Over-the-Rhine: The Challenges of Equitable Development in Cincinnati

by Daniela Leon, IEDC Intern

Racism and police violence against Black communities prevails in urban areas across the country. In order to push for positive and restorative change in disenfranchised areas, community leaders must revisit long-established practices and ensure that new policies and programs don’t have unintended consequences for historically vulnerable populations. Neighborhood revitalization strategies, especially in historically low-income black or minority neighborhoods, need to balance between re-energizing neighborhoods with new investment and a commitment to protecting the people and culture that exists there. Equitable development policies are key. The Over the Rhine (OTR) neighborhood in Cincinnati, Ohio offers useful lessons. Jenelle Hubbard (Senior Business Advisor, Cincinnati USA Regional Chamber); Joe Rudemiller (VP of Marketing and Communications, 3CDC); Lann Field (VP of Development, 3CDC); Bonnie Neumeier (Over-the-Rhine resident and activist); Damon Lynch (Pastor of New Prospect Baptist Church); and Mary Rivers (Executive Director, OTRCH) offered their insights on the transformation of this historically black, working-class neighborhood, located just north of downtown Cincinnati. 

Over-the-Rhine | Origins

From the late 60s through the end of the 90s OTR was a predominantly black, and impoverished community often neglected by the city. But during these decades, community residents organized to improve quality of life and created several community-based organizations to respond to neighborhood needs. Grassroots leaders, faith-based organizations, and resident activists fought to protect and uplift basic human rights of residents with limited incomes, but over time relations with city development agencies grew tense. In 2001, the police killing of an unarmed Black teen named Timothy Thomas (the 15th Black male killed by police since 1995) exacerbated community tensions with the local police department. Population loss, concentrated poverty, and limited work opportunities, in addition to Thomas’ murder were the impetus for a year-long period of civil unrest in OTR. The city’s response was to push for revitalization along with significant support from corporate Cincinnati. 

The Cincinnati Center City Development Corporation (3CDC), a private, non-profit full-service real estate developer, was set up in 2003 to lead the transformation of the area. Today OTR is a neighborhood described as one of the most vibrant and eclectic areas in all of Cincinnati. Yet, progress has not always been straightforward. While on the one hand community organizations feel they have to fight hard to address needs of existing businesses and residents – several of whom have been displaced because of gentrification – the neighborhood has been able to sustain investment and interest over the past several years. 

Over-the-Rhine | Transformation

3CDC was formed out of a taskforce assembled by the City and corporate Cincinnati in response to OTR’s civil unrest to address the underlying problems. The neighborhood’s proximity to downtown and input from large local corporations influenced the recommendations to establish this new organization, focused largely on the downtown area.

Joe Rudemiller and Lann Field explain that the transformation was a slow, deliberate process that began with acquiring property, stabilizing it, and then preserving it for future redevelopment. High vacancy rates were a chronic issue through the early 2000s. Low home ownership rates influenced 3CDC’s decision to prioritize residential development with condos as their core focus. While the organization strived to foster a diverse, mixed-use community, it was only through added pressure from neighborhood organizations that 3CDC committed to an equitable mixed-income framework. They integrated the preservation of affordable housing units throughout the neighborhood into their strategy, and designed a series of programs that ensure lower-income residents’ access to newly established resources. In partnership with the Model Group and Cornerstone Renter Equity, 3CDC also developed The Abington Race Pleasant project, a program that allows renters to build equity in the apartments they occupy. 3CDC has also worked to increase local hiring in the neighborhood by prioritizing local business owners as retail tenants and urging merchants to hire local residents when possible. Other programs include second-chance hiring strategies and connecting individuals experiencing homelessness to social service programs. 

However, some community organizations that have been active in the area for several decades, contend that not enough has been done to address the needs of lower income residents in a rapidly gentrifying neighborhood. Over-the-Rhine Community Housing (OTRCH) has been active in the community for over 40 years and offers services ranging from the provision of affordable housing for vulnerable residents, seniors, essential workers, and others; to saving historical buildings; to providing support groups, and securing employment opportunities for residents. While 3CDC has established community outreach and public input forums, critics suggest that actionable steps in response to feedback from low-income residents are rare. 

Bonnie Neumeier, longtime resident and activist in OTR explains that the neighborhood’s transformation has been dismissive of low-income residents’ needs beyond the need for more affordable housing, such as laundromats, hardware stores, drug stores, and affordable grocers, among others - a requirement that could be helped by more equitable development policies legislated by the city. Pastor Damon Lynch, a resident and community leader of OTR in the 90s, expressed frustration with the city’s lack of policies around equitable urban development, leaving the neighborhood susceptible to inadequate and harmful outcomes. He maintains that since grassroots work often lacks access to capital and necessary political power, it’s imperative to channel support toward organizations that are engaged in inclusive economic development and policies that facilitate the creation of equitable neighborhoods. Mary Rivers built on these comments by reminding that organizations with power, like 3CDC and city governments, have a great responsibility to be purposeful and intentional in their commitment to work with vulnerable communities. Furthermore, transparency between developers and community residents is equally important. 

Over-the-Rhine | Lessons

While neighborhood revitalization is a powerful tool for economic change in cities, the threat of racial displacement also prevails. As the social and political climate of the country brings anti-racism and equity to the fore, economic development must be treated as inextricable from community development and its social implications. Cities should establish clear objectives toward inclusive growth and increased accountability for development agencies. Finally, increased transparency and meaningful engagement with community residents (and organizations) is fundamental to adequately serve the needs of vulnerable neighborhoods and ensure that future strategies do not overlook the strengths and dignity of the people that have called their neighborhood home.