There are several key players in the fight against vacancy, including various government departments and agencies, neighborhood groups, rehabbers, and developers. These key players face difficult challenges. For example, they must balance community residents’ desire for immediate action with the legal confines of due process and private property rights. Moreover, they operate in the face of economic and demographic upheavals, deteriorating housing stock, and underfunded and fragmented municipal code enforcement. 

Since 1876, St. Louis has been an independent city, which means that it is not part of any county. Therefore, it operates as both a city and a county and is the only city in Missouri that operates its own county offices. This unusual structure means that effectively addressing the vacant property challenge requires coordination across city and county functions.

To make an impact on vacancy, the key players identified in this Guide must work in coordination with one another. The following chart identifies the key players and illustrates which ones are best situated to use or cooperate in the use of the legal levers, reuse strategies, and prevention tools further described in this Guide. 

For more on concrete ways the key players can coordinate, see From Policy to Progress: A Ten-Year Strategy to Reduce Vacancy in the City of St. Louis. For more on why a strategic and coordinated approach is essential, see Center for Community Progress, Strategic Code Enforcement.
Key Players
City Departments and Agency
The most relevant departments for purposes of this Guide are the Building Division, the Department of Health, the Forestry Division, the Neighborhood Stabilization Division (NSD), the Planning and Urban Design Agency (PDA), and the St. Louis Development Corporation (SLDC). These departments and agencies are legally represented by the City Counselor. Among other things, this legal team represents City departments in enforcing ordinances related to vacant properties. Enforcement can occur through prosecution in municipal housing court or administratively through the assessment of fines, fees, or costs.  
  • Building Division
  • Community Development Administration (CDA)
  • Department of Health
  • Forestry Division
  • Neighborhood Stabilization Division (NSD)
  • Planning and Urban Design Agency (PDA)
  • St. Louis Development Corporation (SLDC)
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Division of Department of Public Safety
Department of Public Safety reports to the Mayor

The Building Division enforces the City’s ordinances related to the location, construction, use, maintenance, and demolition of buildings. This collection of ordinances is sometimes commonly referred to as the “building code.” As part of its work, the Building Division also issues building permits, conducts building inspections, demolishes vacant buildings, boards up vacant buildings, enforces zoning ordinances, issues citations, and maintains the STL City Permits database. 
CDA reports to the Mayor

CDA is the City’s clearinghouse for federal, state, and local funds. It funds a wide range of activities, including affordable housing and vacancy reduction.
Department of Health reports to the Mayor

The Department of Health is responsible for a variety of services related to protection and promotion of the public’s health. Its most relevant function for purposes of this Guide is enforcing the City’s ordinances designed to protect health and ensure safety. This collection of ordinances is sometimes commonly referred to as the “health code.”
Division of Department of Parks, Recreation, and Forestry 
Department of Parks, Recreation, and Forestry reports to the Mayor

The Division of Forestry is responsible for “weed control” on City property and on privately owned vacant property. Its most relevant function for purposes of this Guide is enforcing ordinances relating to prohibitions on weeds, debris, and graffiti. 
Division of Department of Public Safety
Department of Public Safety reports to the Mayor

NSD includes three functions relevant to this Guide:

  • Citizens’ Service Bureau (CSB): The CSB provides a customer service function for the City by registering and routing service requests, answering citizen requests for information, and providing data to other City departments. Reports of possible code violations relating to vacant properties may be made through CSB.
 
  • Neighborhood Improvement Specialist (NIS): Each City neighborhood has an assigned NIS who is charged with identifying and addressing neighborhood issues in cooperation with alderpersons, the neighborhood (residents, organizations, and block units), and City departments. The NIS can help connect residents to resources. The NIS may make a direct request to the appropriate department concerning a possible code violation.  
 
  • Registered Neighborhood Organizations (RNOs): NSD maintains a public registry of neighborhood groups that meet basic eligibility requirements and choose to register with the City; registration helps groups stay informed and connected. 
PDA reports to the Mayor

PDA includes three functions relevant to this Guide: 

  • Cultural Resources Office (CRO): Among other tasks, the CRO is involved with design standards and permits for demolition activity within local historic districts, Preservation Review Areas, and National Register Districts. Demolition decisions may be appealed to the Preservation Board (which is staffed by the CRO). 


  • Planning Commission: Among other things, the Planning Commission makes decisions on rezoning petitions, provides recommendations to the Board of Aldermen on blighting studies and redevelopment plans, and adopts neighborhood plans. The Mayor appoints the members of the Planning Commission, and PDA staffs it. 
SLDC is an independent nonprofit corporation controlled by a board of directors (composed of two alderpersons, six representatives from the various development boards that SLDC staffs, and three officers who are City employees and appointed by the Mayor)

SLDC’s mission is fostering economic development and growth in the City. Among other purposes, it houses and staffs various development boards that facilitate and regulate redevelopment and capital investment in the City. It has three functions relevant to this Guide:

  • Land Bank: SLDC staffs the Land Reutilization Authority (LRA), which serves as the land bank for the City. The LRA itself is controlled by three commissioners (one appointed by the Mayor, one appointed by the Comptroller, and one appointed by St. Louis Public Schools). The LRA manages, maintains, markets, and sells property acquired in the name of the LRA. The LRA typically takes title to vacant property in one of two ways:
    • Tax-Delinquent Properties:  The LRA serves as an acquirer of last resort for tax-delinquent property auctioned at tax sales.      
    • Property Donations:  The LRA receives donated property from individuals or organizations desiring to donate their property to the City.

  • Redevelopment Incentives: SLDC staffs various development boards that oversee incentives that can make it more feasible for rehabbers and developers to redevelop vacant properties. These development boards include:
  • Neighborhood Transformation Managers: Each City neighborhood has an assigned Neighborhood Transformation Manager tasked with promoting and initiating economic development by coordinating among various stakeholders.  
Courts
The most relevant courts for purposes of this Guide are the St. Louis Municipal Court (city court) and the 22nd Judicial Circuit Court of Missouri (state court).
  • Municipal Court
  • 22nd Judicial Circuit Court of Missouri
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Municipal court judges are appointed by the Mayor for four-year terms

The Municipal Court has jurisdiction to hear and decide City ordinance violation cases. The function most relevant for purposes of this Guide is the “Problem Property Court,” which is also known as “Housing Court.” 
State court judges are selected through the Missouri Non-Partisan Court Plan for six-year terms

The 22nd Judicial Circuit Court has jurisdiction to hear a wide variety of cases. The function most relevant for purposes of this Guide is the court’s jurisdiction to hear certain lawsuits described in this Guide. 
"County Agencies"
The most relevant “county” agencies for purposes of this Guide are the Collector of Revenue and the Sheriff’s Office. The leaders of these agencies are independently elected by St. Louis voters, and these agencies are legally represented by independent counsel (not the City Counselor).
  • Collector of Revenue
  • Sheriff's Office
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Collector of Revenue is elected by City voters for four-year term 

Among other things, the Collector of Revenue is responsible for collecting real estate taxes through its Real Estate Tax Department. In this role, it is part of the City’s tax sale process.  
Sheriff is elected by City voters for four-year term 

Two relevant functions of the Sheriff’s Office for purposes of this Guide are its responsibility to conduct real estate tax sales and its responsibility to disburse proceeds from those sales. This disbursement responsibility includes an obligation to appropriately allocate sale proceeds to the Vacant Building Initiative Fund (a fund intended to support vacancy mitigation activities).  
Private Sector
The most relevant private actors for purposes of this Guide are neighborhood organizations, rehabbers, and developers. 
  • Neighborhood Organizations
  • Rehabbers and Developers
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Neighborhood organizations, such as neighborhood associations and similar geographic-based groups, are key to vacancy-reduction efforts. Working together through these organizations, neighborhood residents can collaborate with relevant City agencies (e.g., code enforcement, tax sales, and neighborhood planning), use legal tools to force action on vacant properties and facilitate their reuse, and help prevent vacancy in their neighborhoods. 
Responsible individual rehabbers, nonprofit community development corporations (CDCs), and for-profit developers play an important role in reducing vacancy. They can ensure their properties are code compliant, rehab properties purchased through tax sales, and partner with neighborhood organizations to put vacant property back into productive use. 
Key Players Chart
  • Key Players Chart
  • City Departments and Agency
  • Courts
  • "County Agencies"
  • Private Sector
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The most relevant departments for purposes of this Guide are the Building Division, the Department of Health, the Forestry Division, the Neighborhood Stabilization Division (NSD), the Planning and Urban Design Agency (PDA), and the St. Louis Development Corporation (SLDC). These departments and agencies are legally represented by the City Counselor. Among other things, this legal team represents City departments in enforcing ordinances related to vacant properties. Enforcement can occur through prosecution in municipal housing court or administratively through the assessment of fines, fees, or costs. 
  • Building Division
  • Community Development Administration (CDA)
  • Department of Health
  • Forestry Division
  • Neighborhood Stabilization Division (NSD)
  • Planning and Urban Design Agency (PDA)
  • St. Louis Development Corporation (SLDC)
<
>
Division of Department of Public Safety
Department of Public Safety reports to the Mayor

The Building Division enforces the City’s ordinances related to the location, construction, use, maintenance, and demolition of buildings. This collection of ordinances is sometimes commonly referred to as the “building code.” As part of its work, the Building Division also issues building permits, conducts building inspections, demolishes vacant buildings, boards up vacant buildings, enforces zoning ordinances, issues citations, and maintains the STL City Permits database. 
CDA reports to the Mayor

CDA is the City’s clearinghouse for federal, state, and local funds. It funds a wide range of activities, including affordable housing and vacancy reduction.
Department of Health reports to the Mayor

The Department of Health is responsible for a variety of services related to protection and promotion of the public’s health. Its most relevant function for purposes of this Guide is enforcing the City’s ordinances designed to protect health and ensure safety. This collection of ordinances is sometimes commonly referred to as the “health code.”
Division of Department of Parks, Recreation, and Forestry 
Department of Parks, Recreation, and Forestry reports to the Mayor

The Division of Forestry is responsible for “weed control” on City property and on privately owned vacant property. Its most relevant function for purposes of this Guide is enforcing ordinances relating to prohibitions on weeds, debris, and graffiti. 
Division of Department of Public Safety
Department of Public Safety reports to the Mayor

NSD includes three functions relevant to this Guide:

  • Citizens’ Service Bureau (CSB): The CSB provides a customer service function for the City by registering and routing service requests, answering citizen requests for information, and providing data to other City departments. Reports of possible code violations relating to vacant properties may be made through CSB.
 
  • Neighborhood Improvement Specialist (NIS): Each City neighborhood has an assigned NIS who is charged with identifying and addressing neighborhood issues in cooperation with alderpersons, the neighborhood (residents, organizations, and block units), and City departments. The NIS can help connect residents to resources. The NIS may make a direct request to the appropriate department concerning a possible code violation.  
 
  • Registered Neighborhood Organizations (RNOs): NSD maintains a public registry of neighborhood groups that meet basic eligibility requirements and choose to register with the City; registration helps groups stay informed and connected. 
PDA reports to the Mayor

PDA includes three functions relevant to this Guide: 

  • Cultural Resources Office (CRO): Among other tasks, the CRO is involved with design standards and permits for demolition activity within local historic districts, Preservation Review Areas, and National Register Districts. Demolition decisions may be appealed to the Preservation Board (which is staffed by the CRO). 


  • Planning Commission: Among other things, the Planning Commission makes decisions on rezoning petitions, provides recommendations to the Board of Aldermen on blighting studies and redevelopment plans, and adopts neighborhood plans. The Mayor appoints the members of the Planning Commission, and PDA staffs it. 
SLDC is an independent nonprofit corporation controlled by a board of directors (composed of two alderpersons, six representatives from the various development boards that SLDC staffs, and three officers who are City employees and appointed by the Mayor)

SLDC’s mission is fostering economic development and growth in the City. Among other purposes, it houses and staffs various development boards that facilitate and regulate redevelopment and capital investment in the City. It has three functions relevant to this Guide:

  • Land Bank: SLDC staffs the Land Reutilization Authority (LRA), which serves as the land bank for the City. The LRA itself is controlled by three commissioners (one appointed by the Mayor, one appointed by the Comptroller, and one appointed by St. Louis Public Schools). The LRA manages, maintains, markets, and sells property acquired in the name of the LRA. The LRA typically takes title to vacant property in one of two ways:
    • Tax-Delinquent Properties:  The LRA serves as an acquirer of last resort for tax-delinquent property auctioned at tax sales.      
    • Property Donations:  The LRA receives donated property from individuals or organizations desiring to donate their property to the City.

  • Redevelopment Incentives: SLDC staffs various development boards that oversee incentives that can make it more feasible for rehabbers and developers to redevelop vacant properties. These development boards include:
  • Neighborhood Transformation Managers: Each City neighborhood has an assigned Neighborhood Transformation Manager tasked with promoting and initiating economic development by coordinating among various stakeholders.  
The most relevant courts for purposes of this Guide are the St. Louis Municipal Court (city court) and the 22nd Judicial Circuit Court of Missouri (state court).
  • Municipal Court
  • 22nd Judicial Circuit Court of Missouri
<
>
Municipal court judges are appointed by the Mayor for four-year terms

The Municipal Court has jurisdiction to hear and decide City ordinance violation cases. The function most relevant for purposes of this Guide is the “Problem Property Court,” which is also known as “Housing Court.” 
State court judges are selected through the Missouri Non-Partisan Court Plan for six-year terms

The 22nd Judicial Circuit Court has jurisdiction to hear a wide variety of cases. The function most relevant for purposes of this Guide is the court’s jurisdiction to hear certain lawsuits described in this Guide. 
The most relevant “county” agencies for purposes of this Guide are the Collector of Revenue and the Sheriff’s Office. The leaders of these agencies are independently elected by St. Louis voters, and these agencies are legally represented by independent counsel (not the City Counselor).
  • Collector of Revenue
  • Sheriff's Office
<
>
Collector of Revenue is elected by City voters for four-year term 

Among other things, the Collector of Revenue is responsible for collecting real estate taxes through its Real Estate Tax Department. In this role, it is part of the City’s tax sale process.  
Sheriff is elected by City voters for four-year term 

Two relevant functions of the Sheriff’s Office for purposes of this Guide are its responsibility to conduct real estate tax sales and its responsibility to disburse proceeds from those sales. This disbursement responsibility includes an obligation to appropriately allocate sale proceeds to the Vacant Building Initiative Fund (a fund intended to support vacancy mitigation activities).  
The most relevant private actors for purposes of this Guide are neighborhood organizations, rehabbers, and developers. 
  • Neighborhood Organizations
  • Rehabbers and Developers
<
>
Neighborhood organizations, such as neighborhood associations and similar geographic-based groups, are key to vacancy-reduction efforts. Working together through these organizations, neighborhood residents can collaborate with relevant City agencies (e.g., code enforcement, tax sales, and neighborhood planning), use legal tools to force action on vacant properties and facilitate their reuse, and help prevent vacancy in their neighborhoods. 
Responsible individual rehabbers, nonprofit community development corporations (CDCs), and for-profit developers play an important role in reducing vacancy. They can ensure their properties are code compliant, rehab properties purchased through tax sales, and partner with neighborhood organizations to put vacant property back into productive use. 

Sources

Links in the body of this Guide serve both as source references and as an aid to the reader. Additional sources consulted for this section not already included in the body of this section are:
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