Base in the background.

Image #3 - Ground-level view looking east along the south side of the Pa-rade Ground from the Citizen Soldier Museum (Bldg. 27) in the foreground to the Missouri National Guard Base in the background.

Image #4 - View of Offi cer’s Row along the north side of the Parade Ground with the Presidential Library & Museum in the foreground and the Nurses’ Quarters lodging complex in the background.

Image #5 - View looking west of the completed Museum District encircling the West Parade Ground at Jefferson Barracks.


MUSEUM DISTRICTPERSPECTIVES


FIGURE 4.5MAP OF

JEFFERSON BARRACKS


4.3 Building the Museum District Facilities in the Museum District The current composition of the Jefferson Barracks Museum District is a collection of independently operated museum-like functions housed in historic build-ings from different construction periods spanning the life of Jefferson Barracks. Fortunately, almost all of the significant buildings are owned by either the State of Missouri or St. Louis County. The ob-jective of the District is to assemble, over time, a cohesive set of interrelated, professionally-run museums and visitor amenities that tells a complete story of the evolution and role of Historic Jeffer-son Barracks. The only current museum or interpreta-tion offering in the Museum District is the Jefferson Barracks Heritage Founda-tion’s temporary exhibit in the former Red Cross Administration Building (c. 1942). In the Ordnance District, the St. Louis County Parks Department oper-ates the Powder Magazine Museum (c. 1857), the Old Ordnance Room Mu-seum for rotating exhibits (c. 1851), the Laborers House and Stable (c. 1851), and another former Stable (c. 1878) con-verted for use as the Park Visitor’s Cen-ter. Together this collection of museums provides approximately 25,000 gross square feet of museum space and gen-erated approximately 35,000 visitors in 2008. The future Museum and Ordnance Dis-tricts, as envisioned, would accommo-date as much as 150,000 gross square feet of museum space and generate be-tween 180,000 and 250,000 visitors per year. Within the Museum District, the

vision is for two iconic facilities to an-chor the future visitor experience at Jef-ferson Barracks. These would include a new Jefferson Barracks Interpretive Center and a U.S. Grant Presidential Museum and Library. Additionally, the Jefferson Barracks Heritage Foundation would expand into Building 27 & Annex Building 270 (c. 1898) and operate the Citizen Soldier Museum; the Missouri Civil War Mu-seum would open in the former Post Gymnasium (c. 1905) and expand into the adjacent Post Exchange Annex (c. 1918) for a Civil War Research Library; the AT & T Pioneers’ Telephone Mu-seum would open in one of the existing former Officers’ Duplexes (c. 1898); and up to four more Officers’ Duplexes (two existing and two to be constructed) lin-ing the west parade ground would house various museums, shops and res-taurants. The former Nurse’s Quarters would be renovated and expanded to serve as a small guest hotel. And an in-terpretive exhibit at the site of the for-mer train depot near the riverfront would be built. Within the Ordnance District, one addi-tional Powder Magazine would be renovated for museum space, poten-tially for the addition of a Military Ve-hicles Preservation exhibit, and the North Gate sentry buildings (c. 1938) would be refurbished as part of the overall interpretive experience. Con-struction of an interpretive structure at the site of the former WWII Intake Cen-ter at the northwest corner of the dis-trict also is proposed.


Place-Making in the Museum District Since its founding in 1826, Jefferson Barracks has played an important role for the U.S. military. Its identity is tied strongly to the military servicemen and women and their families. After WWII, a majority of the Jefferson Barracks property was decommissioned. Unfortunately, over the past six dec-ades, many of the buildings, people and features that contributed towards the military identity have vanished. The historically significant military fea-tures that remain at Jefferson Barracks are spread out over the vast property comprising more than 1,000 acres and many are not open to the public. The lack of physical and visual connectivity of these features and the diversity of the current functional uses at Jefferson Bar-racks has created an identity crisis. Is Jefferson Barracks a park, a military post, a hospital, a nature preserve, a cemetery, a concert venue or a mu-seum? The answer is yes, it is all of the above. The military theme needs to be strengthened and military themed im-ages distributed throughout Jefferson Barracks and the community to rein-force the historic military identity and help visitors understand the significant military role the site has played for nearly 200 years. Elements such as gateway features, static displays, interpretive signage, naming conventions, and development of story lines for interpretive displays all can be used to enhance and develop

the theme and visitor experience. These elements should be used throughout Jefferson Barracks to be most effective, but they should be concentrated in the Museum District. The Museum District has historic build-ings surrounding a vast parade ground. This area should function as the hub for telling the Jefferson Barracks military story. Features and elements that rein-force the image should be most visible and numerous in this area and gradu-ally lessen radiating out from the dis-trict. Gateway features represent an element that can help develop and reinforce the military theme. The Gateway Features Matrix on the following page provides recommendations for the development of branding features for Jefferson Bar-racks. The recommendations in the ma-trix are organized into Levels 1 through 4. Level 1 is the most important for the branding and requires the most invest-ment; while Level 4 features contribute less to the brand and do not require as much effort to implement. In addition to the identification of the Levels, the matrix identifies the location of the fea-ture and provides a description of the suggested composition of the gateway element.


Figure 4.6 - Gateway Features Matrix Level Locations Description/Recommendations for Gateway Elements

1

Museum District East @ National Guard Base @ Grant Presidential Library

Museum District West @ Sherman Rd. Museum District North @ Gregg Road Museum District South @ Sheridan Road

Replace Vietnam Era jet fighter with replica WWI Cannon or a WWI or WWII tank or other JB historically appropriate wartime feature. Replace existing MoANG wood sign with a sand blasted wood sign constructed with a local stone base.

Sand Blasted Wood sign with local stone base. Sign text of “Jefferson Barracks Museum District” should include some graphic symbols in addition to the text. Sand Blasted Wood sign with local stone base. Sign text of “Jefferson Barracks Museum District” should include some graphic symbols in addition to the text. Stone Obelisk, Bronze Statue or other war memorial in center of circle. This feature should be surrounded by shrub and tree planting and include several areas of annual plantings for seasonal displays. Stone Obelisk, Bronze Statue or other war memorial in center of circle. This feature should be surrounded by shrub and tree planting and include several areas of annual plantings for seasonal displays.

2

Historic Jefferson Barracks North @ Grant Rd. & South Broadway Historic Jefferson Barracks NW @ Sheridan Rd. & Sylvan Springs Park Historic Jefferson Barracks SW @ Sherman Rd. & Sylvan Springs Park National Cemetery @ Sheridan Rd. & National Cemetery Historic Jefferson Barracks South @ Koch Rd. & VA Hospital

Columns on each side of roadway made with local stone. Arching metal signage feature on top of columns (similar to St. Louis University except in a historic style) Columns on each side of roadway made with local stone. Arching metal signage feature on top of columns (similar to St. Louis University except in a historic style) Columns on each side of roadway made with local stone. Arching metal signage feature on top of columns (similar to St. Louis University except in a historic style) Maintain Existing National Cemetery Sign. Columns on each side of roadway made with local stone. Arching metal signage feature on top of columns (similar to St. Louis University except in a historic style)

3

Ordnance District North @ Grant Rd. Ordnance District South @ Grant Rd.

Stone Columns, Iron Gates with “Jefferson Barracks Ordnance District” signage and Split Rail Wood Fences Stone Columns, Iron Gates with “Jefferson Barracks Ordnance District” signage and Split Rail Wood Fences

4

Off-Site Signage @ Grant Rd. & South Broadway @ Telegraph Rd. & Sherman Rd. @ Telegraph Rd. & Sheridan Rd. @ I-255 & Koch Rd.

Typical Brown Highway Directional Sign with “Jefferson Barracks Historical Park” text and pictograph symbol of the Park. Typical Brown Highway Directional Sign with “Jefferson Barracks Museum District” text and pictograph symbol of the Museum District. Typical Brown Highway Directional Sign with “Jefferson Barracks National Cemetery” text and pictograph symbol of the Cemetery. Typical Brown Highway Directional Sign with “Jefferson Barracks VA Medical Center” text and pictograph symbol of the VAMC.


Case Study Implications for the Museum District The following implications are summa-rized from research and discussions with the directors of historic sites with museum components and should be pursued in developing the Museum District at Jefferson Barracks. Understanding the visitor market

(age, origin, interests, etc.) can lead to a more tailored attraction, fee structure, promotional material, membership, and destination pack-ages that can help leverage earned income (e.g., the Lincoln Museum offers a membership for visitors liv-ing more than 100 miles from Springfield).

Incorporation of supportive and

themed retail (such as a themed café at Colonial Williamsburg) and commercial amenities can lengthen visitor stay, increase visitor spend-ing, and provide revenues to help cover ongoing maintenance ex-penses.

Connections to other similar sites

both physically and in communica-tions between management staff improves the success rate of all par-ties involved; as Shiloh National Park experienced, by promoting other local and regional battlefield and historical sites, sites can in-crease the length of visitor stay and number of overnight visits.

Public-private partnerships are use-

ful management tools, especially for separating commercial aspects (leas-ing) from more traditional park

management elements (mainte-nance, interpretation, and visitor services).

A successful management model is

evident at Fort Snelling, which benefits from management by the Minnesota Historical Society (MNHS) because it helps distribute fixed costs, creates a support net-work with other MNHS-managed sites, and increases opportunities for shares of statewide funding initia-tives.

Creative ways of branding the site

through merchandising and licens-ing (such as Colonial Williamsburg) or product presence in other retail outlets (such as at the airport) can increase site awareness and result-ing retail revenue.

In the experience of the Lincoln Mu-

seum and Fort Scott, onsite educa-tional programming that fulfills state education curriculum stan-dards supports the bulk of school group visitation. Knowledge of and use by nonprofit environmental and education groups, as Gateway Rec-reational Area has found, are also critical to the success of interpretive programming.

Special events, historic reenact-

ments, lecture series, and other crea-tive programming can increase re-peat visits and help promote an ac-tive relationship with the surround-ing community by creating inherent connections to the market, events, promotion, and community pride (which can translate to increased ongoing investment in the site’s po-sition in the community).


Historic sites are those that combine a comprehensive campus of historic interpretation with a high density of recreational amenities and a variety of facilities for special events rentals to create a unique visitor destination and drive attendance from a broad market. However, it is very impor-tant to have a specific attraction niche, for example, “one of the best examples of Indian Wars period forts”.

When incorporating commercial

elements, it is important to consider development programs as part of a larger master plan (rather than piecemeal) and to cluster the uses (restaurants, retail shopping, hotels, residential) to help improve the site’s visitor legibility. This can be difficult, as in the case of the Presi-dio, which is challenged by the ten-sion between permitting public use while also maximizing income through leasing historic buildings.

Publicity is key to visitation.

Greater publicity about the concerts, special events and exhibitions, more interpretive and program opportu-nities, and a longer public access season resulted in a 200% increase in attendance at Governor’s Island.

Investing in exhibits and anticipat-

ing ways to update them creatively will help attract larger repeat visitor markets.

A private transportation system has

allowed Governor’s Island to con-trol visitation and private rental events.

In the experience of Madison Bar-racks, a mix of private enterprise primarily serving the residential community should be more strongly connected to the historic site and public realm, perhaps even collect-ing a levy on a small portion of local commercial profits to support future preservation of the historic area.


4.4 Organizing & Funding His-toric Jefferson Barracks Historic Jefferson Barracks will require a considerable financial investment to achieve the long-range vision of a na-tional visitor attraction with a measur-able impact on economic development and job creation in the surrounding area. To achieve the vision requires in-vestment in preservation and enhance-ment of the overall physical, historical, educational, recreational, and commer-cial visitor experience. The Investment The process of developing the master plan for Jefferson Barracks included the identification of existing contributing buildings, recommended new build-ings, new visitor amenities, circulation improvements, and potential public-private partnership opportunities. Each of these categories was given a cost es-timate and a phase for completion. Cost estimating considered the ap-proximate square footage of the build-ing, its current condition, whether it re-quired new construction, renovation, or maintenance investment, and how much of the building would be dedi-cated to new or upgraded exhibit space. The cost was then assigned an invest-ment phase of 1, 2, or 3 with Phase 1 be-ing 0 to 5 years (by 2015), Phase 2 being 5 to 10 years (by 2020), and Phase 3 be-ing 10 to 20 years (by 2030). Ideally, significant success would be achieved by 2026, the bicentennial of the found-ing of Jefferson Barracks. The plan also looked at the proposed sponsor for each of the improvements so that initial costs could be sorted by responsible party.

The following tables summarize the ap-proximately $68 million of projected capital costs (in today’s dollars) for im-plementing the plan, sorted a number of different ways: by category, by dis-trict, by phase, and by potential spon-sor.


The Organizational Options Opportunities to implement the master plan for Historic Jefferson Barracks would complement the current efforts by independent groups to open a Mis-souri Civil War Museum and a Citizen Soldier Museum. While the near-term opening of these two museums will be important, further anticipated capital improvements represented in the mas-ter plan will require significant addi-tional resources, both public and pri-vate. In addition to capital improve-ments, operating fund requirements for common area maintenance, joint mar-keting, and special events will be neces-sary as the Museum District evolves. The evolution of the Museum District should be linked to the evolution of an organization to provide the professional management necessary to fund the capital improvements (master plan) and operational needs. The organizational evolution should keep strides with the increasing complexities of Historic Jef-ferson Barracks as a regional and na-tional visitor attraction.

Today’s operations at Jefferson Barracks primarily are independently managed and funded by each distinct entity. St. Louis County Parks Department owns and maintains Jefferson Barracks Park and its infrastructure, providing recrea-tional facilities and programming, man-aging the historic buildings and exhibits in the Ordnance District, and leasing buildings in the future Museum District to several museum-oriented entities—the Missouri Civil War Museum, the AT & T Pioneers’ Telephone Museum, and the 2nd Ranger Battalion WWII Re-enactors. The not-for-profit Friends of Jefferson Barracks organization pro-vides volunteer staff for the Park muse-ums and concerts, and in return shares in the event revenue for use in making improvements to Park facilities. St. Louis County Highway Department maintains the County roads within the area. The State-owned Jefferson Barracks Na-tional Guard Base operates independ-ently, but leases the former Red Cross Building to the Jefferson Barracks Heri-tage Foundation (JBHF) and has indi-cated they will lease one of the large former Barracks Buildings to the JBHF for the Citizen Solder Museum. The Guard Base maintains their buildings and grounds and is pursuing a project to construct substantial perimeter fenc-ing and landscaping around the parade ground. The Jefferson Barracks National Ceme-tery and the Veterans Administration Medical Center (VAMC) are completely independent federally owned and oper-ated VA facilities with no shared re-sources or facilities with other Jefferson Barracks entities.


Other potential partners within the fu-ture Museum District include the Mehlville School District, St. Berna-dette’s Parish (Archdiocese of St. Louis), Sylvan House group residence, and pri-vately owned family homes. One other notable entity is the volun-tary membership Jefferson Barracks Community Council (JBCC), formed for the purpose of “protecting, preserving, and promoting the heritage of Jefferson Barracks, including the County Parks, National Cemetery, VA Medical Center, National Guard installation, and com-plementary present and future facili-ties”. The JBCC currently is primarily a communications vehicle and has no au-thority over the independent entities at Jefferson Barracks. Step One Step one in the evolution of an organi-zation would be to maintain the inde-pendence of the existing organizations at Jefferson Barracks, but establish a volunteer committee to oversee, or es-sentially to make recommendations re-garding, the linkages between the new museums and the St. Louis County Parks Department (such as unifying signage and marketing efforts). The committee should make initial contact with the Partnership Office of the Na-tional Park Service to begin exploring partnership opportunities. Step Two Step two would be to either expand the role of the volunteer committee or an existing organization, or create a new not-for-profit corporation, funded by the independent entities at Jefferson Barracks through membership dues or some other agreed upon funding share.

The key would be to fund at least a part -time professional staff person to carry out tasks as directed by the committee or organization. Potential existing enti-ties include the Friends of Jefferson Bar-racks, the Jefferson Barracks Commu-nity Council (JBCC), or possibly the Jef-ferson Barracks Heritage Foundation (JBHF). The primary mission of this or-ganization would be to provide profes-sional leadership for fund-raising, joint marketing (public relations and adver-tising), shared services (such as mainte-nance, landscaping, security, snow re-moval, waste removal, etc.), and com-mon area improvements to implement the Jefferson Barracks Master Plan. At this time, a partnership with the Na-tional Park Service should be pursued for such issues as community relations, education/interpretation, fundraising, and tourism. Step Three Step three in the evolution would be to elect one of the potential funding op-tions discussed above to provide a more substantial and dedicated funding source for the not-for-profit corpora-tion; for example, the creation of a Cul-tural District (i.e., a CID) or Tax Incre-ment Financing District. The District and corporation would continue to op-erate alongside, not on top of, the inde-pendent entities. The mission would expand from providing shared services and common area improvements to fa-cilitating larger capital projects and community support amenities, as well as operation of Historic Jefferson Bar-racks as a national visitor attraction. The National Park Service partnership should be expanded and become more formalized, covering such areas as de-sign, program delivery, tenant organi-zations, and visitor services.


Step Four Step four in the evolution would be a merging of the independent organiza-tions, facilities, and operations into one corporate entity. This umbrella organi-zation would be responsible for all functions related to funding and man-aging the maintenance, improvement, marketing, and operations of Historic Jefferson Barracks. The partnership with the National Park Service should become a sustaining relationship to ad-dress capital improvements, conces-sioners, facility management, and long-term planning, design, and mutual aid services. An alternative step four organization would be to seek legislative or congres-sional approval to turn over ownership and/or the complete operations of Jef-ferson Barracks County Park to the State of Missouri or the National Park Service while maintaining the local not-for-profit corporation as a local partner. The Historic Sites, Buildings and An-tiquities Act (16 U.S.C. 461-462, 464-467) (aka The Act of August 21, 1935, 49 Stat. 666) popularly known as the Historic Sites Act (as amended by Public Law 89-249 and approved October 9, 1965, 79 Stat. 971) declared it a national policy to preserve historic sites and objects of national significance. It provides proce-dures for designation, acquisition, ad-ministration and protection of such sites. The Funding Options As discussed earlier, the evolution of the Museum District can be linked to the evolution of an organization to manage and fund the capital improve-ments (master plan) and operational

needs. Following are the leading fund-ing options currently in use across the United States for historic and museum districts, as well as other potential local funding options. To support arts, culture, historical and museum attractions, not-for-profit or-ganizations, local municipal jurisdic-tions, and state agencies primarily are establishing Special Districts. These districts generally cover a larger geo-graphic area than the specific attrac-tion(s), but have a documented eco-nomic nexus to the attraction(s). The St. Louis Metropolitan Zoo and Museum District is such a district in the St. Louis City/County region. Under state ena-bling legislation (e.g., MO 67.627—Regional Cultural and Performing Arts Development District), funding for spe-cial districts can be appropriated through a number of different sources. Most commonly, funding is through a share of local or statewide tax revenue, but many other sources of revenue are also available. The most common lo-cal/state funding sources are property tax, real estate transfer tax, sales tax, ho-tel tax, admissions tax, ticket “user” fees, corporate filing fees, and state gaming or lottery revenue. A second potential source of funding, which can be an effective way to con-solidate and minimize costs for shared services within an area, is a Cultural Conservation District (or “Cultural District”), set up as a Community Im-provement District (CID) in Missouri (MO 67.1401 to 67.1571). Participating properties near Jefferson Barracks would pay a small assessment or levy against real property, or collect and submit a sales and use tax, into a gen-eral fund managed by St. Louis County


or a not-for-profit entity (for example, a Historic Jefferson Barracks Museum District Association). The fund manager would fund shared services (e.g., main-tenance and landscaping, security, pub-lic relations and advertising, snow and waste removal, etc.), and help finance common area capital improvements (e.g., off-street parking, signage, street-scaping and lighting, etc.). The creation of a Cultural District (or CID) would also serve to improve coordination be-tween the independent Jefferson Bar-racks entities, encourage the identifica-tion of services that could be consoli-dated, and serve as the platform for so-liciting funds needed for capital im-provements. Unfortunately for this funding option, almost all of the prop-erty in the immediate vicinity of the Museum District is publicly-owned and therefore exempt from a levy against real property. A third source of funding for public and private improvements in the Jefferson Barracks area is the traditional Tax In-crement Financing District (TIF) (MO 99.800 to 99.865). TIF projects must be in a designated “blighted” or “conserva-tion” area and the potential project(s) must also be viewed as unlikely to oc-cur without TIF assistance. Additional tax revenues generated by the project can be used to pay for project-related pre-development and development costs. Under TIF, property taxes within the TIF District are frozen for up to 23 years; the property owners then make Payments In Lieu of Taxes (PILOTS) to a "special allocation fund". Addition-ally, 50% of any new local Economic Activity Taxes (EATS) (i.e., local sales taxes, earnings taxes, utility taxes), gen-erated from the project are also paid to the fund while the District is in effect.

The proceeds of the fund are then used for eligible project costs or to retire in-debtedness incurred to cover those costs. Eligible project costs include, but are not limited to, planning, architec-tural and engineering services, property assembly costs, costs of rehabilitating existing buildings (but not constructing new buildings), costs of public works, and financing costs. As with the CID option above, with the majority of the property in the immediate vicinity of the Museum District being publicly-owned, the ability for a property tax in-crement just covering the Jefferson Bar-racks entities is minimized. Another source of funding is the use of Federal and State Historic Tax Credits. The Federal Historic Preservation Tax Incentive (PTI) program provides a 20% federal tax credit for rehabilitating historic properties. The National Park Service (NPS) administers the program in partnership with the Internal Reve-nue Service (IRS) and with State His-toric Preservation Offices (SHPO’s). The 20% credit is available to properties re-habilitated for income-producing pur-poses, and the building generally has to be individually listed in the National Register of Historic Places or included in a National Register historic district like Jefferson Barracks. The Missouri State Historic Tax Credit also provides an incentive for the rede-velopment of commercial and residen-tial historic structures. The tax credit is equal to 25% of the eligible costs and expenses of renovation. The tax credit is used to offset Missouri income tax li-ability. Applications are available through the Missouri Department of Economic Development. In order to be eligible for the Missouri State Historic


Tax Credit, a structure must meet the same eligibility requirements as the Federal program. All plans for renova-tion must be approved by the Missouri SHPO to ensure compliance with stan-dards for historic preservation. Other potential funding options evalu-ated for implementation of the Jefferson Barracks Master Plan included: Regional Organizations St. Louis Metropolitan Zoo and

Museum District (ZMD)—Request the ZMD to authorize St. Louis City and County voter approval to add the Jefferson Barracks Museum Dis-trict to the ZMD and the ability to levy a property tax.

Regional Arts Commission of St.

Louis (RAC)—Advocate for inclu-sion of Jefferson Barracks in funding from the RAC’s portion of the City/County hotel tax.


ment—Request a ballot referendum for an additional tax or fee levy to fund Jefferson Barracks (and other County Park capital improvements if desired).

St. Louis Port Authority—Request

an annual allocation and/or capital projects funding for Jefferson Bar-racks from the River City Casino lease agreement.

State Organization Missouri Department of Natural

Resources (DNR)—Convey Jeffer-son Barracks County Park to DNR to be operated as a State Park or Historic Site subject to annual ap-

propriations and capital project funding.

Federal Organization National Park Service (NPS)—

Convey Jefferson Barracks County Park to the federal government for management by the NPS as a Na-tional Park subject to annual appro-priations and capital project fund-ing. The NPS cares for America’s nearly 400 national parks, but its profes-sionals work in nearly every County (over 3,000) providing advice, tech-nical assistance, recognition, and money to preserve local history and create recreation opportunities. Working with “partners”, the NPS has assisted in securing tax incen-tives, awarded grants, helped honor NRHP and National Historic Land-mark sites, and shared resources in such areas as educational lesson plans and heritage travel itineraries. Many of the case studies identified for this planning study are either owned or managed by the National Park Service, either solely or in part-nership with a state or local gov-ernment or organization, e.g., Fort Larned and Fort Scott, KS; Fort Point, CA; Fort Vancouver, WA; Fort Hancock, NJ; Governor’s Is-land, NY; and Shiloh National Bat-tlefield, TN; and the Jefferson Na-tional Expansion Memorial and U.S. Grant NHS (White Haven) in St. Louis. The NPS Midwest Regional Partner-ship Coordinators are located in Omaha, Nebraska.


Various Public-Private Partnership Models Of course, regardless of the approach, a significant amount of on-going fund-raising and partnering with other public and private sector entities will be re-quired to realize the master plan. The independent museums will need to be involved in gift shops, cafes, special events, programming, and membership and donation programs to offset the re-ality of museum operating deficits. The Special, Cultural, or TIF District will need to engage in higher-level market-ing to attract public, corporate, and not-for-profit museum benefactors to assist in implementing the overall Historic Jefferson Barracks master plan. 4.5 Conclusion Transforming the collection of historic experiences, buildings, and organiza-tions at Jefferson Barracks into a suc-cessful Museum District will require a strategic, evolutionary approach. Part-nerships should be forged with com-patible regional and national venues and industry leaders to help position Jefferson Barracks as a national visitor attraction. The Master Plan should be-come a compact between the parties at Jefferson Barracks, generally adhered to but modified when appropriate to do so, and continuously monitored to en-sure implementation. A management organization should continually evolve as the complex ma-tures and expands its need for profes-sional marketing, management, and fi-nancing. Funding the improvements will require the continued fund-raising efforts of the private independent mu-seum organizations, as well as a more

formal means of capturing new direct and indirect public revenue generated by the District. Ultimately, Historic Jefferson Barracks has the potential to grow to become a vital part of the South County economy.

5.0

Community Impacts5.0-Community Impacts

Beverage Garden at Sylvan Springs Park ca 1940s

During WWII the Beverage Garden was constructed by troops to create a place for dancing and entertainment. Many famous 1940s era entertainers performed here to help troop morale.



5.0 Introduction Jefferson Barracks is bounded by two St. Louis County unincorporated com-munities (for demographic purposes also known as Census Designated Places, or CDP’s) on the north, west, and south, and the Mississippi River on the east. Due to proximity, shared transportation routes, and recreational and employment opportunities, these communities are directly and indirectly impacted by the Jefferson Barracks com-plex. The north/northwest community is known as Lemay, and the south/southwest community is Mehlville. Generally speaking, Lemay is an older, inner ring suburban area. Parts of the Lemay community have experienced a decline in infrastructure conditions, housing conditions, and economic ac-tivity. The two commercial corridors within Lemay, Lemay Ferry Road and South Broadway/Kingston Drive, differ significantly in their form and function. The Lemay Ferry corridor is a more

contemporary retail and services dis-trict functioning as “downtown” Le-may. South Broadway is more neighborhood commercial and residen-tial in form and function, housing nu-merous auto repair businesses, small contractor offices/shops, and personal services. Development in the Mehlville area oc-curred more recently than in Lemay; however the majority of development occurred by 1970. Its neighborhoods are well established and generally well maintained. Its commercial properties run the spectrum of small, independent parcels to large shopping mall sites. Al-though the commercial areas of Mehlville appear stable, portions of the primary commercial corridors (Lemay Ferry Road and Telegraph Road) are in need of enhancement or redevelop-ment. As a result of these economic condi-tions, the area has been the subject of multiple planning studies and neighborhood stabilization efforts.


The recommendations suggested below incorporate relevant findings from these previous studies as well as ex-pand upon their recommendations based on recent developments, such as construction of the River City Casino & Hotel complex, the VA Medical Center planned expansion, the Missouri Na-tional Guard’s new Armed Forces Re-serve Center, and the proposed Historic Jefferson Barracks Museum District. Within this area, recommendations are presented at two levels, corridors and districts. Corridors were selected as the most direct ways to access the Jefferson Barracks complex or the River City Ca-sino development. The casino complex is significant in that it will attract a large number of new visitors to the area who are also potential users of the various Jefferson Barracks activities and sites. Corridor recommendations emphasize both efficiency of movement and the aesthetic experience of visitors access-ing the Lemay/Mehlville area from the surrounding interstate system. Impor-tant destinations include not only His-toric Jefferson Barracks, but also the River City Casino and the portion of the Lemay Ferry Corridor representing “downtown” Lemay. Districts were recognized as those areas of existing commercial activity having the greatest potential to derive eco-nomic benefits from their proximity to Jefferson Barracks. These districts are located at the four primary “gateways” to the Jefferson Barracks complex. Rec-ommendations emphasize planning and economic development coordination with existing studies, emerging projects, and public and private stakeholders.

The location of Lemay and Mehlville, as well as the transportation network serv-ing the area, are displayed in relation to Jefferson Barracks on the following map.


5.1 Previous Studies As noted earlier, the neighborhoods and communities surrounding the Jef-ferson Barracks Complex have been the focus of numerous plans and studies. The commercial corridor and district recommendations of this report reflect the relevant goals, objectives, and rec-ommendations found in these previous plans.

St. Louis County Department of Planning’s Lemay Comprehensive Plan, 2006—This report summa-rized existing conditions, conducted a commercial market assessment, and provided a long-range guide for revitalization and economic growth in Lemay. This portion of South County is physically adjacent to Jef-ferson Barracks County Park and can be beneficially impacted by large events and visitation to the Jef-ferson Barracks complex. The plan was formulated after the Sixth County Council District Community

Figure 5-1 - JB Area Transportation Features


Area Study (2000) and focuses on the economic feasibility of local commercial development as well as necessity for neighborhood stabili-zation. The plan gives particular land use guidance to recommenda-tions regarding South Broadway Avenue and Lemay Ferry Road.

St. Louis County Port Author-

ity/Pinnacle Entertainment Lease Agreement & St. Louis County Port Authority Lemay Reinvestment Plan, 2005—Through the lease agreement between the St. Louis County Port Authority and Pinnacle Entertainment for construction and operation of the River City Casino & Hotel, Pinnacle agreed to construct or provide money for various com-munity facilities, including a Lemay access road, park amenities, and an aquatic/community center. In addi-tion, the Port Authority will put a portion of the money it receives from the project directly into Lemay for economic development, such as commercial/retail investment, in-frastructure investments, and busi-ness attraction, retention, and ex-pansion purposes. Although the Re-investment Plan is a public sector initiative by the Port Authority, the plan’s dedicated private sector funding source could result in pro-jects being completed more quickly. The Reinvestment Plan is more of a capital improvements list than a de-velopment guide.

MoDOT I-55 & River Des Peres

Communities Transportation In-vestment Plan, 2004—This study examined the transportation needs in the I-55/River Des Peres commu-nities of Lemay, Affton and south

St. Louis City. Several alternatives for improvements in the study area were recommended including inter-change modifications to enhance ac-cess to I-55 at Loughborough Ave-nue, Germania Street, Carondelet Boulevard, and Weber Road; ex-tending Carondelet Boule-vard/Weber Road to Broadway (constructed as part of the Pinnacle Casino lease agreement); enhancing the streetscapes of Lemay Ferry Road and South Broadway; and cre-ating a local transit circulator route similar to the Clayton Shuttle Bee.

St. Louis County Department of

Planning’s Sixth County Council District Community Area Study, 2000—The St. Louis County Plan-ning Department completed this study in 2000 for South County (of-ficially the 6th County Council Dis-trict) that generally covers the area addressed in this Jefferson Barracks Planning Study.

Photo 5-1 – 2006 Lemay Comprehen-sive Plan


The report addressed transporta-tion, corridor revitalization, and neighborhood conservation, includ-ing recommendations to enhance commercial competitiveness and improvements to transportation ac-cess for primary corridors such as Lemay Ferry Road, Telegraph Road, and South Broadway Avenue. The plan outlines general development guidelines for corridors in the Jef-ferson Barracks area, provides gen-eral planning strategies to minimize restrictions on development, and defers to the need for more detailed, localized plans.

5.2 Current Community Projects In addition to the River City Casino project (opening anticipated in early 2010), numerous other developments in the Lemay and Mehlville communities will directly or indirectly affect the suc-cess of the Jefferson Barracks Complex and development along the area’s im-pacted commercial corridors. Carondelet Coke Site Redevelop-

ment—The City of St. Louis is pur-suing development of the Caronde-let Coke Site at the southern tip of the City (just north of the River des Peres and the study area) that would include a business park with up to 700,000 square feet of ware-house space. Extensive environ-mental remediation is required be-fore development can occur. Green Street Properties of Clayton, Mis-souri, was recently awarded the de-velopment rights for their $50 mil-lion plan to convert the site into a business park with 700 jobs.

Metropolitan Sewer District (MSD)

Lemay Plant Expansion—MSD is in the process of expanding their Le-may Wastewater Treatment Plant on South Broadway. Additional fil-tration ponds have been added to the site and MSD has purchased ad-jacent property to the north for-merly occupied by the Department of Defense’s Mapping Agency for potential future expansion.

Kingswest Development Corpora-

tion (aka Stupp Brothers Prop-erty)—A 440,000 square foot multi-use manufacturing and industrial facility was constructed and leased on the Stupp Brothers Bridge and Iron Company property on Weber Road near I-55. Additional land is available adjacent to the industrial park that would be attractive for large-scale commercial develop-ment.

Missouri Department of Transpor-

tation (MoDOT)—The Missouri state highway department received a Federal appropriation and initi-ated plans for improvements to the I-55/Weber Road interchange to

Photo 5-2 – Aerial view of the new River City Casino complex.


support commercial development on property adjacent to the highway in Lemay. With the failure of a pro-posal to materialize, MoDOT is con-sidering using the appropriated funds (approximately $8 million) for improvements at the I-55/ Caronde-let Boulevard/Germania Avenue in-terchange; in essence, constructing two bridges over the River des Peres to carry exiting traffic across the river on the local street system.

Neighborhood Improvements—As

an ongoing process, neighborhood improvements are being made in the Lemay area. Such improvements include derelict structure demoli-tion, forgivable home improvement loans, home repair services, prop-erty maintenance code enforcement, and neighborhood association assis-tance. Involved organizations in-clude the Lemay Housing Partner-ship, Lemay Development Corpora-tion, Neighbors Assisting Neighbors, St. Louis County Plan-ning Department, St. Louis County Problem Properties Unit, the Office of Neighborhood Services, and the Department of Health.

5.3 Jefferson Barracks Community Ties Jefferson Barracks is inherently tied to its surrounding communities. To plan for the Jefferson Barracks complex with-out incorporating the communities and the unique River City Casino complex project would be a missed opportunity, both for Jefferson Barracks and the communities. Related to Jefferson Bar-racks, many of the area’s previous stud-ies and current community projects fo-

cused on tying the economic success of the community to revitalized commer-cial corridors, major redevelopment sites, and stabilized neighborhoods; the new River City Casino complex; and Historic Jefferson Barracks. Some of these ties, or inter-dependencies, in-clude: Jefferson Barracks as Economic

Development Opportunity—Depending on the venue, visitors to the Jefferson Barracks complex come from the local neighborhoods, the St. Louis bi-state region, and the entire nation. The influx of visitors to Jefferson Barracks provides an opportunity to capture new reve-nue, primarily along commercial corridors.

River City Casino as Economic De-

velopment Opportunity—The po-tential for the River City Casino to act as an economic development catalyst is two-fold. First, the St. Louis County Port Authority has al-ready made a commitment to invest Pinnacle Entertainment lease reve-nue in projects such as corridor streetscaping, neighborhood im-provements, economic develop-ment, and a new community center. Second, casino customers also pre-sent an opportunity for neighbor-hood businesses to capture new revenue. Future infrastructure and other neighborhood improvements will benefit both the casino and the neighborhood by making the entire area more desirable as a place to live, work, shop, and play. Jefferson Barracks should also capitalize on this new stream of visitors.


Jefferson Barracks as Community Amenity—Although Historic Jeffer-son Barracks is being positioned as a regional and national destination, aspects of the complex will be local in nature. Neighbors still consider Jefferson Barracks County Park and Sylvan Springs County Park as neighborhood parks. The economic health and desirability of adjacent neighborhoods depends on these parks remaining easily accessible.

Jefferson Barracks and Community

as Partners—The continued activity of Jefferson Barracks and commu-nity volunteer organizations is es-sential to the survival of both Le-may and Jefferson Barracks. Al-though the independent activities of organizations has been successful with their own intentions and ef-forts, the surrounding communities and the Jefferson Barracks complex will greatly benefit from increased cooperation between organizations “outside the fence” and those “in-side the fence”. Such cooperative ef-forts may target infrastructure im-provements, commercial develop-ment, visitor amenities, and joint marketing and events.

5.4 Business Development Implications The direct economic impact of the four principal organizations that make up the Jefferson Barracks complex (the VA Medical Center, two County Parks, the National Cemetery, and the National Guard Base) was estimated at 1,500 jobs and an annual outlay of $175 million for payroll and other operating expendi-tures. Implementation of the Jefferson

Barracks Master Plan (Phase 1) is ex-pected to create nearly 150 new jobs within the complex and increase annual expenditures by $10 million. Considering both the direct and indi-rect/induced economic impacts, the current total impact of operations at the JB complex is 2,400 jobs and $300 mil-lion in annual expenditures across St. Louis County. Projected post-expansion employment and operations growth at Jefferson Barracks, primarily related to the VA Medical Center, the National Guard Base, and the future museums, is roughly 300 new jobs and $16 million in additional annual expenditures. (These figures include the direct jobs and ex-penditure estimates from the preceding paragraph.) Additional economic development im-pacts will be gained through construc-tion activity and visitors to the Historic Jefferson Barracks complex. Construc-tion activity over the next five years, primarily at the VA Medical Center but including the planned improvements in the Museum District, are expected to re-sult in direct and indirect impacts of more than 500 jobs and nearly $100 mil-lion per year in expenditures in St. Louis County. The impacts of current and future visi-tors to the complex are equally impres-sive. The current estimate of visitation to the organizations that make up the Jefferson Barracks complex is 1.7 mil-lion per year. This estimate assumes no current visitors for the museums that will comprise the future Museum Dis-trict, but does include the museums in Jefferson Barracks County Park. Based on experiences of other similar facilities, a stabilized year attendance range of


180,000 to 250,000 visitors to the Mu-seum District is projected. In turn, this was estimated to generate an additional 60 new jobs which would generate $6 million more in annual expenditures across the County. Business development potentials for the area were estimated based on the level of supportable commercial space that could be supported by employees and visitors in a specific area. For example, each office employee could support 2 to 5 SF in all retail and service categories; each visitor supports 0.2 to 1.5 SF. These ranges reflect the level of spending that can be generated by each segment based partly on differences in expend-able income levels, as well as overall store availability. For example, if retail and services are not convenient, this share of spending will shift elsewhere. The impacts of the River City Casino complex were excluded for this analysis due to its much larger impact on the lo-cal economy. Previous experience sug-gests that the majority of spending by casino visitors will be captured by the casino initially. Over time, a gradual spill-over will likely occur into the community. Therefore, for this area, the estimated net increases in employee and visitor traffic (excluding the casino) is esti-mated to drive near-term support in the area of 40,000 to 60,000 SF of commer-cial space. Based on an analysis of the indirect impacts of Jefferson Barracks’ employees, visitors, and construction and operational spending, the following business types could be expected to ex-pand as the Museum District grows in significance to the region.

Food service and drinking places Offices of physicians, dentists, etc. General merchandise retailers Food and beverage retailers Investment services Clothing retailers Insurance carriers Individual personal services Accounting, tax prep, etc. Colleges

This amount of space is well within the current amount of vacant space in the community, however there are other implications. Existing commercial concentrations

are not convenient for Jefferson Bar-racks workers or visitors and dis-tance to existing commercial busi-nesses is a deterrent.

Museum District visitors are ex-

pected to generate more value added than other area visitors (in-cluding the casino), as their length of stay generally will be longer.

While casino visitors will be primar-

ily focused on arrival at the casino, improved signage and wayfinding that makes casino visitors aware of Jefferson Barracks will be important.

Visitors to Jefferson Barracks are

funneled into the area from key in-terstate gateways to the Jefferson Barracks complex. In addition to improved signage and wayfinding, the primary entrances, primarily off Telegraph Road, need a significant sense of arrival.

Opportunities to improve these pri-

mary entrances through land as-


sembly and re-use could also pro-vide benefits for revitalization along the Koch Road, Telegraph Road, and Broadway corridors.

5.5 Business Development Issues & Objectives The Issues The following issues were identified re-garding commercial development sur-rounding Jefferson Barracks: Historic Development Pattern—

Commercial development along corridors in Lemay and Mehlville has spanned several decades. Strips of commercial development lack a sense of place and do not contribute to establishment of any area as a destination. Building configuration in some areas limits the type of business that can be established, or that will choose to locate in existing buildings. Lot configuration, at times dictated by topography, limits the scale of redevelopment that can occur without significant parcel as-sembly. Utilities in right-of-ways are too close to traffic and are a visual distraction as well as potential road hazard.

Circulation System—Frequent high

attendance events at the Cemetery and in the County Parks stress the circulation system. Primary defi-ciencies are the limited number of lanes on the internal roadways (Sheridan, Sherman, and Grant Roads) and limited capacity at their intersections with the arterials (Telegraph Road and South Broad-way).

Directional signage to Jefferson Bar-racks also is inconsistent and un-evenly placed.

Road Maintenance—MoDOT main-tains South Broadway, Lemay Ferry Road, and Telegraph Road, while St. Louis County maintains the secon-dary road system in the area. State control of the commercial corridors requires State involvement and ap-proval of any proposed changes by the County, communities, property owners or developers. A consistent, high level of maintenance and plans for roadway improvements will as-sist in moving this master plan for-ward.

Zoning Code & District (C-2)—

Requirements of the existing “C-2” Shopping District commercial zon-ing that is in place along the com-mercial corridors does not readily accommodate redevelopment of these older areas. Commercial buildings and development con-structed prior to the County’s adop-tion of zoning usually do not con-form to current lot size (minimum 12,000 SF lot), lot coverage (maxi-

Photo 5-3 – The South Broadway corridor reflects concerns related to its historic de-velopment pattern.


mum of 25% of lot), front setback (minimum 15 feet from road ROW), or off-street parking requirements, and would be very difficult to adapt to the newer requirements. As some of the current businesses are non-conforming uses that do not comply with current zoning, any proposed change in use by a new business would require conforming to the latest zoning district requirements or proceeding through the zoning variance process.

Aesthetic Concerns—In the older

commercial corridors of South Broadway and portions of Lemay Ferry Road, the visual appearance is generally congested and, to some degree, unkept. This perception is based on a host of contributing fac-tors including the buildings (on small lots, with independent small parking lots, close to the street with no landscaping, and a mix of age/condition and façades), the uses (auto repair facilities with nu-merous cars under repair, auto sales lots, contractor shops/yards, and in-termittent residences), and the pub-lic streetscape (utility poles and wires, freestanding signs, sidewalk conditions, and on-street parking).

Key Objectives In order to ensure a beneficial relation-ship between Jefferson Barracks and the surrounding area, several key objectives should be achieved. Land & Facility Use—Viable busi-

nesses based on sales or services to the combined local community and visitor market should be attracted to encourage local residents and Jeffer-

son Barracks visitors to shop, dine, and/or stay in the area.

Public Realm Design—A cohesive

array of streetscape elements, public spaces, and signage should be de-veloped to let people know they have arrived at a unique destina-tion, lead them to and through the area encouraging them to stay longer and spend more of their money, and invite them to explore the many diverse features of the Historic Jefferson Barracks complex as part of their excursion.

Private Realm Design—

Complementary building forms, business facades, and parking lot landscaping that creates a Business District or unique destination image for the consumer should be encour-aged. This might include assembly of multiple small parcels in order to facilitate more contemporary devel-opment.


5.6 Recommendations The Jefferson Barracks Museum District and greater Jefferson Barracks complex, as envisioned, will impact upon the economic viability of commercial activ-ity in the surrounding Lemay and Mehlville communities. At the same time, the economic vitality of these sur-rounding communities will contribute to the growth in visitors and growth in economic viability of Jefferson Barracks’ museums and other attractions. These impacts will be felt to a small degree along the many primary and secondary access routes and commercial corridors near Jefferson Barracks, but primarily at commercial nodes, or districts, on Koch Road, Telegraph Road, and South Broadway Avenue serving as “gate-ways” to Jefferson Barracks. The follow-ing sections discuss opportunities for strengthening the synergy between the visitor amenities created inside the Jef-ferson Barracks Complex and the access routes, commercial corridors, and commercial districts adjacent to the complex. Jefferson Barracks Access Routes/Streetscape Corridors The exercise to identify the best access routes from the interstate highway sys-tem to the Jefferson Barracks complex resulted in the recognition of a two-tiered corridor system of primary and secondary routes. The primary routes were recognized as the most direct and traveler-friendly, from an interstate in-terchange to one of the four (4) main en-trances to the greater Jefferson Barracks complex. Secondary routes were those that provided a less direct route to Jef-

ferson Barracks, yet carried significant traffic. Whether primary or secondary, the most important feature for access routes is directional signage—directing traffic from the perimeter interstate system to their intended destination at Historic Jefferson Barracks. The following map depicts Jefferson Barracks’ access routes and existing signage. While the current MoDOT directional signage is generally comprehensive, creating a standardized “supplemental” signage package (in-cluding location, look, and size) for all the Jefferson Barracks entities would go a long way toward improving the way-finding system. Primary Access Routes South Broadway Avenue from the

City of St. Louis and the new River City Casino complex, to the north end of Jefferson Barracks County Park, from the north.

Reavis Barracks Road from I-55 at

Exit 199 to the Jefferson Barracks Air National Guard Base and the pro-posed Museum District, from the west.

Photo 5-4 – View of South Broadway look-ing south toward Jefferson Barracks County Park.


Telegraph Road from I-255 at Exit 2 to the main entrance to the Jefferson Barracks National Cemetery, from the south.

Koch Road from I-255 at Exit 3 to

the VA Hospital, from the south. Secondary Access Routes Carondelet Boulevard and Germa-

nia Avenue from I-55 at Exit 202-A to South Broadway Avenue, from the north.

South Broadway Avenue north of

the River des Peres, from the north (City of St. Louis).

Carondelet Boulevard connecting

the new River City Casino complex with South Broadway.

Bayless Avenue and Lemay Ferry

Road from I-55 at Exit 201-A (Bayless Ave.) to Reavis Barracks Road, from the north.

Kingston Drive parallel to the west-

ern boundary of Jefferson Barracks County Park between South Broad-way and Telegraph Road.

Telegraph Road between Sheridan

Road and Jefferson Barracks Road.


Historic Jefferson Barracks Access Routes/Streetscape Corridors Devel-opment Strategy Access routes from the interstate high-way system to the Jefferson Barracks Complex should ideally be treated in a manner that recognizes their impor-tance as the most direct and traveler-friendly. As such, a consistent public realm design treatment should be ap-plied to these Jefferson Barracks Street-scape Corridors.

Public Realm Design Roads—Maintain a consistent, high

quality pavement and stormwater collection system on the roadways.

Signage—Ensure a comprehensive

directional signage system to direct motorists to Jefferson Barracks.

Streetscape—Improve aesthetics

and sense of place by eliminating (where they exist) utility poles and wires, freestanding signs, and on-street parking and by providing such elements as safe public side-

Figure 5-2 - JB Access Routes & Signage


walks, pavement inlays and/or painted intersections, decorative traffic signals and street lighting, ample landscaping, and seasonal or special purpose banners.

Figure 5-3 - JB Streetscape Corridors


Community Commercial Corridors Jefferson Barracks Community Com-mercial Corridors were identified based on the following characteristics: Serve as a Primary Access Corridor

for Jefferson Barracks Proximity to Jefferson Barracks

Existing commercial zoning or land

use

Containing high volume, high value

intersection(s) Potential to expand commercial use

toward Jefferson Barracks or ability to expand Jefferson Barracks prop-erty to the corridor

Potential to expand or develop com-

mercial activities as visitor ameni-ties and linkages to Jefferson Bar-racks

Figure 5-4 - JB Commercial Corridors


Jefferson Barracks Commercial Corridors South Broadway Avenue—

Broadway is a principal arterial road that runs from North St. Louis County, through the entire length of the City of St. Louis to South St. Louis County. In North County it is named Bellefontaine Road. Just north of Jefferson Barracks Park in South County, Broadway becomes Kingston Drive and merges with Telegraph Road south and west of the Park.

Broadway exists for 1.2 miles in Lemay/South County. Approxi-mately 300 linear feet of Broadway is located in the 100-year floodplain of the River Des Peres. For its por-tion in Lemay, land uses along Broadway include commercial, residential, vacant, industrial, insti-tutional, and recreational. Behind the parcels that front on Broadway, land use is almost entirely residen-tial with a few vacant lots and insti-tutional uses. Zoning along Broad-way is residential, commercial, in-dustrial, and non-urban. Due to the varied nature and age of the existing land use along Broadway, many uses do not conform to the current zoning. Most of the structures along Broadway and in the general area are very modest in scale and pre-date World War II. South Broadway will be the main route of access be-tween the new River City Casino and Jefferson Barracks.

The Lemay Comprehensive Plan (2006) calls for a long term strategy of increasing the residential charac-ter of South Broadway by encourag-

ing businesses to move to the more centrally located Lemay Ferry Road, encouraging residential-type street-scape improvements, and concen-trating community services at nodes along the corridor.

The I-55 River Des Peres Communi-ties Transportation Investment Plan (2004) roadway modification alter-natives for South Broadway include two through lanes with parking lanes on each side or two through lanes with one bi-directional center turn lane. Both alternatives include resurfacing the roadway, improving drainage conditions, and replacing failing curb and sidewalk. Addi-tional streetscape amenities would include ornamental lighting and new street trees. Utility improve-ments could possibly include elimi-nating utility poles and burying util-ity lines.

The Sixth District Community Area Study (2000) recommended facilitat-ing revitalization of this neighbor-hood commercial area by reusing older buildings, creating a business district organization, developing a master road plan to document re-sponsibility for future road im-provements and maintenance, and clean up of contaminated sites. Pinnacle Entertainment is in design for monument signs, historic street lights, and landscape plantings along the new casino access road (the extension of Carondelet Boule-vard) from east of South Broadway. The entire stretch of roadway from I-55 to the casino will be renamed River City Casino Boulevard. Ide-ally, public streetscape improve-


ments would extend to I-55 (Exit 202A) west of Broadway along the former Carondelet Boulevard and Weber Road.

Telegraph Road—Telegraph Road

starts as an urban collector at Lemay Ferry Road. As the road progresses south, it merges with Reavis Bar-racks Road and Kingston Drive to become a principal arterial extend-ing to I-255. The entire length of Telegraph Road from Lemay Ferry Road to I-255 is 2.9 miles. Between Lemay Ferry and Reavis Barracks, land use along Telegraph Road is predominantly residential. After the merge south of Reavis Barracks Road, land use becomes a mix of residential and commercial. Zoning is also residential and commercial with very few non-conforming uses.

The Sixth District Community Area Study (2000) recommended conver-sion of some retail to office, reten-tion of residential, expansion of the Jefferson Barracks Cemetery to in-clude properties at its entrance along Sheridan Road, and use of planned development for commer-cial redevelopment along Telegraph Road.

Koch Road—Located off I-255 at the

south end of the Jefferson Barracks complex, Koch Road currently serves the VA Hospital and the Mehlville School District’s Beasley Elementary School. At this time it is the only route by which to access these facilities. Limited access to the National Cemetery road network also is possible from Koch Road through a gate at the north end of the VA Hospital property.

South of the hospital, on the east side of Koch Road is a parcel of land owned by MoDOT. Formerly a Mis-souri State Welcome Center and now used as a driver’s license test-ing and vehicle inspection facility, this parcel presents an opportunity for regional commercial develop-ment. On the west side of Koch Road, frontage property owned by the school district presents a similar commercial opportunity.

Photo 5-5 – Telegraph Road provides pri-mary access to the Museum District and National Cemetery.


Historic Jefferson Barracks Commercial Corridors Development Strategy The commercial corridors were first identified based on their intended func-tion, or functions, within the Le-may/Mehlville market area. Sections of the corridors were categorized based on the proposed use as either residential, neighborhood commercial, community commercial, or regional commercial. Emphasis on the design of public and private realm improvements will sig-nificantly increase the attractiveness of the corridors for both investors and consumers. Land & Facility Use Residential Use—The primary fo-

cus of the residential portions of the corridor is to preserve the existing neighborhoods. While maintenance of homes and properties is the prior-ity, neighborhood scale businesses should be welcomed.

Neighborhood Scale Commercial

Use—Neighborhood Scale Com-mercial areas provide the types and sizes of businesses (retail and ser-vices) that primarily serve custom-ers from nearby neighborhoods.

Community Scale Commercial

Use—Community Scale Commer-cial areas provide the types and sizes of businesses that primarily serve customers from the broader area of Lemay and Mehlville. In-cluded in community scale com-mercial uses are businesses that tend to complement an activity (e.g., Jefferson Barracks) or another busi-ness in the corridor.

Regional Scale Commercial Use—Regional Scale Commercial areas provide the types and sizes of busi-nesses that primarily serve custom-ers from outside the local communi-ties of Lemay and Mehlville, gener-ally accessing the areas via the pe-rimeter interstate highway system.

Public Realm Design Roads—Maintain a consistent, high

quality pavement and stormwater collection system on the roadways.

Signage—Ensure a comprehensive

directional signage system to direct motorists to Jefferson Barracks.

Streetscape—Improve aesthetics

and sense of place by eliminating (where they exist) utility poles and wires, freestanding signs, and on-street parking and by providing such elements as safe public side-walks, pavement inlays and/or painted intersections, decorative traffic signals and street lighting, ample landscaping, and seasonal or special purpose banners.

Private Realm Design Property Maintenance—Along

these primary commercial corridors, maintenance of private properties should be strongly encouraged. The current property maintenance pro-gram (or ordinance) should be ag-gressively enforced by St. Louis County.

Sign Control—Sign clutter can be

one of the most unattractive features of commercial corridors. A specific signage program (or ordinance) should be developed for this area, tied into the Lemay “branding strat-


egy”, and aggressively pursued and enforced by St. Louis County.

Parking Control—Lack of parking

controls contributes to the percep-tion of congestion and haphazard development. Appropriate on-street and off-street parking regulations should be specified in the zoning ordinance and aggressively en-forced by St. Louis County and MoDOT. In addition, the County may wish to pursue the purchase of parcels at appropriate intervals and locations to create “pocket” parking lots serving multiple businesses.

Façade Improvement Program—

The broad architectural variety of commercial building facades can be very distractive and add to the per-ception of an unkept or cluttered commercial area. The partnership between St. Louis County and pri-vate businesses to fund a façade im-provement program should be ex-panded.

Sidewalk Replacement Program—

Like building facades, missing or broken sidewalks not only are an inconvenience, hazard and liability, they also detract from the overall appearance and perception of the commercial area. Where sidewalk responsibility lies with the private property owner, a partnership be-tween St. Louis County, MoDOT, and private businesses to fund a sidewalk replacement program should be pursued.

Community Commercial Districts An additional overlay land use category was created to recognize the unique po-tential for selected sections of the corri-dors to develop a synergy with the pro-posed growth of the Historic Jefferson Barracks complex. Specially-designated Commercial Districts are proposed at intersections of the four (4) major en-trances into the Jefferson Barracks com-plex. Commercial Districts are intended to emphasize an economic connection be-tween Historic Jefferson Barracks and the community. The connection can serve Jefferson Barracks employees, customers, tourists, or local residents. The connection can take different forms, such as convenience retail and gas; visitor amenities including hotels, res-taurants, and gift shops; catering and banquet facilities for large events; or complementary uses such as recrea-tional facilities and child care. Within the Districts, development guidelines should prescribe appropriate land uses, street and pavement treat-ment, Jefferson Barracks directional signage, and architectural recommenda-tions for elements that can be incorpo-rated into new construction, building façade improvements, and business signage.


For ease of distinction, the four (4) commercial districts are designated as the Jefferson Barracks Park District (at S. Broadway/Kingston/Grant Road), the Jefferson Barracks Museum District (around the intersection of Tele-graph/Reavis Barracks/Kingston/ Jef-ferson Barracks/Sherman), the Jefferson Barracks National Cemetery District (at Telegraph and Sheridan Road), and the Jefferson Barracks Medical Center District (I-255 at Koch Road).

The following discussion addresses the need to facilitate the synergistic devel-opment of property within the pro-posed Commercial Districts.

Figure 5-5 - JB Commercial Districts


Historic Jefferson Barracks Commercial Districts Development Strategy Jefferson Barracks Park District Located at the north entrance to Jeffer-son Barracks County Park at the inter-section of South Broadway Avenue, Kingston Drive, and Grant Road, this commercial district has the opportunity to focus on complementary uses to Jef-ferson Barracks as well as its traditional function of community service (auto re-pair, contractor shops, and neighbor-hood services). Such complementary uses would include the existing Han-cock Place and School Sisters of Notre Dame schools, the Lemay Day Care Center, and the proposed Lemay Aquatic/Community Center. Land Use—Residences are located

just outside the Jefferson Barracks Park entrance followed by the Odd Fellows Cemetery. Along South Broadway Avenue, different uses are co-mingled including single family residential, multi-family residential, institutional/ commu-nity service, commercial, utility, and industrial activity. The largest va-cant parcels are owned by the Odd Fellows Cemetery Association (4.6 acres) and St. Louis County (3.4 acres) at the north entrance to the park.

Zoning—St. Louis County Zoning

Districts include Non-Urban; R-5, R-6, and R-7 Residential; C-2 Shop-ping District and C-8 Planned Com-mercial; and M-3 Planned Indus-trial. There are a number of noncon-forming uses and zoning variances along Broadway including resi-

dences in commercial districts and businesses in residential districts.

Property Ownership—The largest

land owners in the area are Odd Fel-lows Cemetery Association with 9.5 acres and St. Louis County with 3.4 acres. The 9.5 acres owned by the Cemetery Association consists of 4.9 acres used for the current cemetery and 4.6 acres of vacant land adjacent to the cemetery. The property owned by St. Louis County is the proposed location for the future Lemay Community Center. The re-mainder of the properties are owned by independent small parcel owners.

Parcel Size and Configuration—

After the Cemetery Association (9.5 acres) and St. Louis County (3.4 acres), the next largest parcel is the Lemay Child Care Center with 2.4 acres. The typical lot in the area is less than ¼ acre in size averaging 120 feet in depth and 50 feet in width.

Environmental Constraints—There

are a limited amount of sinkhole ar-eas in the vicinity of South Broad-way, primarily in neighborhoods lo-cated off of Broadway as opposed to on Broadway itself. A second poten-tial environmental concern is possi-ble petroleum contamination asso-ciated with the many automobile re-lated businesses in the area.

Jefferson Barracks Expansion Po-

tential—In order to gain public visibility and direct access from the arterial road system to Jefferson Bar-racks County Park, the County pre-viously acquired two parcels at the


north end of the park abutting Broadway Avenue and Kingston Drive. This is the planned site of the new Lemay Community Center and will provide a wonderful improve-ment to the JB complex’s northern front door.

Additional future opportunities for expansion and redevelopment may exist to the east of this site on a number of older residential parcels (pre-1920) located on Teddy Avenue between Jefferson Barracks Park, Notre Dame School, and the Odd Fellows Cemetery Association. This property is completely surrounded by institutional uses that would benefit from their purchase over time as properties become available, demolition, consolidation of parcels, and maintenance of the property for a similar use; namely park, school grounds, or cemetery expansion. This ideally would also provide for a much improved visual approach to Jefferson Barracks from the River City Casino and other points north.

Development Recommendations—

Current land use is a mix of uses, non-conforming with the existing zoning, and inconsistent with the County’s Lemay Comprehensive Plan. Proposed redevelopment ef-forts would result in a reduction and clustering of commercial uses along South Broadway over a long-term timeframe, resulting in a resi-dential area with supporting ameni-ties such as parks, schools and community services. The extent of residential revitalization would vary depending on the stability of the neighborhood homes, infrastruc-ture, and occupants. However, the

overall strategy would be the same: stabilization through infill of new single-family dwellings on vacant parcels and improvements to exist-ing homes.

Commercial Nodes Within this strategy, the following nodes should be the target of commer-cial clustering and redevelopment: • Node #1—The intersection of

Hoffmeister/Arlee and Broadway due to its prominent location on high ground, at a signalized inter-section where Hoffmeister provides direct access for visitors to Lemay Ferry Road and “downtown” Le-may and Arlee provides access to the River City Casino complex.

• Node #2—The commercial frontage

between Etta and Loretta Avenues on Broadway due to the concentra-tion of commercial buildings to house auto repair businesses, con-tractor offices, and local community services (such as pizza, flowers, and laundry).

Photo 5-6 – Commercial Node #3 is located at South Broadway & Ripa just north of Jef-ferson Barracks.


• Node #3—The intersection of Ripa and Broadway due to opportunities based on its proximity to the major institutional amenities serving the area, including the Lemay Child and Family Center, the future Le-may Aquatic/Community Center, and the Jefferson Barracks complex. Opportunities should focus on pro-viding complementary goods and services to support patrons of these facilities.

To assist with moving traffic into and out of Jefferson Barracks Park, the inter-section of Broadway/Kingston at Grant Road should be evaluated for potential capacity improvements. Other recom-mendations discussed previously re-garding commercial development sur-rounding Jefferson Barracks should be addressed as well; with emphasis on such issues as creating a sense of place, directional signage, sidewalk and curb replacement, parking lot placement, and parcel assembly for larger mixed use developments.


Figure 5-6 - JB Park District Overview


Figure 5-7 - JB Park District Development Strategy


Jefferson Barracks Museum District Located at the primary entrance to the Jefferson Barracks Museum District at the confluence of Telegraph Road, Rea-vis Barracks Road, Kingston Drive, Jef-ferson Barracks Road and Sherman Avenue, this commercial district should generally function as a convenience and small-scale visitor amenity loca-tion. Such uses already include a Wal-greens, gas station, flower shop, and several restaurants. Additionally, the existing large event spaces (Royal Or-leans Banquet Center and Genesis Ban-quet Center) should be promoted for off-site functions. Land Use—Neighborhoods are lo-

cated just outside the Sylvan Springs Park and Jefferson Barracks Historic District entrance along Jef-ferson Barracks Road. North along Telegraph Road, the main land use is commercial with residential use behind. South along Telegraph Road, commercial activity continues (again with residential behind) until giving way to residential uses along the frontage. Two large religious in-stitutions with significant road frontage are located on the west side of the road.


Districts include R-5 Residential, C-2 Shopping, C-7 General Extensive Commercial, and C-8 Planned Com-mercial. The only nonconforming uses are a handful of residences along Telegraph Road that are lo-cated in a C-2 district.


land owners in the district are Le-may Church of God with 4.1 acres,

St. Luke’s Methodist Church with 3.8 acres, Forrest Miller, Jr., Trustee with 2.8 acres, Royal Orleans Ban-quet Center with 1.8 acres, and Walgreens with 1.7 acres.


The configuration of parcels varies in the district. The average parcel size is 0.7 acres; however the size ranges from 1/10th of an acre to 2.5 acres. Lot widths also vary between 40 feet and 450 feet and lot depths vary between 120 feet and 400 feet. The deeper parcels are generally lo-cated on the west side of Telegraph Road.

Environmental Constraints—The

only known environmental con-straints are underground storage tanks associated with former or ex-isting gas stations, with one re-corded at the northwest corner of Reavis Barracks and Telegraph Roads, and another recorded on the west side of Telegraph Road, south of Jefferson Barracks Road.


tential—It is not likely that physical expansion of Jefferson Barracks County Park or significant change in land use can occur in this district.


Emphasis in this Business District should be on improvements to the overall business environment, cov-ering such areas as streetscape and building/lot appearances. Im-proved building aesthetics would suggest consolidated parking lots in the rear of the development, and appropriate building façade and landscaping treatments in the front.


Uses should continue to emphasize convenience and small-scale visitor amenities such as drug stores, gas stations, and eating and drinking places. Public streetscape enhance-ments should initially address the issues of sidewalks, curbs and gut-ters, utility poles, and signage.

Another consideration is to create a continuous, uninterrupted roadway from Reavis Barracks Road to Tele-graph Road by redeveloping the in-tersection. This is ultimately the primary access corridor to the Jef-ferson Barracks Museum District from I-55 and reworking this inter-section would greatly improve the visitor experience. This potentially could be tied in with a commercial redevelopment project at the inter-section. Other recommendations include re-naming Reavis Barracks Road to Jef-ferson Barracks Road, and greatly enhancing the streetscape from Telegraph Road to the entrance to the Jefferson Barracks Museum Dis-trict to announce the arrival at an important destination.

Photo 5-7 – Reavis Barracks Road joins Telegraph Road before becoming Jefferson Barracks Road near the west entrance to the Museum District.


Figure 5-8 - JB Museum District Overview


Figure 5-9 - JB Museum District Development Strategy


Jefferson Barracks National Cemetery District Located at the primary entrance to the National Cemetery, this district is lo-cated on Telegraph Road from north of I-255 past the Sappington Barracks Road/Sheridan Road intersection. The commercial district would ideally serve as a convenience, visitor amenity, and events area. With its proximity to I-255, convenience gas and retail, and hotel and restaurant venues could be success-ful. In addition, large event spaces for off-site functions could be developed in conjunction with a hotel. The area al-ready contains a number of gas stations with convenience marts. Land Use—This District contains a

mix of co-mingled land uses includ-ing single family residential, multi-family residential, institutional, rec-reational, commercial, and utility. In addition to the mix of land uses, the scale of uses also varies from small stand-alone businesses to large strip malls.


Districts includes R-4 and R-6 Resi-dential, C-2 Shopping, and C-8 Planned Commercial. A small num-ber of businesses are located in resi-dential districts.


land owners in the district are Fran-view Plaza Partners with 5.3 acres, Pinehurst Apartment Complex LLC with 3.5 acres, CC&S Investments with 3.2 acres, and Vineyard Chris-tian Fellowship with 2.6 acres.


Average lot size in the district is 1.1

acres; however, the range is 1/10th acre to 5.3 acres. The lots are also not a standard configuration and consist of a range of widths, depths, and shapes. The northeast quadrant of the Telegraph/Sheridan Road in-tersection contains a group of par-cels creating a large rectangular site with good width and depth.

Environmental Constraints—

Known environmental constraints include underground storage tanks associated with existing or former gas stations; two are recorded on the north side of Sappington Bar-racks/Sheridan Road on either side of Telegraph Road, and two more are recorded on the east side of Telegraph Road further south. In addition, a limited number of sink-hole areas can be found in the corri-dor north of Sheridan Road on both sides of Telegraph Road.


tential—The County’s Sylvan Springs Park and the V.A.’s Na-tional Cemetery both are located within an average of 400 feet from Telegraph Road, separated by pri-vately-owned commercial and resi-dential properties. These properties include a number of underutilized or partially vacant facilities, a cou-ple of small apartment complexes, and other intermittent commercial and residential uses. South of Sheri-dan Road, the topography in this area generally is high along Tele-graph Road but falls off dramati-cally toward the cemetery, limiting the value of the frontage property for redevelopment. Expansion of the National Cemetery to Telegraph Road and accompanying gateway


and landscape enhancements would provide an outstanding improve-ment to the cemetery’s visibility and greatly enhance its perceived prominence in the region, as well as providing much needed ground for future burials.


This Business District should em-phasize its proximity to I-255, rela-tionship to surrounding residential neighborhoods, and access to the Jefferson Barracks complex, while providing convenience, hotel and restaurant, and catered event ven-ues. This area should function as a contemporary commercial corridor.

As discussed above, the opportunity to take advantage of underutilized properties and expand the National Cemetery should be pursued. One can envision the formal entrance monuments, brick and wrought-iron fencing, green lawns, and white headstones from the vantage point of Telegraph Road and readily rec-ognize the value to the Jefferson Barracks complex and the overall region.

Photo 5-8 – Intersection of Telegraph and Sheridan Roads, a potential location for ex-panded visibility for the National Ceme-tery.


Figure 5-10 - JB National Cemetery District Overview


Figure 5-11 - JB National Cemetery District Development Strategy


Jefferson Barracks Medical Center District Koch Road off of I-255 provides the only entrance into the V.A.’s Medical Center. MoDOT and the Mehlville School District control the land along the north side of the interstate. South of the interstate, undeveloped land is owned by several entities apparently positioned for development opportuni-ties. While this land has some topogra-phy challenges, it could ideally support regionally significant convenience and visitor amenity facilities and should be fully explored. Land Use—This district spans va-

cant land owned by the Mehlville School District (Beasley Elementary School and John Cary Early Child-hood Center) and partially im-proved land owned by MoDOT on the north side of I-255; and unde-veloped wooded property south of I-255.

Zoning—The majority of the area is

located within the St. Louis County Non-Urban (NU) zoning district, with the exception of the riverfront property south of I-255 within the M1 Industrial district.

Property Ownership—The two

land owners in the district north of I-255 are the Mehlville R-9 School District and MoDOT; south of I-255, land owners include Bussen Quarry/Realty Company and Riv-erfront LLC.


The land owned by MoDOT is con-sidered within the I-255 right-of-way so no official parcel size is

available, However, unofficially, the parcel contains approximately 20 acres with an average depth from the interstate of 525 feet. The land owned by the Mehlville School Dis-trict comprises 40.4 acres. Using a depth from the interstate of 550 feet, this equates to about 9 acres of un-developed frontage. Land south of the interstate is owned in the name of Riverfront LLC (9.2 acres) along the interstate east of Koch Road; and the remainder by Bussen Realty Company in three large parcels both east and west of Koch Road totaling up to 90 acres. This excludes prop-erty held by Bussen Quarry further south along the Mississippi River.

Environmental Constraints—The

known constraints include two small sinkhole areas in the MoDOT part of the district north of the inter-state; and a portion of a 100-year floodplain and two sinkholes south of the interstate.


tential—Tucked between the VA Medical Center (VAMC) and Inter-state 255 is property owned by Mo-DOT and improved as a driver’s li-censing and vehicle inspection facil-ity. This property and adjacent I-255 frontage property owned by the Mehlville School District could po-tentially allow for VAMC or Na-tional Cemetery expansion; or alter-natively allow commercial devel-opment of the property as part of an arrangement to generate tax or lease revenue for the preservation and improvement of Historic Jefferson Barracks.


Development Recommendations—Property along Koch Road north and south of I-255 could provide a unique opportunity to develop re-gionally-significant convenience and visitor amenity facilities, such as hotels, restaurants, retail, and service station/convenience stores. This opportunity could include a public-private partnership with the properties owners, public acquisi-tion and lease to a private party for development, or acquisition and development by a quasi-public pri-vate entity for the purpose of gener-ating revenue for implementing the Jefferson Barracks Master Plan.


Figure 5-12 - JB Medical District Overview


Figure 5-13 - JB Medical District Development Strategy


5.7 Conclusion The futures of Jefferson Barracks, St. Louis County, and the two unincorpo-rated communities of Lemay and Mehlville are inextricably joined through shared transportation, em-ployment, and economic opportunities. The recommendations provided above for Jefferson Barracks business corridors and districts will help reinforce Historic Jefferson Barracks as an important des-tination and link it to the River City Ca-sino, “downtown” Lemay, and Mehlville’s regional commercial district. These commercial corridors and busi-ness districts, located at the four pri-mary “gateways” to the Jefferson Bar-racks complex, should join with other public and private efforts and invest-ments in the region to reinvigorate and sustain economic development in south St. Louis County.

Appendix A

Building Assessment

Appendix A-Building Assessment

Jefferson Barracks Post Hospital ca 1891

In 1862 Jefferson Barracks was designated for use by the Federal Army’s Medical Department. Jefferson Barracks became the largest and most important military hospital in the country during the Civil War. The Post Hospital was demolished sometime between 1900-1910.


JEFFERSON BARRACKS MASTER PLAN Appendix A-1

Appendix A: Historic Building Assessment – Quinn Evans|Architects

Background The Jefferson Barracks campus is one the most historic and significant military installations in

the United States. The installation was first established in 1826 as a successor to Fort

Bellefontaine, and was intended to be an infantry training school. When the troops first arrived,

a temporary encampment was established at Sylvan Springs, until permanent buildings were

constructed closer to the Missouri River. The permanent base was in the approximate location

of the existing buildings 28 and 29 and the parade ground to the north, and consisted of a

rectangular organization of soldier barracks and officer quarters around a drill ground, with

other support buildings located nearby.

In the early 1850s, an ordnance depot was set off from the north portion of the military post.

The ordnance was originally stored in sunken pits, with limestone and brick buildings

constructed in the pit locations in the 1850s and 1860s.

Appendix A-2 JEFFERSON BARRACKS MASTER PLAN

In 1866, the Jefferson Barracks National Cemetery

was established south of the post. It included the

original Jefferson Barracks post cemetery,

inaugurated in 1827 to bury an officer’s recently

deceased infant daughter. The National Cemetery

was one of 14 national cemeteries established after

the Civil War, the beginning of a formal network of

military cemeteries throughout the country.

The military post was an important training ground

throughout the 19th century, producing thousands of troops. Dozens of Civil War generals on

both sides passed through the post in the decades prior to the outbreak of war in 1861. In the

1890s, the facilities were substantially rebuilt, taking the form seen today. The CCC constructed

facilities on both the post and the ordinance depot in the 1930s.

Jefferson Barracks saw the height of its development

during World War II, when the faciliity was an intake

and training ground for Army soldiers. An intake

facility with temporary barracks was constructed at

the northeast corner of the ordnance depot, and

temporary housing and other buildings were

constructed throughout the grounds. These included

housing (tents were erected throughout the ground

between the post and ordnance depot), mess faciilities,

training grounds, medical facilities, and recreational

areas. In 1939, a beverage garden was constructed at

Sylvan Springs, along with a performance venue that

hosted nationally known performers throughout the

war years.

Figure A-1: Parade Ground at Jefferson Barracks, ca. 1912.

Figure A-2: Beverage Garden at Syl-van Springs, ca. 1940s.

Figure A-3: Jefferson Barracks from the southwest, ca. 1930s.


In 1946 the Barracks closed. Most of the land, particularly the area from the north side of the

parade ground to the ordnance depot and the Sylvan Springs area, was transferred to St. Louis

County Parks. Private housing was constructed between the barracks and Sylvan Springs. The

majority of the former Barracks buildings were transferred to the state of Missouri for use by

the Missouri Army and Air National Guard. It is still an active military facility. The Jefferson

Barracks National Cemetery remained a federally administered facility and continues to

provide burials for members of the military and their families.

Historic Buildings The buildings on the site span the period from the

1850s to the 1940s. Although many buildings remain

from World War II and before, the site has a complex

history of development. Over the decades, many

structures were constructed as temporary space to

accommodate increased numbers during time of war,

and then demolished as the emergency subsided. The

most significant diminishment of permanent

buildings occurred after the County Parks acquired the

north side of the parade ground, when most of the officers’ duplexes and the bachelor officers’

quarters were removed. As a result, the sense of enclosure around the parade ground has been

lost on this side. The removal of the U-shaped barracks building on the south side of the parade

ground between Barracks Building 27 and the church has left a similar gap.

The remaining buildings on the site generally represent

two separate functions and periods of development. The

cluster of buildings at the north end of the park

represent the circa 1850s-1860s development of the

Ordnance Depot. The two stone magazines have been

well maintained by St. Louis County Parks and are

currently functioning as museum exhibit buildings. One

of the brick magazines is in active use as a maintenance

Figure A-4: Jefferson Barracks north en-trance, ca. 1940s.

Figure A-5: Trolley station (near Offi-cers’ Row), ca. 1909.


building. The second brick magazine was also previously used by maintenance staff, but is

currently vacant. Three magazine buildings are no longer extant. The Visitors’ Center complex

includes the Visitor Center itself, formerly a barn, the Laborers’ house, and a second barn. All

three are in good condition and functioning as

interpretive and visitor amenity space. At the north

entrance is a complex of buildings including the

former water tank, now a maintenance facility; the

pumphouse, serving as office and collections space,

and the gatehouse. These buildings, while in good

condition, are perhaps not serving their highest and

best use within the park.

The second, and larger, complex of buildings is the

Barracks complex at the south end of the site. These buildings generally represent the

redevelopment of the Barracks in the 1890s and continuing until World War II. The majority of

the buildings, including barracks, mess hall, administration building, stables, and other support

buildings, remain under the control of the Missouri

Army and Air National Guards and were only

considered in this report as general context. A cluster of

buildings at the northwest corner of base, however, are

to be leased for other functions, and were included in

the evaluations. Barracks building 25, its annex, 25a,

and building 48 (Quartermaster store house), are all

vacant. Barracks buildings 27 and 26, along with their

annexes 260 and 270, and buildings 65 (sub storehouse)

and 66 (band barracks) have all been adapted for office space.

The remainder of the buildings to the west and north of the parade ground are no longer part of

the base and they have a variety of functions. The former Red Cross building is currently

museum/exhibit space for the Jefferson Barracks Heritage Foundation, and the old Post

Gymnasium and Post Exchange are slated to become the Missouri Civil War Museum. An A

Figure A-6: Tent city at Jefferson Barracks, ca. 1918.

Figure A-7: Officers Row, no date.


T&T museum is located in one of the two remaining Officers’ Quarters. A small rectangular

building at the northwest corner of Sherman and Worth was built after the period of

significance for the site and is currently used by a football organization. The former Post

Hospital is now owned by the Mehlville School District. The Nurses’ Dormitory and the other

remaining Officers’ Quarters are vacant.

The Jefferson Barracks National Cemetery also contains

three historic buildings. A lodge constructed circa 1895

was remodeled in 1935 to serve as a cemetery

administration building. It is currently used for storage.

Adjacent to this building is a brick and concrete tool

house and garage, constructed in 1872. It has a 1935

addition. This building is also used for storage. A third

building, originally used as a cow barn, has an

unknown construction date, but was present earlier than 1936, when it was converted into a

paint shop. It is also used for storage and as a carpenter shop. There are also a number of non-

historic structures at the Cemetery.

Due to the ever evolving nature of the site, many buildings that were located on the site, both

temporary and permanent, are now gone. The most significant of the removed buildings were

the ones demolished after World War II. These include the duplexes along Officers’ Row, the

Bachelors’ Officers’ Quarters, the train station, and the Grant House.

Historic Landscape The Jefferson Barracks landscape has also had a complex evolutionary history. Intensive periods

of development and use during wartime alternated with relatively quiet periods. For most of its

history, the landscape would have been chiefly utilitarian in character, accommodating

permanent and temporary camps, training facilities, and storage. Today, while the portions

retained by the ANG base retain their working military character, the County Parks land has

been transformed into a recreational ground, with only hints of its formerly military character

around the ordnance museum buildings.

Figure A-8: Wall at the foot of the parade grounds (QE|A 2009).


Despite its current use as a recreational park, some

historic elements remain in the County Park-run land.

The major circulation routes, including Gregg, Grant,

Hancock, and Sherman Roads and the railroad, remain in

their historic configurations. The topography of the site

appears to be relatively unchanged, including the

characteristic sink holes that originally served as

ordnance storage sites and the sloping ground to the

river. Although their context has been somewhat

obscured, many historic landscape elements also remain, including the north entry gate and

walls, a wall at the foot of the parade grounds, the gate at the Grant House, and one of the posts

marking the boundary between the Barracks and the Ordnance Depot. One of the most

outstanding landscape features remaining is the Beverage Garden at Sylvan Springs, a sunken

terrace with stone walls and a stream running through it.

However, a number of the landscape elements have been compromised since World War II. The

spatial organization of the site, defined in part by its circulation patterns and buildings, retains

much of its integrity, but the loss of all but two of the Officers’ Quarters buildings and one of

the Barracks has resulted in the loss of a sense of enclosure around the parade ground. While

the presence of the National Guard base continues the military use of that part of the Barracks,

the recreational use of the rest of the complex has obscured its historic function. Little to none of

the historic vegetation patterns remain; as a working military facility, major portions of the site

would have been denuded of vegetation at various times to provide space for temporary

barracks and training grounds. Remnants of street trees in front of the buildings ringing the

parade grounds do remain, but not in any recognizable pattern. Finally, the trees along the river

have been allowed to grow up, obscuring what would have been a strategic view of the

Mississippi River.

Given the long history of the site, the landscape as a whole is judged to have a very high

probability of yielding archaeological artifacts. A number of building foundations related to the

Figure A-9: Beverage Garden at Syl-van Springs (QE|A 2009).


World War II intake center at the northeast corner of the site are still visible, and more are likely

present in the undergrowth.

Historic Site Drawings The following drawings represent the key historic periods in the development of the Jefferson

Barracks Site.

Figure A-10: ca. 1820s Plat of Jefferson Barracks Reservation (Source: St. Louis County Parks Collection).


Figure A-11: Sketch map of Jefferson Barracks, ca. 1830s-1850s (Source: St. Louis County Parks Collection).


Figure A-12: ca. 1865 map showing original installation layout (Source: St. Louis County Parks Collection).


Figure A-13: ca. 1883 map of the entire military reservation (Source: St. Louis County Parks Collection).


Figure A-14: ca. 1892 map of the military reservation (Source: St. Louis County Parks Col-lection).

Figure 15: 1901 plat map of Jefferson Barracks (Source: St. Louis County Parks Collec-tion).


Figure A-16: Aerial photo of Jefferson Barracks post, pre World War II, looking south.

Figure A-17: Aerial photo of Jefferson Barracks, pre World War II, looking west.


Figure A-18: 1904 map of the Ordnance Depot (Source: St. Louis County Parks Collection).


Figure A-19: 1941 Site plan (Source: St. Louis County Parks Collection).


Historic Building Assessment

Individual building assessments are on the following pages, listed in order of construction. The

historic Jefferson Barracks buildings were assessed for their historical and cultural significance

and architectural integrity. All the buildings, except for the ‘Football building’ were judged to

be significant to the history of the military installation. Most had high exterior design integrity,

while interior integrity ranged from high all the way to low.

Figure A-20: 1949 map of St. Louis County Parks acquisition of the site (Source: St. Louis County Parks Collection).

JEFFERSON BARRACKS MASTER PLAN Appendix A - 17

Current Name:Historic Name:Date Constructed:Original Use:Current Use(s):Current Owner:Square Footage:Footprint:Type of Structure:Accessibility:

Description:

Laborers’ HouseLaborers’ House1851Civilian worker housingMuseum InterpretationSt. Louis County Parks

RectangularMasonry load-bearing walls.Not open to the public; Door openings 34” wide, grade level entry at south door, one step at north door.

The Laborers’ House is a two-story, three bay rectangular structure constructed of lime-stone blocks. It has a side-gabled slate roof and a limestone chimney on the east wall. The north and south elevations have similar window/door arrangements: both elevations have doors in the west bay of the fi rst fl oor, plus two windows on the fi rst fl oor and three on the second fl oor. The doors are wood, four-paneled units and the windows are double-hung, six over six wood units with wood shutters. The east and west elevations originally had two windows each on the fi rst and second fl oor and a three-over-six attic window, but only the attic window on the west elevation remains. The south elevation originally had wood porches on both stories, which have been removed. A below-grade door is located on the south elevation. The well around the below grade opening is capped by an iron railing and has wooden steps down to the door.

The interior has an entry and stair hall on the west side, spanning the depth of the house. The remainder of the fi rst fl oor is open as one large room, with a fi replace on the east wall. The second fl oor is divided into the stair hall and two rooms, north and south, with angled fi replaces on the east wall to either side of the dividing wall. The fl oors are wood tongue-and-groove and the walls and ceilings are plaster. There is evidence of water dam-age on some of the walls, and the brick has been exposed in one area to show the infi lled windows. The building is currently interpreted to the 1850s period.

Appendix A - 18 JEFFERSON BARRACKS MASTER PLAN

The Laborers’ House is one of the oldest buildings on the Jefferson Barracks campus. It was originally constructed in 1851 to house the civilian workers contracted by the War Department to erect the buildings of the Ordnance Depot. Later on, it housed the Ordi-nance Keeper and his family. It was part of a complex including the two stable buildings. At one time the building had wood porches on both stories on the south elevation and thus faced in that direction. A historic photo (undated, but probably the late nineteenth century) shows a chimney at the west wall as well as the extant one on the east wall. The building also had dark colored shutters. A detached kitchen is also visible in the photo; probably a summer kitchen.

History:



Description:

StableStable1851Animal QuartersMuseum InterpretationSt. Louis County Parks

RectangularMasonry load-bearing walls.Not currently open to the public; grade level at north and east entries; step at west entry.

The Stable is a one and one-half story, three bay rectangular structure constructed of limestone blocks. It has a side-gabled slate roof with stone parapet caps. The east and west elevations both have paired arch-topped doors; the east elevation door is centered in the façade, while the west elevation door is located in the south bay. The north elevation has a single leaf arch-topped door. The doors are wood, vertical board units with metal strap hinges. The north and south elevations each have a single arched window opening centered in the half story gable. The east elevation has four arched window openings; one each in the three bays of the half story, and one on the south bay of the fi rst fl oor. All of the window openings have vertical board paired shutters mounted on the interior of the openings; there are no window sash. The north bay of the fi rst fl oor has two slit openings, and there are three slit openings on the fi rst fl oor of the west elevation.

The interior is presented as a working stable, with wood stall dividers, a gravel fl oor and exposed joists at the ceiling. The interior perimeter walls appear to be lightly parged and painted. The loft has a wood fl oor.


The Stable was constructed in 1851, at the same time as the Laborers’ House, to house the working animals and equipment for the laborers, and later for the Ordinance Keeper. Four horses and two wagons were kept in the stable, and the loft likely stored hay and straw for the horses. A 1904 site plan identifi ed this building as ice storage.

History:



Description:

Old Ordnance RoomOrdnance Room1851Ordnance storageMuseum InterpretationSt. Louis County Parks

RectangularMasonry load-bearing walls.Ramp at south side of building; accessible entry door

The Old Ordnance room is a one-story, rectangular structure constructed of ashlar lime-stone blocks on a stone foundation. It has a hipped slate roof with copper fl ashing. The east and west (long) elevations have no window openings. The north elevation has two small rectangular window openings covered with metal grills; the south elevation has a similar opening on the west side; the east side has been converted to an accessible door entry with a modern metal door. This entry has an accessible ramp leading from the side-walk on the east side of the building. There are no openings on the west elevation. The east elevation has a centered entry door. It consists of a metal exterior door and a glass and wood interior door. The exterior walls are about four feet thick.

The building is surrounded by a limestone block wall with pillars at the corners. A per-son-opening is located on the east elevation in line with the entry door, and a larger vehicle entry with an iron gate is located at the southeast corner.

The interior is generally open. It has wood plank fl oors and plastered walls and ceilings. The ceiling consists of cross vaults resting on massive square columns down the center of the room. There is also a kitchenette, mechanical room, and restroom. The interior is used as exhibit space.


The Old Ordnance room was one of the fi rst buildings constructed at the Ordnance Depot and one of the oldest remaining at Jefferson Barracks. It was constructed in 1851 to store weapons and ammunition. Ordnance was brought to the Depot by train, and then hauled by wagon up the hill. The building was constructed so that if the gunpowder exploded, it would take the path of least resistance, blowing through the wood fl oor and causing the ceiling to collapse smothering (hopefully) the fi re. In theory, the walls and roof would remain intact and the building could be reused. However, there is no evidence that am-munition every exploded at the Ordnance Depot. The stone wall surrounding the building provided security and protection.

History:



Description:

Powder Magazine MuseumPowder Magazine1857Ordnance storageMuseum InterpretationSt. Louis County Parks

RectangularMasonry load-bearing walls.Ramped sidewalk on north side of building; accessible entry door

The Powder Magazine Museum is a one-story, rectangular structure constructed of ash-lar limestone blocks on a stone foundation. It has a hipped slate roof with copper fl ash-ing. The east and west (long) elevations have no window openings. The north and south elevations each have two small rectangular window openings covered with copper doors pierced with small holes for ventilation. An accessible entry opening with a modern glass and metal door has been cut into the west side of the north wall; this entry has an acces-sible ramp leading from the sidewalk on the east side of the building. There are no open-ings on the west elevation, aside from a small grill-covered vent. The east elevation has a centered entry door. It consists of a metal exterior door and a glass and wood interior door. The exterior walls are about four feet thick.

The building is surrounded by a limestone block wall with pillars at the corners. A per-son-opening is located on the east elevation in line with the entry door, and a larger vehicle entry with an iron gate is located at the northeast corner.

The interior is generally open. It has wood plank fl oors and plastered walls and ceilings. The ceiling consists of cross vaults resting on massive square columns down the center of the room. The interior is used as exhibit space.


The Powder Magazine was constructed in 1857 to store weapons and ammunition. The fl oor collapsed one year after it was constructed and had to be rebuilt. Ordnance was brought to the Depot by train, and then hauled by wagon up the hill. The building was constructed so that if the gunpowder exploded, it would take the path of least resistance, blowing through the wood fl oor and causing the ceiling to collapse smothering (hopefully) the fi re. In theory, the walls and roof would remain intact and the building could be reused. However, there is no evidence that ammunition every exploded at the Ordnance Depot. The stone wall surrounding the building provided security and protection.

History:



Description:

MaintenancePowder Magazineca. 1866Ordnance storageVacantSt. Louis County Parks

RectangularMasonry load-bearing walls.Not open to the public; all entries at grade

The brick powder magazine is a one-story, rectangular structure constructed of red brick on a stone foundation. It has a hipped slate roof with aluminum fl ashing. There are aluminum shed-roofed garage additions on both the north and south elevations. The corners of the building have pilasters that support a painted brick frieze. The east eleva-tion has a roll-up garage door on the south side and a small window opening on the north side with a stone surround and a double-hung wood window and aluminum storm. The south elevation has a small window opening with a small surround about midway along the building; this window has a ventilation insert and is covered with a wire screen. The south elevation also has a person-sized door at the east end; this door is metal with two glass panels in the upper half. The west half of the building could not be accessed, but similar to the other brick powder magazine, it probably has two window openings at the west end.

The interior was not accessible at the time of survey, but what could be seen through the windows was generally open, vacant space. The fl oor appears to be concrete and the brick walls are painted. The ceiling is barrel vaulted and appears to be plaster.


The building was one of four brick Powder Magazines (only two remain) constructed shortly after the Civil War to store weapons and ammunition. The Ordnance Depot had originally stored ordnance in drained sinkholes located in several spots around the reserva-tion. The brick powder magazines were constructed in these sink holes in order to provide some protection in the event of an explosion. Underground rock sewers drained these sinkholes out to the Mississippi River. St. Louis County Parks utilized the structure as a maintenance building. It is now vacant.

History:



Description:

MaintenancePowder Magazine1866Ordnance storageMaintenance/Carpenter ShopSt. Louis County Parks

RectangularMasonry load-bearing walls.Not open to the public; all entries at grade

The brick powder magazine is a one-story, rectangular structure constructed of red brick on a stone foundation. It has a hipped asphalt shingle roof. There is an aluminum shed-roofed lean-to on the west elevation and a wood framed shed-roofed lean-to on the south elevation. The building has a painted brick frieze. The east elevation has a centered roll-up garage door with a wood person door immediately to the north. The east elevation also has four small window openings along its length; the windows are nine-paned wood units. The north elevation has a centered entry door with the date ‘A.D. 1866’ carved in the arched limestone lintel above; the door itself is a modern metal unit. Flanking the door are two window openings with limestone surrounds. One opening is boarded up, the other has a louvered vent. The south elevation has the same arrangement of window and door openings. The west elevation has two small window openings, both of which are covered with metal grates.

The interior is mostly open, with a few wood partition walls creating separation between work areas. There are also several offi ce spaces. The fl oors are concrete. The walls are either exposed brick or have vertical wood siding. The ceilings are a series of barrel vaults covered with plaster. The interior houses the carpenter shop and other maintenance equipment.


The building was one of four brick Powder Magazines (only two remain) constructed shortly after the Civil War to store weapons and ammunition. The Ordnance Depot had originally stored ordnance in drained sinkholes located in several spots around the reserva-tion. The brick powder magazines were constructed in these sink holes in order to provide some protection in the event of an explosion. Underground rock sewers drained these sinkholes out to the Mississippi River. St. Louis County Parks utilizes the structure as a maintenance building.

History:



Description:

Private ResidenceNCO Quarters/Ordnance Sergeant’s Quartersca. 1867NCO housingPrivate ResidenceSt. Louis County Parks

T-shapedWood framedNot open to the public; steps to porch and entry

The former NCO quarters is a one-story, roughly T-shaped wood-framed structure with wood clapboard siding. It has a cross gabled asphalt shingle roof and three brick chim-neys, one with decorative corbelling set at a 45 degree angle. There is a porch across the length of the east elevation with decorative columns. The building has single and paired double-hung six-over-six wood windows with storm/screens and a wood entry door on the east elevation. There is a detached, non-historic garage to the south of the building.

The building is a private residence, so the interior was not accessible at the time of survey.


This building is one of several constructed in the 1860s to house personnel of the Ordnance depot. This structure was labeled the “Ordnance Sergeant Quarters.” Further to the north were the Chief Clerk’s offi ce and residence and the Orderly room. These two buildings are now gone. This building currently houses a member of the park maintenance staff.

History:



Description:

Visitor’s CenterStableca. 1878Animal HousingGift shop, Interpretation, Gathering SpaceSt. Louis County Parks

RectangularMasonry load-bearing walls and wood frameRamp and accessible doors to second fl oor at west elevation; Entry at grade to fi rst fl oor at east elevation

The Visitor’s Center is a two-story, rectangular structure constructed of limestone block on the fi rst fl oor and board and batten wood siding on the second. It has a gabled roof with dimensional asphalt shingles. There are paired barn doors centered on the west elevation; behind these is a pair of modern glass and aluminum accessible entry doors. A concrete ramp with metal railings leads to the entry. There are three modern metal-clad six-over-six double hung windows on the second fl oor of this elevation and two sets of paired metal casement windows on the fi rst fl oor. There are metal egress doors at each end of this elevation with wood stairs to grade level. The south elevation only has a small gable vent opening. The north elevation has a pair of modern metal entry doors at the fi rst fl oor, three metal clad six-over-six double-hung windows on the second level, and a vent opening in the gable. The east elevation has paired modern metal doors centered on the fi rst fl oor, and a single leaf metal egress door at the south end. The fi rst fl oor has four sets of paired metal casement windows and the second fl oor fi ve modern metal-clad six-over-six double hung windows.

The interior has been remodeled with modern materials, including linoleum fl oors, dry-wall walls, and dropped ceilings. The fi rst fl oor has restrooms, a giftshop, and offi ces, and the second fl oor is an open event space with catering kitchen and restrooms.


The Visitor’s Center was constructed in 1878 as a stable. It held seven animals and four wagons, which could be driven up what was originally an earthen ramp. After World War I, the building was used as a tank repair station, and during World War II it was part of the Induction Center, where families could visit their relatives who were joining the armed forces. When this area of the Barracks was transferred to St. Louis County Parks, the wood framed second story was removed. It was recently renovated and the second fl oor recon-structed to serve as a Visitor’s Center for the park, including meeting spaces, gift shop, and offi ces.

History:



Description:

PumphousePumphouseca. 1931Pumphouse for water tankOffi ces/Collection StorageSt. Louis County Parks

IrregularMasonry load-bearing wallsNot open to the public; no accessible entrances at grade

The pumphouse is a one-story, irregularly shaped structure constructed of limestone blocks on a concrete foundation. It has a hipped slate roof with copper fl ashing and three brick chimneys. A stone chimney is located on the north elevation. There is an open stone porch and steps with a slate roof and decoratively sloped cheek walls on the south eleva-tion. A similar porch, but without the roof, is located on the east elevation. A stone porch on the west (back) elevation has been enclosed with aluminum windows and doors. The windows are modern insulated aluminum-clad one-over-one double hung units and they all have metal bars installed on the exterior. The doors on the east elevation and the north side of the west elevation have been infi lled with plywood. A second door on the west elevation is wood with an aluminum storm/screen, as is the main entry door on the south elevation.

The interior has been extensively remodeled, with linoleum/carpeted fl oors, drywall walls, and lay-in ceilings. Some historic trim remains around the doors and windows. The interior is currently utilized for offi ce space and storage of archival and interpretive collec-tions.


The pumphouse was constructed in 1896 to pump water to the Ordnance Depot. In the 1920s, new water lines were laid, and in 1931 the adjacent water tank was constructed. The building is now used as offi ce space and storage for the park’s archival and exhibit collec-tions.

History:



Description:

Park OperationsReservoirca. 1931Water TankPark Operations and Equipment StorageSt. Louis County Parks

SquarePoured concrete bearing wallsNot open to the public; all entries at grade

The Reservoir is a one-story, rectangular structure constructed of poured concrete with a plain metal frieze at the top of the wall. It has a fl at roof with nine square skylights. There is a shed-roofed open addition on the southwest corner. The building has no windows. It has a roll-up garage door centered on the south elevation, and a modern metal person door to the west of the garage door.

The interior is open, unfi nished space, with concrete fl oor, walls, and ceilings. The roof is supported by four freestanding structural columns with fl ared tops and bottoms. Engaged square columns, also fl ared at the top, are located around the perimeter wall. There is a small offi ce in the southeast corner.


The Reservoir was constructed in 1931 as a water tank for the Post. It cost around $10,000 and could hold 350,000 gallons of water. The water was pumped throughout the Post by large pumps in the pumphouse. It is now used as equipment storage and work space for Park Operations.

History:



Description:

Jefferson Barracks Football ClubJefferson Barracks Post Bankpost 1949BankFootball ClubSt. Louis County Parks

RectangularMasonry exterior wallsNot open to the public; steps at front door; grade-level door at south side is 30 ½” wide

The Football Club building is a one-story, rectangular structure constructed of painted red brick on a concrete foundation. It has a front gabled roof covered with asphalt shingles. The windows are wood double-hung six-over-six units; most have wire mesh installed on the exterior. Several have been boarded up or bricked in. The front (east) entry has a pan-eled wood door and the south elevation door is modern metal.

There was no access to the interior at the time of survey. The original bank vault is be-lieved to be still in place in the back of the building.


The Football Club building does not appear on historic drawings or historic aerials before 1949. It is not in character with the rest of the historic post buildings.

History:



Description:

Jefferson Barracks Heritage Foundation MuseumRed Cross Administration Building1942Red Cross Hospitality HouseMuseumMissouri National Guard

Cross shapedMasonry exterior wallsAccessible entrance at south side including power assisted door.

The Red Cross Building is a one-story rectangular building constructed of red brick on a concrete foundation. Although it is a modest building with low proportions, it was designed to present a formal front to the parade ground, with a temple-shaped center section. Foursquare columns and two antae support a pediment with central bull’s-eye window. Square six-pane windows above the front door and fl anking fi rst-fl oor windows create the illusion of a second story within this portico. Long four-bay, one-story wings with six-over-six windows and asbestos-shingled end gables stretch out from the center section. The south end has a second entrance centered under a small gabled hood.

The interior has been remodeled to provide exhibit, meeting, and offi ce space for the Heri-tage Foundation museum. It has modern fi nishes, including carpeted/vinyl tile fl oors and drywall walls.

There is a four bay garage (296) associated with the Red Cross Building. It is a rectangular, one-story red brick structure with a side gabled roof covered with asphalt shingles. It has four roll-up garage doors on the south side and a boarded up door opening on the east.

The American Red Cross began a construction program at Army posts across the country in the fall preceding American entry into World War II. Jefferson Barracks was one of 62 locations named to get a new Red Cross headquarters building in an announcement of the program in September 1941. Prior to its construction, there had been a Red Cross offi ce in the old Band Barracks (Building 66)1. The Red Cross staff helped soldiers with personal and family problems and distributed clothing to the nearby post hospital.

The Red Cross building supervisor, Edward S. Brown, stated in a site survey prior to build-ing that the structure must be constructed of brick “because it is in the permanent area and surrounded by brick buildings.”2 The building originally contained six offi ce spaces and fi ve or six rooms that served as living quarters for the Red Cross fi eld director.

When the building was completed in April of 1942 at a total cost of $24,163, title was as-sumed by the War Department. After the base closing in 1946, the Red Cross leased the building back from the Military Welfare Service for one dollar a year. It was used vari-ously by a children’s clinic, the Boy Scouts, Cub Scouts and American Legion. A Red Cross employee lived in the building to oversee these activities and maintenance of the property.3

In 1950, the Red Cross lease was cancelled when the building was given to the State of Mis-souri for use as a headquarters building by the 157th Aircraft Control and Warning Group of the Missouri Air National Guard.4 Later, the Guard used the building as an Army and Air National Guard recruiting station, a Coast Guard Exchange and the Military Funeral Honors program. It was recently remodeled to house the Heritage Foundation museum.


History:

1 Jefferson Barracks Hub, 13 September 1941, page 5. At Western Historical Manuscripts Collection, UM-St. Louis.

2 Memo from E.S. Brown to Mr. Wesselius, 25 September, 1941. Red Cross Archives.

3 Memo from Harry Lambly to Harold L. Houle of Military Welfare Service, 21 February 1950. Red Cross archives.

4 Letter from Harold L. Houle to E.V. Turney, General Ser-vices Administration, 30 June, 1950. Red Cross archives.



Description:

Missouri Civil War MuseumPost Gymnasiumca. 1905GymnasiumMuseumSt. Louis County Parks

T-shapedMasonry exterior wallsNot yet open to public; no accessible entrances; elevator proposed.

The Civil War Museum is a two-story T-shaped building constructed of red brick on a stone block foundation and water table. It has hipped roofs covered with asphalt shingles. There are two red brick chimneys. The building is decorated with a frieze and dentilled cornice, decorative stone lintels, and a fan light in the pediment. The windows are two-over-two, double-hung units, although presently most of the windows are boarded up. The entry doors are likewise boarded up.

The interior is currently undergoing remodeling to provide exhibit, meeting, and offi ce space for the Missouri Civil War museum.


The building was constructed in 1905 as the Post Gymnasium. During World War II the gymnasium was host to hundreds of athletics contests between temporary and permanent personnel at the base. After a vacancy of many years, the building is now being remodeled to house the Missouri Civil War Museum.

History:



Description:

Post Exchange AnnexPost Exchange Annex1918Post ExchangeVacantSt. Louis County Parks

RectangularMasonry exterior wallsNot currently open to the public; all entries above grade.

The Post Exchange Annex is a one-story rectangular building constructed of red brick on a concrete foundation. It has a hipped roof covered with asphalt shingles and a red brick chimney with corbelling. The building is decorated with a wide cornice frieze and decora-tive stonework around the doors. The windows and doors are all boarded up. The doors on the east and north elevations have brick and concrete steps and porches. There is a wooden porch with a small hipped roof on the west elevation.

The interior was not accessible. The building is currently vacant.


The Post Exchange Annex was constructed in 1918 and has been identifi ed as a lunchroom for the Post Exchange. It most recently housed the Jefferson Barracks Boys and Girls Club. It is currently vacant. The Missouri Civil War Museum would like to remodel it as an addi-tion to the museum they are now creating in the Post Exchange and Gymnasium.

History:



Description:

Nurses’ ResidenceNurses’ Residence1938Nurses’ ResidenceStorage/vacantSt. Louis County Parks

RectangularMasonry exterior wallsNot open to the public; all fi rst fl oor entries above grade with steps; one below grade entrance at basement level.

The Nurses’ Residence is a rectangular, two-story building constructed of red brick. It has a hipped roof with slate shingles and a brick chimney. The south elevation has four wood dormers at the roof level. The building is decorated with a stone water table, a decora-tive stone surround at the south entry, and a wood portico at the north entry. Two-story sun porches are located at the east and west ends of the building. The windows are gen-erally wood six-over-six double hung units. The sun porches have tripled sets of wood four-over-four double-hung units; the upper windows are arched. The north and south entry doors have been replaced with metal units, but the east and west doors into the sun porches remain in place; they are wood two-paneled doors with six glass panes above.

The interior has a central entry hall with double-loaded corridors to each side. Many origi-nal fi nishes are left, including wood fl oors, plaster walls and ceilings and window and door trim. Many of the doors to individual rooms retain their glass transoms.

Behind the Nurses’ Residence is a rectangular, one-story concrete block garage with seven garage doors. A person door has been installed in the central garage door. The garage has a number of infi lled window openings on the north elevation.


The Nurses’ Residence was constructed in 1938 by the Quartermaster Corps of the United States Army. It housed nurses for the nearby Post hospital. It currently provides archival and museum storage and has some offi ces in the basement. It is otherwise vacant.

History:



Description:

Offi cers’ DuplexesOffi cers’ Quarters1898Offi cers’ QuartersMuseum/vacantSt. Louis County Parks

IrregularBrick and Wood frame18 Randolph (west duplex) has an accessible ramp and entrance on the east side; the remainder of the buildings is not accessible.

These two buildings are two-story, roughly rectangular structures constructed of red brick on the fi rst fl oor and wood frame and siding on the upper fl oor. They have gabled roofs covered with asphalt shingles and brick chimneys. The front and rear elevations have projecting doubled gables at the second fl oor; and two-story sun porches project from the side elevations. Each side of the duplex has a wrap-around porch at the front, and there is a shared porch across the back. The windows are generally wood, double-hung six-over-two or six-over-one units, with some variation of window panes where sash have been re-placed. The doors vary, but most are wood with a combination of panels and glass panes.

There was no access to the interior of either duplex.

Both duplexes have rectangular, one-story concrete block garages with two garage doors.


These structures are the two remaining duplexes of Offi cers’ Row, which originally stretched all the way along Randolph and fronted the parade ground on the north. They were constructed in 1898 by Richard Deutman and Son, architects to Quartermaster plan 115. 18 Randolph, the westernmost duplex, most recently housed the National Civilian Conservation Corps Museum, and a statue of a CCC worker is located to the east of the building. It is now vacant. 16 Randolph is currently vacant, but is slated to become the AT&T Pioneer Telephone Museum.

History:



Description:

Electrical SubstationElectrical Substationca. early 1900sElectrical substationVacantSt. Louis County Parks

RectangularMasonry exterior wallsNot open to the public; step to entry door.

The Electrical Substation is a rectangular, one-story brick building. It has a gabled roof covered with slate shingles and has a brick chimney. There is a small dormer on the west elevation of the roof. The arched window openings are boarded up. There is one door on the east elevation with a pair of modern metal doors. Remnants of the electrical equip-ment are located on the north elevation.

The interior was not accessible.


This structure was constructed in the early 1900s as the fi rst electric substation on Jefferson Barracks. It is currently vacant and no longer serves as a substation.

History:



Description:

Barracks (25) and Annex (25A/250)Barracks and Annex1894 and 1933Barracks; Mess Hall and KitchenVacantMissouri National Guard

Rectangle with wingsMasonry exterior wallsEntries above grade with steps.

Building 25 is a large rectangular brick building. The facade of the building is symmetrical with a fi ve-bay three-story center core fl anked by seven-bay two-story wings. The gabled roofl ine of the wings complements the hipped roof of the center core. Covered wood porches run the length of both fl oors of each wing on the north facade. On the fi rst fl oor of the center core a small porch cov-ers double entry doors (not original). On the second and third fl oors of the center section, four sash windows fl ank a larger center window. Building 25 varies slightly in appearance from the other extant barracks buildings. It does not have the hipped roof dormer on the roof of the center core, it had a cupola in the roof of the center section, and still has cupolas in the roof over the wing sec-tions. The window confi gurations of Building 25 also vary from the other barracks buildings: all of the windows are rectangular, whereas the other barracks have distinctive arched windows on the third fl oor of the center section. Original windows have been replaced but remain two over two. The original wood rails had been replaced with the current steel ball and rod rails by 1941. Origi-nal wood porch ceilings are still intact and the original stone entry to the basement remains on the eastern side.

The interior contains a central three-story entry hall and staircase, offi ces and latrine spaces and a day room on the fi rst fl oor. The third fl oor rooms functioned as a library. The two story wings provided space for troop dormitories. Unlike barracks constructed from plan #41-A, the second fl oor troop dormitory in Building 25 did not have interior columns. Much of the interior, currently vacant, contains original fabric, including plaster walls and wood wainscoting. Some newer materi-als, including lay-in ceilings and linoleum fl oors, are present.


Building 25 was the second of the double cavalry barracks to be constructed in the rebuild-ing of Jefferson Barracks in the 1890s. It follows the Quartermaster standardized plan #41. There are no other known examples of barracks constructed under Plan #41 in existence today. Budget authorization of $23,203 for this building (originally numbered 44) was included in the Department of War’s “barracks and quarters” appropriation for fi scal year 1893-94. Also authorized in this bill were plumbing and heating systems for a total expen-diture of $29,355. The general contractor was Jno. J. McMahon and systems work was done by Mepham Heating & Plumbing Company and Modern Heating Company for $4296. The building was completed in 1894.

Building 25 was damaged in the fi re of April 22, 1896, that destroyed the fi rst of the new barracks buildings built using Plan 41 (that building, completed in 1893 and originally numbered 38, was rebuilt in 1897 using plan 41-A and renumbered 26). It was occupied at the time by Troops D and K of the 3rd Cavalry. Damages appear to have been minimal. This building continued in use as a barracks throughout Jefferson Barracks’ history as an active duty post. Electric lighting and toilet facilities were added in 1909, after the post was offi cially designated as a recruiting depot. The porches underwent extensive repair in 1926.

The barracks buildings at Jefferson Barracks were different from most of those constructed in the 19th century in that they did not include company mess facilities. Since the construc-tion of Building 36 in 1889, the post had been one of the few in the Army to have a separate mess hall. For reasons that are not clear, this situation was changed in 1925 when messes were constructed in the basements of Building 25 and other barracks, using company funds and troop labor. In 1930, these facilities in three of the barracks (including 25) were moved to the fi rst fl oor of the buildings. By 1932, a solution to the continuing problem of mess facilities was found with the construction of annexes to Buildings 25 and 26.

In 1936-37, unspecifi ed “renovation” of all fi ve barracks buildings was included in a larger WPA appropriation of $63,573.23. Building 25 was one of three used for a period of time in 1941 as auxiliary dining halls. Their annexes served as kitchens, while both fi rst and second fl oors were vacated as sleeping quarters and used to serve meals to men housed in a new tent area nearby. A fl oor plan from mid-World War II shows both wings of the fi rst and second fl oors, as well as the third fl oor of the core section in use as “squad rooms.” The fi rst and second fl oors of the core section were designated for use by NCOs. The basement contained shower and latrine facilities, supply and other service facilities.5

History:

5 JB Floor Plans, ca. 1943-45. JB Real Property Offi ce.



Description:

Barracks (26) and Annex (26A/260)Barracks and Annex1897 and 1932Barracks; Mess Hall and KitchenOffi cesMissouri National Guard

Rectangle with wingsMasonry exterior wallsEntries above grade with steps; accessible ramp at south elevation but does not meet code.

Building 26 is a large rectangular brick building. The facade of the building is symmetrical with a fi ve-bay three-story center core fl anked by seven-bay two-story wings. The gabled roofl ine of the wings complements the hipped roof of the center core. Covered wood porches run the length of both fl oors of each wing on the north facade. On the fi rst fl oor of the center core a small porch covers double entry doors (not original). On the second and third fl oors of the center section, four sash windows fl ank a larger center window.

Historic photographs indicate that Building 26 once had the central hipped roof dormers characteristic of the other barracks. The dentil masonry under the cornice of the central core is a distinctive feature of this building. The windows are all wood, double-hung two-over-two units; this building has slightly arched window openings on the fi rst two fl oors and round arched windows on the third. The original wood rails had been replaced with the current steel ball and rod rails by 1941. Original wood porch ceilings are still intact and the original stone entry to the basement remains on the eastern side.

The interior has been remodeled with modern fi nishes, including vinyl tile fl oors, drywall walls, and lay-in ceilings. Traces of original materials can be seen in some areas; the origi-nal staircase is still in place.


The extant Building 26 is actually the second identifi ed by that number to stand on this site. The original building was the fi rst of the fi ve barracks constructed in the 1890s. It was identical to extant Building 25, following Quartermaster Plan #41. Originally numbered #38, it was renumbered as 26 prior to a fi re in 1896 that gutted the building. Complete rebuilding followed, beginning in 1896 and completed in May 1897; the reconstruction fol-lowed Quartermaster Plan #41-A, so it is identical to Buildings 27, 28 and 29, which were completed in 1898.

In 1925, individual messes were installed in the basements of all fi ve of the large barracks buildings using troop labor.6 Mess facilities were removed after the construction of the bar-racks annex in 1932.

The World War II fl oor plans show that the building was in use as a barracks, with squad rooms and necessary company service areas on the fi rst and second fl oors and with la-trines, showers and storage in the basement. The third fl oor core section also contained a squad room.

The fi rst and second fl oors of Building 26 were used as an auxiliary dining facility for an unknown period of time in 1941, serving the men housed in a temporary tent area. Build-ings 25 and 27 were also used, giving a total capacity of 6000 men at each meal.7 (This is not refl ected in the existing fl oor plans.)

The building was turned over in 1969 to the historic Battery A, which spent an estimated $200,000 in extensive rehabilitation before its dedication as their Armory in 1971. The east wing of the building also for a time housed the Guard’s Kiefner Kane Museum, opened in 1974 by the men of Battery A to display their history and that of the Missouri National Guard.8

History:

6 1941 Real Property Card, NARA, RG 77.7 Jefferson Barracks Hub, 26 July 1941.8 “ Battery A Wins Red Tape Siege to Establish Its Home Armory.” St. Louis Globe Democrat, 4 July 1969; “Home of Battery A to be Home of Guard Museum.” St. Louis Globe Democrat, 14 October 1974.



Description:

Barracks (27) and Annex (27/270)Barracks and Annex1898 and 1932Barracks; Mess Hall and KitchenOffi cesMissouri National Guard

Rectangle with wingsMasonry exterior wallsEntries above grade with steps.

Building 27 is a large rectangular brick building, one of fi ve similar structures that face north on the southern border of the parade ground. The facade of the building is symmetrical with a fi ve-bay three-story center core fl anked by seven-bay two-story wings. The gabled roofl ine of the wings complements the hipped roof of the center core that contains a hipped-roof dormer on the north and south sides of the building. Covered wood porches run the length of both fl oors of each wing on the north facade. On the fi rst fl oor of the center core of the building, a small porch covers double entry doors (steel doors have replaced the original six-panel wood doors with transom). Wood stairs running from the fi rst fl oor of the porch to the second story are present on each wing on the north façade. Original wood porch ceilings are still present on the eastern side of the build-ing along with the original stone entry to the basement. The original wood porch rails had been replaced with the current steel ball and rod rails by 1941. Original wall vent openings have been bricked in.

On the second and third fl oors of the center sections four sash windows fl ank a larger center window. The arched third fl oor windows are distinctive from the rest of the windows in the building. The original win-dows have been replaced in Building 27, squaring off any original rounded windows.

On the interior of the building, the center core contains the original but somewhat altered entry hall staircase, offi ce spaces and bathrooms. Original interior columns still remain in the wings although some spaces have been sectioned off for offi ces. The east wing of the second fl oor still has the open look of the barracks squad room. Drop ceilings and linoleum have been added to the entire building except for the east side of the third fl oor which retains the most original features Original doors are still located in this section as well as in the entry between the center section and the west wing on the second fl oor. Building 27 is currently occupied by the Army National Guard.


Building 27 was one of three double cavalry barracks built in 1897-98. This building contin-ued in use as a barracks throughout Jefferson Barracks’ history as an active duty post. For a period of time until the construction of a freestanding post offi ce in 1909, the fi rst fl oor of the west wing was used as the depot’s postal facility.9

Annexes to house mess facilities were constructed at Buildings 25 and 26 in 1933 and to buildings 27, 28 and 29 in 1940.

Articles in the Jefferson Barracks Hub, the post newspaper after it became an Air Corps reception and training center, show that Building 27 was one of three used for a period of time in 1941 as auxiliary dining halls, although the main mess (Building 78) continued in service as well. Their annexes served as kitchens, while both fi rst and second fl oors were vacated as sleeping quarters and used to serve meals to men housed in a new tent area nearby.

A fl oor plan from mid-World War II shows both wings of the fi rst and second fl oors, as well as the third fl oor of the core section in use as “squad rooms.”10 These were occupied by troops of the Signal Corps, Detached Enlisted Men’s List, and Military Police.11 The fi rst and second fl oors of the core section were designated for use by NCOs and orderlies. The basement contained shower and latrine facilities, supply and laundry rooms and other service facilities.

After the National Guard took control of the property in 1950, they allowed the St. Louis Archdiocese to use Building 27 and its annex as a school operated by the Sisters of the Most Precious Blood, noting that most Guard units at the base would be deployed until mid-1954.12

History:

9 Letter from Post Quartermaster Ball to Quartermaster General, 27 January 1908. NARA, RG 92. 10 JB Floor Plans, ca. 1943-45. JB Real Property Offi ce.11 Jefferson Barracks Hub, 22 November 1941.12 Letter in NARA, KC Archives. Box 189, RG 270 – folder “Final Disposition.”



Description:

Building 48Quartermaster Storehouse1900StorageStorageMissouri National Guard

IrregularMasonry exterior wallsEntries above grade with steps.

Building 48, the former Quartermaster Storehouse, is architecturally one of the most important smaller buildings. The western section is two and a half stories, with a lunette in each of the north- and south-facing gable ends. To the east, a one and a half story wing has a seven-bay hip-roofed porch with wooden posts detailed with capital moldings on posts and metal hand railings. Beyond the porch, fi ve additional bays of the wing include a former door, now minus its entrance stairs. To the south end of the east wing, and offset by one bay, is a ten-bay one-story wing with a low-pitched roof. Its three side bays in-clude a concrete ramp to double doors formerly used as a loading dock. A squared rubble foundation rises to a water table incorporating the large stone lintels of the basement windows. Windows in brick portions of the building are recessed under segmental arches composed of three courses of headers. The building includes a basement. Despite much masonry patching, the building has a notable sense of historic authenticity.

Building 48 is currently used as a warehouse by the U.S. Army Reserve.


The original section of this building, a single story brick structure which followed QMGO Plan #116, was completed in 1895. This section is not a part of the extant building; it was razed in 1964. Before 1895, several Jefferson Barracks buildings were used by the Quartermaster Offi ce. A large build-ing (then #9) containing stores and some offi ces was located on the current parade ground to the northwest of the mess hall (present day Building 36). Almost directly opposite the mess hall, on the northern edge of the present parade ground, were three small cottages which housed the Quarter-master Sergeant, Forge and Wagonmaster, and the Commissary Sergeant (see Map 48-16).13 When Building 9 burned in 1894, an authorization for $7364 to construct a “quartermaster and subsistence storehouse” was included in the Military Posts appropriation for that year.14 A contract was let to the McCabe & Kelly fi rm in September 1894 and the brick building was completed by the following spring.

Although a separate “commissary storehouse” (now #65) was built later that year, the new quarter-master storehouse obviously did not meet the needs of the refurbished post. Capt. Thomas Downs, Assistant Quartermaster, reported to Washington that “one of the most important needs of this Post is a Quartermaster’s Storehouse large enough to contain all stores necessary to be carried at a post of this size, including clothing, tentage, equipage, miscellaneous articles usually kept in stock for repairs to public buildings, etc., etc.” The report went on to note that the post’s function as a recruit-ing depot created a much larger than usual turnover of stores of clothing.15

An authorization for $13,000 to expand the building was included in a total authorization of $75,000 approved by the Secretary of War in October 1899. Work was begun in June of 1900 on a second structure identical to the fi rst. The two were then joined by a two story central core. The combined dimensions were then given as “central building 48’x 32’; two wings each 114’x 32’.”16 With the ad-dition, the building’s capacity was estimated as “supplies and clothing for a regiment for one year.” From building footprints on a map of 1897, it can be determined that the original structure became the western wing of the building.

The building was further enlarged during the construction for World War I with the addition of another single story wing at the southeast corner. This segment, a brick structure completed in 1919, was originally numbered separately as #223, but was listed as part of #48 in the real property records beginning in 1940.

During World War II the building was used as an offi ce for the post exchange when the main PX was located in #36. The west wing of the building, the oldest segment, was razed in 1964.17

History:

13 “Plan of Jefferson Barracks, Missouri.” Map ca. 1890. 14 Report of the Quartermaster-General, 1895-96, p. 22. Published volume at Military History Institute.15 Letter to the Quartermaster General from Thomas Downs, 1 June 1899. NARA RG 92. 16 United States War Department. “A Letter from the Secretary of War, Transmitting Results of Preliminary Examinations and Surveys of Sites for Military Posts.” 20 May, 1902. Page 307. Published volume at Mili-tary History Institute. 17 Globe Democrat photograph of 3 January 1964. Mercantile Library collection.



Description:

Building 65Subsistence Storehouse1900WarehouseOffi cesMissouri National Guard

RectangularMasonry exterior wallsEntries above grade with steps.

Building 65 is long and narrow, eleven bays by two, with upstairs windows at the ends. There is a two-window gabled dormer over the primary entrance, which is the third bay from the western end on the north façade. A gabled porch set on concrete steps shelters the steel double doors; the outline of the bricked-up original door remains visible to the right. Original six over six windows have been replaced by four over four. Evidence of the iron grilles that once covered the windows can be seen set into the brick.

The interior of the building has been completely remodeled for offi ce use with vinyl tile fl oors, drywall walls, and lay-in ceilings. No historic fi nishes remain.


Building 65 was one of several buildings completed in the mid-1890s to handle the supply needs of the post. Building 65, sited next to the quartermaster storehouse, was completed in November 1896, at a cost of $8159.18 Building 65 continued to be used as a supply center for the length of Jefferson Barracks’s service as a U.S. Army post. Among uses of the build-ing after the National Guard assumed ownership of the post were service as a dining hall for the Army National Guard and as an American Legion Post. Although licensed to the Army National Guard, the building in recent years has been occupied by the Air Guard civil engineering, environmental and real property offi ces for the post. The Air Guard sub-stantially renovated the building in the 1990s, making both fl oors available for offi ce space.

History:

18 QMGO contract record 1885-1899, NARA, RG 92, Entry 107, vol. 1 of 10



Description:

Building 66Band Barracks1896, 1910Band BarracksOffi cesMissouri National Guard

SquareMasonry exterior wallsEntries above grade with steps.

Building 66, which follows Quartermaster Plan #61-B, is smaller and more residential in character than the rest of the row of barracks in which it sits. The building is two and a half stories high, with a corniced, hipped roof. The front porch has wood posts and re-turns (not original). Its three bays stretch across the front at the fi rst fl oor level, but on the second fl oor, the porch has only one bay under a hipped roof. Much of the original wood detailing has been replaced on the porches and under the gutters. Four unequal bays on the side are extended by an offset rear wing addition that was completed in 1910. The end chimneys rise inside the cornice to bisect pedimented dormers, an unusual and sophisti-cated feature. Segmental arched windows are two over two as indicated in the original plan. Steel doors have replaced the original six panel wood doors with transoms.

On the interior of Building 66 an added wall encloses the existing staircase in the en-try hall, either obscuring or the replacing the newel and spindles shown in the original plan. Dropped ceilings have been added on the fi rst and second fl oors and the basement and wood paneling covers the walls on the fi rst fl oor. The original dormitory spaces on the fi rst and second fl oors have been converted for use as offi ces. Building 66 currently houses the Military Funeral Honors Program relocated here from Building 96 in 2002.


Building 66 was constructed in 1896 at a cost of $7418 to house the post’s band, at a time when the Third Cavalry was in command of Jefferson Barracks. The building was enlarged in 1910 with the construction of a two-story brick addition with a stone and concrete foundation and slate roof. The cost of the completed 30’10” x 38’8” structure was $11,087. Its basement contained new toilet and laundry facilities for band members. These had previously been on the fi rst fl oor of the original building.19

The 1930 census showed 25 members of the Sixth Infantry Band resident in Building 66, and the 1941 property card still designates it as “band barracks,” so apparently the traditional use continued up till World War II. Comparison of the 1941 fl oor plan with that later in the war suggests that several of the rooms used for band purposes (particularly a large rehearsal hall) and second fl oor quarters had been subdivided for use as offi ce space. The building underwent extensive renovation in 1976, when the Missouri National Guard spent $99,194 to convert it for use as an emergency operations center. The building underwent further renovation in the 1990s when it was used as offi ce space by the Defense Energy Fuels organization.

History:

19 Report from JB Quartermaster Ford, 12 April 1911. NARA, RG 92.

Appendix B

Development Strategy

Appendix B-Development Strategy

Jefferson Barracks ca 1965

The old cannon pictured in the photograph came from the Spanish battleship Oquendo which was sunk in Santiago Bay on 3 July 1898. It supposedly was captured by General Shafter's troops when they took Santiago. It got to New York on 13 January 1899, and was presented to the mayor of St. Louis sometime later. It came to Jefferson Barracks in August 1899. (Source: Marc Kollbaum, St. Louis County Parks)

(Source: St. Louis County Public Library.)

JEFFERSON BARRACKS MASTER PLAN Appendix B - 1

Table of Contents I. Introduction .................................................................................................................................... 4 II. Jefferson Barracks Demand Drivers........................................................................................... 6

St. Louis Veterans Affairs Medical Center (VAMC)................................................................. 6 St. Louis County Parks ................................................................................................................. 6 Jefferson Barracks National Cemetery ....................................................................................... 8 Jefferson Barracks Air National Guard (ANG) Station............................................................ 9 Missouri Civil War Museum ..................................................................................................... 10 Citizen Soldier Museum............................................................................................................. 11 The River City Casino................................................................................................................. 11

III. Economic Impact Approach ..................................................................................................... 14 Baseline Current Impact Discussion......................................................................................... 15

Appendix B: Development Strategy – ERA / AECOM

Appendix B - 2 JEFFERSON BARRACKS MASTER PLAN

Construction Period Impacts ..................................................................................................... 17

End State Visitor Impact Discussion......................................................................................... 21 IV. Future Jefferson Barracks Market Position and Community Benefit .............................. 25

Local Market Population Change ............................................................................................. 26 Current Support Amenities ....................................................................................................... 31 Visitor Market Discussion.......................................................................................................... 33 Competitive Attractions ............................................................................................................. 37 Future Support Amenity Implications ..................................................................................... 40

V. Potential Funding Support and Organizational Structure................................................... 42 Best Practices................................................................................................................................ 42 Organizational Structures .......................................................................................................... 43 Funding Options ......................................................................................................................... 43 Museum & Cultural Districts .................................................................................................... 45 Historical Sites & Attractions .................................................................................................... 52 Other Military Museums............................................................................................................ 71 Case Study Implications............................................................................................................. 75

VI. Appendix I – Overview of Transit Services .......................................................................... 78

Index of Tables Table 1: Jefferson Barracks Estimated Visitation ..................................................................................12 Table 2: Estimated Total Operating Expenses.......................................................................................12 Table 3: Estimated Capital Expenses......................................................................................................12 Table 4: Estimated FTE Positions............................................................................................................13 Table 5: Estimated Employment & Wages Expenses ...........................................................................13 Table 6: Estimated Baseline Operating Expenses .................................................................................15 Table 7: Estimated Baseline Economic Impacts of JB Operations ......................................................15 Table 8: Estimated Economic Impacts of JB Operations: Earnings and Employment.....................16 Table 9: Indirect Employment Break-Down by Sector – Operations Related...................................16 Table 10: Estimated Economic Impacts of Construction Expenditures.............................................17 Table 11: Estimated Economic Impacts of JB Construction: Earnings and Employment ...............18 Table 12: Indirect Employment Break-Down by Sector – Construction Related .............................18


Table 13: Estimated Operational Economic Impacts Post Expansion................................................19 Table 14: Estimated Economic Impact, Post Expansion, Earnings and Employment .....................20 Table 15: Indirect Employment Break-Down by Sector – Post Expansion Operations Related.....20 Table 16: Estimated Visitor Impact Benefit, End State.........................................................................24 Table 17: Estimated Economic Impact, Post Expansion, Earnings and Employment .....................24 Table 18: Traffic Counts Near JB Study Area, 2008 ..............................................................................25 Table 19: Population Change 1990-2008.................................................................................................26 Table 20: Median Age / Avg. Household Size .....................................................................................28 Table 21: Estimated Educational Attainment, 2008 (25+yrs) ..............................................................30 Table 22: Employment by Occupation, 2008 .........................................................................................30 Table 23: Overnight Hotel Visitors .........................................................................................................36 Table 24: Total Overnight Market...........................................................................................................36 Table 25: Reported Attendance at Selected Visitor Attractions in the St. Louis Area .....................38 Table 26: Summary of Cultural, Historic, and Museum Districts ......................................................48 Table 27: Summary of State-Level Cultural Districts ...........................................................................49 Table 28: Summary of Cultural, Historic, and Museum Organizations............................................50 Table 29: Summary of Historical Sites and Attractions .......................................................................53 Table 30: National Park Service Impacts................................................................................................77 Table 31: Summary of Transportation Case Studies ............................................................................87

Index of Figures Figure 1: Trade Area Map........................................................................................................................27 Figure 2: Median Household Income Trends, 1989-2008 ....................................................................28 Figure 3: Estimated Population by Age, 2008 .......................................................................................29 Figure 4: Support Amenities in the Lemay Area ..................................................................................32 Figure 5: Lambert-St. Louis International Airport Total Passengers .................................................35


Limiting Conditions Every reasonable effort has been made to ensure that the data contained in this report are accurate as of the date of this study; however, factors exist that are outside the control of Economics Research Associates, an AECOM company (ERA) and that may affect the estimates and/or projections noted herein. This study is based on estimates, assumptions and other information developed by Economics Research Associates from its independent research effort, general knowledge of the industry, and information provided by and consultations with the client and the client's representatives. No responsibility is assumed for inaccuracies in reporting by the client, the client's agent and representatives, or any other data source used in preparing or presenting this study.

This report is based on information that was current as of November, 2009 and Economics Research Associates has not undertaken any update of its research effort since such date.

Because future events and circumstances, many of which are not known as of the date of this study, may affect the estimates contained therein, no warranty or representation is made by Economics Research Associates that any of the projected values or results contained in this study will actually be achieved.

Possession of this study does not carry with it the right of publication thereof or to use the name of "Economics Research Associates" in any manner without first obtaining the prior written consent of Economics Research Associates. No abstracting, excerpting or summarization of this study may be made without first obtaining the prior written consent of Economics Research Associates. This report is not to be used in conjunction with any public or private offering of securities, debt, equity, or other similar purpose where it may be relied upon to any degree by any person other than the client, nor is any third party entitled to rely upon this report, without first obtaining the prior written consent of Economics Research Associates. This study may not be used for purposes other than that for which it is prepared or for which prior written consent has first been obtained from Economics Research Associates.

This study is qualified in its entirety by, and should be considered in light of, these limitations, conditions and considerations.


I. Introduction

ERA|AECOM was engaged as a member of the Woolpert Team of professional planning, design, economic feasibility, and public engagement consultants, to assist the St. Louis County Economic Council (SLCEC) and Lemay / Jefferson Barracks stakeholders in the completion of the Jefferson Barracks Planning Study. The overarching objective was the preparation of a plan for the creation of a historic district bringing together existing Jefferson Barracks entities and interests to form a cohesive destination which would improve economic development opportunities in the Lemay / Mehlville area, as well as St. Louis County as a whole.

Approach & Data Sources

The Team’s primary task was to provide an assessment of the market for Jefferson Barracks within the context of the St. Louis region. Specific tasks included: identifying current site demand drivers and evaluating them in terms of current utilization trends and impacts; summarizing resident markets (including support amenities) and tourist markets (including regional attractions); providing case studies of museum districts and historic attractions; summarizing the current and future economic (financial and employment) impact of Jefferson Barracks; and providing recommendations for redevelopment opportunities, operational synergies, and investment strategies for priority projects.

This report draws on several sources, including real estate, demographic, and economic data reported from the U.S. government, planning organizations, and private data providers. Second, ERA relied on a series of stakeholder interviews and surveys including the Air National Guard, the Jefferson Barracks National Cemetery, the County Parks Department, the Civil War and Citizen Soldier Museums, as well as management of museum districts and historic attractions. Finally, ERA incorporates national economic and attractions trends gleaned from case studies and our experience with similar projects.

For the purposes of this report, “Jefferson Barracks” (JB) refers to the combined campus including the following independent entities: Veteran’s Affairs Medical Center-Jefferson Barracks Division (VAMC), Jefferson Barracks National Cemetery, Jefferson Barracks Air National Guard Station (all reporting divisions), Sylvan Springs and Jefferson Barracks St. Louis County Parks, and the proposed Missouri Civil War and Citizen Soldier Museums.


II. Jefferson Barracks Demand Drivers

This section is an exploration of the broader Jefferson Barracks Campus (JB) and each entity’s financial capabilities, as well as the potential sources and means of generating new revenue for the development, maintenance, and operations of Jefferson Barracks assets. Each entity located at Jefferson Barracks is described below in terms of current visitation, revenue, and other operating factors. These factors are used to estimate economic benefits for Lemay, St. Louis County, and the larger metropolitan area.

St. Louis Veterans Affairs Medical Center (VAMC)

The St. Louis VAMC is a two-division facility providing inpatient and ambulatory care in medicine, surgery, psychiatry, neurology, and rehabilitation to residents of east central Missouri and southwestern Illinois. The John Cochran Division is located in midtown St. Louis and has approximately 120 beds. The Jefferson Barracks Division has approximately 230 beds and provides psychiatric treatment, regional spinal cord injury treatment, nursing care, geriatric health care, rehabilitation services, and a rehabilitation program for homeless veterans. The Jefferson Barracks Division has an estimated annual operating budget of more than $160 million, with 1,260 full time equivalent (FTE) staff (including nurses and physicians) that treated an estimated 370,000 patients (including inpatient and outpatient visits) in 2007.

Federal stimulus funding will help support planned capital projects at Jefferson Barracks including adding an emergency power system to the kitchen, replacing electrical power infrastructure, and upgrading the fire sprinkler system. In addition, construction on a $230 million redevelopment of 14 existing buildings and construction of five new buildings at Jefferson Barracks (including an administration building, warehouse, clinics building, tenants building, and a multi-purpose facility with a new chapel, pool, and physical therapy unit) is scheduled to begin in early 2011. The project will add new clinical space and new patient rooms, and 30 to 40 doctors, nurses and other medical professionals will be hired to staff the new space. The new facilities will total about 210,000 square feet, according to Keith Repko, chief engineer for the medical center. Part of the VAMC redevelopment will also include the conveyance of excess ground to the Jefferson Barracks National Cemetery.

St. Louis County Parks

Approximately 1 million people visit Jefferson Barracks and Sylvan Springs Parks annually, according to the St. Louis County Parks Department. Maintenance and landscaping for both parks is performed by St Louis County Parks Maintenance staff. Revenues for 2008


were approximately $71,550, with expenses of approximately $294,400. The following paragraphs summarize information related to each park element:

Jefferson Barracks Park – Jefferson Barracks was established in 1826 as the country’s first

“Infantry School of Practice” and served as a U.S. Army post installation until 1946 for

gathering troops and supplies bound for service during the Mexican War, Civil War,

various Indian conflicts, Spanish-American War, Philippine War, World War I, and World

War II. Jefferson Barracks also served as the first Army Air Corps basic training site.

Today, the Park attracts 845,200 visitors annually to its historic area, field archery, lighted

ball field, 2.7-mile paved trail, cork ball field, and St. Louis County Veterans Memorial

Amphitheater. The museum buildings were part of the original section built in the 1850s.

Jefferson Barracks Park has 7 fulltime and 3 part time maintenance positions; (3 full time

positions are currently vacant) and 2 full time and one part time history positions. Jefferson

Barracks Park recently completed $14,000 in capital projects including constructing a shelter

over the concession site, installing lights in the amphitheater parking lot, and replacing a

retaining wall, and has another $15,000 on hand to replace sidewalks, improve handicapped

access, and replace lighting fixtures in 2009.

Sylvan Springs Park – Originally known as Rock Springs, the first bivouac at Jefferson

Barracks was established here in 1826 by four companies of the First U.S. Infantry Regiment

under the command of Major Stephen Kearny. This Sylvan Springs portion of the Barracks

remained largely unused until about 1940, when it was improved with stone retaining walls

and terraces, an amphitheater, a dance floor, and baseball and football fields. In 1950, the

property was conveyed to the County from the Federal Government and has been a popular

site for concerts, picnics, and sporting events. The Park currently has 3 fulltime and 2 part

time maintenance positions and attracts approximately 162,000 visitors annually.

Approximately $125,000 of capital projects are underway at Sylvan Springs Park including a

new skate park facility and repairing the spray pool.

Jefferson Barracks Historical Site – In 2003, approximately 36,335 people visited the

Jefferson Barracks historical buildings (Powder Magazine: 21,516; Ordnance Room: 2,465;

Laborers House: 12,354), and 87,580 people used Jefferson Barracks for meetings, rentals,


field trips, tours, festivals, and concerts (The amphitheater in the historic section of the park

has a stage and grass seating area that will accommodate up to 5,000 people). In addition to

the existing historical structures at Jefferson Barracks, the Jefferson Barracks site is

anticipated to be the future home of two museums, the Missouri Civil War Museum and the

Citizen Soldier Museum (profiled later in this section). Both museums are slated to occupy

existing buildings on the site that will be renovated for the purpose of serving as museum

space.

Jefferson Barracks National Cemetery

While the National Department of Veteran Affairs (VA) does not regularly track detailed visitor information (such as origin), the 125 national cemeteries and 33 soldiers’ lots and monument sites attracted more than 7.6 million visitors in fiscal year 2008. Historically, approximately 12 percent of US veterans have chosen burial in VA national and state veteran cemeteries; this percentage is expected to increase as new veteran cemeteries open. Annual interments in VA national cemeteries have increased from 36,400 in 1973 to nearly 100,200 in 2007.

One of the National VA Cemetery Administration’s oldest interment sites, the 331-acre Jefferson Barracks National Cemetery is also among the 20 busiest National VA Cemeteries. In 2009, an estimated 235,500 people visited the Cemetery based on estimates from management. Peak visitation occurs on Memorial Day, which typically draws 25,000-50,000 depending on the weather. Monuments and memorials include the Fort Bellefontaine Monument, Minnesota Monument, 56th U.S. Colored Troops Infantry Monument, Unknown Dead of 1861-65 Monument, the 35th Division Association decorative water fountain, Memorial to the Confederate Dead (1861-1865), Memorial to the Sons of Confederate Veterans, Memorial Chapel, Memorial to the Union Dead, Daughters of Union Veterans of the Civil War, Blue Star Memorial Marker, Memorial honoring women who served in Navy related service,


Merchant Marine Seamen and Navy Armed Guard Memorial, Khe Sanh Vietnam Veterans Memorial, The 3rd Army Infantry and the Marines Memorial, Carillon Bell Tower honoring American veterans, the U.S. Submarine Veteran’s Memorial stone, the 82nd Airborne Infantry Division memorial, and the 4th Marine Division memorial.

The Cemetery’s total 2009 budget including salary and wage expenses is $4.9 million. The Cemetery has 53 employees on station and is authorized to hire 4 additional staff at a later date; employment and wage expenses are currently estimated at $3.2 million. Additional operating expenses include $628,000 in contracted services (architectural, engineering, and landscape maintenance), $630,000 in general equipment and supplies, and $474,000 in office equipment and supplies. Capital projects in the amount of $975,000 are scheduled to be completed by the end of 2009, including resurfacing and rebuilding roads, replacing siding on the chapel, and the construction of two storage sheds.

Jefferson Barracks Air National Guard (ANG) Station

The Missouri Air National Guard has two units at Jefferson Barracks ANG Station: HQ 157th Air Operations Group and 218th Engineering Installation Squadron, which support 41 full time and 255 part time personnel (current FTE of approximately 150 personnel). Employment is estimated to increase in FY10 by 30 full time and 113 part time positions (future FTE of 250 personnel) as part of the Air Force transformation to an Agile Combat Support (ACS) system.

The number of soldiers currently using Jefferson Barracks varies according to training needs and deployment status; on average, approximately 350 ANG members, 400 ARNG members, and about 100 USAR members typically train at the site during a given month on weekends, and for two-week periods spread over the year for an estimated 73,100 total in training annually at Jefferson Barracks. Soldiers and staff use private vehicles to and from Jefferson Barracks (carpooling is not common) and units typically stay off-base at night. Training includes classroom work as well as basic skills such as navigation, traffic control, chemical decontamination training, weapons handling, and basic map training. No live firing occurs at Jefferson Barracks.

In 2006, the Army completed plans for a new $25-million-dollar Reserve Forces Training Center for Jefferson Barracks unit training activities; this building is due to be completed in February 2010. The new center will be able to support an anticipated 1,600 personnel for weekend training activities, including the existing 850 personnel who already train at the installation. The ANG operating budget is approximately $5.4 million, 81% of which ($4.4 million) is designated for personnel expenses. Additional expenses include professional


services and state employees ($482,060), the repair/replacement of equipment ($211,000), general maintenance ($202,500), utilities ($113,640), food and beverages ($14,400), office supplies ($14,207), and communications equipment ($10,000). Capital investments include $25 million toward the Reserve Forces Training Center that is due to be completed in February 2010. There are proposals to invest an additional $14 million to renovate other existing ANG facilities; this budget would be funded through federal stimulus dollars, if approved.

Missouri Civil War Museum

The Missouri Civil War Museum will be located in the historic Post Gymnasium building (12,300 sq. ft.) and Exchange building (4,600 sq. ft.). The Gymnasium building will be renovated for exhibits, while the Exchange building will be used as a research center and library. Major exhibits will focus on Missouri’s story of the Civil War, including the Border Wars leading up to the Civil War, the war itself, and lost chapters of the story (women, orphans, etc.).

Renovation costs to date have totaled about $1 million and museum contacts indicate that another $500,000 is needed to finish building renovations and set up exhibitory. They anticipate the museum to open in time for the sesquicentennial anniversary of the Civil War (April 2011). Museum contacts estimate that first year attendance could approach 75,000 with 50,000 in stabilized years. They anticipate sizeable school group attendance as well, targeting 5th and 8th graders in the area. School group attendance estimates are not available, however with almost 150,000 students in St. Louis County (about 11,000 per grade) and if, as an example, the museum draws 10% of county 5th and 8th graders, it would attract a little over 2,000 student visits annually (museum contacts believe they will be able to attract more students than this).

Admission rates are currently anticipated to be about $5-$6 for adult general admission and about $3 for students. Museum representatives believe that they will be able to cover their operating expenses with general admission revenues. In addition, they anticipate accommodating a 600-800 SF retail space.


Citizen Soldier Museum

The Citizen Soldier Museum is a new museum that is being spearheaded by a group called the Jefferson Barracks Heritage Foundation. This foundation has opened a temporary museum in the historic Red Cross Building (Building 96 located at 96 Worth Road), with about 4,000 SF of space. This building includes a reception area, conference room and exhibit spaces and will be used primarily for meetings and fundraising. In addition to the funding being used to renovate the building, another $750,000 is anticipated to be invested in exhibits.

The foundation is working toward the renovation of historic Building 27 (one of the original barracks buildings, covering about 19,760 SF), which will become the permanent home of the museum. It will be another year and a half before the organization will be able to take over the building. Initial thoughts are that about 80% of the building will be used as exhibit space. Once this larger facility opens, Building 96 may be used as a visitor welcome center, or administrative space for the foundation.

Exhibits in the museum’s permanent home will explore how the military has been portrayed in the US, with a focus on the role of the citizen soldier. The Building 27 renovation and conversion to museum space was initially anticipated to cost $12-$15 million, though likely it will be higher. Museum contacts anticipate that school groups and bus tour groups will be primary target markets. Currently, the organization has a budget of approximately $96,000 annually with one paid staff, which is supported through public and private contributions. An operating budget for Building 27 is yet to be determined and there are no attendance estimates.

The River City Casino

In addition to the identified activities generated by entities located at JB, the construction and operation of the River City Casino will have dramatic incremental impacts on Lemay and the South County Region. The casino program includes a phase I construction budget of $375 million, and a phase II construction budget of $75 million. Total permanent employment is estimated at 2,000 positions at the completion of phase II, when overall visitation is expected to exceed 4 million visits. The first phase is expected to include a 90,000-square-foot casino, along with restaurants such as Jeff Ruby’s Steak house, and open in 2010, with the second phase soon to follow. The casino project is linked to a series of road improvements to improve access from I-55 into the old Lemay area and the Casino along the River Des Peres. These improvements are expected to provide a boost to economic development activities in the Lemay area.


The River City Casino will generate significant impacts for the region which will be significantly greater than the combined impact of VA, ANG, cultural, and recreational activities at Jefferson Barracks. The order of magnitude construction benefit of the casino is estimated to be at least 36% greater than the combined construction benefit of JB. From an operational standpoint, casino employment will also be significantly larger than what is expected at JB to be generated by capital projects at the VA and ANG. For these reasons, the analysis will speak to the benefits of the casino separately, for perspective.

The following tables summarize key direct impacts that will be used to estimate broader community benefits: Table 1: Jefferson Barracks Estimated Visitation

Entity Visitation VAMC-Jefferson Barracks Division1 369,000 JB + Sylvan Springs County Parks2 1,007,000 National VA Cemetery 215,000 Air National Guard Station 74,000 Museums 0 Total 1,665,000 1 Incl inpatient, outpatient, and treatments, based on share of VAMC beds 2 Incl historic buildings, meetings, rentals, field trips, tours, special events, etc. Sources: Facilities; ERA Survey (06/2009)

Table 2: Estimated Total Operating Expenses Entity Operating Expenses VAMC-Jefferson Barracks Division1 $164,450,000 JB + Sylvan Springs County Parks $294,000 National VA Cemetery $4,948,000 Air National Guard Station $5,444,000 Museums $96,000 Total $175,232,000 1 Based on share of VAMC beds Sources: Facilities; ERA Survey (06/2009)

Table 3: Estimated Capital Expenses Entity Capital Expenses VAMC-Jefferson Barracks Division $230,000,000 JB + Sylvan Springs County Parks $154,000 National VA Cemetery $2,598,000 Air National Guard Station $39,000,000 Museums $17,550,000 Total $289,302,000 Sources: Facilities; ERA Survey (06/2009)


Table 4: Estimated FTE Positions Entity FTE VAMC-Jefferson Barracks Division1 1,257 Jefferson Barracks County Parks 15 National VA Cemetery 53 Air National Guard Station 169 Museums – Current 1 Total 1,495 1 Based on share of VAMC beds Sources: Facilities; ERA Survey (06/2009)

Table 5: Estimated Employment & Wages Expenses Entity Personnel Expenses VAMC-Jefferson Barracks Division1 $122,590,000 JB + Sylvan Springs County Parks $229,000 National VA Cemetery $3,216,000 Air National Guard Station $4,396,000 Museums $72,000 Total $130,503,000 1 Based on share of VAMC beds Sources: Facilities; ERA Survey (06/2009)


III. Economic Impact Approach

The Jefferson Barracks campus is a major contributor to the region’s economy, with ongoing operating expenditures supporting County and metro-area businesses. Organizations based at JB also invest in significant physical building and infrastructure improvements each year. Several categories of expenditures comprise Jefferson Barracks direct spending in the region, including operations of onsite facilities, annual capital investments to maintain buildings, and build new buildings. In addition, these facilities also generate visitor traffic, which also benefits the local community and region. All of these types of spending lead to further indirect and induced spending as funds circulate throughout St. Louis County and the St. Louis Metropolitan Statistical Area, which includes the following counties: Bond, IL; Calhoun, IL; Clinton, IL; Jersey, IL; Macoupin, IL; Madison, IL; Monroe, IL; St. Clair, IL; Franklin, MO; Jefferson, MO; Lincoln, MO; St. Charles, MO; St. Louis, MO; Warren, MO; Washington, MO; and the City of St. Louis, MO.

The indirect and induced expenditures are generated by applying the Department of Commerce, Bureau of Economic Analysis, Regional Input-Output Modeling System (RIMS II) multipliers, which are reported in terms of total economic output, earnings, and employment. The impact approach is built around four future timeframes, as defined below:

Baseline Existing: Includes current employment and operations at the noted JB facilities

Construction Period: Includes the benefit of construction related to the VA over the next five

years.

Post Construction – Reflects the benefit of JB campus employment once the VA and ANG

facilities are completed, along with Phase 1 of the museum campus plan.

End State – Reflects the long-term opportunity 15 to 20 years in the future, with the built-out

museum campus, along with the VA and ANG facilities

The above time periods extend well into the future. To reflect a conservative approach, the impact analysis treats each future time period in current dollar terms; i.e., looking at the end state as if it happened by December 31, 2009. The analysis also speaks in general terms about the related benefit of the River City Casino, which is under construction in Lemay. Given the order of magnitude associated with the casino (with the potential to employ 2,000 people) it is being discussed separately in the analysis.


Baseline Current Impact Discussion

The survey approach identified a baseline current operational spending level of more than $175 million, which includes among many other components, wages and salaries, supplies, maintenance, and any services related to ongoing operations. Annual spending for wages and salaries are estimated to have made up a significant share (75%) of these expenditures.

Table 6: Estimated Baseline Operating Expenses

VAMC-Jefferson Barracks Division1 $164,450,000JB + Sylvan Springs County Parks $294,000National VA Cemetery $4,948,000Air National Guard Station $5,444,000Museums $96,000Total $175,232,0001 Based on share of VAMC bedsSources: Facilities; ERA Survey (06/2009)

Combined, JB’s baseline operating expenditures generate nearly $400 million in annual economic activity across the metropolitan area, as shown below.

Table 7: Estimated Baseline Economic Impacts of JB Operations

Direct Expenditures

Indirect & Induced Expenditures Total Output

JB Total $175,232,000 $132,973,000 $308,200,000VAMC $164,450,000 $126,561,000 $291,011,000JB Parks $294,000 $254,000 $548,000JB Cemetery $4,948,000 $2,645,000 $7,593,000ANG $5,444,000 $3,430,000 $8,874,000Museums $96,000 $83,000 $179,000

JB Total $175,232,000 $221,941,000 $397,200,000VAMC $164,450,000 $210,956,000 $375,406,000JB Parks $294,000 $396,000 $690,000JB Cemetery $4,948,000 $4,633,000 $9,581,000ANG $5,444,000 $5,827,000 $11,271,000Museums $96,000 $129,000 $225,000Notes: May not sum to total due to rounding.Total Economic Output includes direct, indirect, and induced spending.

St. Louis County

St. Louis MSA

As the following table shows, the Metropolitan Area impact of Jefferson Barracks impact extends well beyond the 1,495 employed directly, generating (directly, indirectly, and induced) nearly 2,900 jobs and $235 million in earnings.


Table 8: Estimated Economic Impacts of JB Operations: Earnings and Employment

Total Employment Total Earnings

JB Total 2,380 $194,315,000

JB Total 2,880 $235,241,000Notes: May not sum to total due to rounding.Total Earnings includes direct, indirect, and induced earnings.Total Employment includes direct, indirect, and induced employment.

St. Louis County

St. Louis MSA

As near term employment growth at Jefferson Barracks is partially attributable to broader military realignment and closure (BRAC) decisions that have been made over the past several years, attention was focused on the industry sectors that currently benefit from direct employment at Jefferson Barracks. Looking only at indirect employment generated by operations (estimated at about 885 positions across St. Louis County), the following table summarizes key industry sectors that would account for the majority (about 65%) of estimated indirect activity.

Table 9: Indirect Employment Break-Down by Sector – Current Operations Related

Indirect JobsIndustry Share JobsReal estate establishments 15.4% 136Food services and drinking places 7.6% 67Employment services 5.3% 47Private hospitals 3.7% 33Wholesale trade businesses 3.6% 32Veterinary services 3.1% 27Offices of physicians- dentists- and other h 3.0% 26Medical and diagnostic labs and outpatien 2.6% 23Retail Stores - General merchandise 2.3% 20Nursing and residential care facilities 2.1% 19Retail Stores - Food and beverage 2.1% 19Services to buildings and dwellings 2.1% 19Management of companies and enterprise 2.0% 18Securities- commodity contracts- investme 1.8% 16Retail Stores - Motor vehicle and parts 1.4% 13Retail Stores - Clothing and clothing acces 1.3% 12Insurance carriers 1.3% 12Individual and family services 1.3% 12Private household operations 1.3% 11Accounting- tax preparation- bookkeeping- 1.2% 10Private junior colleges- colleges- universiti 1.1% 10

Key sectors that benefit from operations spending include real estate services, food services and drinking places, employment services, and private hospitals.


Construction Period Impacts

Construction associated with the ANG, VA, and Museum operations over the next several years at JB will generate incremental construction period impacts for the community and region. Current and planned capital expenditures total approximately $275 million, which generates an estimated total economic impact (direct, indirect, and induced spending) of nearly $640 million across the metropolitan area. ERA stresses that this investment will not go on for ever, however, with key construction projects underway by the VA and military that will be completed within five years.

Table 10: Estimated Economic Impacts of Construction Period Expenditures

Direct Expenditures


JB Total $275,302,000 $199,153,000 $474,455,000VAMC $230,000,000 $166,382,000 $396,382,000JB Parks $154,000 $111,000 $265,000JB Cemetery $2,598,000 $1,879,000 $4,477,000ANG $25,000,000 $18,085,000 $43,085,000Museums $17,550,000 $12,696,000 $30,246,000

JB Total $275,302,000 $364,088,000 $639,390,000VAMC $230,000,000 $304,175,000 $534,175,000JB Parks $154,000 $204,000 $358,000JB Cemetery $2,598,000 $3,436,000 $6,034,000ANG $25,000,000 $33,063,000 $58,063,000Museums $17,550,000 $23,210,000 $40,760,000Notes: May not sum to total due to rounding.Total Economic Output includes direct, indirect, and induced spending.

St. Louis County

St. Louis MSA

The above construction period investment factors will also support employment across the region over the next several years. On a cumulative basis, the analysis identified a total of up to 5,280 jobs supported across the metropolitan area, along with more than $206 million in wages. As before, since these are construction related impacts, there will be variation in benefits on an annual basis, and the overall impact will be temporary.


Table 11: Estimated Economic Impacts of JB Construction: Earnings and Employment Total Employment Total Earnings

JB Total 2,660 $95,227,000


St. Louis County

St. Louis MSA

For perspective, the phase I construction budget for the River City Casino is estimated at $375 million, which is 36% higher than planned construction investment for the noted JB program. From this perspective, construction of the River City Casino would be expected to support total countywide employment in the 3,600 job range, over the course of the construction period. Similarly on the construction side, St. Louis County is expected to see short term employment impacts in an array of industry sectors. The indirect jobs benefit attributed to JB construction across the county, estimated at about 1,120 positions, would benefit an array of industry sectors, the top three of which include architecture and engineering, food services and drinking places, real estate services, and wholesale services. As with operations, the table below only covers the top 65% of indirect employment benefits broken down by sector.

Table 12: Indirect Employment Break-Down by Sector – Construction Period Related

Indirect JobsIndustry Share JobsArchitectural- engineering- and related ser 10.9% 122Food services and drinking places 8.2% 91Real estate establishments 5.8% 64Wholesale trade businesses 5.5% 61Private hospitals 3.7% 42Offices of physicians- dentists- and other h 3.1% 35Retail Stores - General merchandise 2.6% 29Retail Stores - Food and beverage 2.4% 27Employment services 2.4% 27Nursing and residential care facilities 2.3% 26Civic- social- professional- and similar org 1.9% 21Transport by truck 1.8% 20Securities- commodity contracts- investme 1.8% 20Retail Stores - Motor vehicle and parts 1.7% 19Services to buildings and dwellings 1.6% 18Retail Stores - Clothing and clothing acces 1.5% 17Monetary authorities and depository credit 1.5% 17Individual and family services 1.4% 16Private household operations 1.4% 15Automotive repair and maintenance- exce 1.3% 15Legal services 1.2% 14


Post Expansion Operational Impact

Both the VA and Military functions at Jefferson Barracks are in the midst of redevelopment and expansion efforts which will increase direct employment levels within five years. Interviews suggested the following increases are likely:

Department of Veterans Affairs: 30 to 40 new positions

Air National Guard Station: 80 to 90 new positions, plus temporary weekend training activity

Opening of the Citizen Soldier and Civil War Museums

When combined, there is an expectation that total employment will grow from 1,495 to 1,639 positions at Jefferson Barracks. While indirect impacts associated with the VAMC expansion are expected to be modest (about 5% growth), expansion of the Air National Guard operation is expected to be significant, with an increase in positions from about 170 to 255, which is a 50% increase over current levels. In addition to these modest growth factors, the River City Casino will significantly alter the local market, adding up to a reported 2,000 operating jobs (with completion of phase II) and generating significant visitation. The following table summarizes estimated post expansion annual operating benefits for installations at Jefferson Barracks in current 2009 dollars.

Table 13: Estimated Operational Economic Impacts Post Expansion

Direct Expenditures


JB Total $184,797,000 $140,027,000 $324,800,000VAMC $169,028,000 $130,084,000 $299,112,000JB Parks $294,000 $254,000 $548,000JB Cemetery $5,321,000 $2,844,000 $8,165,000ANG $8,239,000 $5,191,000 $13,430,000Museums $1,915,000 $1,654,000 $3,569,000

JB Total $184,797,000 $233,607,000 $418,400,000VAMC $169,028,000 $216,829,000 $385,857,000JB Parks $294,000 $396,000 $690,000JB Cemetery $5,321,000 $4,983,000 $10,304,000ANG $8,239,000 $8,818,000 $17,057,000Museums $1,915,000 $2,581,000 $4,496,000Notes: May not sum to total due to rounding.Total Economic Output includes direct, indirect, and induced spending.

St. Louis County

St. Louis MSA

The analysis highlights a relevant increase in overall economic output generated across the region. Total countywide output is estimated at $324 million, with a larger $418 million across the metropolitan area. The overall impacts grow modestly compared to the current


baseline, because the VA and ANG are adding modest amounts of new employment. The construction programs are meant to replace existing facilities, with modest expansion capacity. The above operational spending factors will also support employment across the region. The table below summarizes a total of 3,230 jobs supported across the metropolitan area, along with about $250 million in wages. As before, total employment impacts grow modestly because direct employment only grows modestly.

Table 14: Estimated Economic Impact, Post Expansion, Earnings and Employment Total Employment Total Earnings

JB Total 2,660 $206,356,000


St. Louis County

St. Louis MSA

The above analysis identified a total employment impact (direct and indirect) generated by operation of Jefferson Barracks of about 2,600 jobs across St. Louis County. Looking only at indirect employment generated by operations (estimated at about 1,000 positions across St. Louis County), the following table summarizes key industry sectors that would account for the majority (about 65%) of estimated indirect activity.

Table 15: Indirect Employment Break-Down by Sector – Post Expansion Operations Related

Indirect JobsIndustry Share JobsReal estate establishments 15.4% 157Food services and drinking places 7.6% 77Employment services 5.3% 54Private hospitals 3.7% 38Wholesale trade businesses 3.6% 37Veterinary services 3.1% 31Offices of physicians- dentists- and other h 3.0% 30Medical and diagnostic labs and outpatien 2.6% 27Retail Stores - General merchandise 2.3% 23Nursing and residential care facilities 2.1% 22Retail Stores - Food and beverage 2.1% 22Services to buildings and dwellings 2.1% 22Management of companies and enterprise 2.0% 20Securities- commodity contracts- investme 1.8% 19Retail Stores - Motor vehicle and parts 1.4% 15Retail Stores - Clothing and clothing acces 1.3% 14Insurance carriers 1.3% 14Individual and family services 1.3% 13Private household operations 1.3% 13Accounting- tax preparation- bookkeeping- 1.2% 12Private junior colleges- colleges- universiti 1.1% 12


End State Visitor Impact Discussion

The key difference between the post construction and end state impact estimates is the future growth of the museum campus at JB. The end state scenario assumes a significantly expanded museum element at JB, with the potential for more than 70,000 square feet of exhibit space supporting several museum concepts:

St. Louis County existing facilities (Powder Magazine Museum, Old Ordnance Room, Laborers

House, Stable, Visitor’s Center)

Citizen Soldier Museum

Missouri Civil War Museum

AT&T Pioneers Telephone Museum and other smaller museums

A main visitors center

US Grant Presidential Library

Interpretation at other Jefferson Barracks buildings (like Officers’ Row)

The full build out represents three phases of development. The post construction period represents only phase I, which includes the Powder Magazine Museum, the Civil War Museum, and the Museum of the Citizen Soldier, and represents about 40% of total exhibit space that could be developed at Jefferson Barracks, which is currently supporting about 1.7 million current annual visits. The largest share of current traffic is generated by traditional county park visits for recreational purposes, along with the VA Cemetery and Hospital generating more substantive (but unique) visitation patterns from a larger regional trade area. Within the overall county park attendance factor includes modest attendance to the Jefferson Barracks historical buildings (Powder Magazine, Ordnance Room, and Laborers House), which draw about 36,000 local attendees.

Phases II and III of the master plan include several museums noted above which have realistic potential to broaden the visitor market potential, and generate further economic benefits. These museums would have the potential to draw visitors from outside of the region and increase length of stay, which is the key driver of visitor-related economic impacts.

In the current situation, the non-resident share of JB visitation is very modest, tempered only by the VA hospital and cemetery operations, which we believe generate significant visitor impacts from outside of the metropolitan area. However, neither organization can provide firm information on the origin of their visitors (in the case of the cemetery this is simply not done). While this limitation makes precise calculation of economic benefits


impossible, it still allows for consideration of broader benefits that can be focused on the Lemay / Mehlville community. Discussion of visitor benefits as they relate to the study area will continue later in this report, along with discussion of the River City Casino.

Visitor Traffic Implications

To understand potential impacts related to proposed expanded cultural facilities on the Jefferson Barracks site, we first estimate a range of potential attendance for existing and proposed cultural facilities onsite. At the same time, because a number of these concepts are still in preliminary stages of concept planning, we provide attendance potential based on a range of attendance per exhibit square foot. This metric is used by assessing the experience of other similar museums and applying an appropriate calculation to the proposed facilities based on anticipated exhibit square footage. As these concepts are further developed and move toward operation, it may be helpful to undertake a more detailed attendance analysis that considers local and visitor market penetration rates, which is a primary methodology we use in more detailed museum analyses.

Generally, the proposed museums facilities fall in several categories, including history-military, history-specialty, presidential libraries, and visitor / interpretive centers. For this analysis we analyzed the general experience of similar types of museums (or comparables) for the visits per exhibit square foot metric. The comparables set included museums like:

Military History related museums like the National Civil War Museum in Harrisburg, PA; U.S.

Army Ordnance Museum in Aberdeen, MD; and others

Specialty History museums like the Pavek Museum of Broadcasting in St. Louis Park, MN; the

Historical Electronics Museum in Linthicum, MD; and others

Various presidential libraries, which can be significant non-local attendance generators

The experience of existing on-site facilities

Based on the experience of other facilities, a stabilized year attendance range of 180,000 to 252,000 visits across the proposed facilities was estimated, reflecting a range of 2.5 to 3.5 visits per square foot. The anticipated attendance per square feet by museum category compared to exhibit square footage is highlighted in the following chart, where smaller dots indicate where existing, comparable facilities fall for this metric.


The above range is a significant improvement from current modest levels of attendance supported by existing attractions, such as the Powder Magazine. Using the Midpoint of the visitation range, and assuming that 10% of visits are by non-residents, with an average length of stay of two days, the following impact estimates were calculated, again in current 2009 dollars. The following table highlights direct visitor spending of about $3.9 million, which could support a total of $6.3 million in total output across St. Louis County.


Table 16: Estimated Visitor Impact Benefit, End State

Direct Expenditures


JB Total $3,904,000 $2,419,000 $6,300,000F&B $834,000 $556,000 $1,390,000Gas $818,000 $586,000 $1,404,000Hotel $1,776,000 $936,000 $2,712,000Misc retail $476,000 $341,000 $817,000

JB Total $3,904,000 $4,158,000 $8,062,000F&B $834,000 $967,000 $1,801,000Gas $818,000 $921,000 $1,739,000Hotel $1,776,000 $1,734,000 $3,510,000Misc retail $476,000 $536,000 $1,012,000Notes: May not sum to total due to rounding.Total Economic Output includes direct, indirect, and induced spending.

St. Louis County

St. Louis MSA

The above levels of direct spending and output are also expected to support modest but relevant employment across the defined regions, as shown below.

Table 17: Estimated Economic Impact, End State, Earnings and Employment

Total Employment Total Earnings

JB Total 60 $1,319,000

JB Total 100 $2,583,000Notes: May not sum to total due to rounding.Total Earnings includes direct, indirect, and induced earnings.Total Employment includes direct, indirect, and induced employment.

St. Louis MSA

St. Louis County


IV. Future Jefferson Barracks Market Position and Community Benefit

Looking 10 to 20 years into the future, an expanded Jefferson Barracks complex offers an intriguing set of anchors and amenities, including:

A museum complex that includes expanded Civil War and Citizen Soldier Museums, along with

expanded support amenities that could offer up to 70,000 sq. ft. of exhibit space in multiple

museums.

An expanded VA Hospital, with modest growth in employment, and the VA Cemetery.

An expanded Air National Guard operation, with significant growth in full time employment,

sustaining the presence of weekend reservist training.

The eventual opening of the River City Casino in Lemay, which is expected to support annual

visitation of about 4.3 million people after opening, with likely employment of about 2,000

people.

The opportunity for a US Grant Presidential Library

Improved trail connections, developed by the Great Rivers Greenway District

This group of anchors is anticipated to have a gradually enhanced impact on the Lemay/Mehlville area, building from current expansions of the VA and ANG operations, through the opening of the casino, and the expanded museum presence. Before the impact of the casino is considered, overall visitation levels are expected to increase significantly, from current annual estimates in the 1.7 million visit range, to over 2 million visits per year. As significant, the character of visitation will be expanded, with the museum district in particular expanding the array of visitors. In this context, the opening of the casino offers exponential growth in visitation to the Lemay / Mehlville area. To place these opportunities in perspective, the following table summarizes recent traffic counts for key interstates and arterials that feed into the area.

Table 18: Traffic Counts Near JB Study Area, 2008 Site 2005 2007 2008 I-55 north of site 96,186 139,940 139,072 I-255 just west of river 50,510 63,594 63,199 I-255 west of MO 231 n/a n/a 72,130 MO 267 at I-255 24,932 26,102 25,473 MO 231 south of I-255 38,152 43,719 42,665 MO 231 at site 21,153 12,627 12,323 I-55 northeast of I-255 101,709 100,948 100,322 US 67 west of I-255 22,455 22,857 22,306 Source: Missouri Department of Transportation (MoDOT)


The analysis suggests that Missouri Routes 267 and 231 would be positioned for further growth in traffic over time. From ERA experience, growth in traffic, combined with broader community improvements in key areas has the potential to enhance economic development opportunities in the Lemay / Mehlville area. One factor that will influence improvement would be improved signage and wayfinding from key interstate gateways into Lemay / Mehlville. In this context, understanding opportunities for growth in visitation at Jefferson Barracks needs to be built from a solid discussion of the key markets that will support it, beginning with summary statistics for the Lemay / Mehlville area, and then building to discussion of broader day-trip and overnight visitor markets. The analysis will also consider existing support amenities in the area, and opportunities to add new amenities.

Local Market Population Change

The following table summarizes population change factors for noted jurisdictions between 1990, 2000, and 2008. The table indicates that compound annual growth rates (CAGR) from 1990 to 2000 and 2000 to 2008 for the study area are below noted benchmarks. According to current estimates, the Jefferson Barracks Study Area population has decreased slightly from 34,500 in 1990 to an estimated 32,400 in 2008 at a rate comparable to the surrounding area and the County.

Table 19: Population Change 1990-2008

Jurisdiction 1990 2000 2008 CAGR 1990 -2000

CAGR 2000-2008

United States 248,709,873 281,421,906 309,299,265 1.24% 1.19% State of Illinois 11,430,602 12,419,293 13,177,638 0.83% 0.74% State of Missouri 5,117,073 5,595,211 5,977,318 0.90% 0.83% St. Louis MSA 2,580,664 2,698,652 2,856,040 0.45% 0.71% St. Louis County 993,529 1,016,315 1,005,910 0.23% -0.13% City of St. Louis 396,685 348,189 350,436 -1.30% 0.08% JB Study Area 34,541 33,322 32,368 -0.36% -0.36% Lemay 17,976 17,215 16,615 -0.43% -0.44% Bella Villa 731 687 657 -0.62% -0.56% Mehlville 27,463 28,822 28,324 0.48% -0.22% Affton 20,214 20,564 20,274 0.17% -0.18% Oakville 31,746 35,309 37,143 1.07% 0.64% Source: US Census, ESRI Business Analyst

Median Household Income

The following table summarizes per capita income trends, indicating that although the

Jefferson Barracks Study Area had a similar median household income to the state of

Missouri in 2000, income growth across the Study Area since 2000 has occurred at a faster

rate. The Jefferson Barracks Study Area also has a slightly higher estimated median


household income, but a similar growth rate compared to Lemay. Although Oakville had

the highest estimated median household income at nearly $85,000 compared to noted

benchmarks, its average annual rate of growth from 2000 to 2008 was the slowest.

Figure 1: Trade Area Map


Figure 2: Median Household Income Trends, 1989-2008

Estimated Median Household Income, 2008

$0

$15,000

$30,000

$45,000

$60,000

$75,000

$90,000

United

States

State of

Illinois

State of

Missou

ri

St. Lou

is MSA

St.Lou

is Cou

nty

City of

St. L

ouis

JB Stud

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Lemay C

DP

Bella V

illa

Mehlvi

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DP

Affton C

DP

Oakvil

le CDP

Median Age / Average Household Size

The following table summarizes median age and household size comparisons for noted areas. The Jefferson Barracks Study Area and surrounding areas have notably higher median ages compared to local, county, MSA, state, and national benchmarks. The City of St. Louis has the lowest median age of 35.1 years, while Bella Villa has the highest median age of 42.6 years.

Table 20: Median Age / Avg. Household Size Jurisdiction Median Age Avg HH size United States 36.8 2.6 State of Illinois 36.0 2.6 State of Missouri 37.7 2.5 State of Missouri 37.7 2.5 St. Louis MSA 37.8 2.5 St. Louis County 39.7 2.4 City of St. Louis 35.1 2.3 JB Study Area 41.4 2.2 Lemay 41.2 2.3 Bella Villa 42.6 2.0 Mehlville 41.1 2.2 Affton 41.9 2.3 Oakville 40.9 2.8 Source: US Census, ESRI Business Analyst

The table above also includes information on average household sizes. The Jefferson Barracks Study Area and most surrounding areas have smaller average household sizes


compared to national, state, MSA, and county benchmarks. The overall trend between age and household size is consistent, with older households having fewer family members, pointing to a larger segment of senior / elderly populations. Oakville has a larger average household size at 2.8 than the national, state, MSA, and county benchmarks, which is more consistent with its position as a suburban family oriented area.

Age Cohorts

The following chart summarizes estimated population by age for 2008, illustrating that the Jefferson Barracks Study Area and St. Louis County have similar age breakdowns, although the Jefferson Barracks Study Area has a higher percentage of residents in the 55+ age bracket than national, state, MSA, County, and City benchmarks. This is consistent with surrounding areas, which also have lower shares of the 0-24 year old age cohort.

Figure 3: Estimated Population by Age, 2008

Estimated Population by Age, 2008

0%

25%

50%

75%

100%

United

States

State of

Illinois

State of

Missou

ri

St. Lou

is MSA

St.Lou

is Cou

nty

City of

St. L

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JB Stud

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Lemay C

DP

Bella V

illa

Mehlvi

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DP

Affton C

DP

Oakvil

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0-24 25-54 55+

Educational Attainment

The Jefferson Barracks Study Area has a significant number of residents who are high school graduates (36%) compared to the nation, state, county, MSA, and surrounding area, but has a lower percentage of bachelor degree holders. St. Louis County and Oakville have the most educated residents with nearly half (46%) of residents having an associate, bachelor’s, or advanced degree.


Table 21: Estimated Educational Attainment, 2008 (25+yrs)

Jurisdiction

0-Some High

school

High school

graduate Some

college Associate

degree Bachelor's

Degree Advanced

Degree United States 16% 30% 20% 7% 17% 10% State of Illinois 15% 29% 21% 7% 18% 11% Missouri 15% 33% 21% 6% 15% 9% St. Louis MSA 14% 30% 22% 7% 17% 10% St. Louis Co. 9% 23% 22% 7% 24% 15% St. Louis 24% 28% 20% 5% 13% 9% JB Study Area 19% 36% 21% 6% 12% 6% Lemay 25% 37% 20% 5% 9% 5% Bella Villa 21% 32% 25% 7% 11% 5% Mehlville 12% 32% 21% 8% 18% 8% Affton 12% 30% 25% 7% 18% 8% Oakville 6% 26% 22% 9% 25% 12% Source: US Census, ESRI Business Analyst

Employment

The following table and map illustrates concentrations of employment by occupation (classified by service, retail, etc.). Compared to St. Louis MSA and St. Louis County, the Jefferson Barracks Study Area had a higher percentage of residents working in construction, installation/ maintenance/ repair, production, and transportation/ moving materials. Only 28% of Jefferson Barracks Study Area residents worked in professional, management, business, or financial occupations compared to 35% of residents in St. Louis MSA and 43% of residents in St. Louis County; however, a higher share (18%) of Jefferson Barracks Study Area residents work in service occupations than either benchmark.

Table 22: Employment by Occupation, 2008

Occupations JB Study Area

St. Louis MSA

St. Louis County

Mngmt / Bus / Financial 11% 14% 17% Professional 17% 21% 26% Sales 12% 12% 13% Office 20% 16% 16% Services 18% 16% 13% Farm / Fish / Forest 0% 0% 0% Construct / Extract 6% 6% 4% Install / Maint / Repair 4% 4% 3% Production 7% 6% 4% Transp / Material Moving 6% 6% 4% Source: US Census, ESRI Business Analyst


Summary of Resident Market Conditions

The assessment notes several key demographic facts that will influence future evolution of the Jefferson Barracks area:

While the Jefferson Barracks Study Area population saw an estimated decrease from 1990 to

2008, nearby Oakville saw a population increase of about 5,400 residents, driven by broader

suburbanization trends.

While the Jefferson Barracks Study Area’s estimated 2008 per capita income is lower than noted

benchmarks, the area did sustain growth in incomes on par with inflation.

The Jefferson Barracks Study Area’s average household size (2.2) is lower than the national and

state figures but similar to the surrounding areas with the exception of Oakville, which has the

highest average household size of 2.8. The lower average household size relates to the reality

that the Jefferson Barracks area has a notably higher percentage of residents in the 55+ age

bracket than the than the nation, state, and MSA.

Though the Jefferson Barracks Study Area has a lower percentage of residents who received a

college degree than the nation, state, MSA, county and surrounding areas, 36% graduated from

high school and 21% attended some college.

Current Support Amenities

The following map highlights one primary commercial concentration in the JB study area, which extends along I-255 between Telegraph Road and Lindbergh Boulevard / I-55. This extended area includes about 4 million square feet of retail space, along with hotels and service businesses, the former of which are concentrated at Lindbergh Boulevard and I-55. The overall Study Area includes about 4.8 million square feet of commercial space, with key nodes along Telegraph Road, Lemay Ferry Road, and Broadway Boulevard.

The study area also includes a significant amount of corridor commercial development along Lemay Ferry Road, Telegraph Road, and Broadway, including older auto repair and service businesses, as well as underutilized and vacant storefronts. These key Study Area commercial corridors remain challenged by broader issues that are not unique to Lemay. Across the Midwest, older commercial corridors have been placed at increasing competitive disadvantages over the past 10 years as newer big box retail destinations emerged and pulled sales dollars from these smaller stores. Nationally, efforts to reposition these older corridors have included efforts to assemble parcels for redevelopment, with greater emphasis on mixed use development, linked to transit and improved access.


Figure 4: Support Amenities in the Lemay Area

Discussion regarding existing community amenities begins with the reality that existing commercial development is not clustered near key entrances to JB installations. For example, the Koch Road exit off of I-255 has no retail development; this road provides primary access to the VA hospital. (A key parcel in this area is owned by MoDOT and used for driver licensing and vehicle testing). Experience suggests that daytime office employment is a relevant contributor to retail spending, but only to the extent that retail and service offerings are available in immediate proximity. For perspective, residents remain the largest driver of retail spending in any market, and visitors are the smallest contributor. Other findings and considerations include:


The intersection of Sheridan Road and Telegraph Road, which is the primary access to the VA

National Cemetery, does not serve as a substantive gateway to the cemetery. Key retail uses at

this intersection are largely automotive in nature.

Particularly along Telegraph Road, there are several older commercial buildings with increased

vacancy. Field investigations also identified a modest number of service businesses who are

connected to activities at JB, including several banquet halls that are likely tied to the National

Cemetery.

Restaurant options are available in the area, but not proximate to JB. Restaurants are

concentrated along I-255 between Telegraph and I-55, particularly near the regional mall.

In many ways, Jefferson Barracks remains “hidden”, with limited visibility and modest signage

from Telegraph Road and other local transportation nodes. From this perspective to introduce

distinctive Jefferson Barracks branding and signage to the study area would be beneficial.

Over the long term, planning and land use decisions that increase the number of direct

connections and improve visibility between Jefferson Barracks and Telegraph Road would be

beneficial as well.

On a broader level, the study area will continue to struggle with its disadvantaged position in the region, driven by the reality that I-I70 was never extended further down to the southeast past Brentwood, and traffic on I-64 does not have a direct connection to I-55. These realities have always made it more difficult to access the study area from other places in St. Louis County. Road improvements made as part of the River City Casino project will begin to address this issue within South County.

Visitor Market Discussion

ERA expects any site as populated with active and historical uses as Jefferson Barracks to be a major regional economic generator. Therefore, although Jefferson Barracks is vital to the area’s continued development, it is also important to look beyond its immediate borders to spot opportunities, trends, and challenges with an eye on the St. Louis region. The following overview of the Visitor Market considers several subsectors: Day Trip, Overnight, and Convention visitors as well as regional attractions and attendance.

Day-Trip Visitor Market

Day trip visitors to the St. Louis area will be an additional market source for Jefferson Barracks. For the purposes of this analysis, the day trip visitor market is defined by an approximately 1 to 2 hour drive time from the site, or a distance of 50 to 100 miles. The total


day trip visitor market is estimated to exceed 1.2 million people by 2013. The following list briefly outlines the demographic and socio-economic profile of the day trip market:

The average household size is 2.39 persons, a very slight decrease from 2.40 in 2000 and

estimated to continue to decrease very slightly to 2.38 persons by 2013.

The median age was 39.3 in 2008, up from 37.3 in 2000 and estimated to increase to 40.5 by 2013.

Currently, an estimated 32% of residents are between the ages of 0 to 24, 13% are between the

ages of 25 to 34, 13% are between the ages of 35 to 44, 15% are between the ages of 45 to 54, 12%

are between the ages of 55 to 64, and 15% are aged 65+ age.

The day-trip market area has an estimated median household income of $42,600, slightly lower

than that of Missouri ($49,500).

On average, residents spend an estimated $2,780 per person annually on entertainment and

recreation related goods and services.

Based on data from the St. Louis CVB, of visitors surveyed, 14% came for a specific attraction

(for nearly 8 of 10 visitors Six Flags Amusement Park is the key destination). Approximately 1%

of visitors came specifically for the purpose of visiting a museum other than the City Museum,

Magic House/Children’s Museum, Science Center, or Art Museum (those specifically

mentioned by survey respondents included the Museum of Transportation and Laumeier

Sculpture Park).

Visitors spent $86 per capita per day on average, 40% of which went toward lodging, 17% for

meals, 17% for transportation, 10% on shopping, 8% on attractions, and 11% on miscellaneous

categories.

Overnight Visitor Market

Every other year, the St. Louis CVC commissions an economic impact of overnight visitors (or those traveling in excess of 50 miles for a day-trip.). According to the most recent economic impact study in 2006, an estimated 22.3 million visitors came to St. Louis for leisure travel, business, meetings, and conventions, a 10 percent increase from 20.3 million visitors in 2004. Based on comparing research from two sources of visitor data, it can be concluded that 69% of visitors traveled to St. Louis for leisure purposes, while 31% came for business purposes. Of the leisure travelers, 70% stayed overnight, while 30% of the business travelers stayed overnight. Of visitors who stayed overnight, 64% stayed in paid accommodations and 35% stayed with friends in relatives. Overall, visitors to St. Louis stay an average of 2.8 nights, travel with an average party size of 3 people, make an average of 1.5 trips to St. Louis annually, and spend $91 per person per day. Around 65% of visitors


traveled with their spouse and 73% traveled with their children. The median age of travelers was 46 years. Top visitor origin markets were Kansas City, Chicago, Memphis, Indianapolis Champaign, Evansville, Paducah, Davenport, Peoria, Milwaukee, and New York.

Lambert-St. Louis International Airport is a key element of the overnight visitor market. The airport currently serves approximately 14 to 15 million passengers annually, with an average of 300 daily departures to 70 national and international destinations. American will cut Lambert service completely to seven markets: Las Vegas, San Diego, Philadelphia, Cedar Rapids, Charlotte, Springfield, and Tulsa, reducing American’s daily, nonstop departures from Lambert to 83 from 101.

Figure 5: Lambert-St. Louis International Airport Total Passengers

14,697,263

15,205,944

15,384,557

14,432,471

2005 2006 2007 2008

Source: Airports Council International

Meanwhile, Southwest Airlines (which has about 80 daily flights) has indicated interest in picking up some of these routes. Lamberts’ 2010 budget is $162 million, of which approximately $200,000 is devoted annually to give air carriers marketing money. (Lambert’s own marketing budget, $730,000 in 2010, comes mostly from Missouri’s aviation trust fund).

Convention Market

According to the St. Louis Convention and Visitors Commission (CVC), convention delegates spent $1,036 per person and stayed an average of 3.6 days. The CVC serviced 1,324 meeting groups in 2008 and booked 554,031 meeting and convention hotel rooms, an increase over the 524,430 room nights booked in 2007 (the figures do not reflect leisure


travel hotel rooms and are based on signed hotel and/or America’s Center® contracts for 2008 and beyond). America's Center & Edward Jones Dome hosted over 1 million visitors throughout 2008.

Visitor Market Analysis

To estimate the total visitor market, ERA used data from the St. Louis Convention and Visitors Commission (CVC), Smith Travel Research, and Jones Lang LaSalle. The following statistics were used to estimate the overnight visitor market:

The total number of hotels rooms in each area in 2008 was multiplied by 365 to get the total

available room nights,

That figure was multiplied by the St. Louis Metro average hotel occupancy of 60% to get the

total room nights used,

That figure was multiplied by the St. Louis average party size of 3 to get the number of visitor

nights, and divided by the St. Louis average length of stay of 2.8 nights to get the total overnight

hotel visitors figure.

The following table shows that an estimated 8.7 million visitors stayed overnight in hotels.

Table 23: Overnight Hotel Visitors

Market Number of

Rooms

Available room nights per year (365

nights)

Number of room nights

Number of visitor

nights

Overnight hotel

visitors Primary Market-1 mile of America's Center 7,900 2,883,500 1,730,100 5,190,300 1,850,000

Secondary Market-St. Louis City & County 11,432 4,172,680 2,503,608 7,510,824 2,680,000

Tertiary - MSA 17,668 6,448,820 3,869,292 11,607,876 4,150,000 Total 37,000 13,505,000 8,103,000 24,309,000 8,680,000 Source: St. Louis CVC

Using the national statistic that 55% of overnight visitors stay in hotels, ERA estimated that approximately 16 million total visitors stayed overnight in the local market.

Table 24: Total Overnight Market

Market Overnight Hotel Visitors

Overnight VFR

Total Overnight Visitors

Primary Market 1,850,000 1,514,000 3,364,000 Secondary Market 2,680,000 2,193,000 4,873,000 Tertiary MO 4,150,000 3,395,000 7,545,000 Total 8,680,000 7,102,000 15,782,000


The following table summarizes the available markets for the proposed museums at Jefferson Barracks. From 2008 to 2013, the proposed project will be able to draw from a total available market base of approximately 17.0-17.3 million people.

Summary of Available Markets for Proposed Jefferson Barracks Museums Market 2008 2013 CAGR Day Trip Visitor Market 1,184,000 1,207,000 0.4% Overnight Visitor Market 15,782,000 16,089,000 0.4% Total Available Market 16,966,000 17,296,000 0.4% -Numbers may not total, due to rounding

Sources: ESRI Business Information Solutions, Bureau of Labor Statistics, US Census Business Patterns, St. Louis Convention and Visitors Commission (CVC), Smith Travel Research, and Jones Lang LaSalle

Competitive Attractions

While these visitor market levels seem impressive, there are a broad array of competitive attractions in the region that are competing for visitors, as follows.

Attraction Attendance AdmissionCasinosAmeristar Casino Resort 8,860,634 FreeHarrah's St. Louis Casino & Hotel 8,076,467 FreeLumiere Place Casino and Hotels 3,588,502 FreeCasino Queen 2,296,919 FreePresident Casino Riverfront 2,146,061 $2 first visitArgosy Casino Alton 1,182,856 FreeSources: Book of Lists, St. Louis Business Journal; St. Louis Convention & Visitor's Commission


Table 25: Reported Attendance at Selected Visitor Attractions in the St. Louis Area

Attraction Attendance AdmissionFree AttractionsSt. Louis Zoo 2,988,058 Free*St. Louis Science Center 1,205,271 FreeNational Shrine of Our Lady of the Snows 1,183,472 FreePere Marquette State Park 760,160 FreeOld Nauvoo, Nauvoo, IL 513,000 Free Grant's Farm 505,035 FreeSt. Louis Art Museum 376,477 Free*Laumeier Sculpture Park 350,000 FreeAnheuser-Busch St. Louis Brewery Tour Center 345,781 FreeMissouri Historical Society 327,520 FreeCahokia Mounds State Historic Site 298,379 FreeBudweiser Brewery Tour 275,000 FreeOnondaga Cave, Leasburg, MO 261,629 Free Jefferson Barracks Historic Site 250,000 FreePurina Farms 195,000 FreeLewis & Clark State Historic Site (Camp River DuBois), H 100,000 Free Fort Massac State Park 80,000 Free National Great Rivers Museum & Visitors Center, Alton, 77,429 Free Mark Twain Birthplace State Historic Site, Florida, MO 38,461 Free Washington University Gallerty of Art 31,547 FreeSt. Louis Artists' Guild 30,000 FreeCaohokia Courthouse State Historic Site 25,944 FreeForum for Contemporary Art 18,000 FreeCamp Butler National Cemetery, Springfield, IL 13,000 Free Craft Alliance 12,000 FreeMadison County Historical Museum 3,128 FreeFort Kaskaskia State Historic Site n/a Free Kaskaskia Bell State Memorial n/a Free Fort de Chartres State Historic Site n/a Free *Fees for some attractionsSources: Book of Lists, St. Louis Business Journal; St. Louis Convention & Visitor's Commission


Attraction Attendance AdmissionFee-Based AttractionsSix Flags St. Louis 1,400,000 $31-$39.99Gateway Arch Tram (at JNEM) 970,704 $8.00Missouri Botanical Garden 961,490 $2 res/$8 nonresCity Museum 680,714 $10-$12St. Louis Rams 466,242 $44-$91Fairmount Park 430,000 $1.50-$2.50Gateway International Raceway 400,000 $10-$65The Muny 377,705 Free to $66Magic House, St. Louis Children's Museum 375,549 $8.50Sophia M. Sachs Butterfly House 200,000 $6.00Meramec Caverns 164,800 $14.00Gateway Arch Riverboats 150,000 $10.00Museum of Transportation 100,000 $4.00Daniel Boone Home and Boonesfield Village 50,000 $12.00International Bowling Museum 50,000 $7.50First Missouri State Capital 50,000 $2.50General Daniel Bissell House 43,000 $2.00Lewis & Clark Boathouse and Nature Center 33,484 $3.00A.K.C. Museum of the Dog 12,000 $5.00Samuel Cupples House of St. Louis University 12,000 $4.00St. Clair County Historical Society 1,500 $2.00Mark Twain Cave n/a $15**Fees for some attractionsSources: Book of Lists, St. Louis Business Journal; St. Louis Convention & Visitor's Commission Attraction Attendance AdmissionPublic Assembly Venues St. Louis Cardinals 3,432,917 Varies / TicketedAmerica's Center & Edward Jones Dome 1,094,869 Varies / TicketedJefferson National Expansion Memorial 1,954,810 Varies / TicketedSt. Louis Blues 760,732 Varies / TicketedFox Theatre 539,803 Varies / TicketedEckert's Inc. 500,000 Varies / TicketedVerizon Wireless Amphitheater 349,405 Varies / TicketedUMB Bank Pavilion 289,954 Varies / TicketedPowell Symphony Hall 250,000 Varies / TicketedThe Pageant 235,476 Varies / TicketedCathedral Basilica of St. Louis 220,000 Varies / TicketedFamily Arena n/a Varies / TicketedScottrade Center n/a Varies / TicketedChaifetz Arena at St. Louis University n/a Varies / TicketedSources: Book of Lists, St. Louis Business Journal; St. Louis Convention & Visitor's Commission


Future Support Amenity Implications

Understanding how economic development opportunities across the greater Lemay /

Mehlville area will emerge in response to current and planning improvements at JB begins

with the reality of modest but relevant employment growth at JB linked with the VA and

ANG. The analysis suggests that by 2015, when construction at the VA and ANG facilities is

completed and the Phase I museums are open, on site employment will have increased from

about 1,495 to 1,640 positions. This modest overall increase, linked primary with the ANG

operation, will not by itself have a dramatic benefit on the community. Clearly, the Phase I

and 2 elements of the River City Casino have greater opportunities to ripple through the

local economy, beginning with the expectation for up to 2,000 new jobs related to casino

operation. As well, visitor markets will increase in size, driven largely by the casino and its

4.3 million estimated visits. On a smaller level, the museum district will also increase

attendance, estimated at about 252,000 visits. The ANG center is also expected to see its

weekend visits essentially double from a base of about 73,000 current annual visits. To

place these increases in perspective with real estate development potentials for the study

area, experience was applied to frame the level of supportable commercial space as rules of

thumb that can be supported by office employees and visitors in a specific area as follows:

Each CBD employee could support 2 to 5 SF in all retail and service categories

Each visitor supports 0.2 to 1.5 SF in all retail and service categories

These rules of thumb exclude the impact of the casino and reflect the level of spending that can be generated by each segment; the ranges reflect differences in income levels, as well as overall store availability. For example, if retail and services are not convenient to office workers, this share of spending will shift elsewhere. For the study area, the estimated net increases in daytime and visitor traffic (excluding the casino) could drive support in the area of 40,000 to 60,000 square feet of commercial space. While this increment is well within the current amount of vacant space in the community, broader considerations include:

Existing commercial concentrations are not convenient for office workers. They will make trips

for lunch, but distance becomes a clear deterrent.

Visitor traffic flows to JB will be highly variable, with a mix of military reservists, patients

seeking medical care, park visitors, museum visitors, and people attending burials at the


cemetery. Museum visitors are expected to generate more value added than other segments, as

their length of stay will be longer and more motivated.

While casino visitation will surge, experience suggests that the majority of spending will be

captured by the casino initially. Over time, we would expect gradual spill-over to occur into the

community.

Implications for the Lemay / Mehlville area generated by development of an enhanced museum experience at Jefferson Barracks include the following elements:

While the River City Casino will have an outsized impact on the community, a majority of

casino visitors will be primarily focused on arrival at the casino. From this perspective,

improved signage and wayfinding that makes casino visitors aware of Jefferson Barracks will be

important. To the extent that joint marketing efforts between the casino and Jefferson Barracks

can be established, visitation linkage would be enhanced

Visitors to Jefferson Barracks are funneled into the area from key interstate gateways into the

Jefferson Barracks complex. These entrances include entrances to the VA from I-255, to the

Cemetery from Sheridan Road, to the ANG operation from Telegraph Road and Jefferson

Barracks Road, and to the County park from Kingston Drive and South Broadway. Aside from

the broader issue of limited signage and wayfinding, the primary park entrances from

Telegraph Road in particular lack any significant sense of arrival to the park. This is a particular

challenge for the VA Cemetery, which has essentially no visibility from Telegraph Road.

While growth in Jefferson Barracks visitation linked to the museum campus will take time to

materialize, the team identified opportunities to improve the front door of the VA Cemetery as

one effort that could have practical benefits for revitalization along the Telegraph Road

Corridor, which is beset by a number of older commercial buildings, many with vacancy

challenges. The current main entrance of the VA Cemetery is along Sheridan Road about ½ of a

mile from the intersection with Telegraph Road.


V. Potential Funding Support and Organizational Structure

Opportunities to develop the museum campus at Jefferson Barracks are building from current efforts by separate groups at the Civil War Museum and the Citizen Soldier Museum to raise funds for their respective projects. While the near-term opening of these two museums will be significant, further anticipated growth to the full museum district program recommendation will require further resources, both public and private. To place these broader opportunities in perspective, we explored a series of case studies to summarize the evolution of special districts to support arts, culture, historical, and museum attractions. The case studies were used to frame recommendations for funding sources and organizational structure for the museum district.

Best Practices

Discussion of organizational structure and revenue are core themes that cut across the museum industry, driven by the practical challenge of fundraising. In general, museums have focused greater effort on maximizing existing revenue sources by internalizing things such as gift shops restaurants, special events, programs, and donations, primarily to offset the reality of structural operating deficits. This challenge has led to the formation of non-profit entities to assist in fundraising and operations, and the creation of public museum districts to channel limited public dollars to support cultural facilities. In all cases, there remains a delicate balance between the need to capture revenue by individual museums, as well as the equal need to sustain broader museum districts who also incur operating expenses. On a broader level, the analysis also identified the following best practice factors that influence success:

Community support for the museum / historic attraction

That school attendance is linked to specific education curriculum standards

Use of modern technology and creative exhibits attracted larger than expected attendance and

enthusiastic visitors.

Co-promotion and linkage with other local attractions increases market penetration and overall

visitor length of stay, which increase economic impacts. For example, ensuring that cemetery

visitors are made aware of other historic attractions at JB.

Developing ticket packages that link JB activities together; for example, having one ticket that

buys admission to multiple museums.

Having museum districts in place to absorb or offset site development costs that would

otherwise fall on the balance sheet of individual museums.


Organizational Structures

Organization structure questions for the museum district build from the current situation, in which the Citizen Soldier Museum and Civil War Museum are both moving forward, separately and largely independently. Both museums fit loosely within a broader non-profit framework of two non-profit organizations that are active within JB:

The Jefferson Barracks Community Council

The Friends of JB

Given the vision to significantly expand the Museum complex at JB, organizational questions will build from the need to raise capital and operating funding for internal needs, and to fund operation of the broader museum campus as well. From our perspective, if the public policy direction is to grow JB into a more significant regional historic and cultural district, the current organizational structure will need to evolve over time. The evolution could likely take on four phases:

Phase 1: Keep everyone independent, but establish a volunteer committee to oversee linkage

between museums and the County Parks Department.

Phase 2: Build the organization strength of an existing entity, such as the Friends of JB, to

support the museums and their connections to the district. This entity would also negotiate

with the County Parks Department to evaluate existing revenue sources supported by the

County at JB for operations and capital improvement.

Phase 3: Work with local officials to build support for enhanced community financial support

for museums and cultural facilities, either at a county level, or a regional level. A museum

district (similar to a CID), supported by property taxes or sales taxes, would be one likely result.

Phase 4: A more robust non-profit structure is in place to own and operate all of the museums,

sustain connections with VA, the cemetery, ANG, and the county, develop shared / contracted

services agreements between the entities, and channel revenue from public sources to sustain

operation.

This evolutionary concept would also need to consider the option of having the National Park Service play a role in the future operation of a JB museum campus.

Funding Options

Funding options for museums and museum districts are both internal and external. Within museums themselves, revenue development efforts have moved well beyond admission


charges and gift shop revenue, to include specialty restaurants and cafes, banquet / meeting space rentals, traveling exhibitions, parking, and special events. Beyond these facility-specific revenue sources, efforts to build concentrations of museums have led to the creation of special districts, which are being established by local municipalities, state agencies, and / or non-profits. Depending on state legislation, funding for arts and cultural districts is appropriated through a number of different sources. Most commonly, these types of districts are funded through a share of local or statewide tax revenue, but many other sources of revenue are also available. The following list includes the most common funding sources from the examples we surveyed:

Property tax

Real estate transfer tax

Sales tax

Admissions tax

Hotel tax

Ticket surcharges

State gaming or lottery revenue

Another potential source of funding, which can be an effective way to consolidate and minimize costs for shared services, are special districts known generally as cultural conservation districts, which are similar to business improvement districts (BID) or special service area (SSA). Participating entities (at JB, this would include both museums at a minimum) would be required to pay a small levy (for example, 0.30% of equalized assessed value) into a general fund managed by a nonprofit body that would fund shared services (maintenance and landscaping, security, public relations and advertising, snow and waste removal, etc.), and help finance capital improvements (improved parking, signage, or expanded sidewalk network, etc.). The creation of a formal Cultural District would also serve to enhance coordination between JB facilities and encourage the identification of services to consolidate. While it is unclear if other federal / state agencies at JB would pay such a levy, team experience would argue that these agencies are interested in efforts to reduce operating costs, through shared service agreements, for example.

In addition to special assessment districts, the broader area could benefit from the use of tax increment financing (TIF). These districts are established to capture growth in property tax and sales tax value above a given baseline for a set number of years; resulting increment can be used to fund specific public improvements, including land acquisition and assembly. The benefit of TIF would correlate with improved access to the study area, which will bring additional visitor traffic. Over time, it would be reasonable to assume that increased traffic


would benefit land and property values for commercial sites in proximity to the improvements. The Lemay area already has one smaller TIF district in place, for Shop ‘n Save Plaza on Lemay Ferry Road. For example, TIF could be used along Telegraph Road to help fund corridor infrastructure improvements and related land assembly.

In addition to these sources, a larger non-profit could tap into opportunities to develop real estate at key locations around JB, beginning with the MoDOT driver testing facility at Koch Road and I-255. this site, which offers good visibility to I-255, could be developed under a groundlease arrangement, generating long-term income for the public sector which could be used to offset other operating expenses. There are a small number of other opportunity sites that could be developed in a similar fashion.

The following section includes a range of case studies summarizing characteristics of museum and cultural districts, nonprofit councils and trusts, and other historical attraction operations and management strategies.

Museum & Cultural Districts

The following table summarizes nine cultural, historic, and museum districts, ranging in coverage from 3 to 25 organizations, but with the shared purpose of supporting local cultural and museum operations. Many states have legislation granting local governing bodies the authority to establish arts and cultural districts by allocating a share of tax for the purpose of supporting cultural and museum facility operations; shown in the following table, these Districts can be managed by a state agency or department, although many are managed locally.

Additionally, a number of museums and cultural entities seek funding through Councils or Trusts that act as a common managing body that applies for and distributes subsidies on the collective behalf of participating organizations. One example of this is the nonprofit Minnesota Historical Society (MNHS), which receives $11 million in funding from the state toward the management of 25 historic sites across the state. This format has a number of advantages, including wider distribution of fixed costs, a support network and basis for organized coordination with other MNHS-managed sites, and consolidated efforts to secure shares of statewide funding initiatives.


Scientific and Cultural Facilities District – Denver, CO

Since 1989, Scientific and Cultural Facilities District (SCFD) has distributed funds from a 1/10 of 1% sales and use tax to cultural facilities throughout the seven-county Denver metropolitan area. Distributions are made through a three-tiered system. SCFD annually distributes approximately $40 million to over 300 organizations, including the Denver Museum of Nature and Science; Denver Art Museum; Denver Zoological Gardens; Denver Botanical Gardens; and Denver Center for the Performing Arts. In 2007, cultural facilities funded by SCFD contributed $387 million in new dollars to the local economy, a 9:1 return on investment at the time. SCFD collaborations include some shared administrative resources, marketing, joint productions or programs, combined financial contributions or similar activities.

Montgomery County Arts & Cultural District – Dayton, OH

The Montgomery County Arts and Cultural District is a special purpose unit of government created under Ohio Law to provide support to arts and cultural organizations and individual artists within Montgomery County, Ohio. Currently, the District allocates $1 million annually in direct operating support to the Schuster Center and 18 arts and cultural organizations with operating budgets of $500,000 or more. Addition support is provided in the form of competitive fellowships and project grants.

Allegheny Regional Asset District – Pittsburgh, PA

Allegheny Regional Asset District (RAD) supports arts and cultural organizations through operating grants for basic expenses (staff, utilities, maintenance, etc.), capital grants for projects like accessibility, critical infrastructure, and equipment, and special collaborations among assets that have contributed to budget savings and audience development. RAD support is through three levels: contractual, multi-year grants, and annual grants. Contractual support from RAD is allocated to the Allegheny County Library Association, Allegheny County Regional Parks, Carnegie Library of Pittsburgh, Carnegie Museums of Pittsburgh, City of McKeesport Regional Park, City of Pittsburgh Regional Parks, The National Aviary in Pittsburgh, Phipps Conservatory and Botanical Gardens, and the Pittsburgh Zoo and PPG Aquarium.


Salt Lake City Zoo, Arts, & Parks Program – Salt Lake City, UT

Since 1997, Salt Lake County’s Zoo, Arts & Parks Program has provided funding to cultural, zoological and botanical organizations. For the past decade Salt Lake County has collected and distributed one additional penny on every ten dollars spent within Salt Lake County among local organizations and projects deemed qualified for funds by the Advisory Boards and Salt Lake County Council. Each organization that receives ZAP funding is the subject of a thorough application process. In 2007, over 150 organizations received funding, including 25 “major” arts and cultural organizations in Salt Lake City.

Metropolitan Zoological Park & Museum District – St. Louis, MO

Since it was founded in 1972, the Metropolitan Zoological Park & Museum District’s annual tax revenue has increased from $4 million dollars to more than $72 million dollars in 2008. Approximately 85% of the tax revenues come from the County taxpayers while City residents provide 15% of the District's tax revenues (based on shares per $100 assessed value). The expansion from three to five Subdistricts (Saint Louis Art Museum, Saint Louis Zoological Park, Missouri Botanical Garden, Saint Louis Science Center, and Missouri History Museum) reflects the success of the concept of a tax-supported cultural district.


Table 26: Summary of Cultural, Historic, and Museum Districts

Nam

eLo

catio

nSo

urce

of F

undi

ngD

etai

lsA

nnua

l Bud

get

# Fa

cilit

ies

Incl

uded

Scie

ntifi

c an

d C

ultu

ral

Faci

litie

s D

istri

ct

Den

ver,

CO

Sal

es ta

x1/

10 o

f 1%

sal

es a

nd u

se ta

x$4

0 m

illio

n 5

(plu

s ad

ditio

nal g

rant

al

loca

tions

)M

ontg

omer

y C

ount

y Ar

ts &

C

ultu

ral D

istri

ctD

ayto

n, O

HS

ales

tax

Shar

e of

Cou

nty

sale

s ta

x re

venu

e$1

mill

ion

19 (p

lus

addi

tiona

l gra

nt

allo

catio

ns)

Alle

ghen

y R

egio

nal A

sset

D

istri

ctPi

ttsbu

rgh,

PA

Sal

es ta

x50

% o

f the

1%

sal

es ta

x ad

ded

on to

the

exis

ting

stat

e sa

les

tax

$80

mill

ion

9 (p

lus

addi

tiona

l gra

nt

allo

catio

ns)

Salt

Lake

City

Zoo

, Arts

, &

Park

s Pr

ogra

mSa

lt La

ke C

ity, U

TS

ales

tax

1/10

th o

f 1%

incr

ease

in th

e lo

cal s

ales

ta

x di

vide

d an

nual

ly: Z

oo 1

2.5%

; Par

ks

30%

; Tie

r I C

ultu

ral a

nd B

otan

ical

G

roup

s (b

udge

ts o

ver $

250,

000)

52.

5%;

Tier

II C

ultu

ral a

nd B

otan

ical

Gro

ups

(bud

gets

und

er $

250,

000)

5%

.

$20

mill

ion

25 (p

lus

addi

tiona

l gra

nt

allo

catio

ns)

Met

ropo

litan

Zoo

logi

cal P

ark

& M

useu

m D

istri

ctSt

. Lou

is, M

OP

rope

rty a

sses

smen

ts8

cent

s pe

r $10

0 as

sess

ed v

alue

for t

he

Zoo

and

the

Art M

useu

m; 4

cen

ts fo

r the

Sc

ienc

e C

ente

r $1

50 m

illio

n (e

st.)

5

Gro

ut M

useu

m D

istri

ct

Wat

erlo

o, IA

Var

ious

pub

lic/p

rivat

e

Incl

udes

5 d

istin

ct p

rope

rties

- th

e G

rout

M

useu

m o

f His

tory

& S

cien

ce, t

he

Blue

dorn

Sci

ence

Imag

inar

ium

, the

Sn

owde

n H

ouse

, the

Ren

ssel

aer

Rus

sell

Hou

se M

useu

m a

nd th

e S

ulliv

an

Brot

hers

Iow

a Ve

tera

ns M

useu

m

$1.9

mill

ion

5

Hou

ston

Mus

eum

Dis

trict

H

oust

on, T

XH

otel

tax;

var

ious

pu

blic

/priv

ate

fund

ing

Hot

el O

ccup

ancy

Tax

fund

s fro

m th

e C

ity, a

nd o

ther

fund

ing

from

par

ticip

atin

g m

useu

ms,

Hou

ston

Arts

Alli

ance

, fo

unda

tions

, and

priv

ate

ente

rpris

es.

$1.8

mill

ion

18

Pitts

burg

h C

ultu

ral D

istri

ctPi

ttsbu

rgh,

PA

Var

ious

pub

lic/p

rivat

e

Stat

e, A

llegh

eny

Cou

nty,

City

of

Pitts

burg

h, th

e H

owar

d H

einz

En

dow

men

t, an

d gi

fts fr

om th

e pr

ivat

e se

ctor

$45

mill

ion

14

Chi

cago

Par

k D

istri

ct

Mus

eum

and

Aqu

ariu

m F

und

Chi

cago

, IL

Par

k D

istri

ct ta

xSt

ate

requ

ires

Par

k D

istri

ct to

allo

cate

a

shar

e of

its

pers

onal

pro

perty

re

plac

emen

t tax

es.

$30-

$40

mill

ion

10

Cul

tura

l, H

isto

ric, &

Mus

eum

Dis

tric

ts


Table 27: Summary of State-Level Cultural Districts

N

ame

Loca

tion

Stat

e A

utho

rity

Det

ails

Arts

& C

ultu

ral D

istri

cts

Indi

ana

Indi

ana

Arts

Com

mis

sion

19 d

istri

cts

Cul

tura

l & E

nter

tain

men

t D

istri

cts

Iow

aIo

wa

Dep

t of C

ultu

ral

Affa

irsPr

eser

vatio

n an

d / o

r pro

perty

tax

fund

ed

Cul

tura

l Dis

trict

sLo

uisi

ana

Dep

t of C

ultu

re, R

ec, a

nd

Tour

ism

Pres

erva

tion

and

/ or s

ales

tax

fund

ed

Arts

& E

nter

tain

men

t D

istri

cts

Mar

ylan

dD

ept o

f Bus

& E

con

Dev

; St

ate

Arts

Cou

ncil

Adm

issi

ons,

inco

me,

and

/ or

pro

perty

tax

fund

ed

Artis

t Ent

erpr

ise

Zone

s*M

assa

chus

etts

Dep

t of R

even

ueC

ultu

ral R

edev

elop

men

t D

istri

cts*

Mic

higa

nD

ept o

f Lab

or &

Eco

n G

row

th

Arts

& C

ultu

ral D

istri

cts

New

Mex

ico

Econ

Dev

Dep

t; M

ain

Stre

et; N

M A

rtsIn

com

e an

d / o

r pre

serv

atio

n ta

x fu

nded

Cul

tura

l Dev

elop

men

t Are

as*

New

Yor

kD

ept o

f Eco

n D

ev

Tax-

Free

Arts

Dis

trict

sR

hode

Isla

ndSt

ate

Cou

ncil

on th

e Ar

tsIn

com

e an

d / o

r sal

es ta

x fu

ndin

g pe

rmitt

edC

ultu

ral D

istri

cts

Texa

sC

omm

issi

on o

n th

e A

rtsC

ertif

ied

Arts

Com

mun

ityW

est V

irgin

iaC

omm

issi

on o

n th

e A

rtsAr

ts, E

nter

tain

men

t, &

Ente

rpris

e D

istri

cts*

Wes

t Virg

inia

Dep

t of C

omm

erce

Sou

rce:

Nat

iona

l Ass

embl

y of

Sta

te A

rts A

genc

ies,

200

8

Stat

e-Le

vel C

ultu

ral D

istr

icts


Table 28: Summary of Cultural, Historic, and Museum Organizations

N

ame

Loca

tion

Sour

ce o

f Fun

ding

Det

ails

Bro

war

d C

ultu

ral A

ffairs

Cou

ncil

Fort

Laud

erda

le, F

L Ad

mis

sion

s ta

xO

ne-q

uarte

r cen

t of t

he 6

cen

t sal

es ta

x on

ad

mis

sion

sM

etro

polit

an E

xpos

ition

Rec

reat

ion

Com

mis

sion

Por

tland

, OR

Adm

issi

ons

tax

"Use

r's fe

e" a

dded

to ti

cket

s so

ld a

t all

even

ts

in p

ublic

ly-o

wne

d ve

nues

Win

nipe

g A

rts A

dvis

ory

Cou

ncil

Can

ada

Adm

issi

ons

tax

10%

add

ed to

an

adm

issi

on p

rice

of $

5.00

or

mor

e at

any

"pla

ce o

f am

usem

ent"

Mon

tana

Cul

tura

l Tru

stV

ario

us, M

TC

oal p

rodu

ctio

n ta

x2/

3 of

1%

of t

he ta

x on

coa

l pro

duct

ion

Min

neso

ta H

isto

rical

Soc

iety

Var

ious

, MN

Stat

e sp

onso

red

Min

neso

ta H

isto

rical

Soc

iety

rece

ives

$11

m

illio

n in

fund

ing

from

the

stat

e to

war

d th

e m

anag

emen

t of 2

5 hi

stor

ic s

ites

acro

ss th

e st

ate

Ore

gon

Cul

tura

l Tru

stV

ario

us, O

RVa

rious

pub

lic/p

rivat

e Ta

x cr

edit

for d

irect

con

tribu

tions

; rev

enue

fro

m "c

ultu

ral"

licen

se p

late

sal

es, a

nd s

urpl

us

stat

e-ow

ned

asse

ts s

ales

Ariz

ona

Arts

Tru

st F

und

Var

ious

, AZ

Filin

g fe

es$1

5 of

the

filin

g fe

es re

quire

d of

for-p

rofit

co

rpor

atio

ns

Flor

ida

Cul

tura

l Ins

titut

ions

Tru

st

Var

ious

, FL

Filin

g fe

esFu

nd a

dmin

iste

red

thro

ugh

the

stat

e's

Div

isio

n of

Cul

tura

l Affa

irsD

eadw

ood

His

toric

Pre

serv

atio

n C

omm

issi

onD

eadw

ood,

SD

Gam

ing

tax

Shar

e of

the

8% G

amin

g Ta

x

Mas

sach

uset

ts C

ultu

ral C

ounc

il.V

ario

us, M

AG

amin

g re

venu

eSh

are

of lo

ttery

reve

nue

Gre

ater

Col

umbu

s Ar

ts C

ounc

ilC

olum

bus,

OH

Hot

el ta

x

20%

of t

he "b

ed ta

x"

Mia

mi-D

ade

Cul

tura

l Affa

irs C

ounc

ilM

iam

i, FL

Hot

el ta

x

20%

of t

he "b

ed ta

x" p

rovi

des

fund

ing

for

annu

al c

ompe

titiv

e gr

ants

Reg

iona

l Arts

Com

mis

sion

of S

t. Lo

uis

St.

Loui

s, M

OH

otel

tax

4/

15 o

f the

3.7

5% "b

ed ta

x" c

olle

cted

from

the

City

and

Cou

nty

San

Die

go C

omm

issi

on fo

r the

Arts

an

d C

ultu

reS

an D

iego

, CA

Hot

el ta

x

One

cen

t for

eac

h 10

.5 c

ents

col

lect

ed fr

om

the

city

's 1

0.5%

Tra

nsie

nt O

ccup

ancy

Tax

Asp

en/S

now

mas

s C

ounc

il fo

r the

A

rtsA

spen

, CO

Rea

l est

ate

trans

fer t

ax0.

5% o

f the

Rea

l Est

ate

Tran

sfer

Tax

Cul

tura

l, H

isto

ric, &

Mus

eum

Org

aniz

atio

ns


Grout Museum District – Waterloo, IA

The Grout Museum District is a nonprofit organization that relies on a variety of funding sources for the operations of five museums: the Grout Museum of History & Science, Sullivan Brothers Iowa Veterans Museum, Bluedorn Science Imaginarium, Rensselaer Russell House Museum, and the Snowden House.

Houston Museum District – Houston, TX

The Houston Museum District Association formed in 1997 as an independent nonprofit organization aimed at promoting cultural destinations. It is primarily funded through a share of the hotel tax to promote 18 arts, sciences, and cultural amenities of the area. All of the museums offer free hours, and 11 are free all the time. The association annually distributes more than 250,000 brochures, travels on tourism marketing junkets with the Houston Convention and Visitors Bureau, and hosts an annual open house that attracts 45,000 visits in one day. Together, member institutions count nearly 9 million annual visits.

Pittsburgh Cultural District – Pittsburgh, PA

Pittsburgh's Cultural District is a 14-square-block area in downtown with 14 cultural facilities managed by the Pittsburgh Cultural Trust. The Trust’s approach to creating the District has included streetscape programs, facade restorations, new cultural facilities, and public open spaces and art projects. Shared Services, a department of the Trust, provides a platform for cost savings to benefit the Trust and a core group of regional arts organizations based in the Cultural District (Pittsburgh Ballet Theatre, Pittsburgh Civic Light Opera, Pittsburgh Opera, Pittsburgh Public Theater and Pittsburgh Symphony). Shared Service offers collaborative initiatives ranging from shared information systems platforms, strategic marketing, program advertising sales, office supplies, printing, and pooling financial resources available at highly subsidized rates.

Chicago Park District Museum and Aquarium Fund – Chicago, IL

The Chicago Park District manages the Museum and Aquarium Fund, which derives a share of city property taxes to support the 10 museums that comprise the “Museums in the Park.” In 2008, these facilities attracted 7.6 million people, including over 1 million school children who visited as part of organized field trips. The Museum of Contemporary Art is the tenth Chicago museum to join Museums in the Park and the first new member since 1989. The $30+ million allocated annually only represents a share (17% of total revenues collected by 9 museums in 2003) of total operating revenue.


Historical Sites & Attractions

The following set of case studies are historical sites and attractions. While the highest attended attractions drew from larger population bases, not all attractions with large markets were heavily attended, emphasizing the need to offer an appealing visitor experience. More rural attractions reflected higher percentages of regional/overnight visitors. Their limited population bases create a need to appeal to the larger regional market, and successful attractions must be able to penetrate this larger market.

National Heritage Museum – Lexington, MA

Located on a 22-acre site in Lexington, MA, the National Heritage Museum is a history museum that is open seven days a week, year round (except Christmas Eve & Day Thanksgiving, and New Year's Day). There is no admission fee and parking is free. Collections include American prints, paintings, maps, decorative arts, clocks, furniture, costumes, photographs, and other memorabilia. Fields represented include the history of Freemasonry, symbolism of Masonic & fraternal organizations, and patriotic iconography. In addition to exhibits, the Museum has a large library and reading room, the 120-150 person James F. Farr Conference Center, a 390-seat auditorium, a café, and a gift shop (supplemented by merchandise available for purchase online).

Nature of experience

Each year the National Heritage Museum has as many as 18 changing exhibitions in 6 galleries with 16,000 Masonic and Americana objects focusing on "the rich diversity of American life across four centuries--how we as a people have worked and played, struggled and achieved." There are a variety of tours available, including the Liberty Ride 90-minute tour of the Lexington-Concord area as well as a popular lecture series presenting nationally renowned speakers. Other activities include concerts, workshops, educational and family programs, and school tours. The Museum publishes a quarterly newsletter and calendar, exhibit brochures, and an annual report. The National Heritage Community has a strong community presence through the over 80 public programs offered annually including lectures, concerts, festivals, and special family programming.


Table 29: Summary of Historical Sites and Attractions

N

ame

Focu

sA

ttend

ance

Ope

ratin

g B

udge

tEa

rned

In

com

eFT

E

Labo

r C

ost (

% o

f op

erat

ing

budg

et)

Bud

get P

er

Atte

ndee

Atte

ndee

Per

B

udge

tA

brah

am L

inco

ln

Pre

side

ntia

l Lib

rary

an

d M

useu

m, I

L

The

life

of th

e 16

th U

.S. P

resi

dent

, A

brah

am L

inco

ln, a

nd th

e co

urse

of t

he

Am

eric

an C

ivil

War

350,

000

$10.

5 m

illio

n22

%n/

a40

%$3

0.00

$0.0

33

Col

onia

l Will

iam

sbur

g,

VA

An

on-s

ite p

rese

rvat

ion

of th

e fo

rmer

ca

pita

l of V

irgin

ia c

olon

y70

7,00

0$2

00 m

illio

n75

%2,

000

40-5

0%$2

82.8

9$0

.004

Mad

ison

Bar

rack

s, N

YFi

rst p

erm

anen

t U.S

. mili

tary

en

cam

pmen

t in

the

Nor

th C

ount

ry; 2

5 co

mpl

etel

y re

stor

ed b

uild

ings

n/a

n/a

n/a

1n/

a

Fort

Sne

lling

, MN

Fron

tier s

ocia

l his

tory

& m

ilita

ry

mat

eria

l cul

ture

182

0s-1

860s

. 65

,000

$1.2

mill

ion

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Operations

The National Heritage Museum is operated by a nonprofit organization with the parent organization the Scottish Rite Masons of the Northern Jurisdiction and is dependent on its continuing support. On average, the Museum receives between 70,000 and 80,000 visitors annually. The total annual operating budget is approximately $3 million, with earned income primarily derived from membership ($182,000) and retail sales ($152,600). Memberships start at $40 for an individual and include a quarterly newsletter, advance notice of special programs, previews of exhibitions, an annual report, and a 10% discount at the gift shop and café. About half (45%-55%) of expenses are devoted to staffing the Museum with 21 full time and 22 part time employees (the Museum also has 90 part time volunteers). Another 20-25% of the budget is required for utility expenses of $800,000 annually. On the retail expense side, the cost of goods sold is typically 50-55%.

Best Practices

A comprehensive campus of historical interpretation with a variety of group settings for

discussion and special events rentals.

Dedicated and continuing support of founders (the Scottish Rite Masons of the Northern

Jurisdiction).

Abraham Lincoln Presidential Library and Museum – Springfield, IL

The Abraham Lincoln Presidential Library and Museum is located in the historic downtown section of Springfield, Illinois near many other historic sites. The Presidential Library opened in 2004, and the museum opened in 2005. The facility contains 136,000 sq ft, 43,000 sq ft of which is classified as exhibit space. The library and museum are open daily except New Year's Day, Thanksgiving, and Christmas from 9:00am-5:00pm and research appointments by reservation.


The Museum exhibits document the life of Abraham Lincoln and the course of the American Civil

War through replicas of Lincoln's boyhood home, areas of the White House and the

presidential box at Ford's Theatre, pictures, artifacts, and other memorabilia. Two movies,

Lincoln's Eyes and Ghosts of the Library, run several times an hour. The presidential library

houses books, papers and artifacts related to the 16th President's life and the American Civil

War, including the "Everett Copy" of the Gettysburg Address, which is on public display in


its Treasures Gallery. The Museum Store, with an online component also, is approximately

5,000 square feet and is managed through the Abraham Lincoln Presidential Library Foundation

which also manages the 2,500 square foot restaurant. The Museum hosts a variety of outdoor

performances and community events at Union Square Park.

Operations

The museum is overseen by the State of Illinois Historic Preservation Agency. In its first year of operations, the museum attracted more than 600,000 visitors and it is estimated that museum attendance will stabilize at about 500,000 annually; however, attendance dropped in 2008 due in part to the declining economy and the high cost of gas to 350,000 visitors (8 visitors per exhibit square foot). Attendance peaks from mid-March to mid-August with a second peak during the fall as school group attendance increases. The current length of stay is estimated at about 2 to 2½ hours. Approximately 60% of visitors are from Illinois. The Museum has approximately 6,000 members and, understanding a large draw from Chicago residents, the Museum offers a special $60 membership for visitors living more than 100 miles from Springfield that includes 4 admissions per visit.

The operating budget for the Lincoln Presidential Library and Museum was $10.5 million in FY 2007. The state appropriates $8 million for operations, with the remainder generated through earned income, including $2.3 million in ticket revenues. Earned income is driven by admission and membership revenues. Admission to the library is $10 for adults, $7 for seniors and $4 for children. Discounts are given ($5.50 per adult) if the group arranges their visit through the Springfield Convention and Visitors Bureau. Memberships start at $60. Staffing accounts for about 40% of total operating costs.

Best Practices

Understanding visitor market led to specifically tailored fee structures (e.g. the Museum offers a

membership for visitors living more than 100 miles from Springfield).

Support of state foundation

Provide tie-in to state education curriculum standards to boost school group visitation.

Use of modern technology and creative exhibits attracted larger than expected attendance and

enthusiastic visitors.

The increased scale / density and linkage with other local attractions increases market

penetration and overall visitor length of stay.


Colonial Williamsburg – Williamsburg, VA

Situated on 300 acres, Colonial Williamsburg in Williamsburg, Virginia is the largest living history museum in the United States. It consists of a combination of extensive restoration and thoughtful recreation that is designed to facilitate an understanding the origins of America, or "that the future may learn from the past." In the Historic Area there are 600 restored, reconstructed and historically furnished buildings from 1693-1837. In addition, there are two museums: the DeWitt Wallace Museum and the Abby Aldrich Rockefeller Folk Art Museum. The Visitor Center, created in 1956, is used as a central location to sell tickets and provide visitor information. Facilities also include a large library, a 450-seat auditorium, a theater, classrooms, restaurants, and shops. A basic ticket is $37 for adults and nearly all (95%) of visitors choose the general admission ticket in order to have access to everything. However, it is also possible to buy individual tickets for select attractions through a variety of ticket packages, some of which are tied to accommodation or special events such as Independence Day and Christmas.


Colonial Williamsburg is focused on providing visitors a “real life” experience of life in the late 18th century in the former capital of Virginia colony founded in 1926, with costumed interpreters, guided tours, daily two-hour dramatic enactments of pre-Revolutionary and Revolutionary War events, lectures, films, gallery talks, concerts, drama, TV and radio programs, education programs, and permanent and temporary exhibitions.

Operations

Colonial Williamsburg is owned and operated by the Colonial Williamsburg Foundation, a non-profit entity endowed by the Rockefeller family that receives no regular state or federal funding. The Foundation preserves and interprets the Historic Area, sells licensed products and reproductions, and operates the Historic Area, museums, Carter’s Grove, and for-profit subsidiaries including hotels, restaurants, convention facilities and golf courses.

In 2008, general admission ticket sales were just more than 707,000; taking account of those with multiday or annual passes, this translates to close to 2 million guest visits to the site. Of the total annual visitation, approximately 40 percent are children (of which, 10-12% are in school groups) and the remaining 60 percent are adults. However, certain seasons show different trends as visitors to Colonial Williamsburg during the summer months, June, July and August, are predominantly families, whereas the spring months, March, April and May see a large influx of school groups. Approximately 95 percent of visitors come from within the US and the remaining 5 percent are international tourists (primarily from Canada). The


average length of stay is 2.5 days. Colonial Williamsburg has historically operated under the following parameters:

Earned income: 50-60% of operating expenses

Admissions revenue: 15-20% of operating expenses

Rental revenue: 5% of operating expenses

Gift shop sales: 30% of operating expenses (44% cost of goods sold)

Maintenance: 5-10% of operating expenses

Marketing and Advertising: 10% of operating expenses

Salaries and wages: 40-50% of operating expenses

Colonial Williamsburg’s annual operating budget was approximately $200 million in 2007, with earned income generated through $18.5 million in admissions, $43 million in merchandising, $723,000 in rentals, and hotel rooms. (A major source of unearned revenue is the $611 million endowment, which generated $15 million in unearned income in 2008). Although revenue from ticket sales increased by $250,000 to $18.5 million in 2008, price competition for hotel room rates combined with an overall weakened economy resulted in a 9% decrease in hospitality revenues from 2007, a 3% decrease in evening program and carriage ride ticket sales to 301,000, an 8% decrease in art museum visitation to 218,000, a 5% decrease in Historic Area bus ridership slipped to 2.1 million, and a 15% decrease in retail store sales to $40 million.

While the President has looked at the overall weakened economy and suffering conference business and increased price competition, several other more long term issues have been identified. First, while Colonial Williamsburg’s efforts to aggressively develop commercial aspects to help push attendance to the historical district have been somewhat successful, the retail and hotels are still not generating enough revenue to cover costs (reaching an 80% earned income to budget ratio at best). Second, the overall Colonial Williamsburg experience has not changed to appeal to new markets and interests in over 50 years. Finally, visitors are apparently going to other attractions like Water Country USA waterpark and then walking through the historic district and listening in on tours for free ("Williamsburg Lite" as one correspondent referred to it).

Colonial Williamsburg has taken measures to reduce expenses and stimulate attendance revenues. This has included eliminating 140 filled positions – there are now an estimated 1,900 full time staff and 900 part time volunteers – and outsourcing warehouse and call center functions. On the revenue side, Colonial Williamsburg recently licensed new garden and holiday products; entered a multiyear distribution deal with television retailer QVC


that offers WILLIAMSBURG-brand products, and developing a new eighteenth-century-style café for ticketed guests only.

Best Practices

Ability to recognize and respond proactively to funding challenges

Brand program and licensing of home and holiday products.

Incorporation of supportive retail and other commercial amenities to lengthen visitor stay

Retail to help pay for the upkeep of Williamsburg

Successful operation by independent foundation with broad-reaching member and donor base

Well-received marketing of concept and visitor experience through website, educational

programming, and special events

Battlefield Site Visitation

A 2004 study of four battlefields by the Civil War Preservation Trust determined that the average age of Civil War battlefield visitors is 50 years old and the average annual household income is $67,914. These visitors have visited an average of seven battlefields, and 75% of them traveled to the area specifically to see the battlefield. Visitor spending was $51.58 per day on average and while in the area near the battlefield, 72% of them stayed in paid accommodations and, on average, spent 2 to 3 nights in the community.

Fort Larned National Historic Site – Larned, KS

Fort Larned is located on 718 acres, 680 acres of which are owned by the federal government (National Park Service). The original fort was established in 1859 as a base of military operations against Central Plains Indians, to protect traffic along the Santa Fe Trail, and as an agency for the administration of the Central Plains Indians by the Bureau of Indian Affairs under the terms of the Fort Wise Treaty of 1861. In 1957, the local Historical Society formally opened the site for visitation and about 10 years later, the National Park Service purchased the site. Fort Larned is open seven days a week (except Thanksgiving, Christmas Day, and New Year’s Day) from 8:30pm to 4:30pm and there is no entrance fee. Collections include 80,000 recovered artifacts and military items dated between 1859 and 1878.


Visitors come to Fort Larned to see a fairly intact Indian Wars period fort, get a feel for life in the 1860s, see part of the Mail Route Trail, and to visit it as one of the NPS parks. Historic buildings at Fort Larned include 9 original buildings and 9 restored buildings including the


barracks, commissary, and officers quarters. officers' quarters, quartermaster storehouse, commanding officer's quarters, two commissary storehouses, shops building containing the post bakery, carpenter, paint, saddlers, wheelwright and blacksmith shops, infantry barracks, combination barracks/post hospital, and a reconstructed guardhouse. Other facilities onsite include a small library, visitor center with museum exhibits, picnic area, and hiking trails. Activities include: guided tours, lectures, exhibitions, history talks, and living history demonstrations throughout the summer on weekends as well as special events (Santa Fe Trail Days, Old Time Independence Day Celebration, Fall Candlelight Tour, and Christmas Open House).

Fort Larned has always been an attraction in the community, used throughout its history for meetings, reenactments, picnics, etc. The managers are in close contact with the Chamber of Commerce and City officials. The Fort Larned site manager explained that it is important to try not to compete with other local attractions, but also to offer an attractive visitor destination.

Operations

Fort Larned is operated by the National Park Service (NPS). According to the manager, there are typically between 40,000-50,000 visitors on average depending on the price of gas, weather, school tours, and special events; however, NPS data reported attendance has decreased from 37,127 in 2004 to 21,483 in 2007. According to additional data on Fort Larned visitation from NPS, 20% of all recreation visits were local residents on day trips, 55% were visitors on day trips from outside the local area, 20% were visitors on overnight trips staying in lodges, motels, hotels or B&B's in the area and 5% were camping, and visitors spent $62 per party per day in the local area on average.

The operating budget in FY08 was $1 million, with approximately 80% of expenses covering 15 FTE staff salary and benefits. Fort Larned also has over 200 part time volunteers. The Fort Larned bookstore is operated by Western National Parks Association, which has 3,000 members and operates bookstores in 12 states, offering 600+ educational products. There are currently more than 200 books in print and more books are published yearly. Book sales through Western National Park must be educational materials.

Best Practices

Active relationship with City and Chamber of Commerce

Benefit of having a history as a visitor recreation destination prior to the National Park Service

taking over


Have a specific attraction niche on site – one of the best examples of Indian Wars period forts –

along with the “big picture” historical context

Fort Point – San Francisco, CA

Fort Point is a 29-acre historic site circa 1853-1861 located on the 1,480-acre Presidio National Park. It has been a fortified location since 1776 when the Spanish made it the military center of their expansion in the area. The Presidio Trust Act calls for "preservation of the cultural and historic integrity of the Presidio for public use." The Fort is open Friday through Sunday (except Thanksgiving, Christmas Day, and New Year’s Day) from 10am until 5pm. There is no admission charge.


The entire Presidio Park has 800 buildings, many of them historical. In 2001, 126 historic and non-historic units were refurbished and added to the Presidio's rental housing stock, bringing the total of rented units to 900, and by 2004, about half of the buildings on park grounds had been restored or partially remodeled. Residential properties range from former barracks and enlisted men's apartments – some of which have been used by San Francisco State University for overflow student housing – to Civil War-era wood-frame houses to brick mansions built for high-ranking officers. The total capacity is estimated at 5,000 residents when all buildings have been rehabilitated. Residential rents at the Presidio have followed the market down, but with their views of the Golden Gate Bridge and their wooded park setting, large homes can rent for upwards of $6,000 a month. Various commercial enterprises also lease buildings on the including The Bay School of San Francisco, several private foundations, Starbucks Coffee, and a museum in the memory of Walt Disney. Activities at Fort Point include guided and audio tours, formal education programs for children, and permanent exhibitions focusing on the military history of Fort Point. Facilities include a small library. Publications, posters, and postcards are also available for purchase.

Operations

The National Park Service (NPS) manages coastal areas and Fort Point, while the Presidio Trust manages the interior 80 percent of the Presidio, including nearly all of its historic structures. Visitation to Fort Point is roughly 300,000, out of nearly 1.4 million total visitors to the Presidio. According to additional visitor data from NPS, 20% of all recreation visits were local residents on day trips, 55% were visitors on day trips from outside the local area, 20% were visitors on overnight trips staying in lodges, motels, hotels or B&B's in the area


and 5% were camping, and visitors spent $115 per party per day in the local area on average.

Fort Point had a FY08 operating budget of $520,000, with approximately 71% covering expenses for 6 FTE employees. Fort Point also has 8 full time volunteers. Memberships for the Fort Point and Presidio Historical Association start at $35. In 1996, the Presidio Trust was created as an executive agency of the U.S. government, with a federal subsidy starting at $25 million and declining every year until its termination in 2013; rents from residential and commercial tenants allowed this happened well ahead of schedule in 2006. Annual costs for running the Presidio are estimated at $36 million, and projected to rise to $45 million by 2013. Completing the retrofitting and rehabilitation of 470 historic buildings and other planned park improvements and ongoing maintenance is estimated to cost a total of $546 million.

Best Practices

Successfully meeting challenge to support historic preservation area’s financial demands by

prudent selection of development concepts

Mix of residential reuse and commercial amenities have created highest and best use community

fabric within and balanced by recreational land

Challenged by the tension between permitting public use while also maximizing income

through leasing historic buildings.

Fort Scott – Fort Scott, KS

Fort Scott is a national historic site located on 17 acres managed by the National Park Service. There are a total of 22 buildings, including 11 original buildings circa 1842, a parade ground, and 5 acres of restored prairie. In the 1960s, there was a push to restore the site, and it was formally dedicated in 1979 through funding secured through lobbying efforts by the local congressional representative for the area. The Fort covers the 1842-1873 period of time and its relevance through four phases: the Mexican-American war and resulting California gold rush; Bleeding Kansas (aka Border War); a supply depot in the logistical support system during the war (hospital with 4,000 patients, bootcamp, remount center, 1st African American units to join the Army in 1863); and, through the private industry negotiation and construction of the Kansas Railroad. Fort Scott is open daily 8/9am-5pm and there is a $3 admission charge to the museum for adults.



Fort Scott is located on the north end of a small town in Kansas and contains buildings that were the founding buildings and the beginning of the town. Activities include: self-guided tours, living history demonstrations, weekend activities during the summer, and four special events per year including one in conjunction with the community. In addition, Fort Scott offers educational programs based on State curriculum criteria and programs coordinating college students with conservation programs.

Facilities include the 1842-53 Officers Quarters, Post Hospital, Barracks, Post Headquarters, Stable, Guardhouse, Magazine, Bakery, Quartermaster Storehouse, and Well Canopy, and a library. Fort Scott has three main museum areas: the Infantry Barracks Museum has exhibits about the site's history, the Dragoon Barracks Museum has exhibits on the soldiers stationed at the Fort in the 1840s, and exhibits in the Wilson-Goodlander House provide information about the site's construction. In total, there are eleven historic buildings containing 33 historically furnished rooms open to the public. One hour is recommended to view the 12-minute audio-visual program and walk through the buildings; 3-4 hours is recommended to read all the exhibits and to participate in the interpretive activities offered during the summer. During the spring, middle school and elementary education programs are presented.

Operations

Fort Scott is operated by the National Park Service (NPS), which reported visitation of 25,322 in 2008, although the director reported averages closer to 30,000-32,000, which would be closer to 2004 reported visitation of 28,973. NPS found that on average, visitors to Fort Scott spent $62 per party per day in the local area.

The operating budget at Fort Scott was $1.12 million in 2008, with 95% covering 17 FTE employee salaries and benefits. The museums are partially supported by a $3 admission fee for adults. Fort Scott has 360 part-time volunteers.

Best Practices

Strong local resident interest in promoting the redevelopment and refurbishment of the

historical site duly lobbied for by politicians.

Educational programming tied to state curriculum drives school visits.

Location within the community provides inherent connections to market, events, promotion,

and community pride for the Fort


Fort Snelling – Minneapolis, MN

Fort Snelling is a national historic site that was founded in 1970. In the 1940s, Fort Snelling was one contiguous military complex; however, Humprey Airport has expanded onto it. There is still a National VA Cemetery located 8 miles to the west of Fort Snelling. The Fort and History Center are generally open from 9am-5pm. Admission to the Fort is $10 for adults; there is no charge for the History Center. Unless otherwise noted, admission is $5 each for students and adults in educational groups and a $50 minimum charge (10 student minimum) for school tour and programs.


Fort Snelling has four original and 14 reconstructed buildings that illustrate military life in the 1820-1830 time period as well as a History Center with 3,000 sq ft of exhibit space, and a 300-seat theater. Activities include guided tours, films, organized education for children, participatory exhibits, and living history programs with a staff of interpreters. Research fields include frontier social history and military culture.

Operations

Fort Snelling is operated by the nonprofit Minnesota Historical Society (MNHS), which operates 25 historic sites across the state and receives $11 million in funding from the state toward the management of these sites. According to the Director, the Fort receives an average of 60,000-70,000 visitors, out of 100,000 total visitors to the site. Funding sources include historical reproductions and books for sale, admission, and membership dividends through the Minnesota Historical Society. The operating budget (based on very rough estimate) is likely close to $1 million. Fort Snelling has 7 full time staff, 55 part time staff, and 25 part time volunteers.

Best Practices

The key lessons learned from Fort Snelling are traced to the benefits of management by a state foundation (Minnesota Historical Society):

Distributes fixed costs

Support network and coordination with other MNHS-managed sites

Increases opportunities to get shares of statewide funding initiatives

Independent admission fee structure to augment earned income


Fort Vancouver – Vancouver, WA

Fort Vancouver is located on 366 acres in the Vancouver/Portland metropolitan area and is enveloped by its highway, rail, air, and maritime commercial networks. Before it became a recognized National Park Service site in 1967, the Fort served as the early end of the Oregon Trail for American immigrants, the administrative headquarters and supply depot for the Hudson's Bay Company 1829-1860, a spruce mill for planes for the war effort, and a U.S. Army post until 1945. The Fort is generally open daily 9am-5pm (closed Thanksgiving, Christmas Eve and Christmas Day). Entry fees to the reconstructed Fort are $3 per individual and $5 per family, valid for seven days. The McLoughlin House unit is free to the public; no entrance fee is charged.


The story of the site as an economic and cultural center is told, in part, through guided tours, demonstrations, exhibits, and an archaeology collection. Facilities include a small library with books on the fur trade and early military history in the Pacific Northwest, several attractions displaying the Hudson Bay and US Army eras including an 1840's fur trading fort, a garden, orchard, and Village with one house and another under construction to interpret the working class, the Pearson Air Museum, and Officers Row - former army housing.

Fort Vancouver maintains a community connection through public programs (some fee based, many free) such as the recent Army Brigade encampment. The Fort Vancouver National Trust also puts on a series of "Celebrate Freedom" events that draw an estimated 100,000 and the 4th of July celebration normally draws 65,000 people (in 2009, this event was postponed for a year due to sponsorship issues). According to the Director, the Fort is also heavily used by the community for casual recreation (dog walking, frisbee, and picnics).

Operations

Fort Vancouver is operated by a successful partnership modeled off the Golden Gate National Recreation Area between NPS, the City of Vancouver, the US Army, the Washington State Historical Preservation Society, and the nonprofit Fort Vancouver National Trust ($1.7 million budget) to interpret and preserve. Fort Vancouver is now being contacted by other historical sites for use as an innovative model.

The Trust serves as a cooperative association to the NPS and operates the retail and provides support to the NPS for educational programming. It operates Pearson Air


Museum, manages the Visitor Information Center bookstore ($104,000 in sales in 2008; 54% cost of goods sold), oversees event rentals and special events such as the annual Hangar Dance, Aviation Summer Camp, and Christmas at the Museum, and manages the leasing of property along Officer's Row (which is owned by the City) and the City's portion of the Barracks. The US Army post has recently been identified to close as part of the Base Realignment and Closure process, so there will be a post-to-Park transfer and the Trust will enter into a similar agreement for portions of the East and South Barracks to spearhead the redevelopment of the buildings and find tenants (2010).

An estimated 50,000 persons visited the Pearson Air Museum during 2007, 25,000 of whom are school children as the Fort is part of the 4th grade curriculum in Oregon and Washington. The entire Park including Fort Vancouver and Columbia River walking trails receives 800,000-900,000 visitors annually – a significant increase from historic levels between 2004 and 2007 of closer to 700,000 – and according to visitor data from NPS, visitors spent $88 per party per day in the local area on average.

The operating budget at Fort Vancouver is $1.7 million, 89% of which covers expenses for 26 FT employees. The Fort also has 100 full time volunteers. Earned income sources include admissions revenue and rental income from cultural programs, picnics, wedding ceremonies, and film and photography projects. (Rental fees include a $75 administrative cost, $65/hr/employee management cost, and a $750 maximum location cost depending on the number of people).

Best Practices

Model public-private partnership between local, state, and federal organizations

Efforts toward continuing to increase intra-NPS coordination through “Points for Coordination”

Independent nonprofit (Fort Vancouver National Trust) manages business (leasing and retail),

leaving NPS to handle park maintenance, interpretation, and other efforts more traditionally

under NPS scope.

Fort Hancock / Gateway Recreation Area – Fort Hancock, NJ

Fort Hancock at Sandy Hook is a national historic site located on over 20,000 acres of the Gateway Recreation Area in New Jersey. The Fort provided coastal defense for New York Harbor from 1895 until 1974 and over 100 buildings and fortifications remain intact. The Fort Hancock Museum and History House are located in a restored home on Officer’s Row. Fort Hancock is also home to the nation's oldest continuously operated lighthouse (1764), which is fully restored and open to visitors.



The experience of Fort Hancock Museum includes more than 8,000 historical photographs and papers, 4,000 blueprints and maps, books and Army manuals, military uniforms, weapons, models, artifacts relating to U.S. Lifesaving & Lighthouse Services, personal and societal items, and insect collections. Facilities include a reference library and other archival materials available for research by appointment. There are guided tours available. While Gateway Recreation Area has a major role as a recreational swimming destination, today many of Fort Hancock’s buildings are used by environmental and educational groups. In addition to non-profit groups, volunteers and students are also critical to the success of Gateway’s interpretive programs. At Sandy Hook, a total of 32,231 students participated in both formal programs (2,354 programs) and in numerous self-guided trips. Events are advertised through the website and in local papers.

Operations

The National Park Service operates the Gateway Recreation Area and Fort Hancock Museum. Gateway has experienced a steady climb in visitation from 8.2 million in 2004 to 9.4 million in 2008, due in large part to its proximity to a large metropolitan center. Attendance to the Museum averages 50,000. Earned revenues are generated through parking fees ($10 for cars). There is also a gift shop in the visitor center and at the Lighthouse which are operated through the Eastern National Association; sales are estimated at $18,000 annually. Gateway Recreation Area has an annual base budget of about $25 million; this budget has not increased for several years despite rising utility costs and mandated salary increases. Fixed costs and salaries account for about 79 percent of the budget, covering 319 FTE employees. (The Museum has 7 full time employees and 70 part time volunteers).

Best Practices

Expansive land area with multiple attractions (beach, museum, lighthouse, Fort) drives

attendance from broad market

Knowledge of and use by nonprofit environmental and education groups are critical to the

success of Gateway’s interpretive programs

Governors Island – New York, NY

Governors Island was the command headquarters and military post for the United States Army from 1794 until 1966. In 2003, the island was sold and transferred to two parties: 22 acres in the northern end were designated as the Governors Island National Monument and


transferred to the National Park Service and 150 acres to the Governors Island Preservation and Education Corporation (GIPEC), a corporation formed jointly by the State and City of New York. Today, city, state, and federal agencies are in the planning stages of converting this former military installation into new public parkland.


Governor’s Island is accessible only by ferry. Facilities include the Commanding Officers House, a 12,000 square foot home built in 1850 that can accommodate events ranging from a small corporate retreat for 25 to large scale concert for thousands, two forts, baseball diamonds, 7 miles of bike paths, a maritime school under construction (completion in 2010), and various other facilities. The Governors Island ferry runs once an hour and can hold up to 950 foot passengers or 30 automobiles. Only a limited number of vehicles can access the island during public hours, based on specific event needs and determined on a per case basis. Trams are available to the public to access various parts of Governors Island and at times when the Island is not open to the public, the trams are available for rental for a private group or event. Rental fees are determined by the event’s nature and actual costs (e.g. public events and programs have a different fee structure than private events).

Operations

Governors Island is jointly operated by the City and State of New York and the National Park Service. There has recently been a significant increase in visitation from 69,000 in 2007 to 205,000 in 2008, largely due to increased publicity and a longer public access season. The Park’s General Management Plan estimates visitation will reach 500,000 annually by 2020. More than 75% of Governors Island’s visitors are from New York City, and nearly 90% of them are from the tri-state area. Over the past two years, visitation from foreign visitors has more than doubled to about 5% of total visitors. According to NPS data on Governor’s Island, 20% of all recreation visits were local residents on day trips, 40% were visitors on day trips from outside the local area, 30% were visitors on overnight trips staying in lodges, motels, hotels or B&B's in the area and 10% were camping. On average, visitors spent $143 per party per day in the local area.

Governor’s Island has a total estimated operating budget of $6.5 million, of which $1.5 million is devoted to the NPS portion of the Park and $644,000 (44%) of expenses are used to cover 10 FTE jobs. In 2008, NPS requested a budgetary increase of $345,000 and 3.5 FTE employees to expand public access to Governors Island National Monument from 3 to 12 months, increase the number of visitor programs from 300 to 1,200 annually, and provide basic visitor needs.


Best Practices

Much greater publicity about the island, its concerts, special events and exhibitions; park

staffing providing more interpretive and program opportunities; and longer public access

season offered by the city/state of New York resulted in a 200% increase in attendance.

Wide variety and scale of facilities combined with high density of recreational amenities creates

unique visitor destination.

Trams are available to access various parts of Governors Island (no private vehicles allowed)

and are available for private group or event rental.

Shiloh National Military Park – Shiloh, TN

Shiloh National Military Park is located on 4,000 acres in Tennessee and includes a military museum founded in 1894, a pre-Civil War cabin, and a National Cemetery, which holds 3,584 Civil War dead. About 20 acres to the south in Mississippi, a $9.5 million, 15,000-square-foot Corinth Civil War Interpretive Center was opened in 2004 and NPS is in the process of adding 12 sites - earthwork, battlefield, contraband camp, 20-acre site in Corinth, 6 bronze figures who lived/worked in camp, and 1,000 acres. The Museum, Visitor Center, Interpretive Center, and bookstore are open daily, with admission fees to the Museum of $3 for adults.


Activities at the Museum include guided tours, lectures, films, permanent exhibitions, and demonstrations. Facilities include a historic battlefield and a small library of Civil War source books. The site hosts a number of "living history" demonstrations, where re-enactors depict Union and Confederate Camp scenes. The Shiloh Battlefield and the Corinth Civil War Interpretive Center have large exhibits on slavery, secession, and the tools of war. Other on-site offerings include 3 films, 9.5 mile auto tour route with 14 tour stops, 86 minute auto audio tour for purchase, ranger-led interpretive programs during the peak season, several living history events throughout the year, and Junior Ranger programs for kids. In 2007, there were 22 special events, many involving group-sponsored living history programs and demonstrations depicting various aspects of Civil War history.

Relationship with community

Corinth community has been aggressive with the National Park Service politically, economically, and for the purpose of tourism in their community. Shiloh has a strong relationship with the business community, and often holds joint events such as the 2008 Grand Illumination with 8,000 candles throughout the site and downtown representing


those who died in the 1862 battle. Shiloh managers have also made progress promoting other battlefield sites so visitors will stay longer (in the past, operators noticed most visitors were staying an hour and then spending the night in Birmingham, Memphis, or Nashville; they hope to lengthen the stay and promote overnight stays in the area). They also have a reciprocity agreement with the Tennessee River Museum in Savannah.

Operations

Shiloh National Military Park has an operating budget of $2.2 million, 63% of which covers 28 FTE employees. In 2007, Shiloh had 580 volunteers. Requests for funding increase for 2009 included $455,000 and 8.4 FTE for the initial management and visitor services staffing at the Corinth Visitor Center. Shiloh collects a $5 fee at the Visitor Center, but then visitors are free to walk the grounds (in theory, they would pay another $3 at the gate). The Corinth Civil War Interpretive Center is free; the Shiloh Battlefield is $5 for a private vehicle with annual passes available for $10 (valid for one year only at the Shiloh National Military Park). Shiloh National Military Park has two bookstores – one at the Shiloh Battlefield and one at the Corinth Civil War Interpretive Center – that are operated by the Western Park Service. Gross sales at both stores are estimated to be $320,000-$350,000.

Shiloh is operated by the National Park Service (NPS). In 2008, the Park had approximately 370,000 visitors, an estimated 115,000 of whom went to the Museum and 80,000-120,000 of whom went to the Visitor Center, plus another 35,000 visitors going to the Corinth Interpretive Center. Nearly 34,000 people participated in 833 formal interpretive programs both on-site and at other locations such as schools and 27,000 people were reached through informal interactions. According to a 2004 study of Shiloh Battlefield by the Civil War Preservation Trust, the average visitor spends $40. The highest proportion of spending was on food, followed by lodging. Two-thirds of visitors stayed overnight in the area, with the average stay being 1.6 nights. Of those surveyed, 85% paid for their accommodations. A 2003 study by Michigan State University determined that over half (55%) of the visitors to Shiloh Battlefield were non-local day trippers, with the balance being split primarily between local visitors and non-local overnight visitors. This study found that nonlocal day trippers to Shiloh spent an average of $39 per party per day and local visitors spent an average of $26 per party per day. Non-local overnight visitors spent an average of $117 per party per day.

Best Practices

Local community has been aggressive politically and economically to support Shiloh; most

events at the Park are tied in with the business community downtown.


By promoting other local and regional battlefield and historical sites, they have succeeding in

increasing the length of visitor stay and number of overnight visits.

Forming a cooperative agreement with another museum (admission counts toward both

attractions) has helped advertising efforts.

Madison Barracks – Madison Barracks, NY

Named for President Madison, Madison Barracks is a designated Historic District and currently the focus of a major renovation project. Originally developed in 1813 as US Army encampment to protect the Great Lakes, it started out as Fort and grew into a full community which was closed in 1947. It was the first permanent U.S. military encampment in the North Country, with barracks completed in 1819. Following the restoration of 25 of the 32 buildings, Madison Barracks was officially opened as visitor attraction in 1986. Visitors come for historic nature of the site. Today, it is inherently tied into adjacent community as a third of the village population lives there. The Director has also formed a relationship with Fort Drum (16 miles away) in the hopes of finding resources to continue to restore buildings. There are now 260 residential units consisting of single family and market rate units (a population of 600). The residential use of the property has been very successful and they are about to expand again (just completed a $1.1 million sewer project in 2007 with $500,000 funding from state; hoping to complete $1.7 million water line).

Operations

In 2008, the historic assets including 35 acres, a burial ground, and 2 structures were put into a 501c3 to get out of the potential redevelopment of the historic sites and to help secure funding to improve and interpret the sites. The visitor traffic fluctuates some in summer, but traffic throughout July is 3,000-5,000/day (visitors and residents combined). There are no sources of earned income because it is essentially a private residential community. They have applied for a grant from Restore New York for 60% of funding to restore additional buildings. Other private development on site includes a grocery store, medical clinic, pizza shop, full-service catering, day spa, salon, leased office space, seasonal restaurant, and a 100-slip marina.

Best Practices

A successful single family residential community has largely overtaken the historical aspects of

the site, challenging future funding for interpretation and restoration.


Mix of private enterprise primarily serving residential community should be better connected to

public realm, perhaps even levying a small portion of local commercial profits to support future

preservation of the historic area

Other Military Museums

Ulysses S. Grant National Historic Site – St. Louis, MO

The Grant Historic Site was acquired by the National Park Service (NPS) in 1990 and opened to the public in 1993. There have been numerous additions/changes to the visitor experience since it was acquired, culminating in the completion of the main visitor center in 2005 and a new interpretive museum in the historic Grant stable in June 2007. The site is directly adjacent to the Grant’s Farm attraction operated by Anheuser-Busch, the ancestral home of the Busch family and current home of the world famous Anheuser-Busch Clydesdales and other animals. There is reportedly a fair amount of visitation generated through cross-visitation of the two attractions. Running in between the two attractions is Grant’s Trail, an 8 mile long Rails to Trails bike trail stretching through south and southwest St. Louis County, Missouri. We understand that this trail is anticipated to be extended to Jefferson Barracks.

The site hosts an evening event in the first week of August called the Night Walk, a 3-night event drawing 250-300 visits in total and which includes interpretive re-enactments and other programs. The museum partners with other historic sites in the area for a Grant bus tour. A recent new visitor experience is a cell phone tour so visitors can dial a number and learn more about the exhibits/attractions through recorded messages. This free admission attraction draws about 50,000 annually, while hosting another 1,000 in off-site events. The attraction tends to draw more families with young children in peak season and seniors and visitors with more focused interest in Civil War topics in shoulder seasons. A typical shoulder season day may see 20-30 visits and a typical busy summer day about 400 visits. About 10 percent of total admissions are from student groups, primarily comprised of 4th and 5th graders. School groups tend to visit in October/November and towards the end of the school year. In all, about 60% of total visitation is estimated to originate from the metro area. The site has an annual budget of about $1 million (from the Congressional budget), with about 85% going towards wages and benefits. There are 12 full-time staff and about 45 full-time equivalent positions. There are also about 20 active volunteers that serve one 4-hour shift per week. There is a small bookstore on site that does about $35,000 in gross


revenues (about $0.70 per cap). The store is operated by a cooperating association. NPS receives about $4,000 annually from the cooperating association.

National Museum of the Marine Corps – Triangle, VA

The National Museum of the Marine Corps opened in 2006 and is located in Triangle, Virginia. This museum showcases military artifacts including combat art. Other attractions include hand-on activities, programs, classes, a memorial park, rifle-range, and a flight simulator. The museum has approximately 85,000 square feet of exhibit floor area, 38,000 square feet of retail floor area, and 8,000 square feet of food service floor area. This museum is located on a 135 acre site. This museum is operated in a tax-exempt partnership between the Marine Corps and American Heritage Foundation. This museum does not charge admission.

National World War II Museum – New Orleans, LA

The National World War II Museum (previously the D-Day Museum) opened in 2000 and is located in New Orleans, Louisiana. This 110,000 square foot museum dedicated to World War II includes 40,000 square feet of exhibit space, 44,000 square feet of open space, a 1,200 square foot museum store, and a 600 square foot coffee shop. There are 1,600 square feet of space dedicated to temporary exhibits which are comprise of exhibits prepared by the museum itself as well as traveling exhibits. General admission ranges from $6 for children to $14 for adults. The reported most popular reason for visitation is the oral history presented by veterans who fought in the wars of the exhibits. Special events at the site include celebrations and memorials for Veterans Day, Memorial Day, Pearl Harbor, and D-Day. On average these days attract 2,000 visitors. Most visitors stay at the site for two and a half hours. Annual attendance post-Katrina was 255,000 people; after Katrina annual attendance dropped to 60,000 people, and was 140,000 this past year. The museum is located eight blocks from the French Quarter, which is reportedly an important locational feature in attracting visitors. About 75 percent of visitors to the museum report that their primary reason for visiting the city was the museum.

National Museum of the United State Air Force – Dayton, OH

The National Museum of the United State Air Force opened in 1923 and is located on the Wright-Patterson Air Force base near Dayton, Ohio. This museum has over 1.2 million square feet of exhibit space spread across a 450-acre site. There is a 500-seat auditorium as


well as a 500-seat IMAX theatre. The museum is operated by the United States Air Force and the Pentagon. There is a gift shop and café operated by the Air Force Museum Foundation. The museum displays more than 400 aerospace vehicles and thousands of historical artifacts. There are temporary art and photography exhibits. Currently a temporary photography exhibit, titled “On the Other Side of the Lens…Military Photographers in Action.” This museum does not charge admission and parking is free. The National Museum of the United State Air Force is the largest military aviation museum in the world and many visitors to the site are noted as aviation enthusiasts. There are no up-charges for special events, however a nominal fee is charged for craft projects during Family Day. There are over one million visitors to the museum each year and approximately half stay on-site for around half of a day. The National Museum of the United State Air Force is the largest tourist attraction in the Dayton area.

The 1st Division Museum at Cantigny – Wheaton, IL

The First Division Museum at Cantigny (Big Red 1 Museum) opened in 1960 and is located in Wheaton, Illinois. The Museum is dedicated to the Big Red 1, the first division of the United State Army. This museum is located in a 38,000-square-foot building and has 10,000 square feet of interactive exhibits, as well as a gift shop. The museum is located on a 500-acre site which is part of the Col. Robert R. McCormick estate. There are gardens and a tank park. The museum is operated by the Cantigny First Division Foundation and the parent institution, the McCormick Tribune Foundation. The museum closes in January and does not charge admission, however there is a $7 parking fee charged to park on the estate. Annual attendance to the museum is 102,015 people. Most visitors reportedly stay at the site for two hours. Special events include lectures which usually attract between 100 and 400 people.

D-Day Memorial – Bedford, VA

The D-Day memorial opened in 2001 in Bedford, Virginia. This all-outdoor memorial is a collection of four plazas located on a nine acre site. There is retail on site currently housed in a double-wide trailer. The memorial is operated by the National D-Day memorial Foundation which is also the entity that owns the memorial. The foundation also owns 90 acres of land surrounding the memorial which is key in allowing it to remain the highest elevation in the city. General admission ranges from $3 for children to $5 for adults. Most visitors to the memorial stay for and hour and a half, the tour takes one hour and most


people walk through again unguided after. Annual attendance is 72,000 people, with the most important visitor segments noted as families and veterans.

USS Arizona Memorial – Honolulu, HI

The USS Arizona Memorial (Pearl Harbor Memorial) was founded in 1980 and is located in Honolulu, Hawaii. The memorial itself is located on the water and spans the sunken hull of the battleship USS Arizona. The memorial is 184 feet long and can accommodate 200 people. The USS Arizona Memorial is off shore and requires a shuttle boat ride to reach. The memorial is operated by the National Park Service and governed by the Department of the Interior and the Arizona Memorial Museum Association. The memorial closes for New Years, Thanksgiving, and Christmas. There is no charge for admission. Annual attendance is estimated at 1.42 million people.

Mississippi Armed Forces Museum – Camp Shelby, MS

The Mississippi Armed forces museum opened in 2001 and is located at Camp Shelby, Mississippi, 12 miles south of Hattiesburg. The museum honors those who have served in the military. Exhibits focus on the military with simulations of battlefield sights, sounds, and smells. The museum has 16,000 square feet of exhibit space, a theater, and a museum store. Annual attendance is 40,566 people. This museum is run by the Mississippi Military Department. There is no charge for admission.

National Constitution Center – Philadelphia, PA

The National Constitution Center opened in 2003 and is located in downtown Philadelphia, PA, three blocks from historic Independence Hall and Two blocks from the Liberty Bell visitor center. This museum has interactive exhibits and artifacts on display relating to the history and celebration of the U.S. Constitution. The museum building is 160,000 sq ft which includes 75,785 sq ft of exhibit space, a 350-seat star-shaped theater, a 225-seat glass-enclosed restaurant, and a museum store operated by Amtrak. Admission is $9 for adults and $7 for children and senior citizens. A major special exhibition was mounted by the museum from December 15, 2005 to April 30, 2006 to mark the tercentenary of Benjamin Franklin. Attendance specifically for this event was 193,000 people. Attendance at the National Constitution Center is estimated at between 9,000,000 and one million people annually. Its location next to similar attractions is important. A survey conducted during


the special exhibit revealed that approximately 33 percent of visitors also visited the Liberty Bell visitor center on the same trip and 27 percent took a tour of Independence Hall.

National Civil Rights Museum – Memphis, TN

The National Civil Rights Museum opened in 1991 and is located at the historic Lorraine Motel, the site of the assassination of Martin Luther King, Jr., in Memphis, Tennessee. The National Civil Rights Museum explores civil rights activities and segregation from 1619 though present day. The museum underwent an $11 million expansion in 2001. The National Civil Rights museum has 50,590 total square feet on a 4.17 acre site; 12,880 square feet of building area are located in the expansion building. There are a total of 1,740 square feet of retail in two shops, and 800 square feet of food service space. The museum is a non-profit organization. Admission prices range from $12 for adults to $8.50 for children.

Case Study Implications

The following implications are summarized from Team research and discussions with the directors of the historic sites with museum components and are relevant to concept planning at Jefferson Barracks:

Understanding the visitor market (age, origin, interests, etc.) can lead to a more tailored

attraction, fee structure, promotional material, membership, and destination packages that can

help leverage earned income (e.g. the Lincoln Museum offers a membership for visitors living

more than 100 miles from Springfield).

Incorporation of supportive and themed retail (such as themed café at Colonial Williamsburg)

and commercial amenities can lengthen visitor stay, increase visitor spending, and provide

revenues to help cover ongoing maintenance expenses.

Connections to other similar sites both physically and in terms of communications between

management staff improves the success rate of all parties involved; as Shiloh National Park

experienced, by promoting other local and regional battlefield and historical sites, sites can

increase the length of visitor stay and number of overnight visits.

Public-private partnerships are useful management tools, especially for separating commercial

aspects (leasing) from more traditional park management elements (maintenance, interpretation,

and visitor services). Another successful management model is evident at Fort Snelling, which

benefits from management by the Minnesota Historical Society because it helps distribute fixed


costs, creates a support network with other MNHS-managed sites, and increases opportunities

for shares of statewide funding initiatives.

Creative ways of branding the site through merchandising and licensing (such as Colonial

Williamsburg) or product presence in other retail outlets (such as at the airport) can increase site

awareness and resulting retail revenue.

In the experience of Lincoln Museum and Fort Scott, onsite education programming that fulfills

state education curriculum standards supports the bulk of school group visitation. Knowledge

of and use by nonprofit environmental and education groups, as Gateway Recreational Area has

found, are also critical to the success of interpretive programming.

Special events, historic reenactments, lecture series, and other creative programming can

increase repeat visits and helps promote an active relationship with the surrounding community

by creating inherent connections to the market, events, promotion, and community pride (which

can translate to increased ongoing investment in the site’s position in the community)

Historic sites are those that combine a comprehensive campus of historic interpretation with a

high density of recreational amenities and variety of facilities for special events rentals creates a

unique visitor destination and drives attendance from broad market, but the experience of our

comparables has shown that it is also important to have a specific attraction niche (for example,

“one of the best examples of Indian Wars period forts”).

When incorporating commercial elements, it is important to consider development programs as

part of a larger master plan (rather than piecemeal) and clustering uses (restaurants, retail

shopping, hotels, residential) can help improve the site’s visitor legibility. This can be difficult,

as in the case of the Presidio, which is challenged by the tension between permitting public use

while also maximizing income through leasing historic buildings).

Publicity is key to visitation. Greater publicity about the concerts, special events and

exhibitions, more interpretive and program opportunities, and a longer public access season

resulted in a 200% increase in attendance at Governor’s Island.

Investing in exhibits and anticipating ways to update them creatively will help attract larger

repeat visitor markets.

A private transportation system has allowed Governor’s Island to control visitation and private

rental events.

In the experience of Madison Barracks, a mix of private enterprise primarily serving residential

community should be more strongly connected to the historic site and public realm, perhaps

even levying a small portion of local commercial profits to support future preservation of the

historic area.


Table 30: National Park Service Impacts (Next Page)

The following tables are based on the Michigan State University Department of Community, Agriculture, Recreation and Resource Studies estimates of the economic impact of visitor spending and payroll at National Parks based on calendar year 2007 park visits, spending averages from park visitor surveys, local area economic multipliers, and fiscal year 2007 payroll data for each park.


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VI. Appendix I – Overview of Transit Services

The assessment of operating cost factors at Jefferson Barracks included an analysis of a potential tram service to connect different attractions within the Jefferson Barracks complex. The following case studies are intended to provide context for the operational potential for various forms of people-moving systems throughout the Jefferson Barracks Historic/Museum District and/or the broader Jefferson Barracks Complex.

Summary

A variety of trolley and tram services can be used to connect visitors to destinations within historic districts, downtown communities, and large attraction campuses, either free of charge or for a small fee (averaging $3-$4). Zoos and large entertainment campuses often market their transportation service as an additional attraction, and typically charge a fee in addition to general admission. Most transit services run at regular 15-, 20-, or 30-minute intervals, with at least 4 stops along the route.

ERA collected information on a number of inter-attraction and municipal transit services in terms of scale, ridership, operating budget, route attractions, frequency, and other available data to help understand the feasibility of a tram or trolley service at Jefferson Barracks. After reviewing this data, the Historic Triangle Shuttle in Williamsburg, the Norfolk Naval Station Shuttle, and the Brookfield Zoo Shuttle were identified as being the most relevant to Jefferson Barracks.

Capital and operating expenses for these types of transit services vary widely depending on the level of infrastructure improvements required to implement the service, the style of passenger car (open style, closed, air conditioning, emergency lighting, self propelled etc.), service requirements, and other factors. Generally, operating expenses for transit services are funded through some combination of public and private funds, including:

Public funds: Farebox revenue Transit agency operating funds FTA State DOTs Parking fees Downtown property tax Sales tax Hotel tax

Private funds: Business Improvement District Development impact fees Museums and cultural attractions Advertising CVB Shopping malls and casinos Route stop sponsors


Operating budgets for the most comparable transit services reviewed by ERA were in the range of $600,000-$700,000. Clearly related to the frequency and reach of the service, annual ridership had an average penetration rate of approximately 10-15% of total visitors at comparable locations. (For example, an average 12% of Brookfield Zoo’s 2 million annual visitors use the shuttle service).

Zoos and Attractions Transit Services

St. Louis Zoo First Bank Zooline Railroad is a 20-minute (1½-mile round trip) narrated tour with four

stops.

One of the Zoo's most popular attractions, the Zooline Railroad has transported more than

27 million visitors in the past 40 years.

Unlimited rides on the Zooline Railroad are $5 for adults. Children under two are free.

Groups of 15 or more may purchase discounted train tickets.

Brookfield Zoo Motor Safari is an open-air tram with a narrated tour of the entire Brookfield Zoo. Tickets

are $4 for adults ($2.50 for seniors and children 3-11; children 2 and under are free) and

include unlimited rides all day to / from four stations.

Average penetration rate 12% of 2 million visitors (or 119 per 1,000 visitors) used the tram

service.

Average operating budget $380,000; 70% expenses to staffing (100% of revenue from

admissions).

Henry Doorly Zoo Trackless tram drives on the walkway paths around the zoo Memorial Day through Labor

Day as well as weekends in April, May, September and October. It has four stops. Round

trip tram rides are $2, or $0.50 cents per stop (ages 3+).

Aerial tram called Skyfari (opened 2009) stretches just over a quarter of a mile, and a round-

trip ride takes 20 minutes. Round Trip: $4.00. Skyfari had 162,000 riders in its opening

month (April-June 2009). The Zoo hopes Skyfari will boost memberships, available for $83

per household, to 61,000.

Live steam trains operate Memorial Day through Labor Day as well as weekends in April,

May, September and October; round trip train rides are $4 (ages 3+) or $2 to ride one stop.

Disneyland Monorail Disneyland’s Monorail is both an attraction and a transportation system.

Ride duration is approximately 11 minutes and Disney can reportedly carry up to 1,800

passengers per hour in each direction.


According to research, Disneyland Monorail appears to be used mainly for sightseeing

rather than transportation between Downtown Disney and Tomorrowland; the Disneyland

Railroad on the other hand appears to be the other way; it appears most people use it to get

around the park.

Beamish Museum The Beamish Museum is located in the Northeast of England in Stanley. The setting is that

of a typical coal-mining village during the 1800’s. Every twenty minutes a tram service

stops at Manor house and Town center before it returns back to the car park.

The tramway operates every day that the museum is open - a normal summer service uses

three cars, providing a tram every 10 minutes in one direction and every 20 in the other.

The tramway is operated by museum staff, aided by volunteers on busy days. Engineering

support comes from the volunteers of the Beamish Tramway Group.

There are five operational trams in the fleet

Historic District Transit Services

Historic Triangle Shuttle Service Free public transportation provided by the National Park Service for the Historic Triangle;

buses are provided by the Colonial Williamsburg foundation as part of a Cooperative

Agreement with the National Park Service.

The Historic Triangle Shuttle provided 172,199 rides to Williamsburg area visitors in 2007

(open March-October), more than double the ridership of the previous year and a significant

increase in ridership since its launch in summer 2004.

Due to a growing demand, service months were expanded in 2006, which increased service

costs to $588,074. Service costs for both 2005 and 2006 were covered by funds appropriated

through the United States Department of Transportation Section 117 earmarks. In response

to growing demand, service was again expanded in 2007 to run from March through

October, increasing the total service cost to $680,855. In 2008, the anticipated operating costs

are expected to be $735,486.

The Historic Triangle Shuttle program has received considerable federal funding, with

$2,373,145 set aside for operations for Fiscal Years 2007 through 2010.

The National Park Service will pay Williamsburg Area Transport $45,000 to fully fund the

cost of the route (WAT’s budget of $45,000 reportedly includes fuel, maintenance, insurance,

cleaning contract, communication equipment, labor, and administration based on service

days, vehicle hours, and miles).


Two routes depart every 30 minutes from the Colonial Williamsburg Visitor Center, one

traveling to Jamestown, the other to Yorktown. Once arriving at Jamestown and Yorktown,

additional shuttle services provide transportation to the various attractions:

- The Jamestown Area Shuttle provides transportation around the Jamestown area, with

stops at Historic Jamestowne (including the Visitor Center and Glasshouse), the

Jamestown Settlement (767,640 visitors in 2007), and the Jamestown Information Station.

It is free of charge and operates every 10-15 minutes March through November.

- The Yorktown Trolley provides service between the Yorktown Battlefield Visitor Center

and the Yorktown Victory Center (253,143 visitors in 2007), as well as several stops

between in the historic village, including Riverwalk Landing. It is free of charge and

operates every 20 minutes from March 16 through November 1, between the hours of 10

a.m. and 6 p.m.

Jekyll Island Historic District Tour

90-minute tram tours are offered every day of the year except Christmas and New Year's Day. The tram tour includes exclusive stops at the Moss Cottage, Mistletoe Cottage, Indian Mound Cottage and the Dubignon Cottage (the tram tour is the only way one can gain admittance to these cottages). The tours depart from the Museum Center. Admission is $10 for adults and $6 for students ages 6-18. Children under 5 are free.

Eureka Springs Trolley Bus- Eureka Springs, Arkansas

This Victorian-era town of 2,200 people, historic hotels, antique craft shops, and the Ozarks attracted almost one million tourists in 2002. In a place like Eureka Springs, where tourism is absolutely vital to the local economy, the ability of visitors to navigate the town safely and conveniently is an economic necessity. Planning focused on five routes used to circulate tourists from a common tour bus staging area not only through the historic district, but also to lodging and other services located throughout the larger area. Eureka Springs Transit meets the transportation needs of visitors and residents alike, while still preserving the historic character of the area. The success of the Eureka Springs Trolley, which provided more than 600,000 trips in 2002, can be credited to several factors:

Te trolley system was adopted in a collaborative spirit with the local business community,

including tour bus operators.

In addition to the indirect payback from an improved environment, local businesses directly

benefit from the trolley system through financial incentives and commissions of selling


tickets. Of the sixty local businesses that sold over 31,000 trolley tickets in 2003, ten realized

more than $4,000 in ticket sales each. Indeed, this income is seen by several local businesses

as an important part of their profits. A monthly unlimited ride pass that can be purchased

for $5.00 is especially popular with residents.

Another critical component in the success of the trolley has been its funding strategy. As a

condition of securing federal rural transportation investment in 1985, Eureka Springs Transit

was required to acquire a local match in funding to cover administrative and operating

costs. Because ticket sales usually cover only a fraction of this match, local governments

nationwide have traditionally sought non-fare revenue, such as city general funds, rental

income, and parking fees. Arkansas, however, has one of the most ground-breaking state

transit investment programs in the nation. The Arkansas Public Transit Trust Fund, passed

by the Arkansas State Legislature in 2001, uses revenue from the state tax on car rentals,

providing essential investment for local systems, including Eureka Springs. The Arkansas

Public Transit Trust Fund allows Eureka Springs Transit to maintain a certain level of

autonomy from the city administration. Thus, the trolley system is freed from the

uncertainty of operations tied to the shrinking budgets characteristic of many local

governments.

While the trolleys enjoy a certain amount of stability, the transit system remains proactive in terms of expanding its sources of funding. It charges fees for parking at its depot on the edge of the historic district, and collects rent from the Chamber of Commerce, which is located there as well. Also, because a good number of visitors arrive independently, without a tour operator, the performance of on-board ticket sales is increasing.

Eureka Springs Transit charges a fare well above most other downtown circulators, which are typically free-of-charge or exact only a small fare. In addition to the $4.00 fee at the parking depot, passengers can buy an all-day pass for $4.00, a two-day pass for $6.00, or a one-ride pass for $2.00. A child’s daily pass (age 7-11) can be purchased for $1.00. The trolley system is able to charge a premium for its services, but remains overwhelmingly successful. This may be due to several factors:

Eureka Springs provides a unique situation where riding the trolley may actually be a more

comfortable, attractive option than navigating a personal vehicle through winding roads.

This is especially true for seniors, who compose a large segment of the area’s tourist market.


Because of its Victorian theme, many tourists may view the trolley as an attraction in its own

right. Four dollars may not seem too much to spend for what is perceived as a more

authentic historic experience.

Lastly, aside from tour buses, the trolleys are the only public transit option. For those who

prefer an itinerary less regimented than that offered by a tour bus, the trolley may be seen as

the best option for experiencing the town in a more spontaneous fashion.

Municipal Transit Services

Governors Island Trams are available to the public to access various parts of Governors Island. At times when

the Island is not open to the public, these trams are available for rental for a private group or

event. Tram capacity is limited to 14 per tram.

Chicago Free Trolley Sponsored by the Department of Transportation, this free trolley system transported visitors

along Michigan Avenue, between Water Tower Place and the Museum Campus; between

Navy Pier and State Street, with connections to the Michigan Avenue trolley or public

transit; and between Lincoln Park museums and zoos, with connections to public transit.

The routes seem generally targeted towards Metra riders who want easy access to Chicago’s

tourist attractions. Pickups were generally every 20 minutes 10 am-6 pm. This service was

discontinued in 2009. Average total ridership was approximately 850,000.

St. Petersburg Looper Downtown St. Petersburg attracts four million tourists a year. In 1996, the St. Petersburg

Downtown Partnership created the Looper Group, Inc. as a private non-profit 501(c)(6)

organization. Within the past two years, the fare was reduced to just $.25, and service

frequency was doubled to its present level of 15 minutes.

The vehicles can seat up to 30 people. The Looper specializes in transporting visitors

between 13 stops including The Pier (shops, eateries, and aquarium); Museum of History;

Florida Holocaust Museum; hotels; and other attractions.

Funding for the Looper service comes from a variety of sources. PSTA regional transit

agency provides the vehicles by leasing them to the Looper Group for $1 per year and

provides $160,000 per year toward the total operating expenses. The Florida Department of

Transportation provides a $50,000 grant under the Commuter Assistance Program. The St.

Petersburg Downtown Partnership, comprised of over 130 businesses in the downtown

area, matches the FDOT grant with $50,000. The City of St. Petersburg also provides support

in the form of maintaining, storing, and fueling (diesel) the fleet of vehicles (estimated value


of $45,000 per year). The Looper Group contracts with Bay to Bay, a private charter bus

company, to operate the trolleys. Bay to Bay is paid $24.50 per hour to operate (provide the

drivers, data collection, insurance, etc.). The Looper Group sells space on the exterior of

their vehicles for advertising to help pay for operating costs of the service. The Looper

Group collects $12,000 in revenue annually from this advertising.

Additional $50,000 in funding comes from those who have stops on the route and sponsor

the service through monthly assessments of between $150 and $600 per month, based on

their ability to pay and longevity with the system. In return for their financial contributions,

sponsors get a dedicated bus stop, collateral material on board the bus, a sign inside the bus

with their logo, a hot link to their website from the Looper website, and the drivers say

something positive about them every time the bus stops there.

Finally, the farebox contributes a small share of the total revenues of the agency. With

ridership averaging approximately 5,000 passengers per month through the year, farebox

revenues account for approximately $15,000 annually.

Village of Cooperstown Trolley The Cooperstown Trolley is owned and operated as a cost-recovering enterprise of the

Village of Cooperstown. Major destinations along the Trolley route include the Baseball

Hall of Fame and Museum, Farmers Museum, Hyde Hall, Cooperstown Dreams Park Train

Depot served by the Cooperstown & Charlotte Valley Railroad, Alice Busch Opera. Adult

day passes are $3.00, while passes for children 12 years and under are $1.00. Trolleys also

are available for private charters at a cost of approximately $240 per event.

Trolley ridership during the 2006 season was estimated at approximately 75,000 passenger

boardings, based on the sale of 60 season passes and 27,000 day passes.

The first three gasoline-powered trolleys were purchased for $150,000 by the Clark family

and donated to the Village. The Cooperstown Trolley receives no public funding; operating

revenues are generated from passenger fares, charter revenue, and advertising.

Historically, operating revenues have met or nominally exceeded expenses from year to

year, resulting in an operating surplus. However, ridership declined in the past two to three

years due to a drop in attendance at the Baseball Hall of Fame. These declines have drained

any surplus funds and pose concern to local officials. The 2006 operating budget was

approximately $190,000, offset by $155,000 in total revenues from passenger fares ($85,000),

charter revenues ($45,000) and advertising sales ($25,000). If ridership does not return to

prior levels, the Village will need to either sell off one trolley to raise capital, or consider


closer ties with the Otsego County public transit system. Estimated capital expense: 1

trolley at $135,000

Charles Street Trolley

The Charles Street Development Corp. is studying the feasibility of installing a 7.5-mile trolley line that would link the Inner Harbor with the Johns Hopkins University. It would drop riders at the door of city attractions such as the Walters Art Museum, the Lyric Opera House and the Baltimore Museum of Art - sights that most tourists spend days in the city not seeing. A trolley system could cost anywhere from $40 million to $150 million in capital expenses alone, based on format and structure.

Naval Station Transit Services

Norfolk Naval Station Norfolk Shuttle Naval Station Norfolk (NSN) NSN includes approximately 4,000 buildings, 20 piers, and an

airfield, as well as 65,000 active duty personnel, 69 home-ported ships, 16 squadrons and

132 aircraft. It offers a free shuttle to designated areas on the military base for commuters.

In a coordinated effort between the U.S. Navy and the Hampton Roads Transit (HRT) to

alleviate traffic congestion at NSN, HRT expanded its fixed-route bus service to and from

the base by adding a new shuttle system on the base, a free service operating every 30

minutes. In 2005, the shuttle service expanded with HRT operating the Route 76 shuttle

every 15 minutes and the Navy operating the Route 77 shuttle every 20 minutes.

There is no charge to ride either shuttle; both are available weekdays only and no holidays.

As reported by the Hampton Roads Transit, between July 2006 and June 2007, Route 76

carried 45,304 passengers and Route 77 carried 37,585 persons.

In May 2003, HRT received $168,245 in Regional Congestion Mitigation Air Quality

(CMAQ) funds for one year and the Navy provided the local match of $33,649 to enhance

the Navy’s shuttle service by providing increased frequency and expanded span of service.

Funding for years two and three utilized State CMAQ dollars and was received for a period

of two years with allocations of $565,000 per year for operating and $50,000 for marketing

the service. Service was expanded to two routes upon receipt of State CMAQ dollars for the

second year of operation. The Department of Rail and Public Transportation, in cooperation

with the Virginia Department of Transportation, included funding for an expanded Naval

Station Shuttle Service in the FY 2005-2008 Transportation Improvement Plan (TIP) utilizing

Statewide CMAQ funds.


Table 31: Summary of Transportation Case Studies

Serv

ice

Loca

tion

Ann

ual R

ider

ship

Adu

lt Ti

cket

% o

f Attr

actio

n Vi

sito

rs U

sing

Se

rvic

eO

pera

ting

Bud

get

Stop

sFu

ndin

g So

urce

sFr

eque

ncy

Rai

lroad

St

. Lou

is Z

oo67

5,00

0 (e

st)

$5.0

023

%-

4N

amin

g rig

hts;

on-

boar

d an

d pa

ckag

e ad

mis

sion

s20

min

s

Mot

or S

afar

iBr

ookf

ield

Zoo

235,

000

$4.0

012

%$3

80,0

004

On-

boar

d an

d pa

ckag

e ad

mis

sion

s-

Tram

Hen

ry D

oorly

Zoo

-

$2.0

0-

-4

On-

boar

d an

d pa

ckag

e ad

mis

sion

s-

Sky

fari

Hen

ry D

oorly

Zoo

82

6,00

0$4

.00

52%

-1

On-

boar

d an

d pa

ckag

e ad

mis

sion

s20

min

sTr

ain

Hen

ry D

oorly

Zoo

-

$4.0

0-

-2

On-

boar

d an

d pa

ckag

e ad

mis

sion

s-

Mon

orai

lD

isne

ylan

d7,

358,

400

Free

50%

-m

ultip

leG

ener

al a

dmis

sion

s-

Tram

Be

amis

h M

useu

m-

Free

--

3O

n-bo

ard

and

pack

age

adm

issi

ons

20 m

ins

His

toric

Tria

ngle

S

huttl

eW

illia

msb

urg

172,

199

Free

9%$7

35,4

862

Col

onia

l Will

iam

sbur

g Fo

unda

tion,

N

atio

nal P

ark

Ser

vice

, U.S

. DO

T 30

min

s

Tram

Je

kyll

Isla

nd

-$1

0.00

--

3+O

n-bo

ard

adm

issi

ons

-

Trol

ley

Bus

Eure

ka S

prin

gs, A

R60

0,00

0$5

.00

40%

-20

Sta

te re

ntal

car

tax;

loca

l bus

ines

s in

cent

ives

; par

king

; ren

t (to

Cha

mbe

r on

site

); on

-boa

rd a

dmis

sion

s-

Tram

G

over

nors

Isla

nd-

Free

--

mul

tiple

Sub

sidi

zed

(City

, NPS

)-

Free

Tro

lley

Chi

cago

850,

000

Free

2%-

7-14

Sub

sidi

zed

thro

ugh

gran

t20

min

s

Trol

ley

St

. Pet

ersb

urg,

FL

60,0

00$0

.25

2%$3

82,0

0013

Reg

iona

l and

sta

te tr

ansi

t age

ncie

s; a

rea

busi

ness

es; C

ity; a

dver

tisin

g; s

pons

ors;

on

-boa

rd a

dmis

sion

s15

min

s

Trol

ley

Coo

pers

tow

n 75

,000

$3.0

019

%$1

90,0

003+

On-

boar

d ad

mis

sion

s; g

roup

cha

rter

reve

nue;

adv

ertis

ing

-

Shu

ttle

Nor

folk

Nav

al S

tatio

n82

,889

Free

-$6

15,0

004-

6U

.S. N

avy,

Ham

pton

Roa

ds T

rans

it,

Dep

artm

ent o

f Rai

l and

Pub

lic

Tran

spor

tatio

n, V

irgin

ia D

OT

30 m

ins

Zoos

and

Attr

actio

ns

His

toric

Dis

tric

ts

Mun

icip

al

Nav

al S

tatio

n

Southern Electric R.R. Co. Trolley at Jefferson Barracks ca 1896

Regular streetcar service from the City of St. Louis to Jefferson Barracks was established in 1896. From St. Louis, trolleys ran along South Broadway road to the Jefferson Barracks Depot near the parade grounds then turned around in a loop and went back out of the Post on the same tracks. During WWII, drafted men in St. Louis were given a streetcar token that could be used for travel to Jefferson Barracks for their orientation and training.

Appendix C

Investment

Appendix C-Investment


JEFFERSON BARRACKS MASTER PLAN Appendix C-1

Appendix C: The Investment – Woolpert, Inc. The process of developing the master plan for Jefferson Barracks included the identification of existing contributing buildings, recommended new build-ings, new visitor amenities, circulation improvements, and potential public-private partnership opportunities. Each of these categories was given a cost estimate and a phase for completion. Cost estimating considered the ap-proximate square footage of the build-ing, its current condition, whether it required new construction, renovation, or maintenance investment, and how much of the building would be dedi-cated to new or upgraded exhibit space. The cost was then assigned an invest-ment phase of 1, 2, or 3 with Phase 1 being 0 to 5 years (by 2015), Phase 2 being 5 to 10 years (by 2020), and Phase 3 being 10 to 20 years (by 2030). Ideally, significant success would be achieved by 2026, the bicentennial of the found-ing of Jefferson Barracks.

The plan also looked at the proposed sponsor for each of the improvements so that initial costs could be sorted by responsible party. The following tables summarize the approximately $68 million of projected capital costs (in today’s dollars) for implementing the plan, sorted a num-ber of different ways: by category, by district, by phase, and by potential sponsor.

Appendix C-2 JEFFERSON BARRACKS MASTER PLAN

Page Left Intentionally Blank

JEFFERSON BARRACKS MASTER PLAN APPENDIX C - 3

APPENDIX C - 4 JEFFERSON BARRACKS MASTER PLAN

jefferson barracks master plan

Documents

economic council of

county executive

planning study

study area

planning team

planning horizon

assistant vice president

president ceo timothy