City of Covington Downtown Master Plan 2024

city of COVINGTON 2024 DOWNTOWN MASTER PLAN

a community l l A o t s k n a h T EFFORT • Citizens, Business Owners, and the Community of the City of Covington • Mayor Fleeta Baggett

• Council Member Anthony Henderson • Director of Tourism & Downtown Development Ken Malcom • Council Member Jared Rutberg

• Downtown Coordinator Allen Martin

• Council Member Charika Davis

• Marketing and Multimedia Design Coordinator Beth Ivey

• Council Member Travis Moore

• Special Projects Coordinator Kayla Johnson

• Council Member Kimberly Johnson

• City Planner Tracy Floyd

• Council Member Susie Keck

• License & Permitting Specialist Samantha Whitley

• City Manager Tres Thomas

• GIS Analyst Nathan Strzelewicz

• Assistant City Manager John King

• Electric Cities Georgia, Jon McBrayer

• Director of Planning & Development Judy Thagard • Executive Director, Newton Co. Industrial Development Authority (NCIDA), Serra P. Hall • Vice President of Economic Development NCIDA/CDA Liaison, Brian Kitchens

TABLE OF CONTENTS 1. INTRODUCTION 1.1 1.2

A Brief History

Previous Plans and Studies

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2. DOWNTOWN COVINGTON TODAY

2.1 Existing Conditions 6 2.1.1 Covington Downtown ~ The Study Area 6 2.1.2 Infrastructure – Road Network including Parking, Utilities 7 2.2

Community Outreach 9

2.3

Market Analysis

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3. VISIONS, GOALS, AND STRATEGIES 3.1

Vision Statement 73

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Potential Barrier 74

3.3

SWOT Analysis 75

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Achievements: Visionary City Award

4. IMPLEMENTATION ~ HOW WE GET THERE 4.1

Phase 1 – A Two Year Strategic Plan

5. APPENDIX 5.1 5.2

Downtown Master Plan Area Map Downtown Master Plan Zoning Map

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I. INTRODUCTION

A Brief History

Downtown Covington, founded in 1822, has a rich and diverse history over 200 years in the making. As the County seat of Newton County, it has been a pivotal center for commerce, culture, and community for over two centuries. Initially established around the historic Covington Square, the downtown area flourished with the growth of agriculture and trade in the region. Victorian architecture, which still adorns many of the buildings today, reflects the prosperous periods of the 19th and early 20th centuries.

When the Second World War ended after two decades of depression, in 1949 Covington experienced a post-war boom of residential construction concentrated in the northeast and southeast of the Covington Square. And similar to many small rural towns, where residential construction came, so did additional industry and jobs.

Like many historic downtowns across America, Covington’s city center has faced economic challenges over the years. The advent of suburbanization in the mid-20th century saw a decline in Covington Square’s prominence as retail and commercial activities shifted to newer federal and state routes. When U.S. Highway 278 was constructed in 1952 just south of the Georgia Railroad along with Interstate 20 in 1957, it further marked a shift towards automobile-oriented land uses along the corridor and helped to reshape the real estate market dynamics which attracted new industries and facilitates access to Covington’s unique historic resources. These new roads expanded the Downtown area with supporting industries that utilized the rail to transport goods from just north of Hwy 278 to Washington Street as well as fostered commercial retail such as grocery stores, hardware stores, automobile sales and services, and community/public uses which includes the Newton Hospital that opened its doors on October 17, 1954 with 30 beds.

While the late 1950’s brought new road networks, Covington would face its first significant loss of jobs in the 1960’s when the Covington Mills, founded in 1901, would shut its doors and displace 450 workers. Other industries and commercial businesses would continue to establish and close. Washington Street is a prime example of how industry expanded along established roads and access to rail. Moreover, in the 1960’s when schools integrated, Covington saw some of its first black-owned businesses establish around its historic black neighborhoods on Washington Street just off the historic square. Some of these structures are still occupied by businesses today and some, while still standing, are vacant, but most are showing significant signs of distress.

Covington saw a resurgence of residential construction in the early 2000’s but was left with many undeveloped subdivisions and home vacancy during the recession of 2008. The “Great Recession” also brought layoffs, pay cuts, and furloughs. This greatly affected the economy in the city, and specifically in the downtown area.

The recession had a lasting impact on Covington for several years. However, the city’s dedicated leaders and community used innovative ideas to revive the area. One successful initiative that started in the early 1950s with the movie “A Man Called Peter” has led to the continued growth of filmmaking and tourism in Covington. Despite economic challenges, downtown Covington remains culturally significant, hosting

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community events, festivals, and local businesses. The area’s historic architecture and its reputation as a filming location, often referred to as “The Hollywood of the South,” continues to attract visitors and residents. The combination of historical charm and modern amenities makes downtown Covington a unique destination for tourism and commerce.

Covington has responded to changes in consumer behavior, urban planning decisions, and economic shifts by undertaking significant revitalization efforts. Public-private partnerships have also been essential in attracting new businesses, improving infrastructure, and enhancing the visitor experience. The onset of COVID-19 in 2020 had a significant impact on Covington and the world at large. Many great citizens were lost, businesses closed, and life seemed to come to a standstill. This greatly affected our downtown area, prompting leaders, citizens, and entrepreneurs to find ways to revive the “Heart of Covington.” Once restrictions were lifted, the Tourism and Downtown Development department, along with community non-profits, organized events to bring vendors and visitors back to the area. These events include the Farmer’s Market, Christmas in July, family movie nights on the Square, and more. This ongoing effort aims to keep downtown vibrant and welcoming.

Looking forward, the master plan for downtown Covington aims to build on these strengths while addressing current challenges. Strategies may include further improving the retail and dining experience, promoting mixed-use development, enhancing pedestrian access, and leveraging Covington’s film industry connections to attract investment and tourism. In conclusion, downtown Covington is a testament to resilience and adaptation in the face of economic shifts. By embracing its historical legacy and fostering innovation, Covington is poised to reclaim its role as the vibrant economic and cultural heart of the community.

Previous Plans & Studies

The 2023 Comprehensive Plan’s Vision rings true for the Downtown Master Plan, “Covington is a community at the corner of yesterday and tomorrow. The city’s culturally rich heritage and historic design paves the way for future innovation. Residents and visitors of all ages, abilities, and incomes are welcome to the diverse, safe, comfortable, and walkable environment. Citizens have access to state-of-the art schools, a variety of quality housing options, and first-rate not only partners with the city but are also friends and family. Assets employment opportunities. Businesses and employers that invest in Covington are such as high-end city services, superior infrastructure, and a multi-modal transportation network permits smart growth and will enhance the community and sustain the small-town charm for years to come.”

Over the last few decades, the committed community of Covington along with Elected Officials and Staff have sought ways to improve the Downtown Area from creating a number of teams that include the Downtown Development Authority, the Covington Development Authority and the Covington Redevelopment Authority. In fact, the Covington Redevelopment Authority was a product of the 2009 Urban Redevelopment Plan and is the designated Agency to address the blight in many areas of the downtown area. When the plan was updated in 2021, the Downtown area was shown as having the most needs.

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II. DOWNTOWN COVINGTON TODAY Covington Downtown ~ The Study Area

Existing Conditions

Covington saw growth of businesses outside the historic Square with the location of new roads which expanded the Downtown area. As businesses and residential areas grew, it was apparent that all these roads led to the Heart of Covington. Corridors such as Hwy 278, Washington Street and Jackson Highway (aka Monticello Street), are areas with untapped potential including existing multilane roads, utilities, and other city resources as well as blight, vacant parcels and buildings that are prime for redevelopment. These gateways to the Historic Square are a blueprint of how the “downtown” expanded 50 to 70 years ago.

Downtown and the Larger Community

The importance of revitalizing downtown Covington starts with multifaceted goals and aims to preserve its historical charm while fostering sustainable growth and community vibrancy. Central to our efforts is the preservation and enhancement of Covington’s unique Victorian architecture and historical landmarks, which serve as cornerstones of our identity. By maintaining these elements, we ensure that downtown Covington remains a welcoming and distinctive destination for residents and visitors alike.

A key aspect of our revitalization strategy is the promotion of local businesses and entrepreneurship. We seek to create an environment where small businesses, artisans, and entrepreneurs can thrive, offering a diverse array of retail, dining, and cultural experiences that reflect Covington’s rural character. Enhancing public spaces and connectivity is also crucial; we plan to improve pedestrian infrastructure, expand green spaces, and develop recreational areas to foster community engagement and outdoor enjoyment.

Economically, we aim to strengthen downtown Covington’s vitality by attracting businesses that align with our rural identity, such as agritourism ventures and sustainable enterprises. By embracing eco-friendly initiatives and green technologies, we not only reduce our environmental footprint but also bolster our resilience as a community.

Culturally, we aspire to celebrate Covington’s heritage through support for local artists, performers, and cultural events, enriching the downtown experience with public art installations and community festivals. Looking beyond downtown, our goals for inte gration with the larger community involve regional collaboration and partnerships. We seek to work closely with neighboring communities, county officials, and regional organizations to position Covington as a hub for tourism, commerce, and cultural exchange. Improving transportation infrastructure and connectivity is essential to ensure easy access to downtown Covington for residents and visitors alike, thereby enhancing mobility and fostering economic growth.

Furthermore, we prioritize education, community engagement, and qualit y of life initiatives. By enhancing educational opportunities and promoting civic pride, historical awareness, and sustainable practices, we empower residents to actively participate in Covington’s revitalization. Preservation of natural landscapes, environmental

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Downtown and the Larger Community continued

conservation efforts, and responsible land use policies are integral to safeguarding Covington’s natural resources and historical integrity for future generations. In conclusion, our master plan for downtown Covington’s revitalization into a rural zone community is guided by a commitment to preserving our heritage, fostering sustainable growth, and enhancing community well-being.

Through collaboration, innovation, and a shared vision for the future, we aim to create a downtown that not only thrives economically but also enriches the lives of all who call Covington home.

Infrastructure: Current State of Downtown Infrastructure Water and Sewage

Currently, downtown Covington’s water and sewage infrastructure faces challenges due to aging pipes and escalating demands driven by population growth and urban development.

Many of the existing pipes are aging, raising concerns about leaks and inefficiencies that disrupt service reliability. As Covington experiences population growth and new developments, the strain on infrastructure intensifies, necessitating upgrades to accommodate higher demand while ensuring service quality. Strategic planning is crucial, supported by master plans and reports prioritizing infrastructure improvements. These initiatives include upgrading pipelines, expanding capacity, and connecting new developments to existing systems. Covington has

secured substantial funding, notably a $212.8 million grant from the Drinking Water Projects to Support Increased Population (DWPSIP) program, facilitating critical projects aimed at enhancing efficiency and capacity citywide. Collaborative efforts with local entities like the Newton County Water and Sewerage Authority and the Newton County Board of Commissioners ensure effective project implementation and sustainable growth. Recent projects, such as those in the Eastside Sewer Basin and Water Reclamation Facility, prepare Covington for future growth while promoting environmental stewardship through initiatives like the Land Application System (LAS). Despite the challenges, Covington’s proactive approach to infrastructure investment and strategic planning is pivotal in maintaining and improving downtown water and sewage systems, supporting economic vitality, environmental sustainability, and enhancing residents’ and businesses’ quality of life. In summary, while downtown Covington’s water and sewage infrastructure currently faces challenges due to aging and increasing demands, strategic planning and targeted investments will be essential to ensure that the infrastructure can support the community’s needs now and in the future.

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Parking Supply and Parking Demand (in downtown)

Based on the data collected within Covington’s downtown study area, several infrastructure and operational challenges have been identified. These include significant concerns related to crash history, particularly involving pedestrians, bicycles, and ve hicles, along with issues concerning sign visibility and distance at various intersections. The study pinpointed the top 10 crash locations, predominantly at intersections with sight distance issues due to obstructive elements such as buildings, utility poles, onstreet parking, and landscaping. Speed studies revealed varying speeds along different road segments, with some areas showing a high percentage of vehicles exceeding speed limits by more than 15 mph.

Traffic operations at several intersections were found to be operating at levels close to LOS E, indicating potential congestion problems. Cross-section analysis highlighted diverse parking configurations across the study area, impacting accessibility and traffic flow. Stakeholder interviews emphasized community concerns about parking availability, congestion, pedestrian and bicycle safety, and the necessity for enhanced signage and wayfinding. These findings underscore the urgent need for comprehensive planning and targeted improvements to enhance safety, mobility, and accessibility within Covington’s downtown.

Currently, downtown Covington offers 3,723 parking spaces, including on-street spots, and spaces within lots and garages. Moreover, residents and businesses can apply for grants aimed at enhancing parking, sidewalks, and connectivity in the downtown area, reflecting ongoing efforts to improve infrastructure and accessibility and cultivate a more vibrant, pedestrian-friendly environment in Covington’s core.

The last evaluation and assessment of traffic and parking conditions performed in 2021 identified 3,939 parking spaces to support the downtown businesses, which is considered efficient.

However, as the community grows and redevelopment begins, the city will continue to monitor the needs of parking and further its pursuit to foster a more walkable community with shared parking among separate parcels and continued sidewalks.

Internet/Broadband Access

Broadband access is a critical focus. As of 2018, the Georgia Department of Community Affairs reports that 98.7% of populated areas meet broadband standards defined by the FCC, with 25 Mbps download and 3 Mbps upload speeds. However, dissatisfaction persists among residents, with 21% rating current internet services as “Poor” and 23.4% as “Average.” To address these concerns, Covington plans to offer broadband as a city service in partnership with Georgia Public Web, aiming to deploy 1 gigabyte upload and download speeds via city-wide fiber optic installation. Initial rollout is expected by late 2022, accelerated in some areas due to early equipment availability, with broader coverage anticipated by 2024-2026. Funding is sourced from Georgia Public Web proceeds, local funds, and grants, though challenges with commercial providers have necessitated innovative solutions and enforcement of city protocols. The city intends to prioritize densely populated areas first, ensuring equitable access and meeting community demands for enhanced digital capabilities.

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Traffic Network

In downtown Covington, the transportation landscape is primarily geared towards automobiles, evidenced by traffic congestion along major corridors such as U.S. Hwy 278 and around the downtown square. The area has seen a significant number of reported crashes, particularly on major arterials and within the square itself. Recognizing these challenges, the city is focusing efforts on the HWY 278 CID Master Plan, which aims to enhance safet y through intersection redesigns and the introduction of traffic circles along the corridor. Additionally, the Traffic and Parking Assessment identifies critical improvements needed within the town center and its immediate surroundings, including enhancements to parking, intersection design, and pedestrian infrastructure. The plan emphasizes the development and expansion of sidewalks and cycling facilities to encourage alternative modes of transportation and improve walkability within the downtown area. These initiatives not only address current traffic issues but also aim to create a more pedestrian-friendly environment that supports local businesses and enhances the overall urban experience in downtown Covington.

Community Outreach

One of the key factors to a community’s success is the Community itself. As Margaret J. Wheatley so eloquently stated, “There is no power for change greater than a community discovering what it cares about.”

The City sought input for the Market Survey and S.W.O.T. analysis from the Community, including citizens, businesses, boards, and the community at large, in a number of ways: • Using our social media platforms to send out the online survey • Placing the online survey on the city website • Engaging our local Chamber of Commerce to help seek input from our local businesses • Emailing all appointed city Boards the link to the survey • Announcing the survey in City Council meetings • Offering Citizens hard copy surveys to fill out and return • Holding a public input session

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III. VISIONS, GOALS, AND STRATEGIES

Vision Statement

In 5 years, Downtown Covington, GA aims to be a lively hub that honors its heritage while embracing modern development. The area will feature locally-owned boutiques, restaurants, and cafes, supporting the local economy and offering unique shopping and dining experiences. New businesses and expansions will create job opportunities, and historic buildings will be revitalized while new structures are constructed. Public spaces and parks will be beautifully landscaped, providing areas for community events and relaxation. Enhanced streetscapes with benches, trees, and public art will add to the area’s charm. Cultural events and festivals will celebrate Covington’s history and diverse community, fostering unity and pride. The preservation of historic buildings integrated with modern amenities will create an attractive environment.

Green initiatives such as energy-efficient buildings and sustainable landscaping will ensure environmental friendliness. Improved transportation infrastructure, pedestrian-friendly walkways, bike lanes, and accessible public transportation options will make downtown easily navigable. Smart technology for enhanced safety and connectivity, including free public Wi-Fi and efficient public services, will further improve the downtown experience.

A mix of residential, commercial, and recreational spaces will create a lively 24/7 environment, with affordable housing options for all. Unique attractions, tours, and activities will draw tourists, and a range of lodging options will accommodate visitors. Downtown Covington, GA aims to become a model of revitalization and growth, maintaining its historic charm while embracing forward-thinking development.”

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Potential Barriers

Realizing the vision for Downtown Covington, GA, as outlined, may face several potential barriers: Economic Barriers

1. Funding and Investment: Securing sufficient funding from both public and private sectors is crucial. Economic downturns or shifts in investment priorities could hinder the availability of necessary financial resources.

2. Business Viability: Small businesses might struggle to survive due to competition, changing consumer preferences, or economic fluctuations. Ensuring long-term viability can be challenging.

Social and Community Barriers

1. Community Buy-In: Achieving widespread support and involvement from the community is essential. Resistance to change or lack of engagement from residents and local stakeholders can impede progress.

2. Gentrification: Revitalization efforts might lead to increased property values and living costs, potentially displacing long-time residents and altering the community’s demographic makeup.

Infrastructure Barriers

1. Aging Infrastructure: Upgrading or replacing outdated infrastructure, such as roads, utilities, and public transportation, can be costly and time-consuming.

2. Technology Intergration: Implementing smart technology and green initiatives requires significant investment and expertise.

Ensuring these technologies are integrated seamlessly can be challenging.

Market and Competitive Barriers

1. Retail Competition: Competing with larger retail chains and online shopping can pose challenges for local businesses trying to establish a foothold.

2. Tourism Fluctuations: The success of tourism-related initiatives depends on consistent visitor interest, which can be affected by external factors such as economic conditions and global events.

Addressing these barriers will require proactive planning, community engagement, flexible policies, and resilient strategies to ensure the vision for Downtown Covington, GA, becomes a reality.

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SWOT ANALYSIS

STRENGTHS

• Growing with new businesses • Unique charm and history • Easily accessible • Attractiveness, including restaurants, coffee shops, retail stores, & occasional events like the Covington Farmers Market • Maintaining a small town feel despite growth and tourism • Active involvement of merchants and community • Beauty of the Square and its surroundings • Rich historical base and well-preserved buildings • Community-oriented atmosphere • Vibrant local events and festivals • Presence of large shade trees and tree-lined streets • Significant tourism, including film industry attractions • Family-friendly environment and activities • Hometown feel and welcoming vibe • Strong local community and leadership • Maintaining a balance between local charm and tourism • Active arts and cultural scene • Walkability and accessibility • Safety and community events management • Recognizable landmarks and historical appeal • Support for local businesses and variety of shops • Community involvement in arts and entertainment • Southern charm and historical authenticity • Presence of law enforcement and community safety initiatives • Preservation efforts for historical buildings and homes • Small-town atmosphere and community cohesion

WEAKNESSES • Not enough parking; more restaurants and retailers needed • Chaotic traffic for pedestrians and drivers • Communication issues • Lack of control on building and growth • Aging infrastructure and building maintenance • Lack of diversity of businesses • Insufficient nightlife and entertainment options • Overcrowding and traffic congestion • Parking availability and management • Limited variety and number of restaurants • Excessive emphasis on tourism over local needs • Concerns over rapid development and apartment construction • Lack of activities and amenities for local residents • Need for better community engagement and planning • Challenges with pedestrian safety and infrastructure upkeep • Impact of tourism-centric development on local culture & identity • Issues with historic preservation and aesthetic planning • Lack of inclusivity and sensitivity to cultural diversity • Insufficient provision for youth activities and family entertainment • Problems with leadership collaboration and community vision • Inadequate pedestrian facilities like sidewalks and crosswalks

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SWOT ANALYSIS

OPPORTUNITIES

LIVE-WORK RETAIL AND RESTAURANTS Create spaces that blend residential, commercial, and dining options FILM INDUSTRY (HOLLYWOOD OF THE SOUTH) Continue to attract film productions and leverage the city’s appeal as a filming location DIVERSE GROWTH AND ENTERTAINMENT Expand beyond current offerings to include diverse entertainment options and new businesses TOURISM DEVELOPMENT Enhance tourism initiatives to sustain local businesses and attract new visitors.

PRESERVATION AND GREEN SPACES Preserve historic architecture, mandate unique new developments, and enhance green spaces

MARKETING AND BRANDING Use strategic marketing, street banners, and seasonal decorations to attract more visitors CULTURAL AND ENTERTAINMENT VENUES Develop cultural centers, entertainment venues, and recreational spaces for all ages UNIQUE RETAIL AND DINING EXPERIENCES Attract unique businesses and diverse dining options to cater to locals and visitors alike BALANCED GROWTH AND DEVELOPMENT Control growth to maintain the small-town charm while supporting sustainable development EVENTS AND COMMUNITY GATHERINGS Host regular events and gatherings to build community spirit and attract visitors UTILIZATION OF VACANT SPACES Repurpose vacant buildings and lots to expand usable spaces within the city limits INCLUSIVITY AND DIVERSITY Promote inclusivity by supporting businesses and events that represent all cultures

PEDESTRIAN ACCESSIBILITY Improve walkability and accessibility for pedestrians and alternative transportation like golf carts COMMUNITY UNITY AND ENGAGEMENT Foster collaboration among merchants, city, and county to serve the community effectively

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THREATS

• Racial tensions affecting community cohesion

• More entertainment and nightlife options needed

• Insufficient public transportation options

• Convention center lacking

• Potential for over-commercialization and loss of local identity

• Uncontrolled growth in all directions • Better late-night options required • Traffic congestion and parking issues • Overloading of public services due to population increase • Too many apartments leading to overcrowding • Loss of tourism to surrounding counties • Decrease in long-term residents • Crime and security concerns • Lack of diverse shops and businesses • High number of empty storefronts • Escaped convicts posing a threat • Lack of cultural activities and community spaces • Potential commercialization and overcrowding with more apartments

• Limited options for local residents amid tourist-focused developments • Limited support for local businesses versus corporate interests • Lack of entertainment venues and late-night dining options • Insufficient parking infrastructure • Concerns over urban sprawl and loss of green spaces • Poor connectivity and transportation management • Resistance to change from long-time residents • Overemphasis on historical preservation at the expense of modern amenities • Lack of cohesive planning between city and county authorities • Growing tension between existing residents and new arrivals

• Reliance on tourism as a primary economic driver • Infrastructure strain from increased population • Growing divisions in the community over development plans • Need for more attractions and activities for families and youth • Negative impact on small-town charm from rapid development

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Achievements Visionary City Award

The City of Covington was honored in February 2024 to receive the Georgia Municipal Association’s 2024 Visionar y Cit y Award.

As one of nine communities recognized for its projects that excelled in innovative solutions, collaboration across sectors, civic engagement, inclusiveness and equity, and creating initiatives with long-term value for our community.

The city strives to continue our path to improve our community by keeping our Downtown vibrant by fostering economic vitality, promoting walkability, increasing diversity, equity & inclusion, and creating intentional spaces for people to gather.

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IV. IMPLEMENTATION

PHASE 1 ~ A 2-YEAR STRATEGIC PLAN

Strategic Plan Stages

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SHORT ACTION items: T E R M ACTION ITEM

Create a social media campaign to raise awareness of community events in downtown Covington

ACTION ITEM

Review of current downtown incentives

ACTION ITEM

Create a Washington Street Zoning Overlay to guide uses and development in the area

ACTION ITEM

ACTION ITEM

Update Marketing and Promotional Materials

Identify potential funding sources and grants for new development and redevelopment within the boundaries of the downtown area

ACTION ITEM

ACTION ITEM

Develop branding that is specific to Covington that highlights the city’s historic charm and small town feel

Create a social media campaign to raise awareness of available land and existing buildings to reduce the number of vacancies

ACTION ITEM Review current boundaries of the Downtown Historic District for possible expansion

ACTION ITEM

Create a web-page outlining the main points of the Downtown Master Plan and a timeline showing when strategies are met ACTION ITEM Review current boundaries of the Downtown Development Authorities area for possible expansion

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V. APPENDIX

Downtown Master Plan Boundaries

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Downtown Master Plan Zoning Map

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