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HomeMy WebLinkAboutDowntown Plan - Dec 1988STILLWATER DOWNTOWN PLAN Stillwater, Minnesota December 1988 Prepared for: The City of Stillwater Prepared by: BRW, Inc. SEH, Inc. JMA, Inc. "Stillwater seems to be quite a happy community, and if it did not nurse an aspiration and ambition to grow and prosper beyond the imagination even to optimistic minds, there would seem to be no great need to take up general planning and proposing the various civic betterments which quite naturally involve considerable expenditure for their ulti- mate completion. However, it is generally recognized not only by the well -thinking people of Stillwater but by many outside prominent business men that present Stillwater has' hardly begun to be what destiny intended, and if such is the case - and we firmly believe that it is - the people .of Stillwater have started the movement of planning for better Stillwater none too soon. General Plans for the City of Stillwater Morell and Nichols 1918 TABLE OF CONTENTS TABLE OF CONTENTS, LIST OF FIGURES i RESOLUTIONS AND CREDITS 1 I. SUMMARY 5• II. INTRODUCTION 13 III. EXISTING CONDITIONS 15 IV. GOALS AND OBJECTIVES 25` V. DOWNTOWN PLAN 33 1. Land Use 33 2. Traffic Circulation and Parking 57 3. Utilities and Streets 81 4. Pedestrian Circulation 91 5. Urban Design Plan 95 6. Streetscape 105 7. Design Guidelines 117 VI. IMPLEMENTATION PROGRAM 131 1. Policy and Program Changes 131 2. Capital Improvement Program 136 3. . Phasing 144 4. Costs and Funding 147 5. Recommendation for Action 153 i TABLE OF CONTENTS (CONTINUED) APPENDIX (under separate cover) 1. Stillwater Downtown Design Guidelines 2. Downtown Zoning Districts 3. Detailed Public Utility Improvements and Cost Esimates 4. Sources of Funding 5. Community Participation in Plan Development LIST OF FIGURES Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure Figure 1 Summary of Issues, 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 20 21 Figure 22 Figure 23 Opportunities and Constraints 17 Proposed Land Use 35 Proposed Zoning 37 Railroad Property Status 39 Special Sites 1-6, 9 43 Special Site 7 51 Special Site 8 55 Traffic Volumes 59 Existing Parking Problems 63 Parking Recommendations 67 Utility Recommendations 83 Street Improvements 89 Pedestrian Circulation, Parks and Open Space 93 Illustrative Plan 99 Site Sections 103 Pedestrian Circulation, Parks and Open Space 197 Streetscape Elements 111 Streetscape Elements 113 Illustrative Streetscape Plans 115 Facades 123 Signage 125 Integration of Parking Structures 129 Downtown Implementation Program 132 Stillwater Downtown Capitol Improvement 137 Implementation Phasing 142 TIF Scattered Site Parcels 151 iii RESOLUTION 7986 RESOLUTION ADOPTING DOWNTOWN PLAN AS AMENDMENT TO THE CITY COMPREHENSIVE PLAN WHEREAS, the Metropolitan Land Planning Act requires local governments to prepare and from time to time update a City Comprehensive Plan; and WHEREAS, the City of Stillwater has prepared a City wide Comprehensive plan, and more detailed area plans for Downtown Stillwater; and WHEREAS, the City Council directed the Planning Commission and Downtown Plan Steering Committee to prepare a plan for Downtown Stillwater; and WHEREAS, the Downtown Plan Steering Committee met twenty-three times over a sixteen -month period developing the Downtown Plan; and WHEREAS, the Downtown Plan Steering Committee did hold public workshops and hearings on the plan December 2, 1987, March 30 1988, June 29, 1988 and September 21, 1988 to present and receive public comment on the plan and recommends the plan for Council approval; and WHEREAS, the Planning Commission did hold a public hearing October 10, 1988 on the plan to receive public comment and recommend the plan for adoption; and WHEREAS, the City Council held a public hearing on October 24, 1988 to review the plan, receive the recommendations from the Downtown Plan Steering Committee and Planning Commission. NOW, THEREFORE, BE IT RESOLVED, by the City Council of the City of Stillwater that the Downtown Plan furthers the public interest of the City of Stillwater by providing a guide for future development. BE .IT FURTHER RESOLVED, that the Downtown Plan is adopted as a part of the City of Stillwater Comprehensive Plan. ADOPTED by the City Council this 24th day of October, 1988 Votes Ayes 5 - Councilmember Bodlovick, Farrell, Kimble and Opheim and Mayor Abrahamson Nays 0 Wa lace •ahamson, Mayor ATTEST: Mary Loq/ Johnson, C_ity/jClerk RESOLUTION CPC 88-1. WIiEREAS, the Stillwater City Council did initiate an amendment to the City Comprehensive Plan for the Downtown Planning Areas June 2, 1987; WHEREAS, a fourteen member Downtown Plan Steering Committee with two members from the Planning Commission was appointed to work with staff and consultants on the development of a Comprehensive Downtown Plan; WHEREAS, several workshops and public meetings were held over a sixteen -month period to review Downtown Plan documents and receive input from the public; WHEREAS, the Downtown Plan and Steering Committee did on September 21, 1988 hold a public hearing to present and receive public comments on Draft Downtown Plan; WHEREAS, the Planning Commission on October 10, 1988 held a public hearing to review the Downtown Plan including Goals and Objectives, Land Use, Urban Design, Utility and Implementation components. NOW, THEREFORE, be it resolved that the Planning Commission recommends to the City Council that it is in the public interest and community betterment that the Comprehensive Plan be amended for the Downtown Area by approval of the Downtown Plan. Vote Ayes 6 Nays 0 Jerry Fontaine `_- Chairman of, Planning Commission ATTEST: Stephen Russell, Secretary Stillwater Planning Commission FORMAL PARTICIPANTS IN THE STILLWATER DOWNTOWN PLAN STILLWATER CITY COUNCIL Wally Abrahamson, Mayor Ann Bodlovick Jay Kimble Roberta Opheim Tom Farrell PLANNING COMMISSION Gerald Fontaine, Chairman Mark Ehlenz Nancy Putz Jean Jacobson Glenna'Bealka Don Valsvik Judith A. Curtis Robert Hamlin Jay Kimble STILLWATER DOWNTOWN PLAN COMMITTEE George Parker, Chairman Bob Weiser Paul Keleher Meg Heaton Steve Zinnel Maurice Stenerson Judy Curtis Don Valsvik Bob de St. Aubin Joe Nolde Tom Farrell Robert Opheim Wally Milbrandt R.J. Colombo CONSULTANTS Bennett-Ringrose-Wolsfeld-Jarvis-Gardner, Inc. Craig Amundsen, AIA, AICP William Weber, AICP David Showalter, AIA, AICP 3 CONSULTANTS (CONTINUED) Short -Elliott -Hendrickson, Inc. Richard Moore, P.E. Glen Van Wormer, P.E. Michael Kraemer, P.E. C.J. Lilly, ASLA, MPA JMA/Applied Research Group, Inc. James Schlies Carol Bacon CITY STAFF Stephen Russell, AICP, Director of Community Development Ann Pung-Terwedo, Assistant Planner Shirley Montbriand, Secretary Alan Duff, Intern MANY THANKS TO THE RESIDENTS AND BUSINESS OWNERS OF STILLWATER WHO CONTRIBUTED THEIR TIME AND'EFFORTS TO THE PLAN. 4 I. SUMMARY The Stillwater Downtown Plan is a comprehensive plan exa- mining the areas of economics, land use, urban design, traf- fic and parking, and utilities. In developing the plan, existing conditions; issues, opportunities and constraints were inventoried and studied for each of the plan subject areas. (See existing conditions/analysis and economic ana- lysis reports). Also, goals and objectives to guide the future development of downtown were formulated by the Downtown Plan Steering Committee. The goals and objectives call for preserving the image and identity of Stillwater as a historic rivertown. "The goal of the Downtown Plan is to enhance and retain the historic rivertown image of Stillwater through a conscientious and gradual process of change and economic growth so that Stillwater 'The Birthplace of Minnesota' continues to be a special place to live, to work and to visit." Other goals include: o Encourage a viable and compatible mix of community and visitor -serving activities. o Provide complementary land uses. o Develop a riverfront park and open space system, including Lowell Park, the City owned property south of downtown and Kolliner Park. 5 o Ensure that the water, sanitary sewer and drainage systems are adequate to support present and future land development. o Maximize the efficiency of the limited parking supply through user education, signage enforcement, pricing and other measures. o Minimize the negative impacts of traffic and parking on the downtown image while supporting appropriate econo- mic activity. Issues Several major issues were identified that influenced the Downtown plan as listed below: o Preservation of downtown's scale and character, established in logging and railroad eras, is crucial to all concerned. The plan enhances and strengthens the historic rivertown image of Stillwater, protecting its vistas and natural features. o Downtown Stillwater is currently redefining its econo- mic role within the region, and the Plan provides the necessary direction to help achieve downtown's economic objectives. o Outdated land uses, particularly in the North Main area, currently occupy prime riverfront sites and will require eventual phasing -out during Plan implemen- tation. Most critical to the Plan is the phase -out of railroad storage and switching yards and inappropriate industrial activities. o Traffic circulation and parking problems are becoming critical in some downtown sections, particularly those that attract visitors from outside of Stillwater. The 6 Plan provides for improved surface and structured parking as well as a new St. Croix River bridge crossing, which would drastically reduce through traf- fic downtown. o Riverfront recreation opportunities for both residents and visitors play a key role in the Plan. These oppor- tunities strengthen current commercial and entertain- ment activities downtown and expand the tourist market. o Accommodation of floodplain restrictions for new riverfront development is achieved for impacted sites. The illustrative plan represents a visual summary of how the downtown could develop using the Plan as guidelines. Elements of the Plan are listed below. Land Use o A new Central Business/Commercial District recognizes existing uses and provides direction for complementary commercial uses. o New parks, recreation and open space, transportation, utilities and parking, and public administration/office districts are proposed to recognize existing develop- ment patterns and guide new development. o Nine special sites are identified because of their importance to the downtown and special land use and design guidelines proposed. o Development opportunities identified in the Economic Study are recognized and included as preferred uses of special sites. 7 o The site of the existing Maple Island city parking lot and Mulberry Point represent an opportunity for a major mixed use development, possibly including retail/ office/hotel uses. Parking o A parking management program is recommended to more effectively use existing spaces, particularly in the South Main Street area. o Alternative locations for parking structures are iden- tified at Second and Olive and Mulberry and Second Streets. o A shared public/private parking program is recommended to use private spaces when not in use. o A financing plan to pay for parking improvements including possibly a parking structure is proposed for a first year activity. Urban Design o Railroad car storage has been relocated outside downtown. o Preferred land uses are shown along riverfront and North Main Street. o A continuous riverfront pedestrian walkway links the new and existing downtown and other prominent points in the planning area; i.e., Pioneer Park, Lowell Inn, Broadway Overlook. o Surface parking lots are small and well landscaped. 8 o A series of observation and interest points connected by walkways enable the visitor to overlook the downtown and get a closer view of parks and sites of interest. o Streetscapes for the St. Croix riverfront, Main Street, side streets, Water Street and visitor center and pla- zas are proposed (Graphics). o Design guidelines for new development will require con- sistency with the existing downtown character in the areas of pedestrian orientation, building height, set- back proportions, materials, detailing, walls, facades, windows, rear entrances, roofs, signage, awnings, lighting, color, utility areas, exterior surfaces, landscaping, trademark building design and parking. Implementation o A Capital Improvement Program for the phase improvement of water, sewer and storm sewer mains is proposed as well as street and sidewalk resurfacing. o An Implement Action Program describes the policy and program changes and capital improvement necessary to implement the Plan. o A Downtown Plan Action Committee to oversee Plan imple- mentation is established. o Various sources of funds to pay the costs of downtown improvements are identified. 9 1 ivixeitivatititaxi* Corrietc? PloNEER rR .13 • D .711 n ;IA --, , r.41 •11.11r, 5 §I, c.'140D: RIVER 1111,04%, ILLUSTRATIVE PLAN ci t;hal P<5(8,3.1d — . fJ1 f:!. ICinti ty, Extothg Petttlitle mat ti STILLWATER DOWNTOWN PLAN II. INTRODUCTION The 1988 Stillwater Downtown Plan, is the culmination of sixteen months of study of the Downtown. The report sum- marizes downtown existing conditions in terms of economics, land use, zoning, traffic, parking, design and appearance, historic resources and public utilities. It provides a com- posite picture of the existing conditions, issues, oppor- tunities and constraints that are addressed in the subsequent chapters of the plan. Described in Chapter Four are the plan's goals and objec- tives, separated into the categories of image, physical environment and economics. Taken together with the analysis of existing conditions, these factors establish the fra- mework from which the Stillwater Downtown Plan has been developed. Throughout the last sixteen months, the plan's formulation has been continually reviewed by the Downtown Plan Steering Committee, in addition to being shaped by commentary at public workshops and hearings. Reasons for the Plan This plan for Downtown Stillwater has been undertaken to solve the worsening problems of parking, traffic, and the condition of the underground utility systems, to promote economic growth, build community pride, improve the local tax base, and make the best use of its historic resources and exceptional natural setting. 13 Plan Participants The Stillwater Downtown Plan was authorized in June 1987 by the City Council and has been led by a fourteen -member com- mittee of local residents, property owners, businesspeople, and elected and appointed local officials. Technical assistance has been provided by a team of consultants under the direction of the Community Development Director, Stephen Russell. The consultant team includes BRW, Inc., in the areas of urban planning and design; Short -Elliott - Hendrickson, Inc., for traffic, parking, utilities and implementation; and JMA/Applied Research Group, Inc., for economic market research. 14 III. EXISTING CONDITIONS As part of plan development existing conditions, issues, opportunities and constraints were described in two reports: Downtown Stillwater Conditions and Analysis and Downtown Stillwater Economic Analysis. Refer to those reports for detailed descriptions of existing conditions. Existing con- ditions are summarized here and illustrated by Figure 1. Natural Features o The St. Croix River and the bluffs along both shores lend the Downtown great natural beauty and interest, making Stillwater one of the most attractive com- munities in the entire state. o Much of the area east of Main Street is within the 100-year floodplain, and some of this land has been created from fill of poor quality. These conditions add extra expense to the construction of any new buildings in this area. Land Use o The use of space in Downtown Stillwater is a product of its lumber boom and manufacturing eras as well as a more recent emphasis on retail and tourist trade. Certain activities such as manufacturing, warehousing, railroad yards, grain storage and shipment or outdoor storage of materials may no longer be appropriate nor 15 Development , Opportunity Historic Site How to Develop North Main Area? Extensive Paving Sao s't'. � O .r Pioneer Park . Views SMEE ST. CRCIX RIVER Private Development Impedes River Edge Walkway At Ends Of Park Preserve — Historic Bridge Access And Parking For Merino/Public Launch: Conflict With Park Q 9- o i [0L7C000 qp=� O y Raft oed Tracks Bole Vltuas, - Lend Use, And Access Problems Bluffs Define Commercial Area• - O _Natural Amenity :: r: 3I h i � y ❑ f Water, And Drai 41 ❑ -' potential Parkl� Systems Throughout Q O,, �r�y `' RRd Denelty Pro3leiuey LnJ-L_ ❑:, *lam'" a ❑ vOkfelg arNhbyhood¢ " • am� r. � ❑❑gyp, —Soil And Flooding Hazards East Of _Main/Water Streets C. : :SE n.IS Imo _ pror,. Deterlom edSe� , —Riverfront Recreation: Consider Expansion and Improvement e`r Lowell Park 01_7GC ] M.Q_0 Q Severe Tra Congeation j Peak -Hours see, w�a Need To Relocate Preserve/Enhance Architectural, River Crossln Cultural Hletor Pedestrian Environment Marred By Ovehead Wires, Loading, Dumpeters Insufficient Parking Most Areas, Especially Southern Core ed To as aiding Vas I griEll Ee eOf Commercial L.rowtM eavl I=1 Pedestrian/Bays Cros ge u Difficult ylkhy LocafkC ❑� i rl �. 'Ifllar�p,fllf l T I u ❑ 5 F{—Sari Congg�On� ❑ Ftie To Poor Q , a L r*sygbouj d O 00 r r r i l l l e L, : i i i 1 1 r_l J ' El 1] STILLWATER DOWNTOWN PLAN Figure 1 Summary. Of Issues, I I ill. I I = Opportunities, And Constraints eo :ea reef °represent the best use of riverfront land because they tend to detract from the atmosphere upon which other expanding businesses depend. o North of Myrtle Street and especially east of Main Street there are opportunities to dramatically change the character of the development. How this land is planned and zoned is a major component of this study. o The riverfront is the most precious natural and cultural feature of Downtown Stillwater, and how its edge is used is of utmost importance. Industrial needs for the riverfront have long ago vanished; recreational and residential demands have taken their place. The river edge should be made more attractive and usable, the public should be made more aware of its cultural and economic history, and the Downtown should be oriented more toward the water. o The Burlington Northern Railroad owns a significant amount of land in Downtown Stillwater parallel to and just inland from the river edge. This remnant of the Manufacturing Era is quite obtrusive and disruptive to future development. Furthermore, this land is critical in making connections to and along the riverfront as well as being the land area most critical to new deve- lopment in the North Main Area. Zoning o The mixture, location, and review criteria for certain non-residential activities is an important tool in implementing the plan. o The General Commercial District allows a wide range of activities, some of which may not be appropriate Downtown. The height, setback, and parking require- ments of this District may need revision. 18 o The need to establish building height limits to pre- serve the visual character of the Downtown was first recommended in the 1918 Plan for Stillwater, yet there are still no height limits. o It must be decided whether to require each new develop- ment to provide all of its own parking on -site or whether parking should be shared in public and/or pri- vate lots. o There are presently no site or building design stan- dards in the Zoning Ordinance to guide Downtown Commercial or Multiple -Family Residential Developments. Traffic o Traffic volumes at the intersection of Main and Chestnut Streets frequently exceed capacity in the evenings and on weekends in the summer. o The lift bridge openings create significant delays to traffic, even though the period it is open is brief. o The street system restricts traffic flow because of narrow streets and steep grades. o There are few streets in the Downtown area which are continuous and capable of carrying through traffic. o Pedestrian -vehicle conflicts are frequent. o The new St. Croix River bridge will have a significant impact on traffic flow in the Downtown area. The impact will vary depending on the route eventually selected. 19 Parking o Two distinct and different parking demands exist: daytime employees and nighttime and weekend visitors. o The greatest deficit of parking is in the area south of Chestnut Street and east of Main Street. However, parking deficit problems radiate from this area and affect the entire Downtown. o A most noticeable trait of parking is its inconsistency and apparent lack of organization. o There is a lack of parking standards for new and inten- sified uses. o Parking between Lowell Park and Mulberry Point is unde- fined and poorly organized. o Several privately owned parking lots could be combined to increase parking and provide better organization. o Certain uses along North Main Street do not provide on - site parking. o Several private parking lots are underutilized during weekend and evening peak demand periods. o Signage for parking areas is inconsistent and difficult to understand. o Parking meter rates and enforcement are irregular and in need of adjustment. Pedestrian and Bicyclist Movement o There is a considerable amount of pedestrian traffic in Downtown Stillwater at certain times of the year. Pedestrians experience numerous conflicts with 20 motorized traffic. East -west pedestrian movement is generally good while north -south movement, especially along the river, is inhibited by parking, railroad tracks, the marina, and industry. o There is potential for an improved pedestrian environ- ment along Main Street and, especially, along Water Street. o Improved walkways along the river edge would be ex- tremely prized, particularly if they link destinations, such as parks, plazas, viewing points, parking areas, and restaurants. Bicyclists have many of the same problems as pedestrians but also have trouble finding suitable places to lock their bikes. Historic Resources o Preservation and appreciation of the commercial and residential architecture benefits our culture and society while strengthening the community's economic basis. How the community recognizes and responds to Downtown historic resources throughout the plan's implementation will be a critical factor in the plan's success. Image o The natural features and man-made elements of Downtown Stillwater create exceptionally strong mental images. Urban design and architectural solutions must respect these features and complement them. o The Downtown image is created by the tight cluster of Nineteenth Century brick commercial buildings, the river, the hillsides and bluffs, the river bridge, the entrys, the vistas, and its economic and cultural history. 21 Parks, Open Space, and Recreation/Entertainment o The river edge and Lowell Park are magnificent recreational opportunities of regional interest, but the public's enjoyment of them is marred by auto traf- fic, parking, the train tracks, and poor maintenance. Pedestrian use of the river edge is hurt by the fact that the walkway is no longer than Lowell Park, blocked by private development on the north and south ends. o Pioneer Park offers sweeping views of the valley but is largely undiscovered by non-residents. o There is strong and growing interest in boating which creates demands on the water space and the shoreline. Parking and access (both motorized and pedestrian) are inadequate. Private restaurants and bars, including the Zephyr Dinner Train, are a major component of the recreation environment in Downtown Stillwater. Public Utility Systems o Although they accommodate sewage flow adequately, most of the Downtown sanitary sewer lines are over 100 years old. Consequently, they allow significant amounts of groundwater to leak into the lines. o The water system is approaching 100 years of age and has many leaks, although pressure and supply are ade- quate. o Storm sewer lines are needed in some locations which are not adequately served at present. Streets o Street work is needed because some surfaces and most curb and gutter are in fair to poor condition. The 22 right-of-way on some streets is rather narrow (e.g., Nelson) when considering desirable features, such as parking, pedestrians, bicyclists, and street furniture. Sidewalks o Sidewalk widths are adequate only for pedestrian move- ment. Space for ornamental lighting, trees, benches, etc., is quite limited. Private Utility Systems o The electricity, telephone, gas, and cable television systems in the Downtown are in fair condition and meet all current needs. However, the electrical and cable television lines (and in some locations the telephone lines) are strung between poles, creating an unsightly effect. Local Economy This portion of the Summary was derived from the Economic Analysis of the Downtown Stillwater 1987 Conditions and Analysis previously issued. o Shift from Local to Non -Local Focus, 1970-1985 Downtown Stillwater has undergone considerable change over the past fifteen years, from a central business district that serves primarily local residents to one that relies significantly on non -local support. This change is most evident in the growth of Miscellaneous Retail establishments and Eating and Drinking Places, both of which owe their survival, in large part, to a healthy and growing visitor trade. This increase in non -local patronage Downtown has coin- cided with a gradual loss of local market share, some 23 of which has been lost to the TH 36 commercial district. For the most part, the retailers on Highway 36 have established themselves as serving the general community market, while Downtown retailers have moved toward serving a market which is predominately from outside the 'immediate community. This change is expected to continue, although at a slower pace•than in the last fifteen years. o Importance of Downtown Diversity The Downtown should continue to serve the local market for at least two reasons: (1) the visitor market is highly seasonal and it is doubtful that many of the visitor -oriented shops can survive the slow winter months without some local patronage and (2) if the Downtown is going to exude a sense of community, resi- dents need to feel that the Downtown is still there for them. o Commercial Development Opportunities Downtown Stillwater can support approximately 25,000 gross leasable square feet of additional retail space and approximatley 13,000 gross leasable square feet of additional service -related business space. o Housing Development Opportunities There is a strong demand for housing for the elderly in Stillwater, especially in the low to moderate price range, either rental or owner -occupied. The Downtown could also support higher -quality housing units, perhaps condominiums, along the river. o Office Development Opportunities Office development is recommended for Downtown Stillwater if parking, quality, and price constraints can be overcome. 24 IV. GOALS AND OBJECTIVES OVERALL GOAL STATEMENT FOR DOWNTOWN STILLWATER The image and identity of Downtown Stillwater'is of primary importance. It is represented in its historic buildings, its natural setting, and in its dedication to open spaces, pedestrian accessibility and the River. The goal of the Downtown Plan is to enhance and retain the historic rivertown image of Stillwater through a conscientious and gradual process of change and economic growth so that Stillwater, "the Birthplace of Minnesota," continues to be a special place to live, to work and to visit. IMAGE GOAL AND OBJECTIVES The image of Stillwater is an historical rivertown in a beautiful natural setting. Contributing to this image are a number of well-preserved 19th Century buildings, the scale of the Downtown Commercial'area, and its setting between the bluffs and the St. Croix River. Image Goal Enhance and retain the historic rivertown image of Stillwater. 25 Image Objectives o Preserve the natural appearance of the entrances to Downtown, of the bluffs and hillsides, of the river valley. o Maintain and enhance the pedestrian connections between the bluff top residential areas and Downtown commer- cial/recreation areas. o Preserve significant Downtown historic structures, including the Lift Bridge across the St. Croix River. o Develop and administer design guidelines for new devel- opment, so that the integrity of the existing and surrounding buildings is maintained and new development is of a height, size and design compatible with the best examples of existing development. o Establish height limits for new development. o Establish screening requirements for utility areas and mechanical* equipment. o Develop a coordinated sign program for public as well as private signs. o Establish a streetscape design theme, including lighting, signage, landscaping, street furniture, and paving texture for main street and connecting streets. o Preserve structures that are on or qualify for the National Register of Historic Places. 26 PHYSICAL ENVIRONMENT GOALS AND OBJECTIVES The physical environment of Downtown Stillwater has long been a source of pride and inspiration for residents and visitors alike. This includes the St. Croix, a National Wild and Scenic River, the river bluffs, the woods, the views, and .the handsome old buildings. The physical environment is a reminder of the economic and cultural heri- tage of the City, but more importantly supports the present and future business activity. Because of the constraints imposed by the river and the steep bluffs and because of the importance of the image and function of Downtown, construc- tion and renovation of all elements of this built environ- ment must proceed with great care. Physical Environment Goals o Maintain and build a physical environment which achieves the image objectives set forth above. Require architecture and urban design which recalls late 19th Century commercial design, is refined and subdued, and helps create an environment which is pleasing and interesting to pedestrians. o Ensure all buildings and public improvements present an attractive, well -kept appearance. o Ensure that the infrastructure is adequate to support the long-term aims of the Downtown. Physical Environment Objectives Land Use Planning: Adopt and follow a land use plan which: o Promotes the historic, small rivertown image of Stillwater. ?7 o Allows for economic growth and evolution. o Provides for office, service and residential develop- ment. o Separates incompatible land uses. o Protects the adjacent residential neighborhoods. o Improves the use and enjoyment of the riverfront. o Can be realistically serviced by the circulation and parking system. o Protects important views and vistas. o Encourages private redevelopment of properties which are underutilized or not supportive of the objectives of this plan. o Maximizes parkland area along the riverfront. Traffic and Parking: o Minimize the negative impacts of traffic and parking on the image objectives while supporting appropriate eco- nomic activity. o Maximize the efficiency of the limited parking supply through user education, signage, enforcements, pricing and other means. o As redevelopment occurs in the Downtown, restructure and redesign the parking system so that it supports the image, economy, and other physical environment objectives. 28 o Maintain and improve pedestrian access up the bluff to the neighborhoods; throughout the Downtown, and along the river. o Improve the environment for bicyclists. o Provide drop off locations and parking for charter buses bringing visitors to Stillwater. o Maintain the historic Lift Bridge as a direct connec- tion to Wisconsin from the Downtown for local and visi- tor traffic. Locate new parking structures along Second Street west of Main Street. o Remove parking from the riverfront along Lowell Park as new parking becomes available and adequate spaces are available. o Consider locating a transit stop in Downtown Stillwater to reduce the reliance on the automobile and promote convenient travel within the region. Riverfront: o Develop a riverfront park and open space system including Lowell Park, the City owned property south of downtown and Kolliner Park. o Make the riverfront a more pleasing place for those who seek active or passive recreation. o Support the present level of boating access while achieving the image and riverfront passive recreation aims. o Make the Downtown riverfront a community focal point. 29 o Improve pedestrian paths to and along the river and generally improve the perception of access to the river from all parts of Downtown. o Consider relocating charter and excursion boating faci- lities to the City -owned property south of Downtown. Landscaping o Use landscaping to blend the Downtown into the natural attraction of the St. Croix River Valley, to improve the enjoyment of the riverfront, and to soften features such as parking lots and service areas which may be inconsistent with the desired Downtown image. o Call attention •to the natural resources of the Downtown, including the river, the bluffs, east bank of the river, the geologic history. Views and Vistas o Increase the awareness and enjoyment of into, across, and out of the Downtown. o Protect and enhance special views and ticularly water or river valley views. Utilities: special views vistas, par- o Ensure that the water,• sanitary sewer, and drainage systems are adequate to support present and future land development. o Reduce the visual impact of overhead telephone and electricity lines. 30 ECONOMIC GOALS AND OBJECTIVES The economic health of the community is dependent on the economic health of local commercial and industrial activi- ties. These activities provide jobs for residents, pro- ducts, services, and tax base to support public facilities and services. The Downtown provides a significant share of Stillwater's economic base. Economic Goal The goal for Downtown Stillwater is to encourage a viable and compatible mix of community and visitor -serving activi- ties that builds on the assets of Downtown as a desirable place to live, work, shop, and visit consistent with the capacity of public services and facilities and the natural resources. Economic Objectives o Promote complementary land uses in the Downtown. o Include retail, service, government, housing, and tourist -related activities Downtown so as to provide economic stability. o Achieve a balance between visitor -related activities and community -oriented activities. o Position Downtown Stillwater in the regional visitor market. o Promote the unique aspects of the Downtown by creating a marketing strategy based on the historic and river - town characteristics of the City. o Use the waterfront as an amenity which supports housing, recreation, and retail growth. 31 o Preserve and enhance the historic and architecturally significant buildings in Downtown. Promote the (re)development of the North Main Street area. o Increase employment and sales downtown so as to assure the continued importance of the downtown in Stillwater's overall economy. o Increase property values and building occupancy rates Downtown. 32 V. DOWNTOWN PLAN V.1 LAND USE The Land Use Plan provides direction for future land use in the Downtown Planning area. The Plan addresses oppor- tunities and constraints and helps implement the Goals and Objectives for Downtown. Underlying principals used in developing the plan include: o Promote uses that complement existing land uses. o Include a mix of retail, office, multi -family residen- tial, visitor related and limited light industrial activities to provide economic vitality and stability. o Achieve a balance between local and visitor serving activities. o Recognize existing land use patterns and market con- ditions in developing land use policy. The proposed Land Use Plan designates areas based on existing land use and opportunities for desired change. Major changes in Downtown land use are shown in Figure 2 and include: o Eliminating the light and heavy industrial land use designation along North Main Street and redesignating the area Central Business District. 33 RIB RB RB ST. CROIX RIVER RB RB RB FOURTH PA FFTH T. RCM RB ST. RB I I RCM I RB RB —PA PA 11 Central Business District I=1 Rib Administration• Office ri Transportation, Mks, ParPing Parks, Recreation, Open Space liil Low Density Residential pcml Medium Density Residential High Density Residential Marina, Recreation 122:2 1:13 RB RB PA RB MS R STILLWATER DOWNTOWN PLAN Figure 2 Proposed Land Use 111111 I_ 'fl o Changing the land use of lands along the river from Duplex Residential and Manufacturing to Parks, Recreation and Open Space and Marina Recreation. o Designating Lowell Park and Pioneer Park for Park, Recreation and Open Space use. o Adding a new Public Administration Office District for the areas around City Hall and the old County Courthouse. o Adding a new Transportation, Utilities and Parking District for land between Downtown and the river, currently in such use. o Generally lowering the density of multi -family residen- tial land surrounding the Downtown. o Designating lands along Myrtle between Third Street and Fifth Street and along Third Street from Myrtle Street to Oak Street as Medium Density Multi -Family Residential. The proposed zoning map, Figure 3 shows in addition to land uses, the Bluffland/Shoreland District and Floodplain District development constraint areas along the river. The zoning map also identifies the special sites located along North Main Street that present special development oppor- tunities. Land use and zoning changes for areas of the Downtown are described below. The Central Business District is Stillwater's commercial activity center. It is bounded by Third Street, the old prison, and North Main Street area, Nelson Street and the railroad tracks to the east. The boundaries are reinforced 36 RB RB RB RB RB— RB ST. CROIX RIVER RB RB RB P PA HIT FOIATH FIFTH RCM RB RB ST. RB ST. RB RCM RB RB PA -PA- Central Business District — - rn11 FLblic Administration•Office n Transportation, Utilities, Parking n Parks, Recreation, Open Space n Two Family Residential Medium Density Residential High Density Residential ss11 Special Site Bluftland/Shoreland (Fast of line) -- Flood Plain (East of Line) LIE R RB RB PA B R8 B RB 14. STILLWATER DOWNTOWN PLAN Figure 3 Proposed Zoning 1111111 ; to the. north, south and west by raising topography that leads to residential areas set on the hills and bluffs surrounding the Downtown. Existing uses in the Downtown Commercial Area included community retail, specialty retail, eating and drinking establishments, offices, services, some light manufacturing and vacant land and floor space. Retail uses are primarily located along Main Street at street level. Office and residential are on the second floors or west of Main Street. Eating and drinking establishments are located primarily between Main Street and the river, while heavy commercial and light industrial uses run along North Main Street. The Downtown commercial areas is currently zoned General Commercial and Light Industrial and Heavy Industrial along North Main. The proposed Land Use Plan replaces the existing zoning districts with a new Central Business District, CBD. The new district allows community commercial and offices uses. With a Special Use Permit, other uses are allowed that may be appropriate in certain locations such as second floor of buildings or reuse of existing older buildings. Such uses include residential, hotels, drive through establishments or clean light industrial uses. Seven special sites, 1, 2, 3, 4, 5, 6 and 9, are located along North Main Street in the Central Business District. Because of their unique character and opportunity for deve- lopment, special use and design guidelines have been deve- loped for each site. The guidelines are in addition to the Central Business District (CBD) regulations. A new Transportation, Utilities and Parking District TUP overlays existing parking lots, railroad lines and utilities between the Downtown Commercial Area and river. The emergency temporary flood wall to protect the Downtown from periodic flooding is constructed in this area. Much of the land is currently owned by Burlington Northern as shown in Figure 4 and may be redeveloped in time as the railroad storage and switching area is relocated or removed. The new Central Business District and Transportation, Utilities and 38 CEDARS ST 3 ST. CROIX RIVER WATER MAW SECOND THIRD FOURTH FFTH T. ST. ST. ST ST. ST- 2 Illllllllllllllllllllluuuumnlnlmmnlut L RROADWAY ST. SECOND ST { HiRD ST. FOURTH ST FIFTH ST Illllllli Leased to Cub Foods Railroad Roperty not Leased Leased to the City Leased to City, Subleased to Yacht Club 0 RR- ST PPS STILLWATER DOWNTOWN PLAN Railroad Property Status 111111 Parking District zoning texts are contained in the Appendix along with other new Downtown Zoning Districts. The new Central Business District zoning regulations along with the Downtown Design Guidelines will provide direction for rede- velopment and new CBD development. The Parks, Recreation, Open Space District stretches almost two miles along the St. Croix River from the Stillwater Yacht Club to Sunnyside Marina. The Riverfront also inclu- des Kolliner Park located on the Wisconsin side of the river opposite Downtown. Existing zoning for the Riverfront area is Two -Family Residential and Heavy Industrial. Because of its location along the river, the area is within the Bluffland/Shoreland District• and Floodplain Districts. The Land Use Plan designates the area Parks, Recreation and Open Space, PRO, and marine recreation, MRC, recognizing the existing park/recreation and open space uses, floodplain development constraints and objectives of the Bluffland/ Shoreland regulations. Kolliner Park, owned by the City, although located across the river in Wisconsin, is designated PRO as part of the City's Recreation, Parks and Open Spaces system. Uses appropriate for the Riverfront area include hiking, picnicking, camping, fishing, boating facilities, walkways and marinas. Two special sites, the city -owned property south of Downtown along the river, Site #7, and Kolliner Park Site #8 are located in the Parks, Recreation and Open Space District. Two Public Administrative/Office Districts are situated next to the Downtown Commerical Core Area. One area is west of Third Street and north of Myrtle Street including City Hall, Library, Water Department Office, Post Office and churches. The second area runs along Pine Street between Second Street and Fourth Street including the Junior High School and old County Courthouse. Both districts provide a buffer and transition.district between the Downtown Commercial Core Area and lower intensity residential areas. Uses allowed in 40 the Public Administrative Office District include admi- nistrative or medical offices, group day care facilities, schools, public uses and churches. A Special Use Permit is required for multi -family residential uses, neighborhood retail stores and health care facilities. The North Hill, South Hill and West Hill neighborhoods surround the Downtown. Currently many of the old historic structures are in single-family use with some converted apartments. To retain the existing character of the existing older neighborhoods, the plan designates the resi- dential area Low Density Multi -Family, eight dwelling units per acre. The land use plan allows for apartment density residential development, fifteen units per area, along Myrtle Street between Third Street and Fifth Street, along Third Street between Myrtle Street and Oak Street and off Second Street below Pioneer Park. These areas present opportunities for higher density multi -family development without adversely affecting the adjacent residential neigh- borhoods. SPECIAL SITES Nine special sites are identified in the Downtown planning area. The sites present unique opportunities for develop- ment to implement the goals, objectives and policy direction of the Plan. Seven of the sites are located along North Main Street, and four of the sites are all or partly City - owned. The special sites are shown in Figures 5, 6, and 7. In addition to the land use and and zoning designation described above, special land use and design guidelines have been developed for each special site. Special Site #1 The old Territorial Prison site is currently on the National Register of Historic Places. The site contains two old industrial buildings totaling 100,000 square feet. ,A recent 41 ,o ST. CRCIX RIVER glnn a snc[• • 1 i • • i i i i ! ! i i i gmo i m¢• � g lT , _. a. I19 l 1/ ^ ! 1 iK.0 W[i • S • rl I 1' i - 3 '' .- s• M1 I '1MO_ 1 fr J L > 0SIAM D 1 __J FL- 1l_ 1.1101 SMUT lri SPEEI 00 E ^1 iF 1 1DJ^ 1 1 s 1 _'1 STILLWATER DOWNTOWN PLAN Figure Special Sites 1-6,9 1 I 1 I J, 1 Lee* Preferred Land Use: Correctional interpretive center, St. Croix River infor- mation center, hotel conference center, service/office uses, clean light industrial uses. Design Guidelines: o Maintain and restore prison site, buildings and grounds, in the historic image of the old prison setting. o Use Department of Interior's Rehabilitation Standards for rehabilitation of historic sites and buildings. Special Site #2 Entering Downtown from the North, this site is located oppo- site the prison on the riverside of Main Street between the railroad tracks and Main Street. The irregularly shaped one -acre site is long and narrow, making it difficult for most types of commercial development. City approvals have been given for a railroad depot, staging facility for the existing Dinner Train operation. The City owns land imme- diately to the south of the Depot site that may be necessary to provide adequate on -site parking. This site is of par- ticular importance because it is located at a major entrance to Stillwater which begins to define the appearance of North Main Street. Preferred Land Use: Office, restaurant, museum. Design Guidelines: o The project landscape plan shall complement the new streetscape design for the North Main Street. 44 survey indicated both buildings are in good structural con- dition. The primary City concern for the site is the pre- servation of its historic image and that future use of the site and buildings complement Downtown activity. Preferred Land Use: Correctional interpretive center, Lower St. Croix River information center, hotel conference center, service/office uses, clean light industrial uses. Design Guidelines: o Maintain and restore prison site, buildings and grounds, in the historic image of the old prison setting. o Use Department of Interior's Rehabilitation Standards for rehabilitation of historic sites and buildings. Special Site #2 Entering Downtown from the North, this site is located oppo- site the prison on the riverside of Main Street between the railroad tracks and Main Street. The irregularly shaped one -acre site is long and narrow, making it difficult for most types of commercial development. City approvals have been given for a railroad depot, staging facility for the existing Dinner Train operation. The City owns land imme- diately to the south of the Depot site that may be necessary to provide adequate on -site parking. This site is of par- ticular importance because it is located at a major entrance to Stillwater which begins to define the appearance of North Main Street. Preferred Land Use: Office, restaurant, museum. 45 Design Guidelines: o The project landscape plan shall complement the new streetscape design for the North Main Street. o Parking areas should be screened from Main Street view by landscaping or other methods. o Downtown Design Guidelines, Central Business District and Floodplain Development requirements shall be met. o A pedestrian pathway connecting the river walkway system with Main Street shall be provided. o On -site parking shall be provided for staff and patrons at a rate of one space per employee at maximum shift and one space per 2.5 dinner places. Special Site #3 This site is just south of Site #2, sitting on the east side of Main Street overlooking the marina. The two -acre site is currently underutilized with commercial uses in a converted gas station. Located overlooking the marina and river, the property has good potential for residential use. Based on the demand for future office, retail and hotel sites, there is adequate land closer to Downtown that could provide those uses. Residential use on Site #3 would extend residential use below Pioneer Park across Main Street and provide clo- sure and definition to North Main Street commercial acti- vity. Depending on design, the residential use could frame a visual gateway for southbound vehicles along Main Street. Preferred Land Use: Multifamily Residential. Other uses: office, retail, commercial, hotel or public parking. 46 Design Guidelines: o The project landscape plans shall complement the new streetscape design for North Main Street. o Provide a landscaped pedestrian pathway along the south property boundary connecting Main Street to river walk- way system. o Parking areas shall be screened from Main Street view. o The height of commercial or office building, shall be two to four levels and for residential, as high as six stories, depending on design and adequate parking. o Provide on -site parking according to use requirements. o The site shall not be subdivided into smaller parcels. o New development shall be consistent with Central Business District, Floodplain Regulations and Downtown Design Guidelines. Special Site #4 This site is situated between Main Street and Mulberry Point just south of Site #3. The new heavily landscaped Mulberry Boulevard runs along the south boundary of the site. Existing buildings on the 2.8-acre parcel are in poor con- dition and should be demolished and the site cleared. As with Site #3, there is potential for residential development overlooking the marina 'and river. Other possible uses include hotel, office, mixed use, and public parking. Preferred Land Use: Multifamily, residential, hotel, office, mixed use and public parking. 47 Design Guidelines: o The project landscape plan should complement the new streetscape design .for North Main and Mulberry Boulevard. o Provide adequate right-of-way for Mulberry Boulevard. o Provide a landscaped pedestrian pathway along the north property boundary connecting Main Street to river walk- way system. o 'Parking areas should be screened from Main Street view. o Provide on -site parking according to use requirements. o Meet Central Business District requirement, Floodplain regulations and Downtown Design Guidelines. Special Site #5 This 1.7-acre site is located across the street from Site #4 on the northwest corner of Mulberry Street and Main Street. Current uses include cafe, retail office, manufacturing and service uses. Minimal on -site parking is provided. A collection of older and newer manufacturing buildings are located on the sites. As demand for space •increases, the site will have potential for reuse. These guidelines con- template the eventual reuse of the site. Depending on market conditions, the site has potential for a mix of uses including office, retail, light industrial or residential. With reuse of the site, on -site parking must be provided. Preferred Land Uses: Mixed use, office, service, retail, light industrial, multi- family residential. 48 Design Guidelines: o Dependent on building design, no setback may be required along Main Street. o Required parking shall be provided on site. o Access to parking areas shall be limited to Mulberry and Main Street for commercial uses. o The project design and landscape plan should complement the new streetscape design for the North Main Street area. o A landscaped buffer or residential use shall be located along Second Street. o The Central Business District and Downtown Design Guidelines shall be met. Special Site #6. The Maple Island site includes the Maple Island Plant, Water Street and existing railroad spur to the east. The full potential of the approximately two acre site is dependent on the vacation of Water Street and removal of railroad storage tracks. Without railroad tracks removed, visual as well as pedestrian access to the river is limited. The site is cri- tical to the Downtown because it provides a link between the South Main Street existing historic retail/office area and the North Main Street activity area. The site could connect the river and Mulberry Point to Main Street and has the potential to create a central major focal point for Downtown. The site presents an opportunity to retain the zero setback Main Street edge while providing a more contem- porary site development design. The design plan calls for a mixed use, office/retail/housing complex with market plaza and arcade opening up to the river. The site also has potential for a hotel/mixed use project with its proximity 48-A to Downtown, the marina and river. Lands to the south, west or east of the site could be included in the project depending on the development concept. Preferred Land Use: Mixed use, retail/office/residential or hotel/retail. Design Guidelines: o The project design should take full advantage of the river by providing views and pedestrian access. o Main Street building setback shall be determined by building design, provision of pedestrian amenities, and sensitivity to Main Street. o A market plaza or similar public open space pedestrian amenity, connecting Main Street to the river, should be incorporated into the design of the site. o The project landscape plan and design shall complement the new streetscape plan for Mulberry Boulevard and North Main Street. o Adequate right-of-way shall be provided for Mulberry Boulevard improvements. o The project shall meet the Central Business District and Floodplain regulations and the Downtown Design Guidelines. South Riverfront Property, Site #7 This City -owned site runs from the parking lot just south of Brick Alley and the southern boundaries of Lowell Park to Sunnyside Marina to the south as shown on Figure 6. The site represents tremendous opportunity for addition to the City riverfront parks and open space system. The site is currently leased from the City for river barge operations. 49 1 w z BROADWAY ST. SECOND ST 1- 0 O THIRD ST. FOURTH ST FIFTH ST. z ST. CROIX RIVER co co 0 1 • STILLWATER DOWNTOWN PLAN Figure 6 Special Site 7 200 FEET S The lease will end in 1998. It is important at this time to recognize the opportunity the property presents and to begin planning for its eventual use. Factors that should be con- sidered in any planning include the site's location in Floodplain and Shoreland/Bluffland District. These districts are mandated by the state and federal governments and prescribe standards that must be met. The visual ameni- ties of the site are important as one enters Downtown from the south. The site provides a natural appearance with views of the river. A railroad line parallels Highway 95 on the inland edge of the property. This line could eventually provide convenient rail access to Downtown locations. The current Highway 36 bridge study is considering a central bridge location alternative that would pass through or over the site and drastically change the character of the area. This decision should be made before City use of property begins. The site also contains remains from the lumber era that should be considered in future planning of the site. Preferred Land Use: Extension of Lowell Park and City open space system, walk- ways, picnicking, camping, fishing pier, boat launch, tran- sient boat docking, charter and excursion boat docking and. site for Lower St. Croix Visitor Center and possible light rail transit stop. Design Guidelines: o Maintain natural appearance of site from the river and entering Stillwater along Highway 95 from the south. o Development plans shall address the Bluffland/Shoreland and Floodplain requirements. o Any plans should include a pedestrian pathway that links the southern City boundary along the river to Lowell Park. 52 Kolliner Park, Site #8 Kolliner Park is located on the Wisconsin side of the St. Croix River both north and south of the Bridge (Figure 7). Parts of the site are located in the Floodplain, Shoreland and Park Recreation and Open Space District. Historically, the site has been used for camping, fishing, picnicking, swimming and boating. Access to the site is currently dif- ficult because of heavy traffic. Access to the site has been closed because of vandalism, and difficult traffic con- ditions. This twenty-six (26) acre area has value as a part of the City's parks and open space system. With the construction of a new Highway 36 bridge in the southern corridor and retention of the existing Lift Bridge, the site would become more valuable for parks and open space use. Traffic on the bridge would be substantially reduced, making it a more attractive pedestrian link to Lowell Park and vehicle access off the bridge easier. Use of the park depends to a large extent on the new Highway 36 bridge loca- tion and retention of the lift bridge. Preferred Land Uses: Part of City parks and open space system, transient boat docking, swimming, camping, picnicking, concessions for park/boating users, charter and excursion boat docking and site for lower St. Croix Visitor Center. Design Guidelines: o Maintain the natural appearance of the site as viewed from the river in Downtown Stillwater. o Development plans shall address the Bluffland/Shoreland and Floodplain requirements. o Link Kolliner Park to Lowell Park and the City Park and open space system across the historic Lift Bridge. 53 ST. CROIX RIVER STILLWATER STILLWATER DOWNTOWN PLAN Figure 7 Special Site 8 o 1 1] O reET Special Site #9 This three -acre site lies below the crest of the hill defining Pioneer Park, between Second and Main Streets. The site is currently defining landscape important to forming the natural backdrop for downtown development. Given its location overlooking the river and adjacent to the marina, the site has potential for residential use of a specific density (dwelling units/acre) and housing type or Scale (townhouse or condominium, no taller than two residential floors above one parking floor). Development of this site would reinforce the unique hillside qualities of downtown as well as add residential activities to the north end of down- town. Careful site design and development are crucial to making the site suitable for any future development. If residential use is determined infeasible, then the land should remain protected as natural open space in downtown. Preferred Land Use: Multifamily Residential (No development use, other than residential, is permissible). Design Guidelines o Project access shall occur from either Second Street or from Main Street south of the historic Warden's house. o The site will remain as undisturbed as possible, with residential development occurring only in areas with suitable slopes, vegetation and soils. o On -site parking should be provided by one enclosed space and one open surface space per dwelling unit. o Density of the site shall not exceed four dwelling units per acre. DEVELOPMENT OPPORTUNITIES The Downtown Economic Study identified development oppor- tunities based on recent trends of new business openings, comparisons with similar communities and interviews with Downtown business and property owners. The study identified opportunities in the area of retail, office, hotel/motel, and residential uses. The retail opportunities are pri- marily in the specialty retail area. Since 1970, special retail activity has increased by almost 300 percent and this trend is expected to continue. It is estimated that 25,000 square feet of additional retail floor space could be sup- ported. Over the past years several downtown office uses have moved to new locations along Highway 36. The lack of good office locations with convenient parking is one reason for the moves. The study identifies the need for new quality office space at moderate rents with adequate parking. This may require city assistance to make it possible. The economic study identified the need for a fifty (50) to one hundred (100) room hotel. The visitor accommodation should have meeting facilities and could be a part of a mixed use development complex. The Design Plan identifies a site just north of Mulberry Boulevard as a potential site for a hotel. A range of residential opportunities was identified in the study from low to moderate cost senior units to high income ownership or rental units with river amenities. Potential locations for housing sites were identified along North Main Street and below Pioneer Park and upper levels of new and existing commercial buildings. V.2 TRAFFIC CIRCULATION AND PARKING Over the years many changes in traffic management have been considered with some improvements implemented. In studying 57 downtown traffic circulation conditions it has become increasingly apparent that without diverting through traffic away from downtown, it will be difficult to significantly improve traffic conditions. Figure 8 shows existing and projected traffic for major downtown streets. Currently, the Minnesota Department of Transportation is studying the best location for a new bridge connecting Highway 36 with Wisconsin. Of the three alternative corridor locations being studied the south corridor is clearly the best choice for the city and downtown. A southern corridor location would divert through and truck traffic away from downtown and provide a more direct route to Wisconsin for commuters now using the .lift bridge. Also as a part of the bridge location study the retention or removal of the existing historic lift bridge is being con- sidered. For purposes of this downtown plan it is assumed that the lift bridge will remain and provide a convenient local historic connection to Houlton and Kolliner Parks. If the bridge is removed or closed to autos, local traffic pat- terns and plans will have to be reconsidered. There are several key streets and intersections in the down- town which must remain free from obstacles which might inhi- bit the smooth flow of traffic. Myrtle Street from Water Street to the west, Chestnut Street from the river to Third Street, and all of Main Street, Second Street and Third Street must remain open with two full lanes for traffic. Other streets, such as Olive Street or Nelson Street, have lesser roles. Nelson Street east of Main Street and Water Street south of Chestnut Street are primarily to provide access to buildings and parking areas. While they must remain open to traffic, low speeds and some congestion are very acceptable. Circulation in the entire area south of Chestnut Street and east of Main Street can consist of little more than aisles in parking areas with provisions for delivery truck traffic. It may be desirable to provide access from the Main Street parking lot to the Nelson Street area to reduce the volume of traffic traveling onto and off the Main Street. The road along the levee should be closed 58 :=17 ST. CRCIX RWER 0 i i 2auo i SMei Ji 1 „... I smE,, i . . . 1 i i I i j TKO .E i ; n0o �i SMUT • T,r_..., i Li o_ L SECO.unal I I 1 1 . Q o o o --cb °, W rup o • STILLWATER DOWNTOWN PLAN El 1 $1.FFT I i r r� ■^T� r Estimated Current Traffic Volumes 9,000 (Short Elliott Hendricksen) 13,125 Projected Traffic Volumes -Year 2014 (Mn/DOT) Figure 8 Traffic Volumes to public traffic and the Nelson Street right-of-way east of the railroad tracks and the river parking lot be incor- porated into Lowell Park rather than used for traffic and parking. Nelson Street, Nelson Alley, and Olive Street provide access between Second Street and Main Street. In reality only one or possibly two streets are needed. Thus, the opportunity to convert one of these streets, preferably Nelson Alley, to a pedestrian way connected to a parking ramp is possible. Olive Street between Second Street and Third Street offers an opportunity for local traffic to reach the proposed new parking ramp area. Other streets such as Water Street, Commercial Street, and Mulberry Street should remain primarily to provide for local circulation and access. Parking can be maximized along these streets. In the North Main Street new construction and transition areas, development should provide for traffic circulation and new parking demands. Little change in traffic control is foreseen in the future. 'The three traffic signals on Main Street currently provide adequate access to the south portion of town. Any addi- tional traffic signals along north Main Street would be dependent upon future development. The unusual traffic control arrangements at the intersection of Third and Myrtle Streets and Third and Chestnut Streets should remain, pri- marily because of the steep approach of grades from the east. There is an opportunity to provide some traffic chan- nelization and pedestrian crossing improvements at Chestnut and Third. Pedestrians are a particular concern in the downtown area. The new Nelson Street signal provides a convenient crossing location in the south area. The removal of through traffic by construction of the new bridge should significantly 60 improve pedestrian vehicle relations, since local traffic is generally more tolerant of waits created by pedestrian crossings than commuters. All regulatory and warning signs for traffic in the downtown area should be inventoried and an effort made to upgrade, install, or remove signs as needed. This should be done in conjunction with the directional signs for parking. PARKING Parking has long been a recognized problem in the Downtown Stillwater area. Reports published as early as 1960 indi- cated the shortage of parking and provided general recommen- dations for increasing the number of spaces. Several other reports have alluded to a general shortage of parking in the downtown area. While a significant amount of parking has. been added, the problem persists. The City has installed additional parking areas such as the South Main Street lot, and the public sec- tor has also increased parking supply through private lots. However, parking remains a major concern and problem in the downtown area, see Figure 9. As part of the downtown study, parking was reviewed in detail. An inventory of all parking spaces in the greater downtown area was made. The demand from the current building uses was calculated. During the summer of 1987, a very detailed study of the usage of existing parking spaces was made between 9:00 a.m. and 9:00 p.m. on a weekday and on a Saturday. These efforts not only confirm that there is a shortage of parking, but provide much greater detail than any other past study relative to the type of demand that is not being met and the location of the demand. This information has been interwoven into the overall conceptual plans for the down- town. However, the concept is more than to just add a 61 O' o .o ST. CROIX RNER p 0 �'O❑r ❑ � ❑oo�❑❑ ❑:,I I�DO • ® Tourist and entertainment oriented demand exceeds supply nights and weekends. Little potential increase possible. 0 Parking hidden from Main Street. Private parking areas unused during peak demand. ® Most parking is private and underutilized. ® Private parking available at peak 'times but difficult for pedestrians to cross Chesnut Street. 5® High potential demand from underused buildings. ® River oriented demand. Undefined and poorly organized parking. 0 Collection of small individual private lots. ® Redevelopment will drive supply needs. - fl El �0Do a o r I 511EE f STILLWATER DOWNTOWN PLAN Figure 9 Existing Parking Problems 1 parking area or ramp. The concept for the downtown is to develop a parking management plan which will utilize each parking space to its maximum. While the detailed Parking Management Implementation Plan is yet to come, the general guidelines which will be used as part of the downtown plan are as follows: 1. All parking areas within the area south of Chestnut Street and east of Main Street will be evaluated and redesigned wherever possible to increase the number of parking spaces. It does not appear that there is any possibility of a significant expansion in the number of spaces. It is also unlikely that a parking ramp could aesthetically be built in the area. 2. A parking structure will ultimately be constructed near the corner of Olive Street and 2nd Street. The ramp could be 1) at the location of the existing Auditorium lot, 2) could combine the Auditorium lot and the pri- vate parking area to the north, 3) could utilize the entire block between Olive Street and Chestnut Street, 4) could utilize all or a portion of the southwest corner of the intersection or 5) could be built utili- zing the area presently occupied by the lumber yard and the back of the Grand Garage. This parking structure would serve daytime employees and nighttime visitors. Essential to the success of this ramp would be the development of a pedestrian circulation system from the ramp to the Main Street and Nelson Street intersection. 3. Efforts will be made to share private parking wherever possible. Currently, some daytime employee parking goes unused in the evening when the visitor parking demand is greatest. 4. Parking in the area north of Hooley's near the River will be better organized as part of the redevelopment plan. 64 5. Reorientation of the marina from Mulberry Point will require consolidation of some of the existing parking on the point as well as establishment of additional parking near the relocated marina. 6. Where several private lots adjoin one another, such as west of Main Street and north of Commercial Street, efforts should be made to consolidate the lots to significantly improve the supply. 7. A financial implementation package for parking improve- ments should be developed. This may include increases in parking meter revenue by increasing rates or increasing the length the meters are in service. As an example, a parking meter with a rate of $.25 per hour that is in service 12 hours a day and 6 days a week with an average utilization of 70 percent will generate over $650.00 a year. If 300 city parking meters were used at a 55 percent rate, using the same criteria, the annual income would be $150,000.00. 8. Existing signs and parking meters should be upgraded for uniformity and visibility. Directional signs to public parking should be more prominent and easier to follow. 9. A program to locate parking in the downtown area for employees (to provide low cost unlimited time parking) is necessary. 10. An enforcement program is absolutely essential to insure proper utilization of each parking space. More details of the Parking Management Plan can best be pre- sented on an area basis. For convenience, the downtown has been divided into a number of parking areas as shown in Figure 10. In the following pages a summary of parking spa- ces use and demand for each area is presented along with an overall plan for parking improvements. 65 ST. CROIX RIVER ❑ L _ L� o �p ,,we'd.0 �a �G'��j=�X C1❑a❑ ;o0 MDllaJ To • • ❑ - ❑. ❑GB❑❑p 1 , ,, S,W[, , n , .10 SPIEEI 0 ), Orient to customer parking with higher meter rates, longer hours. Maximize supply in lots. Potential for shared parking. Site of potential ramp. Good location for employee parking. © Potential for shared parking in bank and Gazette lots. ® Public use of private lots possible. ® Little potential for increase in supply. © Need to move trailer parking to relocated Marina, and to provide organized recreational parking. 07 Improvements primarily from cooperative private shared lots. ® Dependent on redevelopment. Q STREET M! 9 , ❑ °� El !!! 1^ 1 E E 1 t l T 1 r { STILLWATER DOWNTOWN PLAN Figure i o Parking Recommendations Area One The area east of Main Street and south of Chestnut Street comprises Area One. This area is oriented primarily towards tourists and entertainment and is one of the most heavily congested areas in summer. Major attractions include the Dock Cafe, the Freight House complex, Brines and the Andiamo boats. There are also numerous small shops and several renovated buildings. The major exceptions to this tourist orientation are Snyder Bros. Drugstore, Harvest States, Simonet Furniture and a few shops which are oriented to both local and tourist trades. There are a total of 429 parking spaces available within this area. On -street parking spaces total 59 with an addi- tional 30 spaces within the public right-of-way marked for private usage. There are also 212 public off-street spaces and three major parking lots. The city lots include the south Main Street lot, the River lot and the Water Street lot. In addition to the public spaces, there are 128 pri- vate spaces for either employees or customers. At peak times, numerous illegally parked vehicles can be found in the area. Summer usage is oriented more towards evenings and weekends. As an example, the 429 spaces had a usage of 64 percent at 2:00 p.m. on Thursday. There was a higher demand at 7:00 p.m. on Thursday, a 91 percent usage at 2:00 p.m. on Saturday, and a full use of the spaces at 7:00 p.m. Saturday evening. This is the area where many tourists and customers tend to look for parking. While parking may be available north of Chestnut Street or west of Main Street, there is generally constantly circulating traffic looking for a parking space in this area. Calculated demand for parking is 517 spaces, which does not reflect parking for the Andiamo boats or for the peak demands created by restaurants or visitors. 68 As part of the Parking Management Plan, most of the available spaces in this area should be used primarily for customer parking. Parking meters should be maintained or installed where missing. The meters could have a longer limit, perhaps six hours. Meters should be enforced from approximately 8:00 a.m. to 8:00 p.m., possible seven days a week. Serious consideration should be given to enforce the meters on Sunday. The potential exists to charge rates of up to $.50 per hour, which is more than is now charged and considerably less than can be found in major metropolitan areas. The south Main Street parking lot could be revised to reflect the need for Andiamo parking. Some concept drawings have been prepared which provide access for service vehicles from the parking lot. This would reduce parking in the lot,. The potential to expand the parking lot to the south on the Aiple leased property is possible, and can be implemented quickly. Parking meters should be installed for all spaces so that the entire lot is oriented towards long-term customer parking. The Water Street lot, directly north of the Freight House, currently has a single row of parking off Water Street and a double row of parking between Water Street and the railroad tracks. It is possible to relocate the parking further to the east by reducing the area between the parking lot and the railroad tracks. However, this results in an increase of only two parking spaces and from a cost benefit analysis is not justified. Parking should be coordinated with the privately -owned Freight House area so that maximum use of the area for parking, dumpsters, etc., is achieved. Parking meters, with a rate of up to $.50 per hour and a two to four-hour maximum should be enforced. The Lowell Park parking lot should be expanded so there is uniform parking on both sides along the park. A uniform width of parking, preferably for 60 degree, one-way opera- tion would result in the least increase in parking area and 69 maximum increase in parking spaces. Final parking lot layout could be done only after specific topographic surveys are made. Parking meters should be installed for at least 67 percent of the spaces. The remaining 33 percent can be converted to meters once there is additional parking pro- vided in Area Two. Rates should be up to $.50 per hour with a four-hour limit. Parking along Nelson Street consists of a few marked public spaces, several privately marked spaces on public right-of- way, and an area near the lake which is unmarked. In addi- tion, cars park in 'several areas on the Nelson Street right-of-way during prime parking demand times. It is recommended that a layout of the Freight House parking lot, Nelson Street parking and the area near the grain terminal and Brick Alley be designed to provide maximum parking, regardless of ownership. Nelson Street has very little demand as a traffic street and thus could be used to its maximum for a combination of public and private parking. It will probably be necessary to improve the surface of Nelson Street and provide connections to the private parking areas to maximize marked parking. Meters should be installed. The only major remaining parking area is along Water Street. This parking was designed a few years back to maximize use of the spaces through angle parking. No changes should be made until design concepts for Water Street are complete. At that time, meters should be installed. Some parking remains on Main Street. These spaces should all be metered with a $.25 per hour rate and a two to four- hour limit. Area Two Area Two represents a transition of businesses within Stillwater. It lies between Chestnut Street and the bluff to the south and between Main Street and the bluff to the west, including several businesses which face Main Street. 70 Included in the area are the First National Bank, the Grand Garage, Vittorio's Restaurant, and a series of smaller shops. The parking supply of 257 spaces includes 81 public on - street spaces and 47 in the auditorium parking lot. The remaining 129 are private for either customers or employees. Average usage of parking in the entire area remains at approximately 70 percent throughout various periods. During the daytime, the number of retail and service establishments create a demand for parking. At night, when the retail demand is significantly reduced, the tourists and entertain- ment facilities create a significant demand. Parking in this area is generally used by those familiar with Stillwater. Parking is not clearly evident and cannot be easily seen from Main Street. Yet at peak parking demand times, there are generally spaces available either on -street or in the Auditorium lot. A number of recommendations are made as part of the Parking Management Plan. Ultimately, a parking ramp should be constructed in this area. There are several potential loca- tions for the ramp. The ramp could be constructed on the existing Auditorium parking lot. A ramp could be constructed on a combination of auditorium parking lot and Shorty's Cleaner parking areas. Or, Shorty's Cleaners could be removed and the entire half block between Chestnut Street and Olive Street used for construction of a parking ramp. It is also possible that the area south of Olive Street and west of 2nd Street could be utilized incorporating the Northwestern Bell facility into the ramp structure. Finally, a combination of properties east of 2nd Street and south of Olive Street could be utilized, including portions of the Nelson alley right-of-way. This would require relo- cation of the lumber yard and acquiring private properties. 71 Preliminary drawings of parking layouts of structures on each of these several combinations of properties should be designed so that the best cost benefit ratio can be achieved. In the interim before the parking ramp is constructed, a number of parking improvements can be made. It is recom- mended that parking meters in the Auditorium parking ramp remain with a $.10 per hour charge. Meters should be enforced six days week and from 8:00 a.m. to 8:00 p.m. A total charge of $.80 per day for an employee working 8 hours is not unreasonable and yet does provide some income for further parking improvements. On -street parking meters along 2nd Street should also reflect the $.10 per hour charge. Parking meters on Main Street and cross streets east of 2nd Street should be at the $.25 per hour rate. There are several private parking areas in this area. These include the First National Bank, lumber yard, and Shorty's Cleaners. It might be desirable to provide a cooperative program so that nighttime employees in the entertainment areas could utilize these private areas on week nights and weekends. It is recommended that the City act as a facili- tator and determine the exact needs of the daytime owner and operator and what type of supplemental nighttime employee usage may be made of the lots. There is also potential to slightly improve the number of spaces, primarily in the lumber yard parking area west of 2nd Street. Once the changes in parking meters are made in Area One, a quick evaluation of the usage should be made. If there is still insufficient parking to meet the demand, the area on the streets and in the Auditorium parking lot in Area Two could serve as a supplement. If this is the case, then some additional parking directional signs should be installed on Main Street directing traffic up Olive Street to the Auditorium lot. However, it may be -necessary to adjust the 72 meter rates in the Auditorium parking lot and on the west side of 2nd Street to reduce the use by employees and increase its availability for customers. However, adequate employee space must first be found through the shared parking program. Area Three This area represents more of the traditional downtown uses and lies between Myrtle Street and Chestnut Street and be- tween Water Street and the west bluff line. The area in- cludes both the Cosmopolitan State Bank and Washington Federal Savings and Loan. It also includes the Stillwater Gazette building, several offices and several small shops along both 2nd Street and Main Street. The Main Street area is in a transition, having lost some of the larger busi- nesses and having an influx of smaller businesses similar to those on south Main Street. The supply of parking consists of 71 on -street spaces and 107 private off-street spaces. Two major private areas are the Washington Federal ramp and the Gazette parking lot. This area is primarily used for retail and service parking. Thursday afternoon usage is 70 percent, which falls to 43 percent on a Saturday afternoon and 49 percent on Saturday evening. This low usage is reflected primarily in the little use made of the major private lots on Saturdays. There are a few recommendations for changes in the Parking Management Plan. The biggest change is to attempt to uti- lize more of the private spaces during the heavy nighttime and weekend demand periods. The most potential exists for providing nighttime employee parking in the private lots, especially in the bank parking ramp. This shared parking could provide a significant amount of spaces toward the demand for downtown nighttime or weekend employee parking. 73 It is also recommended that parking meters continue to be utilized for the on -street spaces with a combination of $.25 per hour or $.10 per hour charges depending upon location. Area Four This area consists primarily of the Lumberman's Exchange Building and Hooley's Supermarket, included in the area north of Chestnut Street and east of Water Street. The supply of parking associated with the area, which includes the parking lots located east and north of Hooley's building, is 154 spaces. There are only 10 public spaces included, all on Water Street. The calculated demand for parking is 154 spaces. However, some of the demand is met by having Cub Food employees park north of the Hooley grocery store parking lot, out of Area Four. The peak demand for the supermarket is in late after- noon and on Saturday, while Cub Food employee demands peak during the day. Thus, the actual usage on a Thursday after- noon was 67 percent with a 53 percent Saturday afternoon usage and only a 34 percent Saturday evening usage. One observed phenomena is the 100 percent usage of spaces south of Chestnut Street with °almost nonexistent use of privately marked Cub spaces north of Chestnut Street. No changes in parking layouts are part of the Parking Management Plan. The only recommended change is for greater use of the Cub Food parking area. It is suggested that a sign be posted indicating the hours during which it is pri- vate parking and the hours during which public parking would be permitted. This obviously would involve cooperation be- tween the City and Cub Foods (and potentially the railroad which owns the land). 74 Area Five This area is an arbitrarily combined area consisting of the Maple Island parking lot, Main Street businesses, post office shops, and a manufacturing building. They are grouped by proximity and lie between 2nd Street and Water Street and between Commercial Street and Myrtle Street. The supply of parking in this area is 122 spaces including the 67 spaces in the Maple Island parking lot. In addition, there are 24.on-street public spaces and 31 privately marked spaces. The demand for parking is approximately 135 spaces. Some of the parking demand for Super America is met through vehicles parked at the gas pumps, and much of the patronage at the post office shops consists of people walking from adjacent areas. Usage of the spaces is approximately 63 percent on a Thursday afternoon and 75 percent on a Saturday afternoon. However, on a Saturday evening the usage drops to 36 per- cent. A review of the Maple Island lot does not indicate any potential for increasing the number of spaces. There are currently a number of permit parking patrons in the lot. It is sugggested that the permit parking be restricted to a specific number of spaces on the east end of the parking lot so that the west end is the scene of more vacancies, which in turn are more visible from Main Street. Parking meters should continue to be used in this lot, perhaps with only a $.10 per hour rate. There is potential for improvement in the number of parking spaces behind and adjacent to the old post office. However, the grade difference between the two areas and the separate 75 ownerships may preclude any significant improvement, and with the reduced demand for spaces, should not be a top priority in the Parking Management Plan. Area Six The Yacht Club and the area adjacent to the river between Myrtle Street and the Yacht Club building comprise Area Six. The actual demand for parking generated by the river and Yacht Club is very difficult to calculate. In addition, the increased demand by the inclusion of the night club within the Yacht Club has altered parking demand considerably. A parking usage study was made on days which were very warm and sunny and probably generated a maximum amount of river oriented parking demand. The approximate supply of parking is 195 spaces. Approximately 110 spaces are in the area improved by the Yacht Club and the remainder in an unsurfaced and unmarked area south of the Yacht Club. Usage on a Thursday afternoon was 70 percent and on a Saturday afternoon was 76 percent. Evening usages were reduced. The downtown plan calls for removal of parking from the Mullberry Point area. However, some parking must be pro- vided for both the river usages and the Yacht Club. Parking for boat trailers and river -oriented traffic could be relo- cated to a lot further north on the Yacht Club property or some combination of city and private parking areas. Other river usage could be accommodated by extending the Cub Food parking area north to approximately Mulberry Street. This could tie in with access from Mulberry Street to Mulberry Point. It would also provide a continuous band of parking along the river from Mulberry Street to south of Nelson Street. 76 The parking area from Chestnut Street to Commercial Street just west of Lowell Park is presently oriented for one-way traffic northbound. North of Commercial Street, either two- way traffic must be accommodated or a one-way traffic pat- tern combined with Mulberry Street must be provided. Since much of this parking is related to future develpment in the area, a final decision and design is not necessary at this time. Area Seven Area Seven comprises the area between 2nd Street North and Main Street and between Commercial Street and the bluff. It includes a large complex of old manufacturing buildings and consists of numerous types of businesses and services. Included in the supply of parking are 101 private spaces in off-street lots and 79 public spaces on the various streets. Actually usage of these spaces is relatively low, with the highest demand being Thursday afternoon when only 50% of the spaces were occupied. The greatest demand for parking comes from the two Staples Mill antique complexes. Much of their demand for parking is met in a parking lot across from the north complex or on private lots near Mulberry Street intersection. Much of the supply of parking is in private lots in the interior of the block between 2nd and Main Streets and between Mulberry and Commercial Streets. With the demand currently being met, there is little incen- tive to provide for major parking improvements. Much of the need for improvement will depend upon the nature of the growth in the area. Since the area south of Mulberry Street and west of Main Street is somewhat permanently developed, it may be beneficial to discuss a cooperative parking lot with the several property owners involved. The several small lots could be combined into a single more efficient parking lot under some type of cooperative agreement. The City could act as facilitator. 77 Area Eight Area Eight is the targeted redevelopment area of North Main Street. The area lies east of Main Street, west of the railroad tracks and north of Commercial Street and includes the existing Maple Island building. Currently there is little demand for parking to the north with the exception of the Minnesota Zephyr and the Yacht Club. The Zephyr currently has its demand exceed its supply of parking during peak periods such as Sunday afternoons. During those times, several other adjacent areas, as well as Main Street, are used for parking. The future demand for parking depends entirely upon the type of redevelopment which takes place. However, it is assumed that any major redevelopment will provide, either publicly or privately, for parking within this area. Thus, there is little that can be done at this time in terms of improving parking in the area. The only potential is for coordination and improvement of parking areas for the Minnesota Zephyr and the Yacht Club. Financial Parkingj1an The need for improvements in parking is very evident. It will be necessary to establish a financial plan to achieve the desired improvements. A method which should be care- fully evaluated by the City is for parking meter revenues to be increased and to be designated for parking lot improve- ments. Parking meter revenues will not provide sufficient revenue to build a parking ramp, but could be utilized to provide for miscellaneous parking improvements and operating expenses in the downtown area. Parking meters can also be utilized as a policing method for achieving turnover and customer -oriented parking spaces. 78 A parking meter with a rate of $.25 per hour that is in ser- vice 12 hours per day and 6 days a week, with an average utilization of 70 percent, will generate a revenue of $650 per year. If 300 city parking meters were used at a 55 per- cent rate, with the other criteria being the same, the annual income would be $150,000.00. In the south Main Street parking lot, a $.25 per hour rate in effect 12 hours per day and 6 days a week, could generate almost $55,000.00, assuming high utilization in the summer and low utilization in the winter. The Auditorium parking lot with a $.10 per hour rate and 60 percent utilization could generate approxi- mately $10,000.00 per year. Thus, a parking meter revenue program could generate a substantial amount of income each year which in turn could be used to maintain existing parking lots and provide for small improvements. Unfortunately, the existing condition of parking meters is very poor and a substantial cash outlay must be made to get the parking meters in acceptable condition. As part of the implementation program, a detailed survey of parking meters should be made to determine what changes would have to be made and what costs would be incurred in the transaction. A specific pattern of $.50 per hour and lesser per hour charges should also be made. As a starting point, it is recommended that all meters east of 2nd Street and south of Myrtle. Street have a $.50 to $.25 per hour charge and all other meters have a $.10 per hour charge. A $.10 per hour charge may be low and $.15 or $.20 may be acceptable. It would also be desirable to establish a parking improve- ment area over which major parking lot improvements can be assessed. As an example, a major parking structure built in the area of Olive Street and 2nd Street could be charged to the assessment district which may include all properties from the Main Street railroad crossing on the north to Brick Alley and Vittorio's on the south. Ultimately, a parking structure built at the north through a public -private cooperative venture could also have the public expenditures 79 charged to the parking district. Thus, parking in the down- town area is considered as an improvement to the entire downtown regardless of the specific improvement location, and ultimately costs and benefits should balance. As part of the implementation plan, a specific financial implementation package should be developed. Enforcement An enforcement program is absolutely essential to insure proper utilization of each parking space. Whether the major restriction on parking is regulated by parking meters or by parking limits, enforcement will be necessary. There should be a dedicated public official whose primary responsibility is parking enforcement. Given the twelve hours proposed for parking meters and the six -day time frame, the official or officials may be required to work staggered hours. A number of cities have successfully implemented enforcement programs by providing personnel whose primary responsibility is parking enforcement. The goals of the program are to provide maximum utilization of parking, a goal which would be achieved when there are no violators. Thus, funding for the official must come from either city general funds or from parking revenue funds. It should not be the goal of the program to have parking tickets provide the income sources to pay for the parking official. Income derived from parking tickets should also be dedicated to the parking lot improvement fund. 80 V.3 UTILITIES AND STREETS Certain known utility problem areas were identified in the existing conditions and analysis report. Clear water and roof leader connections need to be iden- tified and provisions made to correct these connections before any surface beautification projects begin. Building surveys should be conducted to identify old area ways beneath existing sidewalks. The condition and need for these old area ways should be discussed with the building owners and a solution for preservation or abandonment deter- mined. Coordination with private utilities should be accomplished before each phase of implementation begins to determine any needed upgrading or possible revisions to their systems. Coordination with various state agencies having review authority and/or jurisdiction over certain facilities within the Downtown study area should be accomplished before imple- mentation of each phase. Sanitary Sewer Proposed sanitary sewer construction is indicated on Figure 11. Sewer televising may show a need for different sanitary sewer rehabilitation. 81 d ❑ ST. CRCIX RIVER IF _ ,r�;t>irJJE .._ ' DI i / i - -- SWEET �—�t �.,Q W r 1ctiS.f • I] ✓ ,LIU p aa o CI I... 0_p f r �'�o � Li o Da qo❑❑❑, 0-,..1 Iaft, r fla � M1 1 1 iF•i0 ` sT i 14 1 ^Eo 1 ! sv.{ 1 ra L atermain Improvements me Sanitary Sewer Construction )1C Storm Sewer Additional Lines 0 Replace Manholes • Replace Valves and Hydrants o-/ f; IB: 14I,.,,... 00/31 { 1 1 { ! s,ses, f 1 5 r STILLWATER DOWNTOWN PLAN Figure 11 Utility Recommendations J. son •IF FEET The sanitary sewer on Main Street between Nelson Street and Laurel Street ranges in size from 12" to 15" diameter. This pipe material is clay. If additional. testing reveals that all or part of this reach of pipe is structurally sound, a liner or grouting can be considered for rehabilitation. This would not necessitate digging up the entire street. Before roof leader and clear water connections can be disconnected from the sanitary sewer, some storm sewer may have to be constructed in certain locations. Actual sanitary flow requirements will need to be determined for each pipe reach before any liners are placed inside to determine required pipe diameter. Since the original sewers in the City were combined; that is, one pipe carried both sanitary waste and storm water, most of the present sanitary sewer is larger than needed. Therefore, some reduction in diameter for' placing a liner or grouting may not be critical. The sanitary sewer on Mulberry Street between Second Street South and the interceptor sewer along the St. Croix River ranges in size from 18" diameter to 36" diameter. A portion of the 18" sewer between Water Street and the interceptor sewer was abandoned in 1959 because it had collapsed. This sewer should be checked also to make sure all voids beneath the streets and railroad tracks are filled. Since the existing sewer is shallow, approximately five feet to eight feet deep, the entire street width may not be disturbed if total reconstruction of the sewer is required, instead of placing a liner inside the pipe. The sanitary sewer on Myrtle Street between Main Street and the interceptor has not had any major work done to it in recent years. Little is known about the structural con- dition of this sewer at this time. 84 The sanitary sewers on Water Street between Nelson Street and Myrtle Street also have not had major work in recent years. The actual structural condition of this sewer will have to be determined by televising. In addition to rehabilitating sanitary sewers in the study area, most of the manholes will require some form of reha- bilitation. Sewer services will need to be reviewed to the extent possible while televising sewers. Some services may need replacement also. The Capital Improvements program includes anticipated construction phasing and costs. Water Mains The known water main replacement areas at this time are on the following streets: o Chestnut between Second and Water Streets o Myrtle Street between Third Street and the St. Croix River o Commercial Street between Second Street and Water Street o Mulberry Street between Third Street and Water Street These water main areas are shown on Figure 11. The proposed phasing and estimated construction cost for water main items are included in the Downtown Capital Improvement program. The existing water main on Chestnut Street is eight -inch diameter. The Stillwater Water Department has recorded numerous water breaks during the winter and summer and feel this main needs replacement. 85 The water main on Myrtle Street has various ranges in size. The existing main diameters are four -inch, eight -inch, and twelve -inch. This water main has also exhibited various breaks. The water main on Commercial is also an old main and has had many breaks. This water main is a six-inch diameter. The water main on Mulberry Street is eight -inch in diameter. The water department has indicated this main needs replace- ment also. In addition to these locations for water main replacement, other mains requiring replacement may be discovered during construction. All lead and galvanized services must also be replaced with copper pipe. The long dead-end water main on the north end is a concern to the water department also. A study should be conducted for a solution to this problem, so any needs within the study area can be resolved before street surfacing and beautification is completed. All ,the fire hydrants and gate valves within the study area need to be replaced. All property owners should be contacted to discuss their need for water service to vacant properties and fire service to existing buildings.' Storm Sewer The storm sewer requirements identified at this time are shown on Figure 11. Also, as each implementation phase is designed, additions to the existing storm sewers may be needed. The study area appears to have sufficient storm sewer on east -west streets except for Chestnut Street from Union Alley to the St. Croix River. There is an existing storm sewer on this segment, but it probably is not large enough. 86 Main Street and Water Street are in need of some drainage improvements. Storm sewers installed along the portions of Main Street will also provide an outlet for clear water con- nections from existing buildings. As the implementation phases progress, all the known clear water connections will have to be reviewed and storm sewer outlets for them provided. The required storm sewer on the north end of Main Street is required to provide a pick up for spring water flow on the sidewalk and beneath the rock wall south of the old Warden's House. Special consideration will have to be given to the intercepting of this spring water so that unstable soil con- ditions will not result. Coordination with the Minnesota Department of Transportation (Mn/DOT) will be required for all storm sewer design along Main Street and part of Chestnut Street which is trunk highway. Streets Figure 12 shows streets which will require complete overlays or reconstruction because of their present condition or anticipation of extensive utility rehabilitation. Besides coordination with Mn/DOT for construction on TH 95/ 36 (Main Street and Chestnut, Main Street to the bridge), Myrtle Street, and Second Street will need Mn/DOT approval because they are on the Municipal Street Aid (MSA) System. Chestnut between Main Street and Third Street is on the County State Aid System and will require coordination with Washington County. If a number of services require replacement or installation on any given block, it may be more prudent to reconstruct that particular block of street. These decisions will have to be made as each implementation phase progresses. 87 iil •" ❑ D[ 0,1 ST. CROIX RNER o Overlay Entire Street due to Utility Service Replacement Probable Reconstruction due to Utility Work Need Reconstruction r- rr]ii! MEET-�ul�uuul�ulwl�uuuu�▪ u1Gl�uuu �r�auuuuuuuuu�l�l�ul�l�iw�inn�inr�uuuuuli/ ,`. n, _01,�,, ❑ 0 i..., l7u 2J o d F 0 D o0 ���a5�o�� ❑I I�❑p0 43 Two Sixeei i• , ti r ., ..� i❑ .� a; 1d O 1 sTet 1 L■, a ❑ ,.L r I ❑::: ❑ I I,,,. woe e I- -_ r On CI DDO 0 �I 111 1 STILLWATER DOWNTOWN PLAN Figure 12 Street Improvements 1�o IE ,IO FEET The final design of beautification elements will also dic- tate sidewalk reconstruction. Consideration will have to be given to existing sidewalk and curb and gutter replacement for each implementation phase even if beautification ele- ments are not constructed or a minimal amount is installed. Because of certain street width standards required for streets under Mn/DOT jurisdiction, consideration for beauti- fication elements and sidewalk widths on these streets will require careful consideration for implementation. Street lighting replacement will have to meet certain stan- dards on streets within Mn/DOT jurisdiction also. Some con- sideration for different style standards and poles can be given by Mn/DOT. Low level or pedestrian lighting can pro- vide a good visual affect for downtown Stillwater and generally can meet Mn/DOT requirements because they have little or no effect on roadway lighting. When sidewalks and streets are reconstructed provisions will have to be made for electrical lighting cable as well as private utilities. Street construction should not take place until all utility requirements have been satisfied. Private Utilities The private utility companies have said that they do not anticipate any major renovation of their systems. Electrical service which is presently overhead within the floodplain area is planned to stay overhead. However, Northern States Power Company (NSP) representatives have stated that the number of overhead service lines may be able to be reduced and some of the transformer areas at the back of buildings revised. Ongoing coordination with the private utility companies will be required for each implementation phase to make sure their needs are satisfied. 90 V.4 PEDESTRIAN CIRCULATION Illustrated in Figure 13 is a proposed network of pedestrian circulation for downtown. Primary pedestrian routes are shown in a heavy dashed line and indicate natural lines of travel between pedestrian attractions. These routes generally occur along sidewalks or other similar public right-of-way such as parks and public open space. Of critical importance to downtown is the retention of those wooded buff areas, labeled defining landscape. Careful con- sideration must be given to these as an integral portion of Stillwater's image. Generally, they should be retained in their natural condition, or protected by special development regulations, such as those on Special Site #9. Of equal consideration in the proposed pedestrian cir- culation system is a series of small, distinct outdoor public plazas. These plazas are conceived of as a rein- forcing of existing downtown pedestrian destinations in addition to establishing high levels of quality to influence surrounding private development. Each plaza attains its own "signature" from either a historic relationship or a current role in the proposed downtown plan. This latter idea is illustrated by the Market Plaza, which integrates new retail or housing uses while providing a natural space for a seaso- nal open-air (farmers) market. 91 , historic ST. CRUX RIVER • nit - 111MMILLIg h 111111-11111 .. . ii. , 11 ... . . . . . _ . _ . . -0 -I T. 1 i iiiiiiscoopswerx, - SFITH3 ...= _a w _dr 1,1 itU1,! '. DL C230 f i ' - ' • 'i q D 0 ,1 El o -1= On a 0 0- 0 1=1 l-l- ! ', • ' O'' /2::, • •r, ! K • . . cl, , . . 7 1 • P..i' .=, crti ii ' 7 - ---- *, sp, •- 4/ --- -1 1 i IF.. I SWF.1 I M I i .1 1 I i i i i - ,c ". , i . PIDNEEFf - -- Pedestrian Circulation () Plaza Development c-3 Parks Pavililon N Lowu. PAnk I MIT I I ,N#4 # 1 I r—, Boating OYES 0J10°EII a lila -_ Defining Landscape Streetscape Areas 1 1 s I STILLWATER DOWNTOWN PLAN Figure 13 Pedestrian Circulation Parks & Open Space it• 11 NO WO MT 11111 I I The following points summarize the pedestrian circulation network: o Continuous sidewalk improvements along Main Street be- tween Nelson and Yacht Club entrance drive o Formally developed overlook capitalizing on the topography at Pioneer Park and north of Broadway Street destinations for both visitors and residents o High level of pedestrian amenity along entire length of riverfront between the boating and launch plazas. Both formal and informal design character are desirable. o Need to develop a riverfront streetscape/landscape pre- sence and visual corridor between the riverfront, par- ticularly Mulberry Point and Main Street o Defining landscape areas assists in establishing historical development limitations and overall downtown visual character. 94 V.5 URBAN DESIGN PLAN The urban design plan is a logical and consistent extension of the goals and objectives for downtown Stillwater and incorporates both the opportunities and constraints iden- tified in previous sections of the Downtown Plan. The prin- cipal factors affecting the urban design plan evolving from the goals and objectives are: o The enhancement and retention of a historic rivertown image within a natural setting - Protection and enhancement of desirable views and vistas - Preservation of the natural appearance of entran- ces and approach routes to downtown including bluffs, hillsides, and riverfront - Maintaining the integrity of existing development and prescribing physical guidelines to ensure the compatability of new development - Development of a historic streetscape theme focused on late 19th century commercial buildings o Strengthen the St. Croix Riverfront focal point. as a community - Improved access to and along the well defined pedestrian paths - Improved environment for bikers, ties - Provide appropriate space and citywide events and festivals 95 river through leisure activi- utilities for o Organization of surface and structured parking to meet existing demand and provide for the anticipated level of new development - Maximize small, well defined, well landscaped sur- face parking lots to fit the pattern of existing physical development - Introduce better organized surface parking lots to those areas where existing parking space is underutilized - Build structured parking at selected locations to best serve both local service oriented land uses, as well as broader retail/restaurant/entertainment uses Structured parking should be designed to physi- cally relate to its surrounding environment More detailed design analysis has identified, from a physi- cal or site -related standpoint, other key factors: o The ability to eliminate railroad car parking from downtown Stillwater is critical to the success of all future development efforts. The continued presense of the cars severely restricts potential development. o Outdated, underutilized land uses currently occupy prime riverfront development/redevelopment sites. These sites must be used to assist the strengthening of the riverfront as a community focus, and provide space for contemporary riverfront land uses. o The potential exists for mixed land use with preferred uses helping to achieve the goals and objectives of the Downtown Plan. In order of preference, the land uses listed here are particularly suitable to downtown and riverfront development: - Parks and open space - Plaza development 96 Housing - Hotel Retail Office - Light industrial/commercial o Relatively low current market demand for prime waterfront development sites places an emphasis on development strategies, guidelines, and long-term implementation. o Critical environmental features establish design/ development responses along the riverfront. - 100-year floodplain - Main Street frontage and spatial definition, due to older structures being built to their property lines - The size, bulk, and height of existing development sets strong conditions upon new development - Visual corridors and pedestrian access routes be- tween Main Street and the riverfront - Parking demands of contemporary development must be provided for within the urban design plan - Water and riverfront relationships begin to establish smaller scale development criteria A continuous, well defined pedestrian walkway connecting existing and new development is important in establishing physical continuity. o Desired pedestrian paths in downtown, connected directly to the riverfront, are the areas to receive higher levels of streetscape treatment (paving, lighting, landscaping, or street furniture). o A series of small scaled outdoor plazas offer oppor- tunity for individuality, taking advantage of the charm and unique qualities of downtown. 97 ILLUSTRATIVE URBAN DESIGN PLAN The illustrative urban design plan, Figure 14, demonstrates how it is possible to physically accomplish the overall goals and objectives while creatively responding to the opportunities and constraints of sites within the study area. The features of the plan are described below: 1. Railroad car storage has been relocated outside down- town. A recreational/historical rail line through the City is maintained and has potential dual use as a bikeway. The line services the needs of the Minnesota Transportation Museum operation as well as accom- modating potential use for recreational/historical pur- poses. 2. Preferred land uses are shown along the riverfront at prime development sites. The uses are intended to fully utilize their site's potential. Site assembly of smaller, inappropriately proportioned sites is shown in order to accommodate and attract contemporary develop- ment. Although a variety of uses are shown, mixed uses on the same site would be very desirable. Such mixed use is very representative of historic development in downtown. 3. A continuous riverfront pedestrian walkway links the new and existing areas of downtown. Regular visual and pedestrian access corridors are designed to link the riverfront and Lowell Park to Main Street and beyond, providing a direct riverfront presence in downtown. Mulberry Point is upgraded to the passive recreational recreational and pedestrian character defined by the 1918 Morel and Nichols Lowell Park Plan. Boat launch and vehicle/trailer parking are consolidated at the existing Marina site, where it is more appropriate. Long-term implications are for consolidation to a 98 STILLWATER DOWNTOWN PLAN June 15 1988 riverfront site, either north or south of downtown. Mulberry Street is developed as a more formal "processional" boulevard, linking the riverfront and Main Street. Its width and landscaping indicate the river's presence to both visitors and residents. 4. Surface parking lots are small in size, organized as a system and highly defined by landscaping. They serve both park as well as downtown development to the west. Parking lots facing Lowell Park are screened and buf- fered from vision by the use of earth berms and low planting. Parking structures are strategically placed along Second Street, just adjacent to the downtown area with concentrated parking demand. They are designed to fit their environment and provide spaces generally within one block of most destinations. 5. Floodplain restrictions on new development east of Main Street will not allow use of a "ground" level at the current elevation, without costly flood proofing of buildings. Thus, parking has been developed as a sur- face use (occasionally below new construction) and the first habitable floor is raised out of flood level. Where feasible, grading and filling can be accomplished to create safe land out of,the floodplain. 6. Height of new development is between two and four stories, respecting existing historical development heights. To maximize the number of housing units exposed to the Marina and because of the height of the hillside at Pioneer Park, it would be possible to selectively place a mid -rise structure of approximately six stories. This would also frame a visual gateway for southbound vehicles entering downtown on Main Street. 100 7. In the area of the Commander Mill (perhaps at the Mill's lower levels) a visitor center greets tourists, provides historical and map information, and enables visitors to orient themselves and take full advantage of Stillwater's attractions. 8. A series of observation and interest points is integral to the plan, enabling the visitor to obtain both overlook experiences of the entire downtown and a close-up view of riverfront parks and open space. URBAN DESIGN SITE SECTIONS Downtown Stillwater has evolved three zones of development which are essentially different in their physical qualities. The zones can be labeled as 1) infill, 2) transition, and 3) North Main Street differing basically by the amount of historical development contained within them. Thus, the existing environment influences the physical development appropriate to each zone. Figure 15 illustrates the charac- teristic guidelines of suitable development. Infill Zone o Infill development should retain similar height, scale, material, proportions to historic buildings. Opportunity to use arcades fronting Main Street or side streets to widen pedestrian circulation areas. o Small linear parking areas with landscaping and buf- fering reuse of rail right-of-way forriverfront bike trail. Transition Zone o Arcade opportunities to define edges and provide visual access to river. 101 Alley E .rsling De ,ebprnent ti Section at InfiII Zone j. Potential Development Site Potential IntiII Main Street Alley Arcade Historic Old Town Water Structures Pedestrian Street/ Plaza Parking . Existing North Commercial Main Street Section at Transition Zone / '/ // one !� � / � Surface Parking Long -Term Redevebpment Potential: Office Space Section at North Main Street —New Construction Arcade Market Plaza Deck Freight House ' Potential Development- Housing/Of rice Above Retail /r// North 'Boulevard Surface Main Street Landscaping' Parking Recreational Surface Rail and Parking Bike Path Surface Parking Buffer and Recreational Transition Rall and Bike Path Buffer Surface Parking Potential Hotel or Housing Development Lowell Park Lowell Park Extension Walkway Waterfront Docking 100 Year Fioodplain Recreational Mulberry Point Rail and Park/Walkway Bike Path 100 Year Floodplain STILLWATER DOWNTOWN PLAN Figure 15 Site Sections II I 20 40 FEET o Possible mixed uses at prime riverfront development sites sites integrated with surface parking in 100-year floodplain. o Opportunities for a seasonal open air market, forming a direct open space connection for pedestrian movement between Main Street and the riverfront. North Main Street o Emphasis on maximizing a riverfront relationship to create a desirable market environment. o Removal of railroad marshalling and car storage is cri- tical to all future development. o Opportunities to retain a defined street edge along Main Street or respond to more contemporary development site designs and floodplain regulations. o Need to assemble sites with good development potential: lot proportions, utilities, access, riverfront orien- tation. 104 V.6 STREETSCAPE Figures 16, 17, 18, and 19 illustrate the integration of streetscape improvements into the urban design plan. A hierarchy of treatments is proposed, putting the highest levels of pedestrian amenity in those areas most important to Downtown. Of primary importance are the St. Croix riverfront and the Main Street pedestrian areas. Side street connections are shown between these areas, as well as along those streets connecting future parking to Main Street. Side streets are secondary to the riverfront and Main Street areas. North and south of the Main Street pedestrian zone are those portions of Main Street pedestrian zone are those portions of Main Street which are primary vehicular approach routes to downtown, requiring streetscape improvements scaled to the moving automobile. Plazas, including the Visitors Center, should receive pri- mary amenities, as well as creating their own special iden- tity. The following summarizes the streetscape treatments used to establish a logical hierarchy. St. Croix Riverfront Need to establish high levels of amenity, featuring river and riverfront environment. Need to establish both formal and informal character along length of riverwalk. Emphasize events and city-wide festivals. 105 ST. CROIX RIVER 1 1 1 1) 1 s n p� uI G ° Q�.., 0, 0' a -° D. Pedestrian Circulation l) Plaza Development C_J Parks r Pavlllion 1 Boating Defining Landscape Streetscape Areas J On CI oo a STILLWATER DOWNTOWN PLAN Figure 16 Pedestrian Circulation Parks & Open Space 0 60 100 160 FEET Recommended Elements: o Pedestrian Lighting o Paving o Marine/Historical Theme Elements - bollards, marine fittings o Intensified/Accent Landscaping o Seating o Waste Receptacles o Bike Racks o Pedestrian Shelters/Kiosks o Potential Event Heraldry/Banners Main Street Pedestrian Limitations of sidewalk width and required public automobile signage. Sidewalks currently in overall poor condition. Recommended Elements: o Pedestrian Scaled Lighting o Seasonal Banners o Paving o Historic Markers o Private Program for - signage, display windows, display window lighting; facade treatments o Selected Facade Lighting - emphasize historical or architectural features o Trail Blazer signs to assist visitors in finding down- town parking, information, or plazas Side Street Somewhat 'utilitarian' in getting people and cars between Main Street and riverfront and 2nd Street. Emphasis on ver- tical elements and paving. 108 Recommended Elements: o Landscaping/Street Trees o Paving o Pedestrian Lighting o Trash Receptacles Water Street Essentially a linear parking space with slow moving automo- biles. Upgrade infill zone for rear access to Main Street retail and restaurants. Implement program to remove utili- ties. Recommended Elements: o Limited Pedestrian Paving o Low Height Accent Landscaping o Pedestrian Lighting - related primarily to rear entrance locations Main Street Auto Primary visual, functional entrance into downtown. Critical to introduce positive introductory image. Improve poor sidewalk conditions. Recommended Elements: o Street Tree Landscaping o Concrete Sidewalks o Large Scale Banners, Flags o Vehicular Streetlighting 109 VISITOR CENTER AND PLAZA TREATMENTS Visitor Center Site must be in a natural line of travel for visitors, close to parking opportunities. Could establish theme or levels of amenity for rest of plaza streetscape. Recommended Elements: o Similar to Riverwalk with the addition of mailbox, telephone booth, newspaper box, clock o Possibly flagpoles for national, state, and local flags o Possibly railing or fence to direct pedestrian traffic flow o Interpretive displays on Stillwater's 'history, featuring photographs or artifacts. Plaza Need for individuality and uniqueness with a theme for each plaza being developed from its historical location or role in the downtown lan. Probably similar elements to Visitor Center and potential to use water/fountain/sculpture ele- ments. 110 8 0' TRASH BENCH RECE PTACLE RIVERFRONT TREE & TREEGUARD RIVERFRONT PEDESTRIAN LIGHT r HISTORIC MARKER FENCE RIVERFRONT PLAZA FEATURE STILLWATER DOWNTOWN PLAN Figure 17 Streetscape Elements 1 1 1 1 1 FEET WALL BRACKET LIGHT PINKING FOUNTAIN PLANTER/BENCH PARK/GARCEN BENCH STILLWATER DOWNTOWN PLAN Agure 18 Streetscape Elements 1 1 1 1 I I Saint Croix River Short Term Docking- ci or11111111 — 0 0 Marine Bollards Lower Levee Ornamental Trees — • • • --y LOWELL PARK PLAN Colored Concrete • 1/8' = 1-0" Unit Paving Scored Colored Concrete • ,:•••••. / MAIN STREET PAVING DETAIL SIDE STREET // Histcric Markers - Ornamental Tree S trate Scored Colored Concrete Raised Planters w/ Perennial Flowers Trash Receptacle Hexagonal MN Pavers L_J Water Street • Trash Receptacle Perennial Border w/ Fence Wall Bracket tight Tree w/ Guard S Flowers Pedestrian Light Wall Bracket Light — Medallion f Pedestrian Light Scored Colored Concrete - !-Iin 'UM 1 L MAIN STREET STREET & PLAZA PLAN 1/8" = t-O" STILLWATER DOWNTOWN PLAN Ftgure 19 Illustrative Streetscape Plans I I 1 FEET V.7 DESIGN GUIDELINES AND FACADE TREATMENT INTRODUCTION Many buildings in the Downtown Stillwater retain their ori- ginal character; there are also many buildings which have been altered so drastically since they were first constructed that little remains of their original design. Rear walls and upper floors of older buildings sometimes show their original character, and from these areas one can imagine the original appearances of the front of these buildings. Of course old photos are also helpful. To the extent possible, modification to storefronts and building facades should seek to remove inconsistent present layers of siding and signage to emphasize the design and materials of the original building. New designs may be appropriate if the building has been altered to the point that the original design has been destroyed. Any new design should respect the proportions as well as the detailing of the original design and should use materials which are con- sistent with those used in the original building. New design elements such as cloth awnings, flower boxes or signage which did not exist at previous times may be appropriate to give the building both color and character. Care must be taken so design elements are not applied which attempt to make a building appear as if it is from a period or style other than it really is. 117 New infill buildings should fit into the fabric of existing buildings and the overall streetscape and not present a jarring contrast with what is already there. Therefore, design guidelines for existing storefronts hold true for new construction. DESIGN PRINCIPLES New Construction: The basic principle for new construction in historic Downtown Stillwater is to maintain the scale and character of present buildings. Generally new structures should provide height, massing, setback, materials and rhythm compatibility to surrounding structures. The repro- duction of historic design and details is expensive, artifi- cial and is recommended only in some special cases of infill or small scale construction. Restoration and Rehabilitation: General principles for restoration and rehabilitation are taken from the Secretary of Interior's Standards for Rehabilitation. o All work should be of a character and quality that maintains the distinguishing features of the building and environment. The removal of architectural features is not permitted. o Deteriorated architectural features should be repaired rather than replaced whenever possible. In the event of replacement, new materials should match the original in composition, design, color, texture and appearance. Duplication of original design based on physical or pictorial evidence is preferable to using conjectural or "period" designs or using parts of other buildings. o Distinctive stylistic features or examples of skilled craftsmanship characteristic of structures of a period should be treated sensitively. Furthermore, if changes 118 in use of a building are contemplated, they should be accomplished with minimum alteration to the structure and fabric. o In general, it is expected that buildings will be restored to their original appearance. However, alterations to buildings are sometimes significant because they reflect the history of the building and the district. This significance should be respected, and restoration to an "original" appearance may not always be desirable. All buildings should be recognized as products of their own time. (Example: A building that was constructed in 1890 should resemble a building from 1890.) DESIGN GUIDELINES The following guidelines, for the most part, deal with general rather than specific design elements in order to provide direction yet stimulate and encourage architectural innovation. Pedestrian -Oriented Design o The design of the building should help make the street enjoyable, visually interesting and comfortable. Individual buildings should be integrated with the streetscape to bring activity in the building in direct contact with the people on the street. Height o The height of new buildings shall conform to the average height of buildings on the block street face. o The height of new buildings shall be four (4) stories and 50 feet maximum or two (2) stories minimum and within ten percent (10%) of existing adjacent buildings. 119 Setback o Infill buildings shall be built to the Main Street front property line, flush to adjacent buildings. Exceptions may be granted if the setback is pedestrian oriented and contributes to the quality and character of Main Street. o Arcades adjacent to Main Street sidewalks are encouraged to increase the effective width of the narrow sidewalks and provide a sheltered pedestrian path along store display windows. o No side setbacks are allowed unless next to a public pedestrian way. Proportion o The proportion of infill buildings should be sym- pathetic to the proportion of their neighbors. Materials An infill facade should be composed of materials similar to original adjacent facades. New buildings should not stand out against the others. o An infill building and facade should be composed of materials similar to original adjacent facades (Example: Local brick or stone). New buildings should not stand out against the others but be compatible with the general area. Detailing o Infill architecture should reflect some of the detailing of surrounding buildings in window shape, cornice lines and brickwork. 120 o Building alterations should restore architectural details of cornices, lentels, area arches, chimneys and iron work of the original building as appropriate and feasible. Blank Walls o Blank walls shall be limited to prevent the disruption of existing patterns and to avoid an uninviting street environment. Street facades can be enhanced with detailing, artwork, landscaping or other visually interesting features. Facade Openings (Figure 20) o The size and proportion of windows and door openings of an infill building should be similar to those on the adjacent facades. o Storefront restoration should return the facade to its original character as appropriate. Windows o A minimum of 60 percent of the street level Main Street facade shall be transparent and on side streets or rear, 30 percent. o Reflective glass is prohibited. o For an infill building, window and door frames should be wood, appropriately colored or bronze -tone aluminum or vinyl clad. o Mirrored or heavily -tinted glass on the first floor or street level should not be used because it conveys a conflicting modern design feeling. It also creates a blank wall effect which may be offensive to the pedestrian. 121 NEW FACADE FILLS OPENING ■ NMI, -- XI MIN 1 1111 XXIX Ininr i ami 4-- -4- NEW FACADE AS SERIES OF BAYS --- NA —r-TT I i 10 1,01 0=3 is @ILLU 4- -4.- -1- -4- 0- FACADES Figure 20 Rear Entrances o Rear entrances should be provided for buildings in order to develop double street frontages. The rear facade entrance should be clean and well maintained and present a welcome appearance. A small sign, awnings, display windows and planter boxes can. improve the appearance. Roofs o Infill building roofs shall be flat or gently pitched and hidden behind flat parapet walls. Roof edges should be related in size and proportion to adjacent buildings. Signage (Figure 21) o Relate all signs to their surroundings in terms of size, shape, color, texture, and lighting so that they are complementary to the overall design of the building and are not in visual competition with other conforming signs in the area. Signs should be an integral part of the building and site design. o Signage should have the capability of being lit for evening visibility. o Any external spot or floodlighting of signs should be done so that the light source is screened from direct view, and so that the light is directed against the sign and does not shine into adjacent property or distract motorists or pedestrians. o Internally illuminated signs are prohibited. 124 SIGNAGE Figure 21 o Sign programs are required for buildings which house more than one business. Signs need not match, but should be compatible with the building design and each other. o If banners and flags are placed on a building they must be included and reviewed as part of the building sign plan. Awnings o Awnings add color and shade to a building facade as well as provide an area for signage. Awnings should complement the building, shape and color. Lighting o Lighting can add special character to the nighttime appearance of the Downtown. It can illuminate building entrances, pedestrian walkways, advertising or floodlight special buildings. A coordinated lighting plan should be submitted for review with building plans. Lighting fixtures should be concealed or integrated into the overall design of the project. Colored lighting should be avoided to achieve harmony with streetlighting in the Downtown Area. Color o The color of buildings should relate to the adjacent building colors to create harmonious effect. The color of brick or other natural building material should dic- tate the color family choice. o Painting new infill buildings is prohibited. 126 Utility Areas and Mechanical Equipment o Screen exterior trash and storage areas, service yards, loading areas, transformers and air conditioning units from view of nearby streets and adjacent structures in a manner that is compatible with the building and site design. All roof equipment shall be screened from public view. Exterior Surfaces o The use of surface treatments for walkways, entrances and patios should be a design feature of the building. Landscaping o Landscaping treatment shall be provided to enhance architectural features, strengthen vistas, screen util- ity areas and enhance streetscape treatment. Trademark Building Design Trademark buildings are prohibited. Parking Lots and Structures (Figure 22) o Parking lots should be screened from street and sidewalk either by walls or plantings or both. If walls are used, their material should be compatible with the walls of existing adjacent buildings. Walls should be at least eighteen feet high. o Parking structures should take advantage of the topography of the site to conceal the structure to the extent possible from public view. The same care should be taken in the design of the parking as with any other 127 INTEGRATION OF PARKING STRUCTURES it —Slope around Parking Structure Figure 22 building regarding setbacks, height, proportions, facade opening, detailing and materials. The structure should complement the streetscape through the accent landscaping or other pedestrian amenities. o Parking structures shall be designed to minimize the use of blank concrete facades. 130 VI. IMPLEMENTATION PROGRAM The Urban Design, Land Use, Parking, Traffic and Circulation and Streets and Utilities Sections present an image of what the downtown could look and be like in ten to fifteen years. In describing the image, recommendations are made on how to achieve it. The implementation program sets out, in more detail, specific actions necessary to carry out the plan and make the image real. The implementation program is organized in two parts: part one includes policy and program elements, part two describes capital improvements. Part one includes zoning amendments, Downtown Plan Action Committee responsibilities and moni- toring plan progress. In part two, capital projects are listed including cost and timing estimates. After the implementation program is described, various methods of financing capital improvements are discussed, including Downtown Redevelopment Tax Increment Financing. The final section recommends a first -year implementation program containing specific actions for consideration as part of plan adoption. PART 1: POLICY AND PROGRAM CHANGES A summary of policy and program changes necessary to imple- ment the plan is shown in,Figure 23. The land use section of the plan makes several recommendations regarding changes 131 FIGURE 23 DOWNTOWN IMPLEMENTATION PROGRAM POLICY AND PROGRAM ELEMENTS WORK TASKS ZONING AMENDMENTS 1. Adopt Design Guidelines - inc. building height 2. Establish Design Review Process 3. Adopt New Zoning Districts a. Central Business District (CBD) b. Public Administrative District (PA) c. Parks, Recreation and Open Space (PRO) d. Transportation, Utilities & Parking (TUP) 4. Reduce Residential Zoning Densities 5. Adopt Overlay Land Use & Design Regulations for special sites #1 - 9 6. Revise Parking Requirements Commercial Districts Residential Districts 7. Adopt Demolition Ordinance DOWNTOWN PLAN ACTION COMMITTEE 8. Appoint Downtown Plan Action Committee 9. Develop Improvement Financing Program 10. Seek Funding Support from Community Groups 11. Implement Downtown Spring Clean-up Program 12. Study City/Private Ownership of Lift Bridge 13. Explore Relocation of BN Switching/Storage Yard 14. Promote North Main private development 15. Assist Downtown Businesses & Organizations develop promotional program 16. Explore location for Lower St. Croix Visitor Center 132 RESPONSIBLE EST. AGENCY COST TIMING CC/CPC 0 Phase I Year I CC/CPC 0 Phase I Year I CC/CPC 0 Phase I Year I CC/CPC 0 Phase I Year I CC/CPC/DNR 0 Phase I Year I CC/CPC 0 Phase I Year I CC/CPC 0 Phase I Year I CC/CPC 0 Phase I Year I CC/CPC 0 Phase I Year I CC/CPC/HPC 0 Phase I Year I CC/CPC/HPC 0 Phase I Year II CC CS/DTPAC DTPAC CC/DTPAC/CS CS/DTPAC/ PRIVATE DTPAC/CS DTPAC/CS DTPAC/CS DTPAC 0 Phase I Year I 0 Phase I Year I 0 Phaes I Year I 0 Phase I Year I NA 2 Phase I Year I NA 2 Phase I Year I ONGOING 0 Phase I Year I 0 Phase I Year I FIGURE 23 DOWNTOWN IMPLEMENTATION PROGRAM POLICY AND PROGRAM ELEMENTS (CONTINUED) RESPONSIBLE EST. WORK TASKS AGENCY COST DOWNTOWN PLAN ACTION COMMITTEE 17. Assist City Council advocate New Interstate Bridge location and retention of lift bridge 18. Evaluate Visitor Center locations 19. Prepare Land Use/Design Study for Site #7 (Aiple leased land) 20. Prepare Land Use/Design Study for Site #8 (Kolliner Park) HERITAGE PRESERVATION COMMISSION 21. Prepare and Implement Historic Building Survey 22. Develop Facade Improvement/Loan Program 23. Adopt Uniform Code for Building Conservation DTPAC/CC DTPAC/CC CC/HPC HPC/CC CC/CPC/HPC OTHER ACTIONS 24. Review New Development with Design Guidelines DRC 25. Monitor Downtown Implementation Program Progress DTPAC/CC TIMING Phase I Year I Phase I Year I NA 1995 NA Phase I Year II $18,500 1989 Phase I Year II 0 Phase8I Year II 0 ONGOING 0 ONGOING 1. City Council CC, City Planning Commission CPC, Downtown Plan Action Committee DTPAC, Downtown Design Review Committee DRC, City Staff CS, and Department of Natural Resources DNR. 2. Cost not available at this time. 133 in land use. Items 1-6 in Figure 23 list specific zoning amendments necessary to implement the plan. Most zoning amendments are scheduled for 1989. The amendments would go through the normal public hearing process before the Planning Commission and City Council and be reviewed as necessary by the Minnesota Department of Natural Resources. Drafts of new Zoning Districts are contained in the appen- dix to this report. The formation of a Downtown Plan Action Committee is recom- mended to oversee plan implementation and to be a vehicle for community input and plan support. It is suggested that the new Committee replace the Downtown Plan Steering Committee but have representation from the Steering Committee along with interested property and business owners and members from Planning Commission and Heritage Preservation Commission. The Downtown Plan Action Committee, DTPAC will have a key role in overseeing and monitoring Downtown Plan Implementation. The Committee will have responsibilities as broad as the plan itself from assisting in the development of a long-term financing plan for capital improvements to developing programs such as the Spring Cleanup Program for Downtown Beautification. Figure 23 lists DTPAC tasks and responsibilities. Besides those listed, the Committee will coordinate input into the design process for the many public improvements scheduled in the Capital Improvements Program for the downtown. The Heritage Preservation Commission's role in Downtown Plan Implementation is to help recognize and preserve the historic resources that are so important to downtown. The HPC is currently preparing a historic building survey. The implementation program includes actions that are a natural outgrowth of the survey and will promote Downtown preser- vation efforts. 134 With the adoption of the Downtown Plan, the City moves into the implementation phase of Downtown Planning. The imple- mentation phase is more action oriented and involves con- tinual reassessment of financial, physical and political limitations and opportunities. It will be the respon- sibility of the Downtown Plan Action Committee, City Council and staff to monitor progress on plan implementation and revise the plan to respond to changing conditions. 135 PART 2: CAPITAL IMPROVEMENT PROGRAM The previous Downtown Plan sections on Urban Design, Parking, Streets and Utilities describe improvements necessary to achieve the plan. For example, the Urban Design section describes improvements to the appearance of Downtown Streetscapes, the Parking Section describes the reconfiguration of parking lots, and the Utilities Section calls for the replacement of sewer and water mains. To better understand what is required to implement the plan, this section describes each project called for in the plan. The Capital Improvement Program is summarized in Figure 24. The program lists projects in sequence of implementation, classifies the type of project study, design or construc- tion, estimates project cost and lists possible sources of funds. Projects are listed as Phase I, Phase II, Phase III or Special Projects. Phase I projects are assigned a year, 1-2 or 3-4, representing the year of implementation. Phase II, Phase III and Special Projects are not assigned a speci- fic implementation year because a long-term financing plan has not been developed and funding sources have not been fully explored. In developing the implementation program, certain defini- tions and assumptions were used regarding project timing, costs, staging, phasing and funding. The definitions and assumptions are listed below. Timing The timing sequence of improvements is a "best estimate" knowing what sources of funds are available and the need for Downtown improvements. Other factors, beyond the control of the City, can affect project construction scheduling. Factors such as funding availability from outside agencies or community groups, final decision on location and timing of construction of the Highway 36 Bridge, the City purchase 136 STILLWATER DOWNTOWN CAPITAL IMPROVEMENT SEH FILE NO: 87119 WORK TASK CLASS PHASING COST EST 1) DEVELOP PARKING MANAGEMENT PLAN S I YR 1-2 5,000 2) DEFINE FUTURE PARKING S I YR 1-2 4,900 FINANCING PLAN 3) RAILROAD TRACKAGE CLEANUP S I YR 1-2 2,600 PEDESTRIAN CROSSING 4) GENERATE TOPOGRAPHIC S I YR 1-2 12,000 MAPS AREA 1 AND AREA 2 5) PHYSICAL (TV) INSPECTION S I YR 1-2 20,000 OF DOWNTOWN SEWERS 6) REFINE STREETSCAPE S` I YR 1-2 9,100 ELEMENT SECTION 7) IMPLEMENT LOWELL PARK C I YR 1-2 472,200 IMPROVEMENTS (MYRTLE TO NELSON) 8) IMPLEMENT PARKING LOT C I YR 1-2 87,000 IMPROVEMENTS AREA 1 9) INITIATE PURCHASE OF MULBERRY S I YR 1-2 4,000 POINT PROPERTY 10) DESIGN AREA 6 STREETSCAPE D I YR 1-2 5,900 PHASE I, YR 1-2 SUBTOTAL$ 622,700 137 FIGURE 24 POTENTIAL FUNDING SOURCES GOB, PAD, RB, ASS/UC GOB, PAD, RB, ASS/UC GF, TIF, GF, TIF, GF, TIF, F/CG TIF, GF TIF, GF TIF, GF TIF, GF, GOB, LAW, F/CG TIF, GF, PAD, RB TIF, GF, LAW TIF, GF STILLWATER DOWNTOWN CAPTIAL IMPROVEMENT WORK TASK 11) IMPLEMENT AREA 2 STREETSCAPE IMPROVEMENTS 12) IMPLEMENT "DOCKING PLAZA" IMPROVEMENTS 13) IMPLEMENT "WATER STREET" IMPROVEMENTS 14) IMPLEMENT AREA 2 PARKING LOT IMPROVEMENTS 15) IMPLEMENT "WARDEN'S HOUSE" RETAINING WALL 16) IMPLEMENT "COMMERCIAL PLAZA" IMPROVMENTS CLASS C C C C C C SEH FILE NO: 87119 PAGE 2 PHASING COST EST POTENTIAL FUNDING SOURCES I YR 3-4 I YR 3-4 I YR 3-4 I YR 3-4 I YR 3-4 I YR 3-4 126,000 100,000 395,800 40,500 18,750 150,000 17) DEVELOP MULBERRY POINT S I YR 3-4 6,400 TOPOGRAPHICAL MAPS PHASE I, YR 2-3 SUBTOTAL $ 837,450 18) IMPLEMENT MULBERRY POINT C II 299,000 IMPROVMENTS 19) IMPLEMENT AREA 4 PARKING LOT C II' 104,900 IMPROVEMENTS 20) IMPLEMENT MULBERRY BOULEVARD C II 184,300 IMPROVEMENTS 21) IMPLEMENT "MARINA PLAZA" C II 150,900 22) TOPOGRAPHIC MAPS FOR AREA 5 S TIF, GOB, RB, ASS/UC, SWTD TIF, LAW, F/CG TIF, GOB, SWTD, ASS/UC, SCDBG TIFF, DAD, RB, GOB, ASS/UC MSA, GF, TIF, GOB TIF, ASS/UC, GF, F/CG TIF, GF TIF, LAW, GOB, F/CG TIF, PAD, RB, GF TIF, GOB, SWTD, ASS/UC TIF, GOB, ASS/UC, F/CG II 14,100 TIF, GOB 138 STILLWATER DOWNTOWN CAPITAL IMPROVEMENT SEH FILE NO: 87119 PAGE 3 WORK TASK CLASS PHASING COST EST POTENTIAL FUNDING SOURCES 23) IMPLEMENT AREA 5 C II 1,750,100 TIF, MSA, SWTD, ASS/UC, IMPROVEMENTS GOB 24) IMPLEMENT AREA 5 PARKING LOT C II 66,300 TIF, PAD, RB, GF IMPROVEMENTS 25) IMPLEMENT AREA 6 IMPROVEMENTS D II 67,800 TIF, MSA, GF 26) IMPLEMENT MARINA ACCESS ROAD C II 95,300 TIF, GOB, ASS/UC IMPROVEMENTS SUBTOTAL $2,732,700 27) GENERATE TOPOGRAPHICAL MAPS S III 45,000 TIF, GOB, GF AREA 7 28) IMPLEMENT AREA 7 IMPROVEMENTS C III 2,305,120 TIF, MSA, PAD, SWTD, ASS/UC, GOB SUBTOTAL $2,350,120 29) DEVELOP TOPOGRAPHICAL MAPS S III N/A TIF, GOB, LAW KOLLINER PARK & AIPLE PROPERTY 30) IMPLEMENT AIPLE PROPERTY C III N/A TIF, GOB, LAW, GF, F/CG IMPROVEMENTS 31) IMPLEMENT KOLLINER PARK C III N/A TIF, GOB, LAW, GF, F/CG IMPROVEMENTS 32) RE-EVALUATE PARKING DEMAND S III N/A TIF, GOB, LAW, GF (AS NEEDED) 33) IMPLEMENT "OVERLOOK PLAZA" C SPEC PROJ 114,900 TIF, LAW, F/CG 139 STILLWATER DOWNTOWN CAPITAL IMPROVEMENT SEH FILE NO: 87119 PAGE 4 WORK TASK CLASS PHASING COST EST POTENTIAL FUNDING SOURCES 34) IMPLEMENT "PIONEER PARK PLAZA" C SPEC PROJ 99,800 TIF, LAW 35) IMPLEMENT "LOWELL PLAZA" C SPEC PROJ 101,500 TIF, LAW 36) IMPLEMENT "MILL PLAZA" C SPEC PROJ 162,300 TIF, LAW 37) IMPLEMENT "HISTORIC PLAZA" C SPEC PROJ 104,600 TIF, LAW 38) IMPLEMENT 2ND & OLIVE C SPEC PROJ 2,052,000 TIF, PAD, RB, GF, GOB, PARKING RAMP ASS/UC 39) IMPLEMENT "GRAND GARAGE" C SPEC PROJ 157,300 TIF, GOB, GF, ASS/UC PEDESTRIAN WAY 40) IMPLEMENT WATERFRONT LEVEE C SPEC PROJ 638,900 TIF, EDA, LAW, GOB, SPA, GF IMPROVEMENTS CLASSIFICATION 'FUNDING SOURCE ABBREVIATIONS S = STUDY GENERAL OBLIGATION BONDS = GOB D = DESIGN TAX INCREMENT BONDING = TIF C = CONSTRUCTION STORM SEWER TAXING DISTRICT = SWTD ASSESSMENT/USER CHARGES = ASS/UC SPECIAL LEGISLATIVE APPL. = SLA ECONOMIC DEVELOPMENT ADMIN. = EDA SMALL CITIES DEV. BLOCK GRANT = SCDBG LAWCON = LAW FARMERS HOME ADMINISTRATION = FHA PARKING ASSESSMENT DISTRICT = PAD PARKING RAMP REVENUE BONDS = RB METER REVENUE BONDS = RB MUNICIPAL STATE AID = MSA CITY GENERAL FUND/TAX LEVY = GF FOUNDATIONS/CIVIC GROUPS = F/CG 140 of property for public improvements at Mulberry Point, and parking structure, North Main Street Private Development timing, and results of sewer inspection, all -could affect project implementation timing. Public Improvement Areas To help describe capital improvement, the Downtown Planning Area is separated in eight public improvement districts, as shown on Figure 25. The districts were defined based on physical features such as the river, major streets or parking lots and type of proposed improvements. The size of the districts is manageable in terms of construction acti- vity and financing. Projects as described in the Capital Improvements program generally proceed from District 1 through District 8. Stages of Construction Capital improvement projects are implemented over a two-year period. First -year tasks generally include development of concept, feasibility, design and financing followed in the second year with construction. The stages of project imple- mentation of Capital Improvement Projects are described below. Concept - In concept stage alternative solutions are iden- tified and evaluated for consistency with the Downtown Plan Goals and Objectives and Design Concepts and Guidelines. Feasibility - During feasibility, pros and cons and costs and findings are refined, the feasibility study provides details sufficient to allow selection of a specific alter- native. Design - Detailed plans are prepared during the design stage. These details include technical specifications and specific information on construction sequencing and sche- duling. 141 ® Implementaton Phase — Implementation Phase Boundary ® Private Devebpment Site STILLWATER DOWNTOWN PLAN Figure 25 Implementation Phasing I�o �, L., f Financing - The financing program provides the fiscal tools necessary to implement the project in the following year. Construction - Construction will vary depending on work task. For example, implementation of the parking management plan may result in better. signing of short-term and long- term areas and opening private spaces to the public. Main Street streetscape improvements could include construction of sidewalks, curbs, gutters, pedestrian streetlights and replacement of underground water and sewer lines. 143 PART 3: PHASING Proper phasing of improvements maximizes funding and timing opportunities and provides maximum benefit to the community. In developing the capital improvement phasing sequence, an approach was taken that begins with small scale higher quality improvements and gradually increases the scale to gain credibility for the Downtown Improvement Program and to proceed generally from south to north with emphasis on improvements that will promote north/south and Main Street pedestrian movement, create a sense of open access to the river and address specific needs of localized developments (i.e., streetscape and utilities) while creating a homoge- neous downtown concept. Practical factors that were taken into consideration when phasing improvements include: A maximum of $1,300,000 of TIF is available for first phase improvements, Certain utilities improvements such as lighting and streetscape should occur simultaneously whenever possible to control costs and minimize disruption, Improvements in the right-of-way along North Main Street will react to private development as called for, Special projects can occur at anytime, dependent on availability of funds, Main Street reconstruction between Nelson and Chestnut must be delayed until new Highway 36 Bridge is constructed, Maximum benefits should be achieved by leveraging for City funds with private projects. 144 With these principles, projects were included in Phase I, II or III implementation sequence. Special projects were placed in their own category and could occur at anytime with any phase. Phase I year 1 and 2 improvements listed below include improvements to Lowell Park and the parking area between the railroad tracks and Lowell Park, parking management and financing plans, sewer line inspection, streetscape refine- ments and railroad cleanup. The total cost of Phase I year 1 and 2 activities is $618,100. With minor reductions, this is within the estimated TIF revenues available. Surveys/Studies o Study and recommendation for railroad trackage cleanup and pedestrian crossings o Generate topographic maps for improvement district 1 and 2 o Physical inspection of downtown sewers o Refine streetscape design elements section o Develop parking management plan o Develop future parking financial plan 145 2,000 12,000 20,000 9,100 5,000 4,900 $ 57,600 Design o Design improvement district #6 streetscape Construction/Implementation o Construct Lowell Park Improvements 5,900 $472,200 o Construct parking lot improvements for District #1 87,000 $ 5,900 $559,200 Phase I Total $618,100 Phase I year 3 and 4 improvements complete the work in Districts 1 and 2 by constructing Water Street parking lots along Water Street and the commercial and docking plazas. Phase II and III improvements and special projects described in the implementation program can be expected to be completed within ten to fifteen years. 146 PART 4: COSTS AND FUNDING Costs The Capital Improvement costs in Figure 24 are based on reasonable cost for construction of the design concept con- tained in the Downtown Plan, using 1988 dollars. The figures include engineering, administrative and legal costs. The costs do not reflect land acquisition costs, financing or interest charges, special permit studies such as environ- mental impact statements or outside funding by other public ,or private organizations. Funding Funding options are as varied as the types of improvements. Each funding source has guidelines that dictate what pro- jects can be funded. Funding for selected types of improve- ment projects is listed below: Tax Increment Financing - Public improvement/land acquisi- tion. LAWCON Grant Program - Park and Recreation Facilities. Special Assessments - Construction and maintenance of public improvements, i.e., parking/streetscaping/utilities. Parking Revenue District - Surface or structural parking. Since funding techniques may vary from year to year and pro- ject to project, a detailed funding strategy has not been developed, but will be a part of project implementation planning. Because of its importance to downtown improvement project funding, the Downtown Redevelopment District and tax increment financing is described separately. 147 Financing Plan for Downtown Improvements One of the first year tasks for the Downtown Plan Action Committee is to develop a long-range financial plan for capital improvements. Besides Tax Increment Financing there are several state and federal sources that should be explored. Approval of the Downtown Plan will make it easier to approach these agencies with specific ideas and requests for assistance. There are several major, local foundations that may be interested in assisting the City. The record of civic organizations is good regarding beautification of the Downtown. Lowell Park was originally donated and improved by a local businessman, and Kolliner Park for years was maintained by the American Legion. This tradition can again be called upon by the DTAC to help improve the Downtown. In developing a long-term financial plan, the following guidelines should be followed: o Seek widespread, community support and involvement in the design, financing and construction of Downtown improvements. o Maximize the effect of City improvements by coor- dinating them with private development and other public actions. o Relate costs of capital projects to benefits or service provided. o Obtain maximum state, federal, private and nonprofit organization assistance. Tax Increment Financing The need for Downtown improvements has long been recognized by the City. In 1985, the City established a Scattered Site Tax Increment Financing District to help provide funds for redeveloping Downtown. The Scattered Site District includes 148 parts of the Stillwater Industrial Park and most of the Downtown Planning Area. Designated scattered sites located within the district produce tax increment that can be used for redevelopment purposes. Figure 26 shows the Downtown District Area and scattered site parcels. Tax increment from the District started coming to the City in 1986. Since that time, $232,477 has been received. Tax increment funds can be used for public improvements i.e., streets, sanitary sewers, water mains, sidewalks, parks, parking lots and public plazas, land acquisition and site preparation. Tax increment that can be expected for the 1989 - 2010 period is estimated below. Reflecting recent construction trends, the increment will increase 90 percent between 1989 and 1990. Based on current planning approval and develop- ment plans, tax increment can be expected to increase in future years. The long-term financial plan can estimate future new increment and plan accordingly. ESTIMATED TAX INCREMENT FOR SCATTERED SITE DISTRICT 1989-2010 AMOUNT 1989 $ 193,571 1990 370,000 1991 370,000 1992 — 2010 7,100,000 Tax increment can support a certain leVel of bonded debt. A conservative estimate of supportable bond debt based on existing construction and tax increment indicates that $2,150,000 could be available to finance downtown improve- ments in 1990 using a ten-year bond according to the figures below. 149 z CEDARS ST. ST. CROIX RIVER }7; L••••••••• 18•1•• •,••1••1 M• •••1,1r=1•• ••••,=.• •••• • 1•••,111,•••••1 *1i MAIN SECOND ST. ST ST IrBROADW M."1 SECOND ST FOURTH FIFTH ST. ST, 0 FOURTH ST. FIFTH ST. Redevelopment Project Area 17; STILLWATER DOWNTOWN PLAN Figure 26 TIF Scattered Site Parcels ESTIMATED BONDED DEBT SUPPORTABLE WITH EXISTING DEVELOPMENT IN SCATTERED SITE TAX INCREMENT DISTRICT AMOUNT AT 10% 10 YEAR TERM AMOUNT AT 10% 15 YEAR TERM AMOUNT AT 10% 20 YEAR TERM 1,125 1,372 1,518 2,150 2,623 2,906 Using a twenty-year bond, as much as $2,906,000 could be available. The first -year financial plan can include recom- mendations regarding the use of existing TIF and benefits of bonding for improvements. 152 PART 5: RECOMMENDATION FOR ACTION To begin implementation of the Downtown Plan, it is recom- mended that the first -year implementation program activities listed below be approved for 1989 along with Plan adoption. Initiate Zoning Ordinance Amendments for: a Design guidelines and review process o New central business district, public administrative office, parks, recreation and open space and transpor- tation, utilities and parking, zoning districts o Reduction of residential densities for the area surrounding downtown o Revise downtown commercial and residential parking requirements Appoint Downtown Plan Action Committee and direct committee to: o Implement downtown spring cleanup o Develop long-term Downtown Capital Improvement Financing Program o Seek financial support from community groups for plan implementation o Study city/private ownership and operation of lift bridge o Explore relocation of Burlington Northern switching/ storage yard o Assist downtown business and organizations develop pro- motional program ' 153 o Participate with National Park Service to find location for Lower St. Croix Visitor Center o Evaluate downtown visitor center locations o Coordinate the development and design for Phase I capi- tal improvements (e.g., Lowell Park, Nelson Street, Streetscape design elements) 154