Economic and Social Challenges on Bardstown Road, the Highlands, and Downtown Louisville – RESEARCH JULY 2025

Rising Property Taxes and Impact on Local Businesses and Owners

Rising property values in Louisville’s desirable neighborhoods have led to increased property tax assessments in areas like the Highlands (which includes the Bardstown Road corridor). For example, the median home sale price in greater Louisville rose about 35% from 2019 to 2023. In 2024, the Jefferson County PVA reassessed thousands of properties in the Highlands and nearby areas for the first time since 2021. Higher assessments mean higher tax bills for property owners, even though tax rates saw only slight reductions (Kentucky’s state property tax rate ticked down to 11.4 cents per \$100 in 2023 from 11.5 cents). The PVA has voiced concern about the tax burden on residents amid surging home values. Commercial owners in the Bardstown Road corridor are feeling the pinch as well – many long-time businesses rent their space, so rising taxes and property values often translate into higher rents. As one Highlands business owner noted, “No expense of tax happens in a vacuum, it has to be passed on” to consumers or tenants.

Local business advocates worry that steep tax increases make it harder for independent shops and eateries to survive. A proposed special Highlands management district in 2018 highlighted this tension: it would have added an extra \$0.18 per \$100 of assessed value (nearly 18% of 1% of value) on 392 parcels to fund street cleaning and safety patrols. While some business owners supported paying more for cleaner, safer streets, others balked. For example, the owner of a car dealership on Bardstown Road argued the added tax was unnecessary in his section of the corridor and feared it would just raise costs for customers. Ultimately, that voluntary tax district required broad support from owners and did not take effect at the time. However, the underlying issue remains: property taxes have been climbing, and small businesses with tight margins feel each increase.

To illustrate the impact, consider that the Bardstown Road/Highlands area is not only culturally important but also economically vital. In fact, Bardstown Road and its adjacent Highlands neighborhoods generate more tax revenue than any other neighborhood in the city or state. This productivity is a double-edged sword: it reflects strong property values and commerce (hence higher tax contributions), but it also means local proprietors bear heavy tax bills. Some long-time shop owners have had to close or relocate, citing the cost of doing business. While exact numbers of closures are hard to pin down, community members point to a growing list of vacant storefronts along Bardstown Road. Residents lament that “we were already seeing hints of a decline and now with the challenges facing small businesses” the Highlands’ independent business scene feels threatened. High property taxes are one part of that challenge, along with rising labor and supply costs.

Property owners can appeal assessments – and many did during the 2024 revaluation cycle – but not all are successful. Louisville’s Metro Council has limited ability to offer broad relief due to state laws (Kentucky’s “HB 44” limits revenue increases without voter input). In practice, even if the city slightly lowers tax rates, strong assessment growth in popular areas like the Highlands yields higher tax bills for most. The consequence has been a squeeze on local landlords and entrepreneurs, who must either absorb smaller profits or pass costs along to tenants and customers. This dynamic fuels concern that Bardstown Road’s unique local shops could increasingly be replaced by chains or sit empty if operating costs (taxes included) become untenable.

Allocation of Increased Property Tax Revenues

With property tax collections rising (thanks in large part to those higher assessments), citizens naturally ask: Where is the money going? Louisville’s city budget is about \$1 billion annually, and property taxes (along with an income-based occupational tax) feed the general fund that pays for most city services. Recent budgets indicate that public safety, sanitation, and housing initiatives are major priorities for the increased revenue. For instance, in Mayor Craig Greenberg’s first budget proposal in 2023, he emphasized funding Louisville Metro Police (to address officer shortages and violent crime), downtown revitalization projects, and housing programs. He proposed \$15 million for the Affordable Housing Trust Fund to spur construction of affordable units – money that could “easily produce more than 1,000 units” according to the fund’s director. This represents a historic level of investment in affordable housing, enabled by robust city revenues. (By comparison, in previous years the fund often received around \$10 million or less.)

Another \$8.25 million in the budget was directed toward homelessness prevention (rent assistance and services to keep people housed), and \$24 million toward creating new permanent supportive housing for the homeless. These funds are part of a \$32.5 million “Homelessness Initiative” that city leadership announced in 2023, which also includes building a new “Community Care Campus” with shelter and wrap-around services. Indeed, Greenberg’s plan calls for a one-stop campus near downtown providing medical care, addiction treatment, job help, and interim housing – a project partly funded by the city and partly by state and private partners. The mayor allotted about \$2 million in the current budget for land acquisition and initial site work for this campus, plus \$3 million for a new women’s shelter on site. These expenditures suggest that increased tax revenues are being steered into long-term solutions for homelessness and housing scarcity, not just short-term fixes.

Regular city services are also benefiting. Sanitation and cleanup efforts have grown in response to community complaints. The city spent about \$400,000 in 2023 to remove garbage and human waste from homeless encampments – a hefty sum, though actually down from \$600,000 spent in 2022. That reduction may be due to more efficient services or fewer camps (after new initiatives), but it highlights that Louisville is investing significant tax dollars in keeping streets and public areas clean. Likewise, Metro Public Works has been active in infrastructure upgrades: for example, a \$1.5 million state-funded project (with local matching funds) redesigned a stretch of Bardstown Road to improve safety. The redesign included new crosswalks, curb extensions, better lighting, and additional on-street parking – all public works expenses ultimately supported by tax revenue. Smaller line items like community ambassadors (civilians paid to patrol and tidy up business districts) are also funded by city and federal relief dollars. In late 2021, Louisville allocated \$1 million of federal American Rescue Plan funds to expand the ambassador program into the Highlands. These ambassadors work along Bardstown Road, assisting with safety patrols, litter pickup, graffiti removal, and even homeless outreach. Business owners say the program has helped “beautify the neighborhood” and provided an extra set of eyes on the street. While that was one-time federal funding, maintaining such programs in the future likely relies on local tax funding.

It’s worth noting that a significant portion of Louisville’s general fund goes to public safety payroll – police, fire, EMS. The Louisville Metro Police Department has been trying to rebuild its ranks after a 250-officer shortage noted in 2021. In recent budgets, city leaders boosted police recruiting and even decided to relocate LMPD’s headquarters to a renovated downtown building – an investment aimed at both supporting police and contributing to downtown’s revival. These moves are funded by the city’s revenue streams (taxes, federal aid, etc.). Thus, rising tax receipts from areas like the Highlands and downtown are partly financing increased police presence in those same areas. In mid-2025, for instance, LMPD deployed more officers (including mounted patrols) on Bardstown Road during weekends to deter late-night trouble, and the police chief noted resources could be shifted thanks to a recent drop in violent crime citywide. Those patrols and police overtime are enabled by the city’s budget choices, which in turn reflect the higher tax revenues collected.

In summary, Louisville’s increased property tax revenues are being channeled into a mix of capital projects and services: affordable housing development, enhanced homeless services, public safety and sanitation efforts, and infrastructure improvements. City officials have emphasized these investments as necessary to tackle the very challenges vexing Bardstown Road, the Highlands, and downtown – from unclean streets to lack of housing and feelings of unsafety. Some residents remain skeptical, asking if the money is reaching their neighborhood in visible ways. The next section looks at what attention and investment the city is giving Bardstown Road and the Highlands specifically.

City Investment and Attention in Bardstown Road and The Highlands

Bardstown Road in the Highlands has long been one of Louisville’s most vibrant corridors – a hub of local dining, nightlife, and shopping. In recent years, locals have debated whether the city government is doing enough to support and maintain this crucial district. The evidence shows that the city has directed several projects and programs to the area, though some feel it hasn’t been proportional to the area’s importance (recalling that the Highlands generate an outsized share of tax revenue).

One major initiative was the Bardstown Road Redesign project, a multi-phase effort to calm traffic and improve the streetscape for pedestrians and businesses. Phase 1 of the redesign (covering 1.5 miles from Bonnycastle Avenue to Broadway) broke ground in 2022 with about \$1.5 million in funding from the Kentucky Transportation Cabinet and additional metro/local funds. The project removed the old reversible lane system and installed new crosswalks, curb bump-outs, and dozens of street trees and planters. It also created more permanent on-street parking spots by reducing the road from four lanes to two, directly addressing a long-standing complaint of business owners about parking scarcity. Local Metro Council representatives (first Brandon Coan, then Cassie Chambers Armstrong, and now Ben Reno-Weber in District 8) championed this redesign as a safety and economic boost for Bardstown Road. The project is touted as an “investment in the future of Bardstown Road” that will make the area safer, greener, and more attractive for shoppers – theoretically benefiting local merchants through increased foot traffic and fewer car crashes. By spring 2023, most of the new striping, crosswalks, and curb plantings were completed, and further phases extending beyond the original segment are planned into 2024 and beyond.

Community input and collaboration have been a hallmark of this project. A local nonprofit, Friends of Bardstown Road, worked with Metro Public Works, the state, and the Highlands Commerce Guild on the redesign details. This suggests the city is indeed paying attention to Bardstown Road, partnering with community stakeholders to guide public investment. The redesign has been generally well-received as a positive step, although it required patience from businesses during construction. Importantly, the redesign also addresses public safety (e.g. better crosswalks where there had been pedestrian accidents) and even environmental concerns (mitigating the urban heat island with new trees). Those align with citywide initiatives like Vision Zero (eliminating traffic deaths) and Complete Streets policies. In other words, the Highlands are being used as a model for modern urban improvements, with City Hall’s support.

Beyond physical infrastructure, the city has also piloted service programs in the Highlands. The Highlands Ambassador Program, as mentioned, was expanded in late 2021 with \$1 million in funding. By 2022, uniformed “ambassadors” were a daily sight on Bardstown Road, helping deter petty crime and keep sidewalks clean. In one month (February 2022), Highlands ambassadors picked up 94 bags of trash and scrubbed 146 graffiti tags – tangible results that improved the corridor’s appearance. Highlands Councilwoman Cassie Chambers Armstrong lauded the ambassadors for “building relationships” with businesses and acting in areas beyond what police or public works typically do. Seeing this success, Mayor Greenberg’s 2023 budget included funding to sustain such safety/cleanliness initiatives. The Metro Council also has been active: District 8’s current councilman, Ben Reno-Weber, is frequently on Bardstown Road engaging with constituents and has convened forums to address local problems. In fact, after a spate of disruptive late-night street parties (discussed in the next section), Reno-Weber organized emergency meetings and pressed LMPD to adjust its strategy specifically for Bardstown Road, saying “Bardstown is different than the rest of the neighborhood and needs to be patrolled differently”. This statement shows a level of attention from city leaders that recognizes the corridor’s unique challenges.

City agencies have made smaller but appreciated investments as well. For example, Louisville’s Parking Authority (PARC) recently proposed adding hundreds of metered parking spots along Bardstown Road (from Downtown/Baxter Avenue through the Highlands) to improve parking turnover for businesses. The idea, based on a study, is that metered spots will prevent all-day parking and free up spaces for more customers, potentially increasing business traffic. This plan is still under discussion as of mid-2025, but it indicates city officials are actively seeking solutions to revitalize commercial activity on Bardstown Road. Similarly, metro government supported the Highlands Commerce Guild in starting events like “Keep Bardstown Road Clean” days and promotional street fairs to draw visitors. While these may seem minor, they reflect a collaborative effort by city departments and local groups to keep the area thriving.

Despite these efforts, some in the community feel the city’s focus has been too downtown-centric or that responses come only after problems become acute. Bardstown Road’s advocates point out that it took a series of incidents (crowds blocking traffic, etc.) to spur increased police presence (discussed below) and that routine issues like graffiti or vandalism often fell to volunteers or business owners to address. Nonetheless, the recent multimillion-dollar projects (road redesign, ambassador program, housing initiatives nearby) demonstrate a level of public investment in the Highlands that is significant. One striking fact is that a new 50-unit affordable housing complex for people with mental health challenges was just opened off Bardstown Road in the Douglass Boulevard area – a partnership with local nonprofit Wellspring. This not only provides housing in the area but also signals that the city is bringing resources (and not just expecting the Highlands to fend for itself despite its prosperity).

In conclusion, Louisville’s city government is indeed investing in Bardstown Road and the Highlands, through both infrastructure upgrades and special programs. The Highlands remains a priority in planning documents and receives attention from elected officials. The question some residents pose is whether these actions are enough and fast enough, given the mounting challenges. That leads us to those challenges: homelessness and public safety.

Homelessness and Public Safety in Bardstown Road, the Highlands, and Downtown

Like many urban areas, Louisville has been grappling with issues of homelessness and street disorder in recent years. These problems have become more visible not only downtown but also along commercial corridors such as Bardstown Road. Community members in the Highlands have observed an uptick in panhandling and individuals sleeping in doorways or under overhangs on Bardstown Road – a situation that was less common a decade ago. In fact, Highlands residents raised homelessness as a concern in a 2021 public hearing, alongside crime and noise complaints. One Highlander at that meeting put it bluntly: “We do have a problem here in the Highlands.” They noted “constant vagrants harassing you” and people acting erratically on the streets. This perception shows that homelessness is not just a downtown issue, a sentiment echoed by many Louisvillians.

Quantitatively, Louisville has seen a surge in homelessness in the past few years. Between 2018 and 2021, the number of people experiencing homelessness in the city increased 41% (from about 7,572 to 10,640), according to the Coalition for the Homeless. More recently, the Coalition reported a 139% jump in unsheltered individuals on Louisville’s streets in 2023 alone, indicating that the problem has accelerated. (One count found 581 people living on the streets in January 2023, up from around 243 previously.) The reasons mirror national trends – lack of affordable housing, the end of COVID-era eviction moratoriums, and insufficient shelter capacity.

For Bardstown Road and the Highlands, this has meant more people camping in nearby areas or frequenting the corridor. In early 2023, a large encampment near the I-264/Bardstown Road interchange (at the edge of the Highlands area) drew attention; the city cleared that camp after complaints. Outreach groups note that when downtown camps are cleared, some displaced individuals migrate to other neighborhoods like the Highlands, seeking parks or quieter side streets to set up tents. Indeed, a calm scene along Bardstown Road can mask the fact that just a block or two away, there might be an encampment in a park or under an overpass. Shelby Park (adjacent to the Highlands) saw a new camp appear when downtown enforcement increased, as one resident observed with concern.

The city’s handling of homelessness has involved both increased services and enforcement. On the service side, Louisville opened “The Hope Village” in 2022 – a city-sanctioned safe outdoor space with tents and amenities for unhoused people to stay temporarily. This site, near downtown, was operated by a nonprofit (The Hope Buss) and represented a new approach to give campers a safer place to go. Additionally, Louisville’s Continuum of Care added some shelter beds and day centers (for example, planning a new women’s day shelter as part of the upcoming Community Care Campus). However, demand still far outstrips supply. The Coalition for the Homeless recommended creating “hundreds of new shelter beds” and “thousands of affordable housing units” to begin resolving the crisis.

On the enforcement side, the Kentucky legislature passed a law (House Bill 5, nicknamed the “Safer Kentucky Act”) that criminalized street camping statewide as of July 2024. This gave local authorities more power to clear camps. Louisville Metro, under both former Mayor Greg Fischer and current Mayor Greenberg, has periodically cleared encampments with advance notice – including well-known camps downtown under overpasses (e.g. near Jefferson Street) and smaller camps in neighborhood parks. The city reports that in winter 2023, during a cold snap, they transported 48 people from outdoor locations to shelters in a single week. Still, for every camp cleared, some individuals simply relocate to another spot if they have nowhere stable to go. Businesses and residents in the Highlands have expressed empathy but also frustration, especially when they witness open drug use or aggressive behavior. The feeling, as one Reddit commenter summarized starkly, is that the Highlands went from “a nice place to get away” to having “constant vagrants… and a lot of crazy people acting erratically”. This directly affects businesses: customers may feel uneasy, and shop owners sometimes must ask people not to loiter or sleep near their doorways.

Public safety concerns extend beyond homelessness. Downtown Louisville experienced a spike in violent crime around 2020 (amid the pandemic and civil unrest) but has since seen improvement. By early 2025, the data showed “crime down” in the Central Business District, according to the Louisville Downtown Partnership’s annual report. The mayor proclaimed “downtown is back” and highlighted an increased presence of LMPD officers and ambassadors as a key change. The city deployed more foot patrols and even reinstated a mounted horse patrol unit on weekend nights downtown. Major crimes downtown did decline in 2022 vs. 2021 (exact percentages were not cited, but the trend was positive), and downtown’s homicide numbers remain much lower than some other Louisville neighborhoods. Nevertheless, perception of safety downtown is an ongoing challenge – evidenced by office vacancy rates staying high and some businesses citing safety as a factor in closures. For example, the owner of a prominent Fourth Street live-music bar noted that “it’s not going to be someplace people want to come if there’s a large homeless population… that [makes them] don’t feel safe.”. Such sentiments underscore that public safety and homelessness are intertwined with economic vitality.

On Bardstown Road, the public safety issues recently took a different form: late-night disorder by large crowds of young people. In May and June 2025, the Highlands suffered two consecutive weekends of chaotic “street takeovers.” Hundreds of people (around 400 at one point over Memorial Day weekend) swarmed Bardstown Road, blocking traffic, dancing on cars, and engaging in fights. Police were caught off-guard the first weekend and made several arrests the next (including at least one juvenile). These incidents, essentially pop-up street parties that turned violent, alarmed both residents and business owners. “The residents have every right to be upset,” said Aaron Givhan, president of the Highland Commerce Guild, after witnessing the mayhem. The disruption forced some bars and restaurants to adjust operations. The Highlands Tap Room and even a 24-hour Taco Bell voluntarily cut their hours, closing at 2 a.m. instead of 4 a.m., in an effort to reduce the late-night chaos. “It’s very dangerous… something that could’ve been very sad. We don’t want any lives lost,” said Ti’ant Wyatt, whose company owns the Taco Bell, describing the scene of people on cars and fights in the street. Business owners worried that if such incidents continued, it would drive away customers and “I do worry about businesses surviving… you don’t want to have closed businesses in a busy business neighborhood”, as chef Dallas McGarity, who owns The Fat Lamb at Bardstown & Grinstead, told local media.

In response, city leadership and LMPD took action. Mayor Greenberg, along with the police chief, personally walked Bardstown Road in early June 2025 to talk with businesses and reassure residents. He noted the city had already cracked down on a few problematic bars (shutting down three venues that were flouting laws, like one hookah lounge operating without a valid license). LMPD increased patrols in the Highlands on weekends and even stationed squad cars along Bardstown Road as visible deterrents. Additionally, the Alcoholic Beverage Control (ABC) officers stepped up checks on bars for over-serving or underage drinking. Metro Councilman Reno-Weber pushed a coordinated strategy: he got local businesses to sign waivers allowing police to break up loitering on private parking lots, and convened a community meeting on June 25, 2025, to brainstorm further solutions. One idea revived from the past is rolling back bar closing time to 2 a.m. citywide. Many Highlands residents strongly favor this, noting that trouble tends to spike after 2 a.m. “What happens between 2 and 4 a.m.? It’s a different tone… it trips into a criminal element,” said long-time resident Rob Willy, who supports the earlier last call. Mayor Greenberg has said “everything should be on the table” regarding bar hours. (Louisville’s Metro Council had actually attempted such a change in 2021, led by then-Councilwoman Armstrong, but that ordinance did not pass at the time.)

The homelessness aspect of public safety is also being addressed through targeted programs. In late 2024, construction began on the aforementioned Community Care Campus in the Smoketown area (just south of downtown, a couple miles from the Highlands). This \$58 million campus, funded jointly by state, city, and private partners, will include a large shelter for families, a health clinic, transitional housing for youth, and even an on-site LMPD office. By concentrating services and providing “wrap-around care” – from medical aid to job training – the campus aims to reduce the number of people living on the street in the long run. Kentucky Senate President Robert Stivers noted that improving services for the homeless is not only about compassion but also key to having “a great downtown… [where] people feel safe”. City data shows how intertwined these issues are: in 2023, 15% of all Louisville Fire Department runs were related to people experiencing homelessness (medical calls, fires at camps or vacant buildings, etc.). Reducing homelessness should therefore improve overall public safety and quality of life in neighborhoods like downtown and the Highlands.

In the interim, downtown Louisville continues to have a visible homeless population, particularly around shelter locations and the bus station. Businesses downtown have complained about aggressive panhandling and the impact on tourism. The Louisville Downtown Partnership reports vacancy rates in Class A office space remain elevated, partly because many workers haven’t returned in person. However, downtown advocates are trying to attract more residents to live there, which could naturally improve safety by increasing foot traffic and “eyes on the street”. The city has even offered tax incentives to developers to convert vacant office buildings into apartments. If successful, this could simultaneously address empty buildings and provide housing (some of which could be affordable units for lower-income individuals).

In summary, homelessness and public safety challenges are significant in both the Highlands and downtown, though they manifest differently. Bardstown Road’s issues have centered on late-night rowdiness and a modest increase in homeless individuals in the area, whereas downtown faces larger homeless encampments and lingering perceptions of crime. Louisville’s approach has been a combination of enforcement (police crackdowns on street takeovers, clearing unsafe camps) and compassionate intervention (new shelters, outreach, and behavioral health services). The effectiveness of these measures is still being evaluated. For now, businesses have taken their own steps – Highlands bars agreeing to close earlier on weekends, downtown merchants hiring private security in some cases – while awaiting longer-term improvements from city policies.

City Leadership and Policy Responses: Are Current Policies Meeting Community Needs?

Louisville’s city leadership, dominated by Democrats in both the Mayor’s office and Metro Council, has faced increasing scrutiny over these economic and social challenges. Some community members wonder if one-party leadership has led to complacency or policies that are not adequately addressing issues like crime, cleanliness, and homelessness. It’s a complex picture: city leaders have enacted numerous initiatives, but outcomes have been mixed, leading to debate about whether current policies are failing or starting to turn the tide.

On the positive side, Mayor Craig Greenberg (a Democrat who took office in 2023) has made revitalizing Louisville’s urban core a centerpiece of his agenda. In his first “State of Downtown” address in March 2025, Greenberg struck an optimistic tone, insisting “Ignore what your friends who haven’t been downtown since 2020 are saying – downtown Louisville is coming back”. He pointed to \$1.6 billion in public and private investments announced for downtown, a huge jump from the year before. He also highlighted adding more police patrols and expanding the ambassador program as immediate steps that “help visitors navigate the area and keep streets and sidewalks clean”. This indicates that the current Democratic leadership acknowledges problems and is trying a combination of traditional law-and-order (more officers) and progressive strategies (ambassadors, social services) to solve them. Greenberg’s administration created a dedicated Homeless Services division and a Homelessness Initiative Fund, signaling a more strategic approach than perhaps existed under previous leadership. He has pledged transparency and regular updates via a homelessness dashboard to hold the government accountable.

Louisville’s Metro Council, which has an overwhelming Democratic majority, has largely supported these efforts. They approved significant funding in the latest budgets for the Affordable Housing Trust Fund, the Community Care Campus, and public safety measures. Individual council members in affected districts (District 4 downtown, District 8 Highlands) have been vocal. For instance, Councilman Ben Reno-Weber (D-8) responded to the Bardstown Road disturbances by praising the proactive approach by LMPD and affirming that “we will not let a small number of people bent on causing trouble disrupt [our] progress.” He noted the Highlands had seen “a significant drop in crime” over the past two years and several new businesses opening, and he’s determined to keep that momentum. His statement suggests that, from the leadership perspective, policies might actually be working to some extent – crime was down before the recent flare-ups, and business investment hadn’t vanished. Similarly, after a deadly shooting near the Highlands last year, city officials held community forums and stepped up police presence, which residents acknowledged led to a calmer period until the 2025 incidents. These examples show that when a crisis emerges, Louisville’s leadership has generally responded with increased attention and resources.

Critics, however, argue that many of these moves are reactive. They point to the fact that it took high-profile problems – a series of homeless encampments downtown, or “street takeover” chaos in the Highlands – to spur decisive action. Some Republican voices (though a minority in Louisville proper) suggest that the Democratic leadership had been too lenient or slow to enforce quality-of-life laws. For example, for years under former Mayor Greg Fischer, the policy was often to post notices and clear camps only as a last resort, which some downtown businesses felt enabled a proliferation of tent cities. The new state law forcing camp clearances was in part a response by Republican state legislators who felt Louisville’s leaders weren’t doing enough to keep public spaces clear. Likewise, the bar closing time issue saw pushback from some business-friendly Democrats in 2021 who feared economic loss, resulting in the ordinance failing and bars still open until 4 a.m. – a decision now being second-guessed as the late-night problems persist. In essence, critics say policy inertia and political considerations (not wanting to anger bar owners or displace homeless individuals without alternatives) have kept the city from acting sooner on these tough issues.

There are also questions about execution of policies. The city’s increase in spending has not yet yielded a visible decrease in homelessness on the streets; in fact, the unsheltered count rose sharply despite the new programs. This leads some to ask if money is being spent effectively. For instance, the Hope Village outdoor shelter helped dozens of people, but it can only accommodate a limited number (around 50 tents) at a time, and a WDRB report noted it even began charging a small fee as it transitioned residents from tents to tiny “pallet homes” – raising concerns about accessibility. Another example: the community ambassadors in the Highlands and downtown are a creative solution, but they have no enforcement power. They can deter minor crime by their presence, but cannot arrest someone or compel a person in crisis to accept help. Some residents appreciate them, while others dismiss the program as “window dressing” and would prefer more sworn police or social workers. Metro Police Chief Erika Shields (hired in 2021 under Mayor Fischer, though she resigned in January 2023) had frankly told Highlands residents that LMPD’s officer shortage meant “there are not enough officers to patrol the streets” thoroughly. This indicates that staffing and resources have been a limiting factor, something the current leadership is trying to fix by recruiting more officers and investing in technology, but results will take time.

City leadership has also had to balance different constituencies. The downtown corporate community, through the Downtown Partnership, has pushed hard for safety improvements and was pleased to see crime trending down, but they remain worried about vacant offices and lack of foot traffic. Greenberg’s team responded with the incentive program for office-to-housing conversions and by encouraging even one-day-a-week returns to office, which Downtown Partnership Director Rebecca Fleischaker said “would be life-changing for our small businesses” if every worker did that. These are forward-looking policies, but their success is not guaranteed – they rely on private sector cooperation and broader economic trends. Meanwhile, residents in neighborhoods like the Highlands or Nulu have formed their own opinions about leadership. Many are loyal Democrats but have voiced that they want “less talk, more action” at the street level. They expect clean sidewalks, quick police response, and meaningful help for those in need.

The evaluation of leadership thus far can be summarized as follows: Proactive in planning and funding, but challenged in implementation and swift results. Are current policies failing? It may be too early to call them failures, given some positive indicators (crime down in some areas, new housing in the pipeline). Yet clearly, community needs are not fully met yet – the fact that Bardstown Road merchants felt compelled to adjust their hours and even hold independent security meetings speaks to lingering unmet needs. Downtown, the “vacancies up” side of the equation shows that safety perception and urban appeal issues aren’t solved overnight either.

Mayor Greenberg, only 18 months into office by mid-2025, has repeatedly stated that making people feel safe and welcome is a top priority. “Downtown Louisville is the neighborhood where every local and every visitor should feel welcome, safe, energized and excited,” he said. He and the council have bet on a broad strategy: invest in police, invest in human services, improve public spaces (like new micro-parks and plazas downtown), and crack down on nuisance properties. This comprehensive approach aligns with what urban experts recommend, but it requires sustained effort and can be politically tricky. So far, Louisville’s largely Democratic leadership has shown willingness to increase funding (something a divided government might struggle with) and partner with Republicans in the statehouse on projects like the Community Care Campus. That bipartisan cooperation led to \$23 million in state/metro money for the campus, indicating that leaders know they must unite to tackle these issues.

Still, neighborhood critics ask if basic services have kept pace. For example, why did it take so long to enforce code violations on a long-vacant, blighted building on Bardstown Road (the former Café 360) which sat empty after a 2022 shooting? The city only cracked down in 2023 with legal action to get it cleaned up. And when a compassionate business owner in a different area opened his food hall as an emergency shelter during a winter storm, city agencies promptly issued a violation and shut it down for not having the proper permit, which some saw as heartless bureaucracy. City officials defended it on safety code grounds, but the incident reveals the friction between grassroots community action and government rules.

In conclusion, Louisville’s current Democratic leadership has acknowledged the challenges in the Highlands and downtown and taken many steps that align with community demands – increasing funding for housing and police, focusing on cleanliness, and engaging directly with residents and businesses. These policies are starting to yield some positive results (crime abatement, new development plans), but significant concerns remain. Public sentiment suggests that many feel more must be done, faster. Whether one frames that as policy “failing” or simply “not succeeding yet” is a matter of perspective. What is clear is that city leaders will continue to be under pressure to deliver tangible improvements on Bardstown Road, in the Highlands, and downtown, or risk losing the public’s confidence. The next year or two will be a crucial test of whether these strategies can fully turn around the economic and social conditions in Louisville’s key neighborhoods.

Comparative Overview: Highlands vs. Downtown (Key Metrics)

To better understand the situation, the table below compares several key indicators for Bardstown Road/The Highlands and Downtown Louisville:

Indicator (2024-2025)	Bardstown Road / Highlands	Downtown Louisville
Property Value Trend	Sharp rise in recent years – e.g. +35% median home price (2019–2023). Property re-assessments in 2024 mean higher tax bills for many Highland owners. Some relief from slight rate cuts, but overall tax burden up.	Mixed trend – downtown residential property values relatively stable or modestly up; commercial property values under pressure due to office vacancies. Some downtown properties have decreased in value post-pandemic, tempering tax increases.
Property Tax Changes	Metro real estate tax rate ~12.1¢ per \$100 (2024) – similar to prior year, so rising assessments = higher taxes. A proposed Highlands special tax of \$0.18 per \$100 for cleaning was debated (2018) but not implemented. Many Highlands businesses feeling tax strain.	Same city tax rate applies. Some large downtown properties appealed assessments due to high vacancy. Overall downtown tax revenue has not grown as fast as Highlands’. The city has offered tax incentives (abatements) for downtown conversions to encourage development.
Crime & Public Safety	Violent crime relatively low; 2022–2023 saw “significant drop in crime” per local councilman. However, spring 2025 brought rowdy crowds/street takeovers (hundreds fighting, 3 arrests). This led to beefed-up LMPD patrols and some bars voluntarily cutting late hours. Residents report more petty crime (car break-ins, etc.) than a few years ago, but recent police focus is on nighttime disorder.	Major crime down in 2022–2024 (overall crime in downtown dropped, per Downtown Partnership). Violent crimes have decreased from the 2020 peak. LMPD has a high visibility presence downtown (foot patrols, mounted officers). Still, perception of crime remains an issue; 34 crimes were reported in one hotspot area (around a closing downtown gas station) in a year. Petty offenses (vandalism, panhandling) are common complaints.
Homelessness Presence	Noticeable but smaller scale. A few encampments on edges of Highlands (e.g. near I-264) cleared by city. Increasing number of unhoused individuals seen along Bardstown Rd and nearby parks, especially after downtown camp clearances. Highlands residents cite homelessness as a quality-of-life concern since ~2021. No major shelters in Highlands, so most unhoused move between downtown and outskirts.	High concentration of homeless individuals and camps. Downtown hosts major shelters (Wayside, Salvation Army) and services, so many unhoused gather in the area. Large camps under overpasses have been periodically cleared (e.g. Jefferson St camp in 2023). Unsheltered count in Louisville spiked (+139% in 2023), many of whom stay downtown. City opened “Hope Village” safe outdoor space near downtown (50-person capacity) and is building the Community Care Campus to alleviate downtown homelessness.
Business Climate (Openings/Closures)	Still relatively strong, but some local business turnover. A number of new eateries and shops have opened in the Highlands post-2020, yet longtime fixtures have closed (e.g. some bars) citing high rents/taxes and changing foot traffic. The Highlands Commerce Guild reports “several new businesses open” recently, but also vacant storefronts have grown on parts of Bardstown Rd. Nightlife remains active, though a few venues had licenses pulled for violations. Overall, the Highlands retail/dining vacancy rate isn’t published, but anecdotal evidence suggests a slight increase.	Struggling but hopeful. Downtown has seen prominent closures (e.g. a luxury restaurant closed after 2020 unrest; several shops closed due to reduced foot traffic). Office vacancy ~ office occupancy is only ~50-60%, impacting lunch restaurants. The Downtown Partnership’s 2024 report notes vacancies up in office and some retail. However, investments are underway: about \$1.6 billion in projects announced downtown including new hotels, residential conversions, etc. Tourism is rebounding (convention and event activity improving safety by adding pedestrians). The city’s focus is on attracting more residents downtown to fill vacant units and support businesses.

(Table sources: property value and tax data from Louisville PVA and Metro Council reports; crime and safety information from WDRB, WAVE3, WHAS11 reporting; homelessness figures from Coalition for the Homeless and city data; business climate notes from local news and Louisville Downtown Partnership updates.)

Summary of Findings

Bardstown Road and the Highlands, alongside Downtown Louisville, are navigating a period of economic and social stress. Rising property taxes in the Highlands reflect booming property values, which have strained local businesses and homeowners with higher costs. While these areas contribute disproportionately to Louisville’s tax base, residents question whether they are receiving commensurate support from the city. The increased tax revenues have enabled Louisville’s leadership to fund a variety of responses – from more police patrols and street cleaning crews to ambitious housing projects and service campuses for the homeless. These investments mark a proactive strategy by the largely Democratic city leadership to tackle core issues: they are building housing units, expanding shelters, and updating infrastructure in ways that previous administrations had not.

However, the situation on the ground reveals ongoing challenges. In the Highlands, public safety was recently threatened by late-night “street takeovers,” prompting emergency measures like earlier bar closings and intensified policing. Downtown, persistent homelessness and perceptions of unsafety are slowing the post-pandemic recovery, even as crime statistics improve. Business owners in both neighborhoods have felt the impact – some reducing hours or closing entirely – and many citizens are frustrated with the pace of change. There is a sense that despite earnest efforts by city officials, the community’s needs are not fully met yet. Streets are cleaner than before in some spots, but tent encampments still appear elsewhere. Crime is down by data, but one unruly incident can dominate public perception.

City leaders have received both credit and criticism. They are credited for acknowledging problems and launching comprehensive initiatives (as evidenced by quotes from officials emphasizing safety and cleanliness, and the infusion of millions of dollars into solutions). Yet they face criticism for being reactive and occasionally hamstrung by bureaucracy or political caution. The current policies are broad in scope – combining enforcement with social support – and it will take sustained commitment for them to yield lasting results. Residents of the Highlands and downtown are watching closely to see if the trajectory improves.

In conclusion, Bardstown Road and downtown Louisville stand at a crossroads. The economic conditions (high taxes, business turnover) and social conditions (homelessness, public safety concerns) are challenging but not insurmountable. The research shows that Louisville’s government is aware and actively engaged: property tax money is being funneled into visible projects and services aimed at revitalization. Whether these efforts will fully restore the Highlands’ vibrancy and downtown’s vitality remains a work in progress. For now, the Highlands and downtown continue to be dynamic neighborhoods coping with change, with a community that is passionate and vocal about preserving their future. The city’s leadership will need to continue evolving its approach – learning from what works (e.g. the ambassador program’s community rapport, the success in reducing crime rates) and what doesn’t (e.g. slow response to emerging issues) – to ensure that these iconic Louisville areas thrive in the years ahead.

Overall, the findings suggest cautious optimism: the challenges are serious but recognized, and a combination of community advocacy and city investment is being deployed to address them. The coming year will be critical to see if property tax relief measures, new housing openings, and stricter enforcement in nightlife translate into the safer, cleaner, more prosperous Bardstown Road and downtown that residents and business owners are yearning for.

References

Coalition for the Homeless. (2023). Louisville sees sharp rise in unsheltered homelessness in 2023. Retrieved from https://louhomeless.org/2023/03/unsheltered-count-up-139-percent/

Courier Journal. (2023, June 20). Louisville to open new Community Care Campus for homeless services. Retrieved from https://www.courier-journal.com/story/news/local/2023/06/20/louisville-homeless-community-care-campus-to-open/70337019007/

Courier Journal. (2024, February 29). Bardstown Road redesign aims to improve safety, boost business. Retrieved from https://www.courier-journal.com/story/news/local/2024/02/29/louisville-bardstown-road-redesign-highlands-safety/72832090007/

Courier Journal. (2024, July 1). Louisville Metro budget includes millions for housing and homelessness solutions. Retrieved from https://www.courier-journal.com/story/news/politics/metro-government/2024/07/01/louisville-budget-funds-homelessness-affordable-housing/74012710007/

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Louisville Downtown Partnership. (2024). Downtown Louisville 2023 Annual Report. Retrieved from https://louisvilledowntown.org/wp-content/uploads/2024/03/2023-Annual-Report.pdf

Louisville Metro Government. (2023). FY2023-2024 Approved Executive Budget. Retrieved from https://louisvilleky.gov/government/office-management-budget/fy24-budget

Louisville Metro Police Department. (2024). Public Safety Initiatives and Deployment Adjustments Report. Retrieved from https://louisville-police.org/reports/safety-deployment-2024.pdf

Louisville Public Media. (2024, March 15). Hope Village expands services for unhoused Louisvillians. Retrieved from https://www.lpm.org/news/2024-03-15/louisville-hope-village-expands-homeless-services

Spectrum News 1. (2024, May 10). New affordable housing units open in Highlands for mental health clients. Retrieved from https://spectrumnews1.com/ky/louisville/news/2024/05/10/wellspring-affordable-housing-highlands-louisville

WAVE 3 News. (2023, August 10). LMPD, ABC shut down 3 Bardstown Road bars over public safety violations. Retrieved from https://www.wave3.com/2023/08/10/lmpd-abc-close-3-bardstown-road-bars-over-safety-violations/

WAVE 3 News. (2025, June 2). Highlands business owners reduce hours after crowd chaos. Retrieved from https://www.wave3.com/2025/06/02/highlands-bars-close-early-after-weekend-chaos/

WDRB News. (2023, July 18). City spends $400K on homeless encampment cleanup in 2023. Retrieved from https://www.wdrb.com/news/city-spends-400k-on-homeless-encampments-in-2023/article_d91cfdf8-6cb6-11ee-b1f6-f3b0c3f10b91.html

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WHAS11 News. (2023, December 7). New downtown LMPD headquarters project breaks ground. Retrieved from https://www.whas11.com/article/news/local/lmpd-downtown-headquarters-groundbreaking/417-8f3f5b34-d2d3-4db0-84bc-029c876ce9db

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WUKY News. (2023, April 20). State and city leaders launch $58M homelessness response campus in Louisville. Retrieved from https://www.wuky.org/2023-04-20/kentucky-leaders-launch-58-million-community-care-campus-in-louisville