Loading...
HomeMy WebLinkAbout2008-11-10 CPC Packet - Part 2 - Draft Comp PlanCouncil and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update pp.ST ' PLANAll o��_.G CITY OF STILLWATER 2030 COMPREHENSIVE PLAN UPDATE Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Sections 1. Community Background 2. Natural Resources 3. Land Use 4. Housing 5. Historical Resources 6. Downtown 7. Economic Development 8. Parks and Trails 9. Transportation 10. Water Resources - Water Supply - Surface Water Management - Sanitary Sewer 11. Community Resources 12. Implementation Plan Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Community Background 3rd Draft October 16, 2008 Chapter 1- COMMUNITY BACKGROUND Introduction & Purpose The purpose of the background chapter is to understand the characteristics of Stillwater and the current qualities and challenges of the community. The comprehensive planning process considers the future of the community based on the characteristics of today. To help facilitate planning efforts it is important to understand the city's history, its current environment, and some of the trends affecting its future. The resulting baseline information has given birth to this community background chapter and has served as a guide upon which the other chapters in this plan have been developed. Much of this information was completed as part of the "Background Report" that was completed in May of 2007 and supplemented through the subsequent public forums. At the end of many of the sections in this chapter, the reader will find the heading, "Issues for the Comprehensive Plan." These issues were identified during the City's exhaustive program to update its 1995 Comprehensive Plan. They will provide direction for the other chapters in this 2008 plan. The City of Stillwater has seen many changes since the adoption of its previous Comprehensive Plan in 1995. The 2030 Comprehensive Plan, the name chosen for the 2008 update, will focus on planning for the next 20 years. Its actual life span will only be ten years, at which time it is required by the Metropolitan Land Planning Act to be updated again. Regional Setting The City of Stillwater is located in the eastern section of Washington County, the easternmost county in the Twin Cities Metropolitan Area. Stillwater is comprised of 8 square miles at the time of this writing, and is approximately 23 miles east of the St. Paul Central Business District (CBD) and 28 miles from the Minneapolis CBD. Stillwater is bordered by Stillwater Township to the north, the City of Grant to the west and the City of Oak Park Heights to the south. Stillwater's eastern border is the St. Croix River and the State of Wisconsin. The City of Stillwater was officially incorporated March 4, 1854, making it one of Minnesota's oldest cities. Stillwater is often referred to as the "Birthplace of Minnesota." In 1848, a territorial convention that began the process of establishing Minnesota as a state was held in Stillwater at the corner of Myrtle and Main streets. Lumbering was the predominant industry in the St. Croix River Valley in the second half of the 19th century, and for many years logs were sent down the St. Croix, collected at the St. Croix Boom Site two miles upstream of Stillwater, and processed in Stillwater's many sawmills. 1 3rd Draft October 16, 2008 Stillwater accommodates a wide variety of land uses that provide jobs, a diverse range of housing types, a variety of commercial opportunities and public amenities and parks. Stillwater is connected to the East Twin Cities Metropolitan Area primarily by Highway 36, Highway 5, and Highway 96. Highway 95 travels north and south along the St. Croix River connecting Stillwater on the north and Bayport on the south. Country Road 15 marks the western boundary of Stillwater. Planning History Stillwater was the first city in the State of Minnesota to create and adopt a comprehensive plan. This plan was adopted in 1918 during the City Beautiful movement, which was occurring throughout the United States. The plan emphasized parks, landscaped streets and parkways, civic centers and walkways, particularly along natural areas such as ravines, lakes, and the St. Croix River. Below is a list of the land use and master plans the City has undertaken over the years. • 1918 — First Comprehensive Plan Adopted • 1961 — Comprehensive Plan • 1979 — Comprehensive Plan • 1979 — West Stillwater Business Park Plan • Downtown Plans adopted in 1972 and 1988 • 1995 — Comprehensive Plan • 1996 — Comprehensive Plan Update; Annexation Area • 2000 — Comprehensive Trail Plan • Several neighborhood plans throughout the years Key Definitions A number of planning concepts are introduced and discussed in the following plan chapters. A glossary of key terms discussed in the Comprehensive Plan is presented below for clarification purposes. 2 3rd Draft October 16, 2008 Comprehensive Plan — A long-range plan intended to guide growth and development of a community with recommendations for the community's future economic development, housing, parks and open space, preservation of natural resources, community facilities, and land use. Future Land Use Plan — A plan within the Comprehensive Plan that guides the future use of property. In residential areas, the plan also guides the intensity of development by establishing densities (units per acre) for each residential land use category. Zoning Ordinance — The regulatory authority of the City to direct the use, placement, spacing, and size of land and buildings. Greenway Corridor — An overlay that maps high quality natural resources. The overlay is a tool that will protect natural features within the corridor while providing for an appropriate level of development and opportunities for public use such as a natural trail corridors. Clustering — A development design technique that concentrates buildings on a part of the site to allow the remaining land to be used for common open space and preservation of natural resources. Life -cycle Housing — Refers to housing of a variety of types, styles, price ranges, and services to accommodate a resident's life span. Senior Housing — Refers to housing that is age restricted, most commonly for persons 55 years and older. This category can include owner or rental -occupied housing and can range in price from market rate to affordable, and can include independent living or some level of assistance/services. Affordable Housing — Refers to housing that is either rental or owner -occupied. Housing units are considered affordable if priced at or below 30% of the gross income of a household earning 60% of the Twin Cities median family income. Community Survey The City of Stillwater conducted a community survey in 2006. This survey was sent out to a large sample of residents and business owners asking about their experiences living, working and playing in the city. The survey had a 60 percent response rate. The results showed that 81 percent of respondents indicated they are happy with their quality of life in Stillwater. The survey also showed that most residents feel safe in the city and that it is a good place to raise children. The St. Croix River, location of the city, and "my" neighborhood 3 3rd Draft October 16, 2008 were the top three responses when the survey asked what people liked most about Stillwater. Growth and development, traffic congestion and taxes were the top rated concerns. Metropolitan Council & Stillwater's 2030 Planning Process In 1967 the Minnesota Legislature created the Metropolitan Council to coordinate the orderly development of the seven -county metropolitan area. Minnesota law requires every municipality and county within the metropolitan area to prepare and submit a comprehensive plan to the Metropolitan Council that addresses all required components of the 2030 Regional Development Framework and the City's plan must be consistent with the Metropolitan Council's system plans. To assist local governments in this effort, the Metropolitan Council issues a "Systems Statement" to each community that describes the specific areas that must be addressed as part of the local comprehensive plan. The City of Stillwater received its revised Systems Statement in September 2005 and is required to submit its 2030 Comprehensive Plan to the Metropolitan Council by the end of 2008. The city's 2030 Comprehensive Plan will focus on conformance with metropolitan plans for transportation, water resources, wastewater services, housing, land use, regional parks and open space. The city's plan will be reviewed for consistency with Metropolitan Council policies and plans and compatibility with adjacent and affected government units such as Washington County, cities of Oak Park Heights and Grant, Stillwater Township, Stillwater Area Brown's Creek Watershed District, school districts, and the middle Saint Croix Watershed Management Organization. The city will also need to coordinate planning efforts with government agencies such as the Minnesota Department of Natural Resources (DNR), Minnesota Department of Transportation (MnDOT) and the Minnesota Pollution Control Agency (MPCA). The City of Stillwater is classified by the Metropolitan Council as a "developed" community (Figure 1). The Metropolitan Council defines a "developed" community as 85 percent developed or more at the end of 2000. Stillwater needs to plan for 20 years of growth and identify post-2030 growth areas. Stillwater also needs to plan for a community -wide transportation system. Improved connections need to be made between transportation, transit, pedestrian and bicycle facilities and land uses, and the city needs to improve transportation connections and identify transit opportunities. Metropolitan area communities must plan to accommodate life -cycle and affordable housing. Lifecycle housing refers to the mix of housing types that meet the housing demands of individuals and families throughout their lives, such as single family detached, townhomes, condominiums, apartments, and senior housing. Affordable housing refers to housing that a low to moderate income household could afford without spending more that 30 percent of its household income. 4 3rd Draft October 16, 2008 The Metropolitan Council's definition of low -to -moderate income household is a household that makes 80 percent of the Twin Cities metropolitan area median income for owner occupied housing and 60 percent of the Twin Cities metropolitan area median income for rental housing. The Twin Cities metropolitan area median income is $54,304; therefore, 80 percent of the median income is $43,443, which translates into a $201,800 owner -occupied home. The Metropolitan Council prepared a report in 2006 that determines the affordable housing need in the region between 2011 and 2020 based on household growth potential, ratio of low -wage jobs to low -wage workers, current provision of affordable housing, and transit service. Based on this methodology, the Metropolitan Council's affordable housing goal for Stillwater is to accommodate 142 affordable housing units between 2011 and 2020. Also the Metropolitan Council requires that developing communities conserve, protect, and enhance natural resources by doing the following: • Conduct natural resource inventories • Adopt natural resource conservation techniques • Prepare local stormwater management plans • Include natural resources in the local park system • Implement Best Management Practices The Metropolitan Council will then review the city's plan for conformance to all metropolitan system plans, for consistency with requirements of Metropolitan Land Planning Act and for compatibility with the plans of adjacent jurisdictions, including school districts. 5 3rd Draft October 16, 2008 Figure 1 — 2030 Framework 2030 Framework Planning Areas Stillwater — "Developed" January 14, 2004 rtl NOTE: Please refer to the Comprehensive Plans Composite map or the Regional Systems maps for the most recent information. These maps are available at the Metropolitan Council Data Center (651) 602-1140. Geographic Planning Areas Urban Planning Areas Developing Area Developed Area Rural Planning Areas Rural Center Agricultural Diversified Rural Rural Residential Additional Information /VA, Regional Natural Resource Areas (includes Terrestrial and Wetland Areas) SOURCE Metro DNR in coordination with the Metropolitan Council Regional Park •Proposed Regional Park tt Metropolitan Council Regional Trail ..... Transit 2025 Corridor Principal Arterial Open Water 6 3rd Draft October 16, 2008 Demographics The demographic information was collected by utilizing information from the 1995 Comprehensive Plan, Metropolitan Council forecasts and 2000 Census data. Information is gathered and displayed in a number of tables. Table 1 shows historical census population of the City. The table also includes Metropolitan Council population forecasts made in April 2005 for 2010, 2020 and 2030. Table 1 - Population History and Forecasts Actual Estimate Forecasts* 1970 1980 1990 2000 2005 2010 2020 2030 Stillwater 10,196 12,290 13,882 15,323 17,429 19,100 21,300 19,900 increase x 20.54% 12.95% 10.38% 13.74% 9.59% 11.52% -6.57% Washington 82,948 113,571 145,896 201,130 224,857 258,502 316,043 365,570 County Increase x 36.92% 28.46% 37.86% 11.80% 14.96% 22.26% 15.67% Source: 2000 LI S Census, 'Metropolitan Council forecast estimates, April 1, 2005 Stillwater grew from 13,882 persons to 15,323 during the 1990s. It is forecasted that the population of the city will grow by 2,471 people between 2005 and 2030. Table 2 shows the age breakdown of the city and county population. 7 3rd Draft October 16, 2008 Table 2 - Age of Population, 2000 0-4 5 to 9 10-14 15-17 18- 24 25 - 34 35 - 44 45 - 54 55- 59 60- 64 65- 74 75- 84 85+ Total Stillwater 991 1,164 1,303 1037 651 1,738 2,626 2,469 852 519 864 617 312 15,143 65% 77% 86% 68% 43% 11.5% 173% 163% 56% 3.4% 57% 41% 2.1% 100% Washington 15,346 16,946 17,037 14,564 9,058 27,341 38,877 30,210 9,850 6,634 8,830 4,782 1,655 201,130 Co. 76% 84% 8.5% 72% 45% 13.6% 193% 150% 49% 3.3% 44% 2.4% 08% 100% Source: 2000 US Census About 58 percent of Stillwater's population in 2000 was between the ages of 18 and 64. Persons between 0 and 18 years of age were the second largest group making up about 30 percent of the total population. Stillwater's senior population made up 12 percent of the population. The age distribution between the city and county is relatively even, with Stillwater having a slightly larger percentage of seniors. The City of Stillwater had a slightly lower percentage of people than Washington County in the family formation stage of life, ages 25 to 44. Table 3 presents the historical household growth of the community and the county and like Table 1, includes a 2005 estimate and forecasts for 2010, 2020, 2030 as determined by the Metropolitan Council. Table 3 - Households, 2000 Actual Estimate Forecasts 1990 2000 2005 2010 2020 2030 Stillwater 5,105 5,797 6,734 7,500 8,100 8,600 increase x 13.56% 16.16% 11.38% 8.00% 6.17% Washington Co. increase 49,246 x 71,462 4511% 81,645 1425% 97,729 19.70% 122,744 2560% 145,517 /8.55% Source: 2000 U.S. Census, Metropolitan Council 3rd Draft October 16, 2008 Stillwater presently has a slower growth rate than the county, increasing by approximately 117 households per year between 1990 and 2005. The city added 815 households in the 1990s. The forecast shows that Stillwater will be adding an additional 1,866 households between 2005 and 2030. Table 4 displays the racial makeup of Stillwater and Washington County. The city is predominately white with 97.5 percent of the population identifying themselves as white. Table 4 - Race Stillwater Washington County Race Number Percent Number Percent White 14,767 97.5 188,317 93.6 Two or more races 141 0.9 1,760 1.4 Asian 86 0.6 4,297 2.1 Some other race 55 0.4 1,216 0.6 Black or African American 48 0.3 3,689 1.8 American Indian and Alaska Native 43 0.3 785 0.4 Native Hawaiian and Other Pacific Islander 3 0 66 0 Source: US Census, 2000 In addition to the age of the community, the educational attainment level also influences the community. Table 5 shows the educational attainment levels in the community. This information contributes to the local economy, influences economic development and also suggests potential demands of current residents. About 25 percent of the population has only a high school diploma. Nearly 27 percent of the population went on after high school and attended some college. Another 27 percent, after high school, completed a bachelor's degree. 9 3rd Draft October 16, 2008 Table 5 - Educational Attainment Stillwater Washington County Population age 25 years and over Population Percent Population Percent Less than 9th grade 118 1.2 1,982 1.5 9th to 12th grade, no diploma 393 3.9 5,684 4.4 High school graduate (includes equivalency) 2,468 24.5 33,378 26 Some college, no degree 2,690 26.7 33,126 25.8 Associate degree 626 6.2 10,617 8.3 Bachelor's degree 2,730 27.1 30,015 23.4 Graduate or professional degree 1048 10.4 13,413 10.5 Total 10,073 100 128,215 100 Percent high school graduate or higher (x) 94.9 (x) 94 Percent bachelor's degree or higher (x) 37.5 (x) 33.9 Source: US Census, 2000 10 3rd Draft October 16, 2008 Land Use and Growth Management The purpose of the land use inventory is to identify existing development in the city. From this inventory, and the other background information that is compiled, areas of potential development or redevelopment can be analyzed. The inventory can also help classify areas, revealing development patterns, densities, and trends that can provide direction for future development and redevelopment. Existing Land Use The current acreage of the City is approximately 5,124 acres. A large portion of the city is dedicated to single family residential uses. The city also has a significant amount of land classified as open space. Table 6 identifies the existing land uses within the city and the percentage of the overall land which is dedicated to that specific use. Figure 2 shows the existing land use in the City of Stillwater. 11 3rd Draft October 16, 2008 Table 6 - Existing Land Use, 2007 Existing Land Use (Not Including Acres Percent of Total Planned Annexation Areas) COMM LAND & BLDGS 333.77 6.5% INDS LAND & BLDGS 18.78 0.4% INSTITUTIONAL 271.03 5.3% OPEN SPACE 177.48 3.4% .: akokQpq�o PARK, TRAIL & RECREATION 692.79 13.5% RES 1 UNIT (Single Family Homes) 1,668.20 32.6% RES 2 UNITS 28.99 .56% RES 3-4 UNITS 44.52 .86%0 RES MORE THAN 4 UNITS 91.82 1.8% RESIDENTIAL, Misc 65.24 1.3% ROAD Right -of -Way 812.32 15.8% VACANT 175.07 3.4% Open Water 693.61 13.5% Wetland 50.61 1.0% Total City 5,124.22 100.0% Source: Bonestroo 12 FA I " �Ilw, I:JiM� i 2008 Comprehensive Plan 1,600 Feet 0 0 co 0 0 co +, N • c C N D D V + i C � N (7 V f6 04 f6 f6 f6 NQ) Q)Q) MMQ) Q) Q) LL LPL LPL 6LNN6LNN Commercial ii' Industrial Institutional 1 Right -of -Way Vacant or Agricultural 00 0� GJ 0 CO 'D g it /510/51007001/gisfmapsfExisting Land Use mxd big II .I 'n MME II �� Lur■I NiMir / ��rini ■ 111II i1i nor l j1�- !! 1111 ■■ 1111� ■ a :■ ii II ea a. oho ®!I,0,1111 rid ■111�0 00011 1111 II1�11 111�1 sm. ■1111111 111■IIIP■� ■ 111■ .9! _ ■ 1 1111111 :1•�� • * _ Ty =i' pois111mI 'i I '� pow iI 3rd Draft October 16, 2008 Table 7 shows the land use as it existed in 1994. Single family residential uses were the dominant use with 35 percent. Parks and open space consisted of almost 14 percent of the city's land. The 1994 and 2007 existing land use tables use different land use categories but some simple comparisons can still be made. Single family residential uses made up about 35 percent of the city in 1994 and 2007. Open space and right-of-way rounded out the top three land use categories in each year as well. Agricultural land showed a significant decrease of more than 162 acres between 1994 and 2007. Table 7 - Existing Land Use, 1994 Land Use Acres Percent One Family 1,960.4 35.4 Parks & Open Space 759.1 13.7 Street Right -of -Way 744.8 13.4 Vacant Parcels 602.8 10.9 Agricultural 407.1 7.3 Public & Tax Exempt 344.5 6.2 Lakes and Streams 324.6 5.9 Commercial 211.8 3.8 Two Families 78.2 1.4 3 or 4 Families 41.2 0.7 Larger Multi -Family 39.8 0.7 Industrial 27.1 0.5 Group Quarters 3.3 0.1 Total 5,544.7 100 Source: 1995 Comprehensive Plan 14 3rd Draft October 16, 2008 Existing Zoning Stillwater's current zoning ordinance establishes 22 zoning districts. Below is a description of the zoning districts in the city. Residential The City has thirteen residential zoning districts. A number of these districts are intended to provide for primarily single-family detached housing, with varying degrees of design guidance. Some of these districts relate to specific developments within the City. These single-family districts include: Agricultural Preservation (AP), Lakeshore Residential (LR) District, Cove Traditional Residential (CTR) District, Traditional Residential (TR) District, One -Family District (RA), Cove Cottage Residential (CCR) district, and Cottage Residential (CR) District. Other districts provide regulation for two-family to multi -family residential development. Some of these districts also include specific design guidelines and are limited to certain geographic areas of the City. These include: the two-family district (RB), the low density multiple -family residential district (RCL), the medium density multiple family residential district (RCM), the townhouse residential district (TH), the cove townhouse residential district (CTHR), and the high density multiple -family residential district (RCH). Commercial The General Commercial district (CA) allows for all widest range of retail businesses, including supermarkets; small bakeries, departments stores, restaurants, beauty shops, office buildings, hotels, funeral homes, auto sales, recreational facilities, and transit stations. The Village Commercial District (VC) provides for a local center for convenience shopping and personal services primarily in proximity to a residential neighborhood. The Central Business District (CBD) encompasses the downtown area and includes uses that support a variety of general community commercial and entertainment uses. In addition to the CA, VC and CBD districts there are also three business park districts: Business Park - Commercial District (BP-C), Business Park - Office District (BP-0), and Business Park - Industrial (BP -I) allows for business parks, professional offices and light industrial of different intensities and uses in various areas of the city. Special Districts The Campus Research District (CRD) provides for a mix of office, research and development and light manufacturing uses with limited retail and service uses in a planned business park setting designed to provide for low -density, high -quality development with increased amenities and open space. 15 3rd Draft October 16, 2008 The purpose of the public works facility district (PWFD) is to provide a district for public works facility uses. The purpose of the Public Administrative Offices district (PA) is to provide a district for public and semi-public offices and other uses. Overlays The floodplain overlay district (FP) provides regulation for structure within floodplains. The Saint Croix River (SCR) overlay district provides regulation for development within the river corridor. The Shoreland Management Overlay district provides regulation for development near lake shoreland. The purpose of the neighborhood conservation district (NCD) is to help preserve the traditional neighborhoods in Stillwater. Implementation of the Comprehensive Plan By law, zoning must correspond to the adopted Comprehensive Plan of the city. Table 8 shows Stillwater's future land use categories and the corresponding zoning districts used to implement those categories. 16 3rd Draft October 16, 2008 Table 8 — Future Land Use Categories and Corresponding Zoning Future Land Use Categories Corresponding Zoning Districts' SRR, Semi -Rural Residential < 0.4 units/acre AP, Agricultural Preservation 0.1 units/ac LDR, Low Density Residential 1- 4.4 units/acre RA, One Family 4.4 units/ac TR, Traditional Residential 4.4 units/ac LR, Lakeshore Residential 2.2 units/ac CR, Cove Traditional Res. 3.1 units/ac LMDR, Low -Medium Density Residential 4.4 9.7 units/acre CCR, Cove Cottage Res. 4.4 6.2 units/ac RB, Two Family 5.9-8.7 units/acre CR, Cottage Residential 7.3-9.7 units/ac MDR, Medium Density Residential 6-14.5 units/acre TH, Townhouse 8.7 units/ac CTHR, Cove Townhouse Res. 14.5 units/ac RCL, Low Density Multi -Family 6.2 units/acre HDR, High Density Residential 12+ units/acre -no max. RCM, Medium Density Multi -Family 15.6 units/ac RCH, High Density Multi -Family 29.0 units/ac NC, Neighborhood Commercial VC, Village Commercial, CA, General Commercial COM, Commercial CBD, Central Business District BP-C, Business Park Commercial BP-0, Business Park Office BPI, Business Park/ Industrial BP -I, Business Park Industrial IB, General Heavy Industry CRD, Campus Research & Dev. RDP, Research & Development Park CRD, Campus Research & Dev. INST, Institutional PA, Public Administrative Offices PWF, Public Works Facility �`' ,, PR, Park & Recreation LR, Lakeshore Residential CTR, Cove Traditional Residential RA, Single Family Residential TR, Traditional Residential CCR, Cove Cottage Residential RB, Two Family Residential CR, Cottage Residential TH, Townhouse, Cove Townhouse RCL, Low Density MF RCM, Medium Density MF RCH, High Density MF WA, Water Water OS, Open Space RAIL, Railway Railroad ROW, Right -of -Way Right -of -Way i Densities represent the maximum permitted in district. Corresponding zoning district means that the future land use might be appropriate in the district if compatible with surrounding properties. 2 3 Park and recreation includes public and private property used for park and recreation uses. Open space does not include parks, cemeteries, trails, golf courses, etc. It includes undeveloped property that is ravine, shoreland, river islands, steep slopes, creek, or bluff. 17 3rd Draft October 16, 2008 Special Studies There are a number of studies that have been completed since the 1995 Comprehensive Plan update. The results of these studies have been incorporated into the 2008 update document. A summary of these studies can be found in Appendix C. 18 3rd Draft October 16, 2008 Trunk Highway 36, TH 95 and Downtown Stillwater --Existing Conditions and Proposed St. Croix River Crossing Trunk Highway 36is a four -lane divided expressway that connects the Twin Cities and northern St. Paul suburbs with Stillwater and Oak Park Heights. It is classified as a principal arterial, a National Highway System (NHS) route, and one of Minnesota's Interregional Corridors (IRC). TH 36 is an important facility serving the region's population and businesses, as well as providing linkages to recreation areas in Washington County and Wisconsin. Near the St. Croix, TH 36 turns north and merges with TH 95 (Main Street), a minor arterial. It narrows to a two-lane roadway as it enters Stillwater's downtown, and becomes an urban collector street. The narrower street and its substandard turning radii restrict traffic flow to one lane in each direction, and limit the effectiveness of traffic signal operations. It also limits the ability of large vehicles such as trucks, buses, and recreational vehicles to make turns at intersections. Pedestrian traffic also conflicts with vehicle movements, particularly on busy summer weekends. Traffic is particularly congested at Main Street and Chestnut, where TH 36 turns and crosses the Stillwater Lift Bridge to Wisconsin and connects to Wisconsin State Trunk Highway 64. The Supplemental Draft EIS for the St. Croix River Crossing Project notes the following concerns related to current traffic conditions on TH 36: • Volumes on TH 36 in the upper bluff area near the St. Croix River are approaching capacity • The report noted failing levels of service at frontage road intersections along TH 36 between County Road 5 and junction with TH 95, indicating that they are operating at or over capacity. The distances between TH 36 and its frontage roads in the area between Washington Avenue and Osgood Avenue are very short. This limits the capacity of the frontage roads, creates hazardous conditions and long traffic queues, and encourages local trips to travel on TH 36, unnecessarily occupying its capacity. • The capacity problems along TH 36 and through downtown delay emergency response for Lakeview Hospital, the Washington County Sheriff's Department and Stillwater Fire Department • The vehicle crash rate for TH 36 between the south junction of TH 36/TH 95 and at the east end of the Lift Bridge is about 90 percent higher than the average crash rate for two-lane urban trunk highways in Minnesota • It is difficult for bicycles and pedestrians to cross TH 36 in the upper bluff area 19 3rd Draft October 16, 2008 Between 1984 and 2000, traffic on TH 36 grew about 2 percent annually. The Supplemental Draft EIS for the St. Croix River Crossing Project noted that because of limited capacity into and out of Stillwater on TH 36 (particularly on 36/95 into and out of Downtown), traffic is diverting to other routes as volumes grow. Two of the popular routes for diversion include: • TH 36 to northbound Osgood Avenue/Fourth Street • TH 36 to northbound Greeley Avenue/Myrtle Street Lift Bridge In addition to being a historic icon, the Lift Bridge is a key component of the Stillwater area transportation system. It spans the St. Croix River, linking TH 36 and Stillwater to Wisconsin State Trunk Highway (STH) 64 and Houlton, Wisconsin. The bridge has two traffic lanes. The narrow lanes and geometrics of the Lift Bridge limit the speed of traffic traveling across it, and its ability to manage traffic after a crash or incident on the bridge. The bridge lifts 21 times daily between 8 a.m. and 10 p.m., and 22 times daily on weekends and holidays between 8 a.m. and midnight. Key concerns related to the Lift Bridge are identified in the St. Croix River Bridge Supplemental Draft EIS (2004) include the following: • Lift Bridge deck lifts cause substantial queuing throughout downtown Stillwater and up the bluff on the Wisconsin side. Long queues result in poor intersection level of service throughout downtown Stillwater, and lengthen peak traffic hours through the corridor. • MnDOT field observation indicates that traffic queuing during times when the bridge is raised may extend as far south as the TH 36/95 junction in Minnesota, and north up the bluff and through Houlton in Wisconsin. • During times of the year with high pedestrian volumes, the interaction between bridge lifts, vehicles and pedestrians reduces the capacity and operating efficiency of intersections and roadways, and creates hazards for vehicles and pedestrians • During bridge lifts, traffic diverts to local collector and arterial streets in seeking to minimize delay when traveling through Stillwater impairing local traffic congestion. During the summer of 2005, MnDOT closed the Lift Bridge for repairs. The agency monitored the impacts of traffic during the closure. Commuter traffic in Downtown Stillwater fell dramatically. 20 3rd Draft October 16, 2008 St. Croix River Crossing Background and Recommended Alternative MnDOT's discussion of the proposed new St. Croix River Crossing notes that: "Severe traffic congestion in downtown Stillwater, safety problems on approach roadways, and delays caused by the operation of the Stillwater Lift Bridge have spurred the discussion of a new bridge crossing in Stillwater for many years. "Rush hour" delays and weekend backups, especially during the tourist season, frustrate residents and visitors alike. "Development of downtown Stillwater and northwestern Wisconsin as tourist destinations, commercial development along Highway 36 attracting employees and residents throughout the region, development in Wisconsin, and the economic strength of the Twin Cities metropolitan area as an employment center have contributed to increasing traffic volumes on Highway 36, Highway 95, in downtown Stillwater, State Highway 64, and across the Lift Bridge." As owners and operators of the bridge, the Minnesota Department of Transportation (Mn/DOT) and the Wisconsin Department of Transportation (Wis/DOT) grew concerned about the poor condition of the Stillwater Lift Bridge and operation of the lift mechanism. Also of concern was the context in which this bridge and its adjoining roadways sit. The U.S. Congress has designated the St. Croix River as a National Wild and Scenic River for its scenic, recreational, and geologic values. Several buildings in Downtown Stillwater, as well as the Lift Bridge itself, are listed on the National Register of Historic Places. Historic archaeological sites can also be found adjacent to the riverbanks - the site of early industrial and recreational activities. The river valley supports an abundance of wildlife and aquatic species, including several endangered species. The St. Croix River Valley is valued by residents and visitors alike for its combination of natural, historic, and scenic resources. Proposed solutions to the transportation problem considered alternatives to minimize potential negative impacts on these resources. Consideration of a replacement bridge crossing over the St. Croix River near Stillwater began in the early 1970s, but was not pursued because of a lack of funding. In the 1980s, Mn/DOT, Wis/DOT, and the Federal Highway Administration (FHWA) began working with the communities of Stillwater and Oak Park Heights in Minnesota, and St. Joseph Township in Wisconsin to identify possible solutions for a replacement crossing. The 1987 Scoping Decision Document/Final Study Outline for the Highway 36/State Highway 64 St. Croix River Crossing identified four broad corridors for a new river crossing both north and south of downtown Stillwater as well as two corridors in or near the downtown area. The 1990 Draft Environmental Impact Statement (EIS) analyzed three of these corridors, along with a "No Action" Alternative and a Transportation 21 3rd Draft October 16, 2008 System Management (TSM) Alternative, which examined various options to maximize use of the existing transportation system. In April 1995, Mn/DOT, Wis/DOT, and FHWA completed a Final EIS and Section 4(f) Evaluation for a replacement bridge about 6,300 feet south of the existing Stillwater Lift Bridge. A Record of Decision (ROD) was issued by FHWA in July 1995, and work began on the final design of the river crossing and the approach roadways. Right-of-way was acquired, and site preparation work was initiated. In 1996, the National Park Service (NPS) evaluated the project under Section 7(a) of the Wild and Scenic Rivers Act and found that the project, as proposed, would have a direct and adverse effect on the outstandingly remarkable scenic and recreational values for which the Lower St. Croix River was included in the National Wild and Scenic River System. As a result of this finding, federal permits from the U.S. Army Corps of Engineers and the U.S. Coast Guard could not be issued for the project, and the project was not allowed to proceed. In April 1998, the U.S. District Court upheld the NPS determination. In an effort to determine whether any crossing of the Lower St. Croix National Scenic Riverway was feasible near Stillwater, Mn/DOT and Wis/DOT completed an independent review of the project. Between June and September of 1998, Richard Braun, former MnDOT Commissioner, conducted extensive discussions and meetings with many individuals and organizations, and facilitated public meetings with the 21-member St. Croix River Crossing Advisory Group that included representatives from federal and state regulatory agencies, local and regional units of government, environmental groups, historic preservation groups, and chambers of commerce. Braun recommended a four -lane, deck -tied, steel arch bridge on an alignment 3,600 feet south of the existing Stillwater Lift Bridge. The proposed bridge would cross the river perpendicularly and would be shorter than the 1995 Final EIS Preferred Alternative. The alignment would also take advantage of an existing ravine on the Wisconsin bluff, thereby reducing potential impacts on the Lower St. Croix Valley. A large majority of the St. Croix River Crossing Advisory Group agreed that they could accept the Braun recommendations. Following the Braun process, NPS, FHWA, Wis/DOT, and Mn/DOT executed a Memorandum of Understanding (MOU) specifying the intention to use the Braun recommendations as a basis for a new bridge crossing alternative that would be evaluated in a Supplemental EIS. The agreement also stated that the NPS Section 7(a) review for this alternative would be completed concurrently with the Supplemental EIS. The Supplemental EIS was completed in 2004, and concurred with the recommended alternative. The new crossing and proposed improvements to TH 36 are expected to improve traffic conditions through Downtown Stillwater and along the TH 36 Corridor. 22 3rd Draft October 16, 2008 At the time of this writing, the proposed location of the new bridge is 6,300 feet south of the existing Lift Bridge. The Braun alternative is no longer being considered. This was the preferred alternative selected in June 2006. Construction of the new bridge and related improvements is anticipated to begin in 2013 but could be beyond this start date. In addition to the new St. Croix River Bridge, the project would include the following: • TH 36 would be converted to an access -controlled freeway between TH 5 and TH 95. • The Lift Bridge will be converted to a bicycle/pedestrian facility • New multi -use pedestrian and bridge paths will be added along the TH 36 frontage road system, along TH 95 from Downtown Stillwater, on the north side of the new bridge, and connecting the new bridge to STH 35 in Wisconsin. A loop trail system would be created between the Lift Bridge and the new river crossing that would be connected to the larger regional trail system. • The Lift Bridge will still operate to allow passage for navigational and recreational boats, however the schedule could be different from the current schedule. Issues for the Comprehensive Plan and Downtown Plan: • Construction of the new St. Croix Bridge and closure of the Lift Bridge will positively reduce traffic flows in Downtown Stillwater, and will provide opportunities to improve the pedestrian environment. How should the Downtown Plan and Comprehensive Plan anticipate these changes and address them? • How should the plan respond to the proposed new pedestrian and bike trails that are planned with the new St. Croix Bridge and on the Lift Bridge? How should the design for parks and trails on the Stillwater Riverfront respond to these opportunities? 23 3rd Draft October 16, 2008 Major Roadways in Greater Stillwater Trunk Highway 36 Subarea Study, Washington County The Washington County Department of Transportation, MnDOT and local communities completed a transportation planning study of the State Trunk Highway (TH) 36 corridor between 1-694 in Oakdale to TH 5 in Stillwater and Oak Park Heights. The purpose of the study was to complete a plan for the future needs and preservation of options of TH 36 and local and county -state aid roadways located in the area around TH 36. The recommended plan was based on roadway operating efficiencies, access evaluation, safety, and land use development patterns. Recommendations of the plan include the following: • Grade separated interchanges at Manning Avenue and Hilton Trail • Overpasses at DeMontreville Trail and Lake Elmo Avenue • Consolidation or closure of remaining street access points to TH 36, and reorientation of these access points and all direct property access to TH 36 via support roadways Members of a Corridor Management Team are working together as opportunities arise to implement the recommendations in the plan. The Team includes MnDOT, Washington County and the affected municipalities. The first implementation step in the plan occurred in 2005-06, with installation of a traffic signal at the intersection of Lake Elmo Avenue and TH 36. Manning Avenue In 2008, Washington County is constructing improvements to Manning Avenue from TH 36 to mile north of CSAH12. The improvements will include upgrading Manning Avenue to a 4-lane roadway, adding medians and a trail on the east side of Manning Avenue. The County's Capital Improvements Plan indicates that Manning Avenue is proposed to be improved north of the current project area to TH 96 in 2011 if funding is available. Stillwater AUAR (1997) The Traffic analysis included in the AUAR estimated trips that would be generated by the proposed land uses in the area at full -development (2015) on a daily and peak -hour basis. The analysis identified the potential impacts to existing roadways in the area, and included recommendations 24 3rd Draft October 16, 2008 for improvements to handle the impacts in the Mitigation Plan. Key elements of the analysis and Mitigation Plan included the following: • The proposed land uses in the Annexation Area were projected to generate approximately 23,000 net new vehicle trips on an average day • The projected traffic levels were consistent with those projected in the Washington County Comprehensive Plan and City of Stillwater Transportation Plan • Development plans should include north -south access routes to existing east -west streets. New access intersections to County 15 should be avoided. • Site plans that provide for north -south access to intersect with east -west streets (e.g. McKusick, CSAH 12, 80th and Boutwell Road) should also be required to provide appropriate turn lanes on the east -west streets at the new public access intersections • North -south collectors should be planned with development to allow traffic to move from the business park and commercial areas along TH 36 to residential areas on the north without using arterial roadways. • Private property access to County Road 15 and TH 96 should be avoided. • Public street intersections with east -west streets should not be spaced less than one -quarter mile. Access along TH 96 should be limited to 1/2 mile spacing. • Implement the County's Linear Park System Plan and the Stillwater Comprehensive Park and Trail plan in the Annexation Area. Issues for the Comprehensive Plan: • North -south connector(s) have not been implemented in the Annexation Area. Is there a viable option for a north -south collector(s), given the development that has occurred in the area? Should planning and improvements focus on enhancing the east -west routes as an alternative? (Transportation Chapter) • Should the role or status of some roadways change during the next 20 years (for example, County Road 12, which increasingly serves as a gateway to Stillwater from the west). (Transportation Chapter) 25 3rd Draft October 16, 2008 Transit and Alternative Modes of Transportation Transit service in the Stillwater Area includes regular express bus service and Dial -a -Ride bus service provided by Metro Transit and St. Croix Valley Transit. Metro Transit provides local and express service between Stillwater and Downtown St. Paul. Ridership in 2004 was approximately 300 passengers per day for the entire route, with 70 passengers per day from the Stillwater area. Metro Transit has identified TH 36 west of TH 5 as a future, bus -only shoulders facility. St. Croix Valley Transit currently provides Dial -a -Ride service, the St. Croix Circulator, in Bayport, Stillwater and Oak Park Heights, to St. Croix Mall and Target/Cub Foods shopping areas. Riders can transfer to the express bus serving Stillwater and Downtown St. Paul. There are no eligibility requirements for this service —anyone needing service can ride. There is one park and ride lot located in Stillwater that allows direct access to express bus services. The lot is located at the St. Croix Valley Recreation Center on Market Drive An informal car pool parking are also exists on TH 36 at Manning Avenue. Existing and proposed pedestrian and bike trails are discussed in the Parks and Trail chapter. Navigational and Recreational Boating The St. Croix River is used for navigational boating and heavily used for recreational boating. The former Minnesota -Wisconsin Boundary Area Commission conducted boating studies on the St. Croix from 1983 through 1997. The 1997 study provided the most recent data on recreational boating use of the Riverway: • Between 1989 and 1997, an estimated average of 310,600 people in 129,400 boats used the Riverway from Memorial Day weekend through Labor Day weekend for recreational purposes annually. • The area around the Stillwater Lift Bridge is one of the four river zones where most of the weekend and holiday peak use was found. The area just south of the Lift Bridge typically has the second -highest proportion of active watercraft on the river among all zones on the river. Many larger boats experience delays in traveling north of the Lift Bridge due to the limited schedule of openings, rather than operation "on demand." 26 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Natural Resources 3rd Draft October 14, 2008 Chapter 5 Natural Resources Introduction Stillwater's natural resources are among the defining features of the city. Balancing preservation of these features with remaining future growth is an important element of this plan, and has been articulated as a priority by city officials and residents. Effective planning that considers the natural amenities of the region is particularly important as several resources in the city are sensitive, and vulnerable to degradation or loss if impacted beyond their capacity to recover. The city's location along the scenic St. Croix River corridor makes it a desirable environment in which to live, and this contributes to strong growth pressures in the region. Water features are among the highest profile natural amenities within the city. Brown's Creek and the St Croix River are particularly valuable. The St. Croix River is part of the National Scenic River system, and draws visitors from throughout the region for boating, fishing, and other recreation activities along the river, river bluffs, and corridor. Brown's Creek is one of only seven DNR designated trout streams in the seven county Metro Area; this spring -fed stream supplies the cold, clean water necessary for trout habitat, and is particularly vulnerable to degradation resulting from land use changes. In addition, the springs that feed the creek often support unique, high quality wetland areas that have the potential to host rare or uncommon plant and animal species. Other important water features include two lakes-- Long Lake, and Lily Lake-- and the many wetlands found within the city including Lake McKusick. [The DNR classifies the body of water as a wetland. However, residents of Stillwater refer to it as "Lake McKusick". Therefore, the body of water will be referred to as "Lake McKusick" throughout this chapter, even though technically it is classified as a wetland.] Another important feature is Jackson Wildlife Management Area (WMA), at the northeast end of Long Lake. This includes a mix of wetland and upland areas that are environmentally sensitive, and which support rare species. Goals and Policies The City of Stillwater worked with citizens to develop natural resource and open space goals with supporting objectives and programs. The goals, objectives, programs and policies are the foundation of the plan, as they define what the community should preserve and protect when considering development. Goal 1: Create a natural resource open space system that preserves protects or restores environmental resources within the City. Goal 2: Use the natural resource open space system to connect open spaces, parks, activity centers, and neighborhoods. 1 3rd Draft October 14, 2008 Goal 3: Protect and enhance the St. Croix River as a natural open space system and recreation resource. Goal 4: Provide opportunities for enjoyment of natural resources within all areas of the community. A substantial list of goals and policies for natural resource protection can also be found in Section 7 of the City's 2008 Surface Water Management Plan. Objectives Preserve key scenic roadways, corridors and features and protect the visual beauty and semi -rural character of the road sides. Preserve, protect and/or restore natural features including: ravine areas, shorelands and bluff lands, tree stands and individual heirloom trees, slopes, wetlands, and wildlife habitat areas. Encourage natural drafting systems to maintain the natural character of ravines and waterways. Maintain buffering and visual separation between developed areas and semi -rural areas. Policies Policy 1: The city shall allow limited controlled public access to sensitive habitat areas or areas that could be impacted by public access. Policy 2: The city shall identify and protect neighborhood open space sites of aesthetic, recreational or natural resources value in preparing neighborhood plans. Policy 3: Require special landscaping of all scenic routes. Policy 4: Coordinate scenic route improvements with roadway improvements. Policy 5: Encourage the City of Grant and Stillwater Township to use the rural cluster concept in areas adjacent to the City of Stillwater to maintain open space/recreation opportunities. Programs Program 1: Maintain inventory of all ravines and remnant lands in the existing City and develop a policy regarding ravine management that balances ravine usage amongst natural resource protection, public utility and open space/recreation opportunities. Program 2: Review ownership of ravines and remnant land and obtain control over such lands through fee ownership, open space easement, and utility easement or resource protection regulations. Program 3: Develop environmental education programs in natural areas to study plant and animal communities. 2 3rd Draft October 14, 2008 Program 4: Identify key scenic roadways and corridors. Program 5: Make sure open space resource areas including sensitive natural resource areas are identified and incorporated into development design. Review of Existing Natural Resources Natural areas According to the original land survey notes (compiled in Minnesota between 1853 and 1856) at the time of European settlement, the vegetation of what is now eastern Washington County was comprised primarily of oak openings and barrens. This area also included small intrusions of Big Woods -Hardwoods (oak, maple, basswood and hickory) and prairie. Based on these notes, it is apparent that the city of Stillwater supported large areas of Oak Opening vegetation throughout the majority of its area along with Big Woods -Hardwoods in the southwest, and prairie found in the southeast portion of the city along the St. Croix River corridor. (Presettlement Vegetation Map) Today, examples of this historic vegetation (as identified by the DNR's Minnesota County Biological Survey (MCBS), and by the Natural Resources Inventory (NRI) completed between 2002 to 2007) are preserved in locations scattered throughout the city. (Natural Resource Features and Corridors Map) Specific sites identified by the MCBS are as follows: • One Shrub Swamp (Section 21) • One Mixed Hardwood Swamp Seepage Subtype (Section 21) • Two Maple -Basswood Forests (East Central) (Sections 16, 20 and 21) • Three Oak Forests (Central) Mesic Subtype (Sections 21, 30 and 31) The NRI also identified several high quality natural areas. The majority of these are scattered throughout the City, and include wetlands or wetland complexes and their surrounding upland areas. In addition, a number of high quality forest remnants are found within the City. The MCBS data for Stillwater also lists rare plants and animals found during the assessment which include: • Bald Eagle (Haliaeetusleucocephaius) nesting site (Section 22) • Mussels Sampling Site (Section 27) • Colonial Waterbird Nesting Site for Great Blue Herons (Ardea herodias) (Section 22) • Rare plant occurrence of Kitten -tails (Besseya buiii4 (Section 21) 3 3rd Draft October 14, 2008 A Sedimentary Unit or Sequence (Cambrian, Ordovician) was also found during the MCBS survey. This includes Oneota Dolomite and Jordan Sandstone (Section 28) formations that are exposed due to a road cut within the city. These are among the defining features for Stillwater's natural resources and combined with the semi -natural areas and water features described below, form important linkages in the DNR's Metro Wildlife/Greenways corridor. 4 c L 7L 0 0 Ncn CD c .2) a..' CO z� U- 1,600 Feet 0 co O O O co Brown's Creek Diversion Channel Brown's Creek and Tributary Exceptional Quality Natural Area cc L cc Z 0 s 2 Moderate Quality Natural Area Low Quality Natural Area Semi -Natural Area DNR Site of High Biodiversity Significance DNR Site of Moderate Biodiversity Significance DNR Site of Low Biodiversity Significance Metro Wildlife Corridor Focus Area Right -of -Way Open Water a cc m 1:1510151007001Igislma ps/MLccsNatural & semi -natural areas.mxd e &ow* foo; 110 wt. ■ilmii - nn I En• H u li 11 III III 1 IIIIIIIII gi- To 4 41 11 PS I 4104 )11, r �iL Via M�alr D A- :Swo 3rd Draft October 14, 2008 MLCCS Land cover data has been collected as part of the Minnesota Land Cover Classification System (MLCCS) managed by the Minnesota Department of Natural Resources. This inventory identifies the types and amounts of land cover, vegetation and impervious surfaces, and is very useful in water and natural resources management. MLCCS data is available for the entire city and is shown on the "Natural Resource Features and Corridors" map. MLCCS classifies the natural area quality into four categories as well as semi -natural areas. Natural areas are dominated by native vegetation communities. Exceptional These are the highest quality natural communities with no disturbances and natural processes intact. High These are good quality natural communities with natural processes intact, but show signs of past human impacts. Moderate These are areas with obvious past disturbance but are still recognizable as a natural community. Low These are natural communities that are in poor condition with some native species but are dominated by non -natives and/or are widely disturbed and altered. Semi -Natural Areas "Semi -Natural Areas" are areas of land not subject to active use, and which are not dominated by vegetation native to Minnesota. Examples include fallow pasture or crop land which has been retired, degraded wetlands dominated by reed canary grass or other invasive species, and secondary growth or disturbed woodlands, typically dominated by boxelder, green ash, and/or basswood. These areas still can offer significant benefit for wildlife and for water quality protection, and often form important buffers around and connections between remnants of native habitat. As seen on the "Natural Resource Features and Corridors" map, these form a significant percentage of the open space and undeveloped lands within the city. Sites within the greenway corridors should be considered high priority for restoration. Steep Slopes Ancient geologic activity in the region created the predominant land forms in modern day Stillwater. The most recent glaciers left behind the St. Croix moraine creating a band of rolling hills. During the final retreat of the glaciers, meltwater flooded the St. Croix River for many years. The river cut downward, forming the cliffs and bluffs of the river valley. Side streams also cut downward to meet the new riverbed, creating the deep ravines visible in Stillwater today. Exposed bedrock, steep slopes and groundwater springs are common features in this area. Areas of steep slopes and there percentage of grade are shown on the map "Steep Slopes." 6 T; _......i._..m.lsT. _. _.._.._.._ JIL ES JO ._.IN _. ..._.._...r._.._....._.._.._.._.._.._.._...._._..._.._.._ _.._ ,- ' \ -_______,„,- im co U to 41611 CO e 11150r 1 mrl U � r � J0 CO Id041i ILL O14) ' N O m) �`LL OCOVI tf)ii r 000) d' r\i- Lo� i O Jr[ CO CO I CO 0 O,— cr --- A 1! N Alm co I cm 0o W IS c m • a Nr1 G; • M • fume// 1N Ul ,),-7''' ( m•rN ••�J..—. d' 777 N M D -N U M N • • N N 2008 Comprehensive Plan Ll 1,600 Feet E J U o u 00 O C) !• 0 La LL O N CO m U Cr V d' d' t V 1� O r M V CON 1� COU U cUD (D O O O O 1-V 1- V Lc)Ln Lc)N (D W W a N N N N co co co co co co coO r N CO CO U CO U❑ CO N V W V O N N rn N N N N. O 6) N CO CO 1- V V CO CO CO O O O O O N 1- 1- 1-(00 1- U) N U) U) 1-0 U) r r r N N M Cl CO CO M CO M CO V V V V V V V V m N CD CO o) O rn CO CO U m O d O m m m d O N N M M V N O • r M CO N In In CO 0) (D 0) N N r O O O O O O O N rr) u) In u) In u) rn u) u) O O N N CO NC O 0 r- 0 N U M ❑'0 N N d- d M • �.`►u U 0 •,u7• 0) 7 ate( •�•�„`••`•, St. Croix River y U cu.;r CO • N CO m` 0) W / 0 • 2! •' N 0 • i W N O N U m U) O 0 m M rn� r r,Fi+•..•• •■-■�- m 0 N 41 N v O M m rn N N m U N �� -777 ..\\_U rn 0) M N of CO O U kat 44 CO dt‘'' m rn r7 rn CO 0 U N — M O m � CO 1/1 N N` LL a •• CO N CO CO 77 U co CO C/ i0/ I ■ CO MEM MN -� :� U r L•. CO ti nl I }}U l M-u-u use • OaLel CO CO• CO if1 CO CO CO (NJ N O M -rpm• u7 ••—• U : O • N m 00 CO• r--o�\ U N- mr\�m N O LI cM M co ❑/ CO �❑ �-- ' m�U) N N Vj N r d' I { M � N to U 777 iU)C') CD _� (.0W I- r: (f m M in (o �Y W U m• M m J Et a m- ram) u'T __,,-r O O N CO N. /❑� CO CN 0 NLO . W a U CO O 7 0 N ❑ U m N M Lo W �O■ I t )1! d D O■ d)' ■ U rn m U \o M 0 N M CO d- N M/ / (D d' N M tr O O Ce W a 0 N r-• 0 N', N Q'� WI 'n W 0�� NVsl N u7 �( 7�-MM ce DCsCO NP-81i �El � \ 7 I/J1 N co O "zl— N (D U N �\ ✓mil N ��U �y (D� N N CO O'�d•-� / d- �1 M01 o N \\ r0 \ o « O � d- n� O d I (/ N CO • M00 O M o M Lo M ❑. ---------Si (r7 N CO (r) N �' �� /N�/N�� • o m��CO CO N MI CM d'� 7 !�co' M ON M CO d' N M. �m� m co'' m /(+7�(D tr7 MI CO � O❑ 0in- ci- r •(/— N' m N� • -, o"I CO M 0 m O ❑ --�` M (D m m m v N ■ • r 777 3rd Draft October 14, 2008 Soils Washington County Soil Survey The soils of eastern Washington County around the Stillwater area are predominantly undulating to steep, well drained, medium and moderately coarse textured soils. According to the Soil Survey of Washington and Ramsey County (USDA, 1980) the dominant soil types within the city of Stillwater include Urban land -Kingsley complex, Santiago, Kingsley and Antigo series. A map of soil types is shown in Figure_ Soils Map. The Soils Summary Table below shows all the soil types within the city. Soils Summary Table SOIL TYPE SYMBOL Copaston loam, 0-6% slopes 100B Udorthents, wet substratum 1027 Urban lands 1039 Aquolls and Histosols, ponded 1055 Brill silt loam 120 Santiago silt loam, 2-6% slopes 153B Santiago silt loam, 6-15% slopes 153C Chetek sandy loam, 12-25% slopes 155D Ronneby fine sandy loam 166 Braham loamy fine sand, 1-6% slopes 169B Gotham loamy sand, 1-6% slopes 177B Doreton-Rock outcrop complex, 25-60% slopes 1819F Mahtomedi Variant -Rock outcrop complex, 25-60% slopes 1820F Algansee loamy sand 1821 Barronett silt loam, sandy substratum 1847 Auburndale silt loam 189 Freeon silt loam, 1-4% slopes 264 Freer silt loam 266 Rosholt sandy loam, 1-6% slopes 302B Rosholt sandy loam, 6-15% slopes 302C Prebish loam 325 Kingsley sandy loam, 2-6% slopes 342B Kingsley sandy loam, 6-12% slopes 342C Kingsley sandy loam, 12-18% slopes 342D Campia silt loam, 0-8% slopes 367B Faxon silt loam 408 Crystal Lake silt loam, 1-3% slopes 449 Comstock silt loam 452 Demontreville loamy fine sand, 2-6% slopes 453B Demontreville loamy fine sand, 6-12% slopes 453C Mahtomedi loamy sand, 0-6% slopes 454B Mahtomedi loamy sand, 6-12% slopes 454C Mahtomedi loamy sand, 12-25% slopes 454D Mahtomedi loamy sand, 25-40% slopes 454F Barronett silt loam 456 9 3rd Draft October 14, 2008 Antigo silt loam, 0-2% slopes 49 Antigo silt loam, 2-6% slopes 49B Antigo silt loam, 6-12% slopes 49C Antigo silt loam, 12-18% slopes 49D Duluth silt loam, 1-6% slopes 504B Duluth silt loam, 6-12% slopes 504C Duluth silt loam, 12-25% slopes 504D Poskin silt loam 507 Seelyville muck 540 Cathro muck 544 Urban land-Copaston complex, 0-8% slopes 852B Urban land-Chetek complex, 0-3% slopes 858 Urban land-Chetek complex, 3-15% slopes 858C WATER WATER Water Resources Surface Water The city has a number of surface water resources. Defining resources include Long Lake, Lily Lake, Lake McKusick (actually a wetland), St. Croix River, and Brown's Creek. The St. Croix River is the eastern boundary of the city while Brown's Creek and its tributaries skirt portions of the city's northern and western boundaries. Lily Lake is found in the south-central portion of Stillwater while Long Lake is located in the southwestern portion of the city and Lake McKusick is near the center of the city. The St. Croix River is a very popular attraction for activities such as fishing and boating. Brown's Creek and its tributaries compose an array of wildlife and fisheries corridors which ultimately flow into the St. Croix River. Section 2.6 of the City's 2008 Surface Water Management Plan has a detailed narrative of the rivers, streams, lakes and wetlands. Public Waters The "Public waters" designation includes lakes, rivers, trout streams and other bodies of water that meet the standards described in Minnesota Statutes, Section 103G.005 , as well as wetlands classified as public water wetlands. Public waters wetlands include all Type 3, Type 4, and Type 5 wetlands that are 10 acres or more in size in unincorporated areas or 21/2 acres or more in size in incorporated areas. These sites provide public value for recreation, water quality or water supply, wildlife habitat, or are publicly owned. The DNR has regulatory authority over these areas, and specific rules are in place regarding the need for a permit or license to cross or otherwise impact these areas. The St. Croix River and Brown's Creek are public watercourses. Long Lake and Lily Lake are public water lakes. Lake McKusick, South Twin Lake, Jackson WMA, Brick Pond, and six other un-named wetlands are public waters wetlands. Figure 2.2 in the Surface Water Management Plan identifies these waters within the city. Wetlands Wetlands provide a number of valuable services to the community, including natural flood control, filtering, cleaning, and supplying water for both downstream water bodies and groundwater sources, and creating valuable habitat for fish, amphibians, waterfowl, birds, and other wildlife. 10 3rd Draft October 14, 2008 Economically, they are an amenity in many developments and can provide visual and spatial buffers between homes. The State of Minnesota and the Federal Government recognize the values that wetlands provide, and have created a series of rules that protect wetlands. In the State of Minnesota, nearly all wetlands are protected by the Wetland Conservation Act. Understanding the location of and providing adequate protection for these resources is an important consideration. There are several sources of information that can help in a preliminary determination of whether wetlands are present on a site, as described below. In all cases a review 11 OMEN n1111111 410 Er i NI 210 !■■ mom E. .illl. EN MI Mu II u'I I11111 N. �� ■1 f �l�tA �, ■111 I■ ■. l 1 !, gm I e 1111 11 I ■ Illlln■,11II I -1 L■ 111■■ III 1111111, 11n1111_ iiri111, �In11111 111 ring r-_ ■ ,� 4 AP Vr4 ` . nleii III 111 imie NNE o 1j1ii1 ,imeme num c4 "PI1 •■II V / 0 z 0 0 co /.i: I .iiii!J% T-1i iic!srsir M01:4121171[. ATAI Ui r..' ' II I 1i I I r•ther •.en Wate 000 0 m Vt IaIJ III!'tl 4 III x1�■�11I sip p - -1ii '■= EN n. Mm miniz— Elm mmmm _j III II 1 JIUJ"! EPP imri1' = 11 ‚II 1! is I■ 1 co EL N z L Q 0 co O O N 1,600 Feet O O oo O O O oo C) r 0 0 N C) d 0 0 in 0 m` 0 U (71 � � U • 0 } co 0 0 • E Q) I- J ❑ U Y ▪ 0 2 O CO'-00 in o ro I••j 0 L.� U N M rn rn rn N co co coco co p B Maintain 0 1r 2 0 Storm Pond / Golf Course 1 Drained / Filled / Non -Wetland No Access 41 I:1510I51007001Igislmapslwater resources wetland.mxd 1n udl111 I0 p 0 N • St. Croix River a 0 Imo ilI:IiUhal 1111! III■ did {III■: h nn ■1111111 o e es. 111IIIIIII 11 _N �.. p -:::I III , wig ■11lIII■■! , 1 i11 =1�;1 m — IIII Illr • 1<N no 10, n�41dMm 1■� 111 I um I . 1■■111 =1 cgs - ■ 111111111111 1 N i ■" o 00111 r1 mils N 0 p N p lm =p pi N 0 N N m lNrm N M Pet SI 11 is Oa 11 NM II II Lo NN p ip EEEEL 11110 WI al 4111 11 IN ■ is e■Em I III �h -1= I 1111�� ILII■1I h" fill■ HAM 1■1 II H n!'M IIII Q111 IHn, N OIL p� IV pN • \. 4111 4.31 e3 U1 N p 0 N N kry N N 00. i N N M 11111E ■I■= II 111 �1111 N N N0 -1 -■ d ■� p NN" i, Iry M /° o nNI IIIllni �11L M...1 •�� m m a�ry 1 L. p a_m n rAlitti Ill-1,1-,Ivirli M1.171 C S p 0 N n p ,Im ' N ; 11 mu ME MM ME I� 1 'II 1 .PSI III !II 'I! 1111 n ��■■•I11 II ■■■■=: ■II I ■ 111111 11111■1 111111 III■■ 11111 III 111■Illll ■11111111 ■:IIII■ ■11111111 111 II III. IN IN ■: -- MEM ■■ _■ Mm . IIII■ ■ IIII ■IIII �, III I111 1111111■ ■■ 11■ :11 :::IIII �� ❑ � Mil :::IIII II minimum ■:::IIII Ir-•• Emir ■0 /111111/ ■I1111111 /11111111 /11111111 1I1■■ 111111111 111■11 ■ 1 11■1111 1111111M /11111111 ■1111111 111111111 •:IIII: IIIII! 111/111111 1111111111 s I -:1=1 1 ■, IIIIIII■111111 111111111111 polo raA I ■L111 IIII II ✓N II la Om IMAM 111 ME booty 111 Tol 11111 I NE011 ■ .®p iII ■ Alimg WWI MI IS =N! - rm BA .I NIIIItlI mull NIIIII MEW tliI II lid lr 1.111 r •■ I101 . N 0 iIIII UW Inl.11,1 I Ty J J (0 I• .'N m "1/19 0 IIII ilti - yp m-ry Or 111.1IN — 11 ' M /N I V"• Mj i� 44411 0 ' A iiuiq ■itrom p M N 0 vv mtin N m m ii iont n'T II MN n p M NIMINMMME I almoms" Ira ommumr, m I 7 '6, Sigi!iii? orili 49 • MEMMEMEME mNommommomms 11) 3rd Draft October 14, 2008 by an experienced wetland professional is recommended and in some cases required, to make a final determination regarding the presence or absence of a wetland and determine the legal boundaries of any wetlands. Appropriate permits are required prior to any activities which fill, drain, or otherwise impact a wetland. National Wetlands Inventory The National Wetlands Inventory (NWI) is a national assessment of wetland resources, conducted by the United States Fish and Wildlife Service between 1988 and 1992 within the state of Minnesota. The NWI survey was based strictly on aerial photography reconnaissance and interpretation, and may be less accurate than some of the other sources. However, the NWI coverage is useful in giving an estimate of the extent (i.e. approximate geographic location) and type (i.e. system, hydrologic regime, and predominant vegetation types) of wetlands within the city. City of Stillwater Wetland Inventory and Assessment This wetland inventory was conducted throughout the city and included wetlands from three different watershed organizations or watershed districts within the city. These included Brown's Creek Watershed District (BCWD), the Middle St Croix Watershed Management Organization (MSCWMO), and Carnelian -Marine -St. Croix Watershed District (CMSCWD). The assessment focused on NWI wetlands which had not previously been checked by the watershed organization in which they occur. The exception was wetlands within golf courses which were either converted to water hazards or which appeared to be filled, and sites which were clearly storm ponds and removed from the inventory by city staff. These wetlands were then field verified and assessments were conducted on each wetland. Qualitative rankings were given based on criteria established by MnRAM and stormwater susceptibility. Wetlands were then assigned to different management classes according to the criteria for the governing watershed to establish rules for wetland protection and management based on the functions and values provided by each wetland. A map of the wetlands and their rankings is displayed in " Water Resources -Wetlands map" Floodplains are regulated by the city's Floodplain Overlay District with regulations to control development in flood prone areas and minimize losses. The Federal Emergency Management Agency (FEMA) administers the Federal Insurance Rate Maps (FIRM) for jurisdictions. The current FIRM maps were issued in 1982/84. These maps determine boundaries for purposes of flood insurance. These could vary from the 100 year or 500 year flood boundaries as determined by local watersheds. FEMA expects to release updated FIRM maps for Washington County in the near future. Groundwater Three main bedrock aquifer units are found in the Stillwater area. The uppermost bedrock aquifer is the Prairie du Chien -Jordan aquifer. This aquifer is comprised of the Prairie du Chien dolomite overlying the Jordan sandstone. High capacity wells are typically open to the Jordan formation, since the Jordan sandstone represents the portion of the aquifer with the highest permeability. Yields from Jordan wells typically range from 1000-2000 gpm per well. The next aquifer in the stratigraphic sequence is the Franconia -Ironton -Galesville (FIG) bedrock aquifer. Yields from the FIG aquifer are typically under 1000gpm per well, but may be much lower in the Stillwater area. 14 3rd Draft October 14, 2008 The highly variable nature of this aquifer across the metro area makes performance hard to determine without site -specific aquifer pumping data. Performance of the FIG aquifer in the eastern metro tends to be somewhat less than seen in areas of the northwest and southwest metro. The lowest bedrock aquifer unit, which underlies the FIG aquifer, is the Mt. Simon bedrock aquifer. The Mt. Simon aquifer can yield water supply in the range of 700-1500gpm per well. At present, the Minnesota DNR is restricting the development of new wells in the Mt. Simon aquifer in the seven county metro area, in order to prevent excessive withdrawals from this aquifer. The deep setting of this aquifer in the Twin Cities means that recharge to the aquifer is often slower than seen in shallower aquifers, such as the Jordan aquifer. Wells, if over -pumped, can often exceed the ability of the aquifer to become recharged, causing widespread drawdown of water levels within the aquifer. Cities that already have wells open to the Mt. Simon aquifer (such as Stillwater Well No. 1) are allowed to continue use of those wells, though they may not be allowed any increases in appropriations from those wells. Besides the bedrock aquifers, shallow drift aquifers are present within portions of the Stillwater area. Sample well logs from the Stillwater area show the drift aquifer does not appear to be fully saturated in all locations. Potential yields from drift aquifer wells may be sufficient for small capacity private wells, but would likely not be sufficient to support high capacity municipal wells. Management of groundwater in the Stillwater area should be focused on prevention of human - caused contamination from spoiling future water supplies. Figure _ displays Groundwater Sensitive Resource areas including sensitive recharge areas. Care should be taken around wetlands, fens, and other natural features that recharge the groundwater. The Jordan aquifer is heavily relied upon to supply the municipal water supply wells. As such, this aquifer should be the focus of efforts to prevent impacts from contamination. The Jordan aquifer is considered to be relatively high in vulnerability and therefore is likely to become contaminated if spills or leaks go unchecked. The vulnerability of the Jordan aquifer is witnessed by widespread contamination in the Baytown area, south of Stillwater. While this contamination is unlikely to impact Stillwater's wells, it demonstrates that a single point source can be responsible for contaminating large areas of the Jordan aquifer. At present, the City of Stillwater is developing part two of their Wellhead Protection Plan in order to manage potential sources of contamination. As future wells are added to the City's water supply system, the Wellhead Protection Plan will need to be expanded to encompass the areas that supply these wells. A side benefit of Wellhead Protection Planning is that it raises awareness in the community of the importance of groundwater protection in general. Overall efforts to protect the City's water supply wells should also result in greater protection to the aquifers that supply the area's private wells. Also, any efforts to expand the well field and/or increase the appropriations from the current municipal wells will require working in cooperation with the DNR to ensure that the impacts to the aquifer fall within acceptable levels. While the Jordan aquifer is thought to be highly productive in the Stillwater area, excessive withdrawals from the aquifer might impact sensitive natural resources that rely on groundwater. One example is the Brown's Creek trout stream, which runs through the Stillwater area. This trout stream is dependent on groundwater discharge to maintain 15 1,600 Feet O O oo O O O W Shrub Fen Black Ash Swamp Seepage Subtype Sensitive Recharge Areas Open Water I:/5101510070011gis/maps/groundwater resources.mxd (Ay EEED 1111 .-.... - . Lo 1T1�7_fl_CLC1_TT e_ a10 ao -141, . I ; to_ —1_ ...., r 14, rim n. I AN,A1 y 41=micabinitti i a 1 Immrdtg NM wom MN 1111. •�•�„`St. Croix River •`•,.••_ i IIII ml�� ■• • 11 I■■■111 11::1■■11: morass 111 I I I .. :.I. IN ■ ■■ J— II: NM IW Mil Aw' 1113A41•lm•1Plaa _e T 1 ■—ate 11_ L 1Ih �NI11 !111._ -111,fii9' H 1 111.1:M4 e/ r .111■ 111 ■_ 11 __ =1 11 111 - _--_ mmmmJ� != � __ 1111111/ 11._1111111.....j .:..... 1 111 �IIIII II 1.1,11 ��:- Id�IW1111� 4Prin11 I.1 II mil u ■ II��i:: m rxnlAli 113 VIP pa 1 00 .' O 0 0 U111111 ■IIIII 4011 041 1114 or" !IMP° ottlt 01 1010 seta 1= _- • -- 111 ■ Ng 11111E ■I.= -I H pillErm7:1 r.111. lIP Il AilfakAto 11- FJ'E i 'iii ._.._.ls 1111 :j NMI IIII' 111111 1E11111 Oro .. ME 11 Eli Ill■ :'1 'r ■ ■: ■ ■ II _■ ME 11 ImpI mi.- J: 7i1 04. �III:I■ IIIII�1 I��� o- IIU ■■ 1111 ir 1 ! I■I::1 Ui' ' ��•• 11 II11!u11■ski lill. -��MEP = ■: i■ =i i.11100 000 i i 11 11111111 :1111111 111111 111E1111 Ill 1111 II 1- !llllnll 11 MIME i1111111I 111111111 1111111 1111111 :11111■ 111111111 1111111 .IIIIII:1 :IIIII :DWI■ 111111 III■IN 111111 ■1111111■ MI'll" 111111 • 1 ■F ■■li ■ sir r 111*1 1 7 EMI,r ■1111111 Illnlll�■ H' • Em NM mm mil ■ ■ �I'I 1 '111 II I 1 I i1 nu i u �iiii lm mammrAr .",,....... 1111 IIMI ' (s) IiIiL 0210 NEN II -I: ■=1I 1 Eu111i All 111 1111■1■ loo ■ I: 1 �J I: I. hmwe' POI ■. 1S ` rigY• it 81111111 1 i woo, mt IN lI. filrEi um nn■ 4110111 1111111 f a • 111 DQI i a� 44,� 1,1*.iftip! '�•. 4 ' PA 14" ‘grii‘ 1 � lit ,f� f a es •._..-..mrr m • ••m•• ..� _..._..o.I. .._.._..r.._ 0 'I al mum • • UI 3rd Draft October 14, 2008 flows and temperatures ideal for trout habitat. Overuse of the Jordan aquifer in areas near the stream could compromise stream quality and diminish remaining trout habitat. Natural Areas Protection Resources and Techniques As demonstrated above, Stillwater is home to many high value natural resources. As the city grows, protection of these resources is critical. There are a variety of tools and strategies available to the City to manage and protect its natural resources, which are discussed below. Sustainability Sustainability refers to the concept of using practices and strategies on the land that can be maintained over time without damaging the environment; the intent is to balance near -term interests with the protection of the interests of future generations, to maintain and potentially improve environmental quality. Sustainability can be achieved through a variety of strategies, each using natural resources preservation as the guiding principle, while still allowing use of the land. Low Impact Development LID is a sustainable stormwater management strategy that focuses on managing stormwater locally, using features such as swales, green roofs, constructed wetlands, pervious pavement, and rainwater gardens to infiltrate runoff, rather than relying solely on a system of pipes and stormponds. It has significant water quality benefits and can effectively manage small to moderate rainfall events, depending on the LID design. Adding a LID ordinance to city code could benefit water resources. Conservation Design Subdivisions Conservation Design Subdivision is the practice of designing subdivisions to minimize their impact to the environment by using LID strategies, and thoughtful siting of homes and infrastructure to maintain the ecological integrity and function of the landscape. Once a parcel evaluation has been completed to identify areas suitable for low -impact development, subdivisions are designed to allow for more compact development or clustering of homes in smaller areas and retain larger areas of common, open space. If thoughtfully implemented, Conservation Design can foster a sense of neighborhood and community that is sometimes lost in large lot developments, and it is an effective choice for maintaining natural resource quality while allowing development. For example, in Conservation Design quality forest areas would be left largely intact, and construction activities would occur in semi -natural areas or former agricultural lands. This strategy is appropriate in areas with remnant natural areas, and is especially important for developing and maintaining connections in the Greenway Corridors. Park Dedication Ordinance A Park Dedication ordinance can be an effective strategy for developing and maintaining a parks and open space system within the city. The ordinance acknowledges the value that parks and open space provide for area residents, and requires that any new development include a specified area of parks and/or open space within it. In lieu of land, a specified fee may be required instead, either based on the total area of land or on the number of proposed units. Fees would then be assigned to a dedicated parks fund, and used for the permanent acquisition and development of 17 3rd Draft October 14, 2008 parks. This can be a very effective tool for developing resources for parks, and allows the city flexibility in determining how and where parks are created. For example, if a proposed development is not impacting any significant natural areas and is not within an identified greenway corridor or open space, the park dedication fee may allow the city to acquire areas that help achieve the goal of developing an open -space system. Similarly, for developments proposed within the open space system, natural areas or restorable areas within the system could be required as set -aside for parks and open space. Greenway Corridor A greenway is defined as a "privately or publicly owned corridor of open space which often follows natural land or water features and which is primarily managed to protect and enhance natural resources". However, greenways can and often do incorporate active or passive recreational trails, active recreational spaces (such as athletic fields or golf courses), and other public open spaces that may provide rudimentary ecological functions and values. The Minnesota DNR has identified a regional greenway corridor within Stillwater as part of the Metro Wildlife Corridors project. The corridor is located along the St. Croix River and Brown's Creek. This corridor is specifically designed to incorporate high quality natural areas, existing protected and/or public open space areas such as the Wildlife Management Areas, natural corridors such as stream courses, and connecting areas between these features. The corridors are identified in the "Natural Resource Features and Corridors" map. If gaps and missing connections within the greenway can be filled, the greenway corridor will provide a critical foundation to help the ecological systems of Stillwater and the Region adapt to changing land uses and long-term, to the pressures brought by global climate change. In reviewing the map of Natural Resource Features and Corridors, it should be noted that the Metro Wildlife Corridor is drawn at a coarse scale, and is based on data from the Mn DNR County Biological Survey completed in the late 1980's. This pre -dates the recently completed Minnesota Land Cover Mapping System data for the city. To further refine the planning process for prioritizing natural areas, the city may want to consider developing city-wide greenways that incorporate local values and priorities as well as consider high value/sensitive resource areas. A Greenways Corridor system would form the backbone for natural resources conservation within the city, and has implications for natural resources conservation across the region. Developing strategies to maintain and develop connectivity between natural and semi -natural areas within this system is fundamental to preserving an ecological system that is resilient to change over the long term, in the face of changing demands, development, and climate change. As much as possible, development within the greenway—whether city greenway or DNR Metro Wildlife Corridor-- should use conservation design strategies, park dedication, and the strategic siting of open space and natural area parks to develop and improve habitat quality and connectivity within the greenways. Strategies to avoid parcelization and fragmentation of existing natural areas into smaller sections are especially important for maintaining ecological function of 18 3rd Draft October 14, 2008 the natural areas. This protection will be further supported with the use of the Multi -Purpose Greenway Corridor and the creation of subsequent zoning protection as discussed in the Land Use Chapter. Shoreland Ordinance The City has a Shoreland Management Overlay District to protect the quality of its lakes and streams. The purpose of the ordinance is to: • regulate the size of a building lot • the length of water frontage suitable for building sites • the alteration of shorelands of public waters • control alterations of the natural vegetation and the natural topography along shorelands, conserve and develop natural resources • maintain a high environmental quality. Further details can be found in the Sec. 31-402 of the city code. Parcel Evaluation Parcel evaluation is a useful strategy for identifying areas where methods such as cluster development or Conservation Design subdivision may be appropriate as a way of protecting priority natural resources. One potential approach is to identify parcels with development or redevelopment potential above a specified size threshold (for example, 10 acres) and determine which of these parcels intersect with priority natural resource features. An additional level of planning would be to consider these factors and overlay them with the DNR identified greenway corridors. This may facilitate planning by allowing the city to focus conservation strategies within a defined area (the greenway corridors). Wellhead Protection Plan The City of Stillwater's Part 1 Wellhead Protection Plan was approved by the Minnesota Department of Health on September 28, 2006. The City is currently in the process of completing their Part 2 Wellhead Protection Plan, which is due by April 30, 2009. The Wellhead Protection Plan covers the seven primary water supply wells (Well Nos. 1, 5, 6, 8, 9, 10, and 11) currently online and serving the city's water supply system. All wells obtain their water from the Jordan sandstone aquifer, with Well No. 1 also open to the Franconia -Ironton -Galesville and Mt. Simon aquifer units. The Jordan aquifer that underlies the identified Drinking Water Supply Management Area (DWSMA) for the seven wells was ranked as being "vulnerable" to contamination. That means there does not appear to be sufficient geologic protection between the land surface and the Jordan aquifer to impede vertical infiltration of contaminants into that aquifer. While some areas of low permeability soil or sediment may be present, they are not present in sufficient thickness or aerial extent to warrant a non -vulnerable ranking. Management efforts to be outlined in the Part 2 Wellhead Protection Plan will be aimed at managing all potential sources of contamination that could impact the aquifer, including storage tanks, other wells, septic system, hazardous waste generators, row crop agriculture, and any other point or non -point pollution sources. 19 3rd Draft October 14, 2008 As the City of Stillwater's water supply system expands to include more wells, the Wellhead Protection Plan will need to be updated in order to delineate DWSMAs for those new wells, assess aquifer vulnerability for those new DWSMAs, and develop management strategies to protect the aquifer(s) feeding the city's wells. Wetland Protection The city's 2008 Surface Water Management Plan (SWMP) provides guidelines for wetland management and protection from stormwater runoff. Table 6.8 in the 2008 SWMP compares the rules from the three watersheds with current city ordinances. Although most of the watersheds regulate bounce and phosphorus levels and have buffer rules, there are gaps between the watersheds and within the city that can be filled to maintain consistency within the city. The SWMP details this in Section 6.5.5. Natural Resource Inventory The MLCCS Data provides the city with extensive data related to the location and quality of natural resources in the city. The city can use this information as a basis for updating its current environmental ordinances as necessary, or for developing new approaches for protecting and enhancing its natural resources. Future growth, changes in land use, and development of infrastructure can impact the health and function of natural communities and natural systems. The city can use its zoning and subdivision controls to avoid or minimize these impacts, and provide incentives for developers and landowners to protect or restore natural resources. Education and Outreach The City of Stillwater should consider pursuing education and outreach opportunities for its residents to increase awareness of Stillwater's natural resources and the importance of resource protection. Intergovernmental coordination Intergovernmental coordination is critical for optimal ecological function, as natural resource areas typically cross jurisdictional boundaries and because the actions of one community often impact a much larger ecosystem encompassing many surrounding communities. Coordination with other jurisdictions, including neighboring communities and appropriate watershed districts, provides opportunity for shared financial resources, as collaborative, cross -jurisdictional efforts often have better grant eligibility for conservation and planning projects 20 3rd Draft October 14, 2008 Recommendations for City Code Revisions for Natural Resource Protection Based on the discussion of Stillwater's natural resources and strategies for resource protection included in this Chapter, several potential revisions for Stillwater's city code are recommended These revisions are listed below. Include Natural Resource Data in Preliminary Plat The City could require project proposers to identify all natural resource data from the NRI as part of the data submission for a project. This data could then be used to identify any necessary setbacks or alignments of potential greenway corridors. Include Dedication of Natural Resources Areas as Parkland The City could require developers to dedicate the natural resource areas identified on the NRI maps as open space or parks if they are located within the proposed development area. Dedication of these areas may offset at least a portion of the parkland dedication requirement. Conservation easements are another tool that can be used to protect these resources. If the size of the natural resource area contained on the site is greater than the parkland dedication requirement, the City could allow additional density on other portions of the site that do not contain natural resource areas equivalent to the density lost from the additional dedication. The City may also consider adding language to the park dedication ordinance that specifically states park dedication funds may be used for the purposes of ecological restoration (restoring native plant communities) on lands available to the public. Such activities could be considered a form of park "development". This would allow for necessary active management of purchased or existing natural areas. Consider Gross Density Calculation for Developments with Natural Resource Areas Protection of valuable natural areas may require preventing development on certain pieces of land. In order to ensure efficient urban development and preserve the rights of landowners while protecting natural resources, density transfers or "gross density" calculations should be preferred when reviewing subdivision development plans. The City could adopt regulations that require that all high -value natural areas, wetlands, steep slopes, their related buffers and setbacks, and other sensitive resources be put under easement or deed restriction while allowing the same amount of density overall for the development. Environmental Protection Overlay Zone Overlay districts are commonly used in zoning ordinances to identify special areas and requirements applied to these areas. The Stillwater code includes a Shoreland overlay district, a St. Croix overlay district and a Floodplain overlay district. 21 3rd Draft October 14, 2008 The Minnesota Environmental Quality Board has suggested an option of using a broader overlay district called a Sensitive Natural Environment Areas overlay district for protecting and conserving significant natural resources in the community. This overlay district can provide protection for a full range of natural community types —woodlands, prairies, wetlands, and shorelands. It could reduce the need for separate park dedication, or buffer protection elements discussed. The areas may also include natural resource corridors or greenways identified in the community. The adoption of an environmental protection zone overlay ordinance requires that the community's resources have been inventoried. Stillwater's Natural Resource Inventory and MLCCS data meets this need. In some cases, two zones are established —Environmental Protection Zones with the highest level of protection for high quality resources, and Environmental Conservation Zones for resources of somewhat lower quality that require a lower standard of protection. The protection zone or zones would be mapped on official city zoning maps, just as the Shoreland and Floodplain overlay zones are mapped. The environmental protection zone ordinance then provides requirements or standards for development within these zones. Such requirements may include the following: • Setbacks or buffers from the edge of the sensitive area • Construction management practices to limit disturbance or damage • Limits to vegetation removal • Prohibition or limitation of development within the zones by regulating disturbance, lot sizes, densities, etc. • Limit to impervious surface coverage Given the number and diversity of high quality natural areas identified in the City's Natural Resource Inventory, an overlay ordinance of this type offers a way to provide protection to this range of resources rather than using multiple ordinances to address woodlands, wetlands, and other types of natural resources. Other Tools for Protection and Management of Natural Areas Ordinances are mainly a regulatory ("stick") approach for protecting and managing natural resources. They can also provide incentives ("carrots") to natural resources protection. Many communities use a combination of carrots and sticks in protecting and managing natural resources. The regulatory approach assures that some priority resources will be protected, but is limited by laws that prohibit the "taking" of private property without adequate compensation. The "carrot" approach may be more politically acceptable in some cases than the "stick" approach, and may be more viable when potential "taking" is an issue. In addition to changes in existing ordinances or adoption of new ordinances, the City can consider a variety of "carrot" approaches to encourage city residents to protect the natural resources on their properties, including the following: 22 3rd Draft October 14, 2008 • Provide information and education to homeowners about the special features on their properties. Many landowners will take great pride in knowing that they have something special on their land, and will be eager to learn about how best to manage it. • Inform property owners about options to donate their land as parks and open space, or protect it with a conservation easement. For some property owners, donation of land or easements provide financial and tax benefits. • Identify grants or other public programs that provide financial or educational benefits to owners of natural areas • Work with developers or property owners to encourage design strategies that protect and improve the quality of resources. • The DNR Website (http://files.dnr.state.mn.us/assistance/landprot.pdf ) contains the resource Land Protection Options, a Handbook for Minnesota Landowners. This is an outstanding tool to help individual landowners better understand their options, and also for city staff as a resource to help positively engage interested property owners. • Another important resource for private landowners is the publication Beyond the Suburbs: A Landowner's Guide to Conservation Management . This resource can also be found on the MN DNR Website at: http://files.dnr.state.mn.us/forestry/beyondsuburbs.pdf • The City can also continue to set a good example for other landowners by protecting or restoring natural areas on city -owned properties, and by developing interpretive and educational opportunities. • In addition, there is a variety of funding options available to assist with implementation of these and/or other activities. These include the existing park dedication fee, bond referendums, and grant opportunities. It should also be noted that completion of this NRI and the identification of a greenways corridor is an important step that will improve the city's competitiveness when seeking natural resource implementation grants from the Minnesota DNR. Implementation To implement the natural resource plan, the City will consider the following implementation measures: To create a natural resource open space system that preserves, protects or restores environmental resources the City of Stillwater will consider: • Preparing and adopting an official greenway corridor plan and supporting Sensitive Natural Environment Areas overlay district. • Maintaining an inventory of all ravines and remnant lands in the existing city and developing a policy regarding ravine management that balances ravine usage amongst natural resource protection, public utility and open space/recreation opportunities. (program 1) • Reviewing ownership of ravines and remnant land and obtaining control over such lands through fee ownership, open space easement, utility easement or resource protection regulations. (program 2) 23 3rd Draft October 14, 2008 To use the natural resource open space system to connect open spaces, parks, activity centers and neighborhoods the City of Stillwater will consider: • Requiring natural resources information in all preliminary plats. (program 5) • Requiring dedication of the natural resource areas identified on the NRI maps as open space or parks if they are located within the proposed development area. (program 5) • Identifying key scenic roadways and corridors. (program 4) • Ensuring open space resources areas including sensitive natural resource areas are indentified and incorporated into development design. (program 5) To protect and enhance the St. Croix River as a natural open space system and recreation resource the City of Stillwater will consider: • Improving public access to the river. To provide opportunities for enjoyment of natural resources within all areas of the community the City of Stillwater will consider: • Developing environmental education programs in natural areas to study plan and animal communities. (program 3) • Providing education and resources to homeowners on what they can to on their property to protect natural resources. (program 3) 24 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Land Use 3rd Draft October 16, 2008 Chapter _- Land Use Introduction There are two main purposes of this Land Use Chapterand its Future Land Use Map (together referred to as "The Land Use Plan") 1) to identify how land should be developed to accomplish the overall objectives of the city; and 2) to ensure that resources will be available to provide a consistent level of public services to the community. The Land Use Plan establishes the foundation for all elements of the Comprehensive Plan. Using this plan the city will determine how best to balance all the necessary land uses including housing, commerce, industry, parks, public uses and open spaces while identifying linkages amongst them. This Land Use Plan will also serve to guide development within the annexation areas of western Stillwater, which are the last remaining areas of developable land for the city. Other objectives for growth will be met through redevelopment. The City of Stillwater is a unique community within the region. Its rich history plays an important role in how the city developed and how it will approach redevelopment. Stillwater's older neighborhoods include residential areas with historical architecture, as well as a traditional downtown, built in the mid 1800's. These important areas are defined by the traditional grid street pattern. Together, these historical neighborhoods are referred to by residents as "Old Town." The city also features a wide mix of more recent development, which includes commercial properties and residential properties west of "Old Town". Fairly rapid residential growth occurred in waves throughout the 1970s-1980s. These neighborhoods were built to attract young families to the community. The largest, Croixwood, still lures families with its larger family homes at moderate prices. Another wave of development began in the middle 1990's after the city and township of Stillwater reached an agreement related to orderly annexation. Although Stillwater's development spread westward with this agreement, the city did not lose sight of its historical roots. A unique development plan with equally traditional, yet modernized architecture was showcased in Liberty on the Lake, located south of Myrtle Street and east of Manning. This development serves as one of the first models of New Urbanism, or Traditional Neighborhood Design, in the state. Stillwater is not only known for its historical charm but also for its natural beauty as defined by the St. Croix River with its dramatic valley bluffs, as well as the rolling hills and lakes scattered throughout the uplands of the community. Both the historical charm and the natural beauty draw and retain residents. It also supports the city's strong tourism industry. Emphasis on preserving and enhancing these historical and natural features are a hallmark of this comprehensive plan. This Land Use Chapter combined with the Natural Resource Chapter and the Park and Trails Chapter will highlight methods for allowing continued development and growth while at the same time being sensitive to these important resources. Goals and Policies Stillwater has a strong sense of identity and a commitment to maintaining the elements that form that identity: the uniqueness of its history, quality natural resources, and well designed amenities. The City of Stillwater worked with its citizens to develop land use goals with supporting objectives and programs. The goals, objectives and programs are the foundation of the Land Use Plan, as they define what the community envisions its future to become. Discussions in this chapter will address how future land use decisions, types of land uses, and styles of development will support these goals and objectives while the programs will provide actions steps toward implementation. 1 3rd Draft October 16, 2008 Land Use Goals Goal 1. Maintain Stillwater as a separate and distinct community from the surrounding area. Goal 2. Utilize the future land use map as the overall land use policy statement by designating residential, commercial and parks and open space lands appropriately located with adequate access and buffering from adjacent uses. Goal 3. Create new, interesting, quality -designed neighborhoods that relate to their natural settings and surrounding developed areas, that protect natural resources, and that provide central parks and open spaces that are interconnected by trails to neighborhood community destinations. Goal 4. Continue establishing the greenbelt in the western and northern portions of the city. Objectives Designate lands appropriately located for a range of residential uses, neighborhood, commercial, light industrial, parks and open spaces on the land use map. When feasible, nonresidential land use such as neighborhood, commercial and schools shall be buffered from all adjacent residential uses, connected by trials to residential areas and appear subdued in a landscaped setting as viewed from the public roads. Provide for a range of new housing opportunities from large lot single family to multifamily. Programs Program 1. Implement the land use plan by zoning lands consistent with the land use plan designations. Program 2. Require all developments and specific area plans to coordinate parks and trail development, traffic systems, buffering and application of design guidelines. Program 3. Develop a buffering plan that identifies the city's various buffering needs and provides examples of the types of buffering that could meet those needs. Community Size, Shape, Separation and Buffering Objectives Determine the desired growth rate and phase urban services to accommodate the growth to 2020 and 2030. Promote the orderly, planned and harmonious development of Stillwater and its surroundings. Encourage neighboring communities to incorporate compatible land uses along their corporate limits that are shared with the City of Stillwater. 2 3rd Draft October 16, 2008 Policies Policy 1. Maintain the open space separation between Stillwater and surrounding semi -rural township areas with zoning regulation, open space dedication, development design review and land purchase, as appropriate. Policy 2. Screen views to the extent possible from Dellwood Road, Manning Avenue, Myrtle Street, McKusick Road, Boutwell Avenue and TH 36 using existing vegetation and land forms, new landscaping, wetlands and greenways. Policy 3. Continue to actively monitor and participate, where appropriate, in the development, update and implementation of the comprehensive plans for Washington County and surrounding cities and townships. Programs Program 4. Encourage use of the innovative development concepts, where appropriate, such as mixed use development and cluster housing to provide life cycle housing opportunities, minimize the need for and use of the automobile, protect natural resources and maintain open space. Program 5. Develop an overall planting plan for the greenbelts located in and around the city. Program 6. Monitor yearly development and development impacts to see that what occurs is as anticipated, or determine changes as needed in a land use plan policy to achieve plan goals. Program 7. Prepare specific area plans, use the planned unit development process and development design guidelines to recognize and preserve existing natural resources and provide for future development. Community Character Chapter _ , History and Historical Resources, is devoted to providing an expanded overview of many of the important character traits that play out in Stillwater's cultural history and natural environment. However, existing land use, development patterns and the plan for future redevelopment are also important contributors to that community. Characteras defined by Webster's as "the aggregate of features and traits that form the individual nature of some person or thing." For Stillwater, character is found in the features that make it a truly special place. It is defined by the landscape, the built environment of downtown and varied residential areas, the entries and gateways into the city and its numerous and incredible scenic views. Some defining character elements found in Stillwater include: • The Landscape Stillwater has numerous special natural features, including the St. Croix River with its dramatic limestone bluffs, the pronounced ravine system dissecting the bluff line; and the rolling upland topography with its many lakes, creeks and natural open spaces that provide a complimentary natural system to the river front. • The Built Environment Stillwater's historic downtown district is dominated by brick buildings generally constructed during the lumbering era between 1860 and 1910. Main Street forms the backbone of downtown. The south end of Main Street retains a core of historic buildings while the north end is characterized by redevelopment that compliments the downtown's historic context. West of downtown, the blufflines and hills are sprinkled with church steeples, the historic courthouse and 19th Century homes. 3 3rd Draft October 16, 2008 The built environment also includes residential neighborhoods that are delineated by physical geography, as well as architectural uniqueness and historical value. In the mid-1800's lumber barons built their grand Victorian mansions overlooking the river. Smaller homes on platted parcels were built for the middle and working classes. As residential areas expanded, new home styles developed, which included, for example, the craftsmen style and bungalow. This contrast in housing styles, sizes and periods of construction creates diverse and interesting neighborhoods. • Entryways Stillwater is fortunate to have many strong natural gateways into the city. Some of those gateways are pronounced and fairly dramatic. South: The gateway from the south end of downtown Stillwater on Trunk Highway 95 is as dramatic as driving out of a tunnel. The tunneling effect is created by the sheer limestone bluff on the west side of the highway and the forested river banks on the east side. Exiting the tunnel, as it were, occurs at the Wolf's Brewery buildings where the limestone bluffs bend sharply westward and the historical downtown opens abruptly into full view. North: The north gateway into downtown is equally scenic. The sheer bluffs give way to a view of historic structures and new mixed use buildings carefully designed to compliment the historic setting. West. Myrtle Street serves as a secondary entrance to downtown from the west and is most commonly used by residents. Its view of the St. Croix River Valley and the Lowell Park gazebo is one of Stillwater's iconic images. • Scenic Overlooks Stillwater has two scenic overlooks. High above downtown, on the bluffs of the St. Croix River Valley, these overlooks provide spectacular panoramic views of the valley, downtown and encompassing bluff lines. The overlooks are located at the top of the Main Street stairs and in Pioneer Park. Many of the goals listed in the beginning of this chapter are goals discussed in Chapter _, Downtown Framework Plan and relate directly to efforts that will affect the preservation of these historical elements. Existing Conditions/Land Use Stillwater contains a variety of uses including mature single family neighborhoods and multi -family areas, an urban core in old town and downtown, commercial and industrial uses along Trunk Highway 36, and a blend of new traditional -neighborhood, suburban style and rural residential areas in western Stillwater. A few vacant tracts remain in the city though almost exclusively in western Stillwater. Many lakes and streams are present, including the St. Croix River, Lily Lake, Long Lake, Lake McKusick and Brown's Creek. The city's existing land uses are represented by the categories and locations displayed in Figure 1, Existing Land Use. This figure and table reflect the actual use of the land as of January 1, 2007. Residential: Existing residential uses have been mapped according to the number of residences on a property. The category named "Residential 1 Unit" includes only single family homes. "Residential 2 4 3rd Draft October 16, 2008 Units" is for duplexes, and single family homes with one apartment. The 4+ designation reflects the city's existing townhomes, apartments, and condominiums. The "Residential, miscellaneous" category includes unbuildable lots next to existing homes that are used for yards, detached garages, sheds, swimming pools, et cetera. Commercial: This category has wide spread application to all commercial related uses, from downtown businesses that include locally owned shops to the larger retail uses along Trunk Highway 36. This category includes general commercial, restaurants, convenience stores, office and service uses. Industrial: This includes light or heavy industrial land uses, large warehouse facilities and offices. Public/Institutional: This category includes lands owned by the city or county for public use such as the library, city hall, public works facility, and the Washington County government center. This category also includes all other uses open to the public including the hospital, schools, churches, and other publicly owned social service providers. Open Space: This category refers to natural areas (such as ravines, bluffs, creeks, wetlands and pond buffer areas) as well as miscellaneous unbuildable properties. Park, Trail & Recreation: Includes all areas for public or private active recreation activities that are improved with playfields, playgrounds or exercise equipment, or other similar areas, as well as passive park amenities. Typical uses include tot lots, neighborhood parks, community parks, ball fields, golf courses, public gardens, trail corridors, beaches, and community centers. Vacant: This refers either to developed lots that do not have a principal building, or developable areas that are not currently developed. Open Water: Permanent open water, rivers and streams, not including wetlands or periodically flooded areas. 5 i.•`� St. Croix River . ( �rl• 47 -r�L; IN M /IrIl1. �1C ■ � I■I� II■ n1r� 1�. ilk■ 1111 N11 III N■■1h111�11 !II■ ■�0110 ® e imumrin N. 112011riA ISM PN11l_ i� Rif I" i giqunmmmm� ire Land Use co a a) .N a) ta) L E C o U co 'X N W 1,600 Feet O O W O O O W ,1 N Residentia Residentia Residentia Residentia Residentia O U II Industrial Institutional 1 N co a N a O Park, Trail, Recreation 1 iv I N Right -of -Way Vacant or Agricultural N 0 0 N mo v9 N O co m w N O � ace C W m � ma C U XC wa 0 z I:/5101510070011gislmaps/Existing Land Use.mxd o�I • • • J11 IB "*.. ICI �.I .l U) T 3rd Draft October 16, 2008 Table - 2008 Existing Conditions in Acres corresponds to Figure 1, Existing Land Use and displays areas in acres for the various land uses. Table _ 2008 Existing Conditions in Acres Existing Land Use (Not Including Acres Percent of Total Planned Annexation Areas) COMM LAND & BLDGS 333.77 6.5% INDS LAND & BLDGS 18.78 0.4% INSTITUTIONAL 271.03 5.3% OPEN SPACE 177.48 3.4% PARK, TRAIL & RECREATION 692.79 13.5% RES 1 UNIT (Single Family Homes) 1,668.20 32.6% RES 2 UNITS 28.99 .56% RES 3-4 UNITS 44.52 .86% RES MORE THAN 4 UNITS 91.82 1.8% RESIDENTIAL, Misc 65.24 1.3% ROAD Right -of -Way 812.32 15.8% VACANT 175.07 3.4% Open Water 693.61 13.5% Wetland 50.61 1.0% Total City 5,124.22 100.0% source: City of Stillwater The predominant land use is residential at 37.2% of the city's total current land area, followed by park, water/wetland and open space uses at 31.4%. The city sees 5.3% of their total acres occupied by institutional uses, which includes schools, religious institutions, hospitals, city and county government buildings, and cemeteries. This percentage of institutional property is high compared to other developed communities, which are usually at 1 percent or less. The existence of the hospital and county government buildings drives up the percentage as they are on sizeable pieces of property. Table _ - Land Use Comparison Land Use Twin Cities Washington Hastings Anoka Stillwater Region County Single Family Multifamily Commercial Industrial Institutional 18.6% 2.2% 1.9% 3.0% 1.8% 17.3% 1.2% 1.2% 1.8% 1.3% 24.9% 6.2% 3.9% 4.4% 5.8% 33.6% 6.5% 4.3% 11.4% 9.6% 32.6% 4.5% 6.5% 0.4% 5.3% Parks, Recreation and Open Space 9.5% 8.4% 9.8% 20.7% 16.9% Vacant/Undeveloped Wetlands Open Water 45.7% 8.5% 6.5% 51.2% 5.6% 9.5% 25.4% 4.1% 13.0% 5.0% 0.6% 6.1% 3.4% 1.0% 13.5% 7 3rd Draft October 16, 2008 If you compare Stillwater to other similarly sized communities in the metropolitan area, you can see that the percentages of land uses are similar. Table _- shows Stillwater, Anoka, and Hastings, as well as the County and metropolitan region as a whole and how their land uses compare. Anoka and Hastings were chosen because they are of a similar size and they are also both older, riverfront communities whose growth has not necessarily been dependent on the urban centers of Minneapolis and Saint Paul. The only significant differences between these cities are Stillwater's lack of industrial land but its relatively large amount of commercial property. Most other categories show a similar distribution of land use. Metropolitan Council Objectives for Developed Communities The City of Stillwater is classified by the Metropolitan Council Regional Development Frameworkas a "Developed Community." The Regional Development Framework encourages developed communities to accommodate growth forecasts through redevelopment and reinvestment at densities of at least 5 units per acre. It also encourages targeting higher densities in locations with convenient access to transportation corridors and with adequate sewer capacity. Unlike some developed communities in the metropolitan area, Stillwater also has an annexation agreement with Stillwater Township to provide for additional properties that can contribute toward meeting the Metropolitan Council growth forecasts. The Regional Development Framework encourages developed communities to: • Approve and permit reinvestment projects that make cost effective use of infrastructure and increase density. • Adopt ordinances to accommodate growth and use land and infrastructure efficiently (examples: innovative zoning techniques, mixed use development, transit oriented development, overlay districts, planned unit development provisions, and traditional neighborhood development overlay zones). • Support the conversion or reuse of underutilized lands in order to accommodate growth forecasts, ensure efficient utilization of existing infrastructure investments and meet community needs. • Plan for and guide infill development, redevelopment and adaptive reuse of structures to diversity housing, connect housing and jobs, and integrate new development into existing neighborhoods. • Adopt and pursue reinvestment strategies to achieve Livable Communities Housing goals. • Encourage the preservation of existing neighborhoods and expansion of housing choices within the city. • Adopt ordinances to increase lifecycle and affordable housing (examples: increased multi -family uses, reduced front and interior setback requirements; cluster development ordinances). Stillwater will accommodate new growth in remaining undeveloped parcels while pursuing other opportunities for new growth through redevelopment, development of vacant infill properties and reinvestment. Growth Projections Forecasts for future population, households and employment growth through the year 2030 were prepared by the Metropolitan Council and are shown in Table 2. The City of Stillwater generally concurs with the Metropolitan Council forecasts. However, the city estimates the current number of households to be 7,136 and given the slump in the housing industry does not anticipate that 364 housing units will be constructed within the next two years. Therefore, the Metropolitan Council's 2010 projection of 7,500 households appears to the city to be about 250 to 300 units too high. None the less, given the cyclical nature of the housing industry, the city believes that by 2030 all or most of the available vacant and underdeveloped land will be developed. This would yield about 8,550 households. With infill redevelopment, the number of households may well reach the Metropolitan Council projection of 8,600 households. 8 3rd Draft October 16, 2008 Table 2 Metropolitan Council Forecasts for The City of Stillwater 2006 Estimate 2010 2020 2030 Population 17,929 19,100 21,300 19,900 Households 7,025 7,500 8,100 8,600 Employment 10,719 11,600 12,500 13,600 Source: Metropolitan Council Residential Growth Accommodation The city and township of Stillwater entered into an Orderly Annexation Agreement in 1996. The agreement includes detailed phasing for annexation of township properties into the city. Figure _, Proposed Land Use Plan as of 2002, illustrates the phasing for the remaining annexation areas. Many of the areas have already been annexed. However, there are areas that remain to be annexed and it is these areas that were the focus of the following growth analysis. The City of Stillwater has studied all vacant and underdeveloped parcels in the city and in the future annexation areas to determine which future land use designations would be most appropriate and to determine how future residential growth could be accommodated on those properties. Ten key underdeveloped properties were identified and studied. A wide variety of site characteristics were considered, including the location of high priority wetlands and other natural resource areas, drainage patterns, viewsheds, and transportation and trail connections. Existing development patterns in the neighborhoods of these properties were also crucial to the analysis, as was the capacity of existing infrastructure to support new development. The ten properties are identified as Sites A-J in Figure _. Details of the site analysis done for each of the properties are presented in Appendix A. With the exception of Site D, the land uses found to be most appropriate for the sites are consistent with the Orderly Annexation Agreement. The annexation agreement specifies the future land use for Site D to be residential. Whereas, the most appropriate use identified through the 2008 comprehensive plan update process was neighborhood commercial. The neighborhood commercial use is the same land use found on the opposite side of County Road 12 in Liberty Village. Therefore, though the 2030 Future Land Use Map (Figure _) continues to show Site D guided for residential development, the property is not included in the residential growth projections below. The reason is that the city hopes to successfully petition the Joint Planning Board and Stillwater Township for an amendment to the Orderly Annexation Agreement that would allow the neighborhood commercial use. Upon completion of the site analysis for the ten properties, it was possible to determine how the Metropolitan Council's projected residential growth might be accommodated. The following table was prepared to illustrate the findings. 9 3rd Draft October 16, 2008 Development Potential- Residential Land Availability Planned Land Use Type Developable (Net) Acres Approximate Density' Potential Units Low Density Residential 159.44 3 478 Low/Medium Density Residential 149.98 4.4 660 Medium Density Residential 46.03 6 276 Total 355.45 1,414 With the potential for 1,414 new households on the eleven properties, and given the city's estimated 7,136 households as of January 1, 2007, Stillwater could reach 8,550 households by 2030. The Metropolitan Council projects that the city will grow to 8,600 households by that time. Since additional new units may include 2020 be constructed through redevelopment or on scattered vacant lots, the Metropolitan Council's projection of 8,600 households is reasonable. Future Land Use Plan The Future Land Use Plan is intended to balance residential and non-residential growth. It is important to provide high quality residential areas as well as high quality employment, shopping and service options. In addition, Stillwater is a community that focuses on the well being of its residents and therefore places a high value on a well developed system of parks, trails, recreation, and open spaces. The Future Land Use Plan's map is displayed below as Figure _ and the associated acreages for each of the land use categories are presented in Table _. The descriptions of what specific land uses are included in each category, as well as how the land use category corresponds to the city's zoning districts are also discussed. Table _ 2030 Future Land Use Plan Acreages 2030 Land Use Acres Percent of Total Low Density Residential 1,612.23 27.7% Low/Medium Density Residential 936.56 16.0% Medium Density Residential 116.50 2.0% High Density Residential 49.23 0.9% Neighborhood Commercial 6.23 0.2% Commercial 147.62 2.5% Downtown Mixed Use 48.84 0.8% Business Park Industrial 118.74 2.1% Research and Development Park 86.43 1.5% Institutional 128.74 2.2% Park, Recreation or Open Space 949.05 16.3% Road Right -of -Way 841.02 14.5 Open Water 719.41 12.4% Wetland 52.96 0.9% Total City 5,813.56 100.0% 10 3rd Draft October 16, 2008 The land use categories for the 2030 Future Land Use Plan are more generalized than found in the 1995 Comprehensive Plan. This generalization results in categories that are more consistent with the Metropolitan Council's land use model. Residential Development Classifications The residential land use classifications allow for a range of housing opportunities and densities. Each of the city's residential zoning districts fall within one of the land use categories based on its intent and density. Residential zoning districts also allow for supportive uses typically found in residential settings, such as churches and schools. The residential land use categories for the 2030 plan are listed in the table below and are compared to the city's 1995 categories, proposed density and related zoning districts: 11 a _ N 0 E 0 U co 0 0 N i11 1 II17T 0 0 oo O 0 oo ow lensit 'esi.entia ow Medium Densit Residentia edium Densit Residentia 'I• Densrt 'esl.entla MF. r.Ti'irsx.xst iiIliIra[uIF4 Al.]iluirIIcyla •2.1 'i11(.1LNIfI! ri'm 1U 'esearc & 'eveo.ment 'ar7 IIi.'Sll(!IQ.Ji ..1 ' ecreatio n or • men . ac I- 1 a co co 2 0 co 0 .urface Wate 11 1 1 1 co 7.7 : 510 51007001 .is ma.s F.t. - L • U -. • St. Croix River ii®ti � _ _ lili IP u� I111 1 ' r ■—. ll �1 ■1�p,,,,__ 11111 'Lip 1I111 Milli �.� / e r%1 ,o''�� $iIM *oilit I 1 1 I1I 111111111111 I IIIIIIIIO H I I 111■111111 :I111l I 111:■.11! :■ =■ :: ■:.: -: -.e .■ ■a ._ �Gm ice, l:u .■ 11111�1F i 111111/1 ■■- :IIllI1= :_� mil I I ® 1 u minim Pp L IPIPI •PUIFrr... !IL i ANisi IN -iii4 II1.Itorriti4_ 1 _ ir41. 34.0 1 16ll ■ • ' i�u ma NI a �u1• Ilt rokhrs��w !�jj ill 11111P-41111..?(14:17111111 v y.'�ori 1U ���Ill ■ U11Iln IN Cm eft woic OAP otk AR III r�i1111111I .mA11m.! 111111 \ Ill 111 nit 4 Ar _I ,'i1111 Uuil lllll® 111111L - `gull In • r 1Ii Ill ;RNllllll I i 3rd Draft October 16, 2008 2030 Residential Land Use Plan Categories Stillwater 1995 Land Use Categories 2030 Future Land Use Categories Corresponding Zoning Districts(1) Met Council Categories SFLL Single Family Large Lot up to 2 units/acre LDR Low Density Residential 1- 4.4 units/acre RA TR LR CTR One Family 4.4 units/ac Traditional Residential 4.4 units/ac Lakeshore Residential 2.2 units/ac Cove Traditional Res. 3.1 units/ac SRES- Single Family Residential SFSL Single Family Small Lot up to 4 units/acre LMDR Low -Medium Density Residential 4.4 9.7 units/acre CCR RB CR Cove Cottage Res. 4.4 6.2 units/ac Two Family 5.9-8.7 units/acre Cottage Residential 7.3-9.7 units/ac SRES Single Family Residential ASF Attached Single Family up to 6 units/acre MDR Medium Density Residential 6-14.5 units/acre TH CTHR RCL Townhouse 8.7 units/ac Cove Townhouse Res. 14.5 units/ac Low Density Multi -Family 6.2 units/acre MRES Multi -Family Residential MF Mutli-Family up to 15 units/acre HDR High Density Residen' 12+ units/acre -no max. RCM RCH Medium Density Multi Family 15.6 units/ac High Density Multi -Family 29.0 units/ac MU - Mixed Use MRES- Multi - Note: sha ing of each color will match FLU once final draft is prepared Low Density Residential (LDR): This classification provides a range of lower density residential opportunities. This land use category is the largest in the city with 1,612.23 acres. It is the predominant land use type in western Stillwater. Single family homes are the main use found in the LDR category. Other uses that relate well to single family homes are permitted with Special Use Permits including parks, playgrounds, churches and schools. The zoning districts that are consistent with the LDR category have a density range of 1 to 4.4 homes per acre. Much of the LDR category is already fully developed. ( Add pic of Low Density neighborhood) Low Medium Density Residential (LMDR): This classification provides a broader range of low and medium density residential opportunities and is the second largest in terms of acres (932.15). This category encompasses a range of zoning districts that aim to provide flexibility in lot size and density. LMDR guided areas will develop at 4.4 to 9.7 units per acre. This classification has been applied to all the existing lower to medium density properties zoned RB in the older neighborhoods of the city, as it best reflects the density at which development has occurred in these traditional neighborhoods. In addition many of the remaining vacant parcels in western Stillwater have been guided Low Medium Density Residential as a way to provide the most flexibility in new neighborhood design and in promoting increased density. Medium Density Residential (MDR): This classification provides for a density of 6 to 14.5 units per acre. Typical uses include townhomes and small scale apartment buildings. This classification is also used in areas of western Stillwater along Manning Avenue and for sites adjacent to existing medium density housing to provide sites for new townhomes (or housing types of similar styles and densities) as well as areas for affordable housing. Add pic of townhome development High Density Residential (HDR): This classification is characterized by developments with much higher densities and includes areas where apartments and condominiums are located. Density can start at 12 units per acre. There is no upper limit on density, but careful consideration should be given to how the development is designed and situated on the site and how it relates to and impacts surrounding properties and city infrastructure. 13 3rd Draft October 16, 2008 Commercial Development Classifications Several commercial land use categories are included in this plan to provide a variety of uses to meet the shopping, professional, employment, service, and entertainment needs of the community. Each commercial category is described below: 2030 Commercial Land Use Plan Categories Stillwater 1995 Land Use Categories 2030 Future Land Use Categories Corresponding Zoning Districts Met Council Categories BPC BPO A/O Business Park Commercial Business Park Office Administrative/Office BP-C BP-0 CA Business Park Commercial Business Park Office General Commercial COM- Commercial OFC -Office MU -Mixed Use CC Community Commercial DMU Downtown Mixed Use AI CBD Central Business District NC Neighborhood Commercial NC Neighborhood Commercial VC Village Commercial Commercial (COM): This classification exists to provide a range of commerce, entertainment, retail, dining, office and related uses that offer goods, services and employment to residents and those visiting the community. Areas with this classification are situated primarily along the north side of Trunk Highway 36 and along Highway 5, where most of the intense auto -oriented commercial uses are located. The zoning districts that are consistent with this land use designation include: CA, General Commercial, which allows the full range of commercial uses and big box users; BP-C, Business Park Commercial; and BP-0, Business Park Office, which provides areas for professional offices, medical/dental clinics, libraries or theatres, and hotel/motel facilities. ADD PIC. Downtown Mixed Use (DMU): Historically the downtown area has been guided for community commercial land uses. But, the Mixed Use label is being used in the 2030 Land Use Plan because it more accurately reflects the evolving nature of the area. Stillwater's downtown offers both the community and the region a vibrant, mixed use center. The range of uses includes residential, retail shops, restaurants, offices and other commercial uses. The zoning category that supports this land use designation is CBD, Central Business District. The challenges and opportunities associated with the downtown district are the subject of Chapter -, Downtown Framework Plan. Neighborhood Commercial (NC): This classification provides important access to neighborhood goods and services. In addition to providing convenient access to retail goods for residents, providing small areas of commercial development throughout the city will reduce stress on the city's transportation system by limiting trip lengths for the purchase of retail goods and services. Neighborhood commercial has strong historical roots in Stillwater. Moreover, newer neighborhood commercial has been included in the Liberty on the Lake development at the southwest corner of County Road 12 and Manning Avenue. These commercial buildings were designed with the same village architecture as the residential portion of Liberty on the Lake and includes a variety of goods and services to support the surrounding neighborhoods. A market analysis was completed as part of the Comprehensive Plan update to study the viability of adding an area of neighborhood commercial in western Stillwater. The analysis considered the concerns expressed by residents over increased traffic in western and southwestern Stillwater and the resulting inadequate 14 3rd Draft October 16, 2008 access to goods and services to retail stores located along Highway 36. In order for development to occur, however, there must be a sufficient market demand in northwestern Stillwater to support such substantial investment. Therefore, an assessment was conducted of the potential demand for neighborhood -oriented retail located on one of two possible sites located along County Road 12/Myrtle Street that would primarily serve households residing in northwestern Stillwater. The site analysis considered positive and negative attributes for two sites: Site #1: NE corner of County Road 12/Myrtle Street and Manning Avenue N Positive attributes: • The site is adjacent to existing retail located on the SE corner of County Road 12/Myrtle Street and Manning Avenue. This existing retail would serve as a traffic generator for any new retail on the site. Furthermore, it establishes the location as a known destination for retail. • Average annual daily traffic (AADT) along Manning Avenue near the site ranges between 15,000 and 13,000. This is typically enough traffic to support a variety of neighborhood retail provided access to the site is appropriate. • None of the adjacent surrounding land uses would detract from a retail use of the site. • The site is positioned well to capture both morning and evening drive -by traffic. Assuming most residents in the trade area use Manning Avenue to access Highway 36 for employment closer in to the Twin Cities, this means that these commuters would be traveling northbound along Manning Avenue in the evening and would be able to easily enter and exit the site, provided there is access from Manning Avenue. Negative attributes: • Because the site is located on the western edge of the trade area, residents in the eastern portions of the trade area may not consider the site to be any more convenient than existing options along Highway 36. Nonetheless, given the lack of a direct arterial to Highway 36 for many residents in the trade area, it would be likely that the site would be considered more convenient. Site #2: County Road 12/Myrtle Street just east of Northland Avenue Positive attributes: • Compared to site #1, site #2 is located closer to the more heavily developed eastern portions of the trade area. • None of the adjacent land uses would detract from a retail use located on the site. Negative attributes: • There is no major cross street near the site. This limits visibility and accessibility. • Due to the lack of an existing cross street with significant traffic volumes, major changes to the local road system would be required to enhance the visibility and accessibility of the site. • Average annual daily traffic on County Road 12/Myrtle Street is 7,100, which typically is not enough volume to support most types of retail. Based on the above assessment, site #1 is clearly the superior location for retail development and has many of the attributes needed to support a successful retail development. Site #2 has a number of challenges that would make it difficult to attract the volume of consumers needed to support even a modest -size retail development. The full market analysis (Appendix B) includes information determining amount of demand for retail in this area. This considers trade area, number and income of households, typical retail spending, and then 15 3rd Draft October 16, 2008 quantifies the amount of square footage that the households and incomes could potentially support. The analysis concluded that an additional 35,000-47,000 square feet of retail could be supported in the future. New neighborhood commercial may not occur in the immediate future, but as development progresses in western Stillwater, as well as in the adjacent townships, there may be enough demand to support a neighborhood scale commercial development. The Future Land Use plan identifies this location at the northeast corner of County Road 12/Myrtle Street and Manning Avenue North. Business Park/Industrial Development Classifications Two Business Park and Industrial use categories are planned that encompass traditional industrial, manufacturing and warehousing, and less traditional industrial uses that are more office and office warehouse focused. The land use categories are described below: 2030 Business Park/Industrial Land Use Plan Categories Stillwater 1995 Land Use Categories 2030 Future Land Use Categories Corresponding Zoning Districts Met Council Categories BPI Business Park Industrial BPI Business Park/ Industrial BPI IB Business Park Industrial General Industrial IND Industrial EXT -Extractive RDP Research & Development Park RDP Research and Development Park CRD Campus Research & Dev. IND-Industrial Note: shading of each color will match FLU once final draft is prepared Business Park/Industrial (BPI): This classification provides for traditional industrial, limited manufacturing and processing of products. The corresponding zoning districts are BP -I, Business Park Industrial and IB, General Industrial. Areas with these land use and zoning designations are located north of Trunk Highway 36, south of Orleans Street, and east of County Road 5. ADD Plc Research & Development Park (RDP): This classification is located at the northeast intersection of Manning Avenue and Trunk Highway 36 and extends eastward south of 62nd Street is where the future extension of Curve I I 1 Crest Boulevard is planned to connect ___ through the site to Manning Avenue. This important area contains 84 acres and serves as the city's last large parcel to attract a major employer. The city has created this specific land use designation to provide a site for a corporate center, research facility, education institution, medical campus or office campus that will bring not only a well -designed development, but head -of -household caliber jobs to the community. Location of Research and Development Park This classification has been in place since 1995 and although development has not yet occurred the city is committed to its vision to bring a Class A type development to this highly visible corner and gateway to the community. The corresponding zoning district is CRD, Campus Research and Development. Through implementation of the Comprehensive Plan the city may update this zoning district to expand the list of uses allowed to support the goal of a high quality development that will increase the city's tax base and provide high - paying jobs. The two pictures represent examples of Research and Development Park developments, comprised of mainly office with a shared amenity of the pond and trail system. Research and Development Park designations often attract corporate headquarters operations. 3rd Draft October 16, 2008 "Other" Land Use Plan Classifications Remaining land uses include other categories such as institutional, parks and recreation, water and other related uses. Some of these uses were grouped together to simplify the categories. This will be explained further below. 2030 "Other" Land Use P an Categories Stillwater 1995 Land Use Categories 2030 Future Land Use Categories Corresponding Zoning Districts Met Council Cate. ories SS ES CEM PF Secondary School Elementary School Cemetary Public Works Facility PA PWF Public Administrative Offices Public Works Facility IN -Institutional PM PN PC PG OPS Marina Neighborhood Park Community Park Golf Course Open Space PR Park, Recreation or Open Space PR -Park & Recreation Water Water WA Open Water WA Water W -Open Water ROW Rail Right -of -Way Railroad ROW Right -of -Way ROW Right -of -Way ROW - Roadway Rights. of -Way Note: shading of each color will match FLU once final draft is prepared Institutional (INST): This classification includes all public uses such as city and county buildings, hospitals, and cemeteries. It does not generally include schools and churches as in the 1995 plan. These uses have now been guided according to their surrounding residential neighborhood and are allowed as either a permitted use or specially permitted use according to the respective residential zoning district within which the church or school currently finds itself. This change was made so that if a school or church were to close or vacate, the future land use of the property would become residential. Park, Recreation or Open Space (PR): This classification is for park, recreation and open space related land uses. This new category includes all current and future public parks, trail areas, active recreation facilities, golf courses, marinas, islands, ravines and bluffs. There are 877 acres of land in this PRO category. A detailed discussion on parks is contained in Chapter Parks and Trails. The Zephyr railroad has been guided Park and Open Space for use as a future trail. The city, county and state are working together to convert the railroad into a biking and hiking trail with larger regional connections. Open Water (WA): This classification includes open water areas such as lakes, rivers and ponds. Add lake pic Right -of -Way (ROW): This classification reflects the location of public right-of-way within the city, including all existing and reserved or platted city, county, state and federal right-of-way. Protection of Natural Resources The protection of natural resources has been an important effort in Stillwater as it has developed in the past and now as it approaches full development. The city has an abundance of natural resources including the St. Croix River, lakes, creeks, and open space/wooded areas. During several public participation efforts during the Comprehensive Plan process, residents expressed a strong connection to the resources that exist 17 3rd Draft October 16, 2008 in the city and cite these as important reasons for living in Stillwater. Residents also expressed interest in seeing increased opportunities to have access through trails to these resources. Residents are also concerned about the water quality of the city's lakes and streams and desire to see the city put efforts into their improvement and protection. Some of the comments, particularly regarding new residential growth in western Stillwater, related to ensuring that with growth any existing natural areas be retained. This includes trees, wetlands, upland forests, streams and grass/prairie lands. The growth analysis process for vacant and underdeveloped land in western Stillwater was sensitive to this desire. Environmental protection strategies are an important tool in the protection of natural resources. This is discussed in more detain in Chapter _ Natural Resources. It is important to make a strong connection between natural resource preservation and land use. The city has several tools available to help protect natural areas while also providing for new growth and redevelopment. Some of these are ordinance provisions that are already in place and that could be reviewed and updated as needed. Others would be new. A partial listing of the tools available for consideration includes: • Park and Trail Plans: The city prepared a Comprehensive Trail Plan in 2000 to implement the 1995 Comprehensive Plan. Overall goals of the plan were to: o Develop a continuous, comprehensive "walkable community" trail system o Preserve and provide visual access to quality landscapes through trail locations o Preserve and enhance publicly owned ravines o Maximize the city's recreation opportunities While this plan is still timely, the Park and Trail Chapter outlines plans for additional trail connections and looping to provide greater route options. • Ordinances: After adoption of the 2030 Comprehensive Plan, the City of Stillwater will update its Zoning Ordinance to be consistent with the plan. The city has several overlay districts for floodplain and flood fringe areas. There is also an overlay district for the St. Croix River, which designates suitable land uses along the bluffland and shoreland of the Lower St. Croix River. The purpose of this overlay district is to protect and preserve existing natural, scenic and recreation values and to maintain proper relationships among uses. This overlay district identifies the percentage of shoreland or bluffland areas that must be preserved when development occurs. One development technique that is permitted, called planned cluster development, promotes the preservation of open spaces, wooded areas, scenic views and other features that a subdivision typically would not preserve. • Outside of the St. Croix River corridor the city addresses natural resource protection through conservation regulations that include protection of steep slopes, trees, lakes and wetlands. Protecting Special Resources As required by state statute, a municipality's comprehensive plan must include strategies for protection of special resources, including solar access, historic preservation and aggregate resources. These strategies are discussed below. Solar Access Minnesota Statutes require an element for the protection and development of access to direct sunlight for solar energy systems. The purpose of this legislation is to prevent solar collectors from being shaded by adjacent structures or vegetation and to ensure that development decisions do not preclude the possible 18 3rd Draft October 16, 2008 future development and use of solar energy systems. To ensure the availability of solar access, the City of Stillwater will, whenever possible, protect access to direct sunlight for solar energy systems on principle structures. The City of Stillwater will consider solar access in the review of site plans and planning decisions. Aggregate Resources The Metropolitan Council requires cities to indentify the location of aggregate resources within the community based on the Minnesota Geological survey within the Comprehensive Plan. A few areas of aggregate resources were identified in Stillwater along the eastern edge of the city as shown on Figure _ 1997 Aggregate Resources. A large proportion of the aggregate resourced located in the City of Stillwater is located in the Lower St. Croix National Scenic Riverway District. Minnesota DNR rules section 6105.0370 subpart 9 and Stillwater Ordinances prohibit aggregate mining in the Lower St. Croix National Scenic Riverway District. Historic Preservation Historic preservation is a core value to the City of Stillwater, and Chapter _ Historical Resources is devoted to discussing the city's unique resources and preservation efforts. Implementation To implement this Land Use Plan, the city will consider the following implementation measures. To maintain Stillwater as a separate and distinct community from the surrounding area, the City of Stillwater will: • Require all developments and specific area plans to coordinate parks and trail development, traffic systems, buffering and application of design guidelines. (Program 2) • Prepare specific area plans, use the planned unit development process and development guidelines to recognize and preserve existing natural resources and provide for future development. (Program 7) The Land Use Chapter will be used as the overall land use policy statement. Consequently, the City of Stillwater will: • Update the Zoning Map and Zoning Ordinance use districts to be consistent with the Land Use Plan designations. (Program 1) • Monitor yearly development and redevelopment impacts to see that what occurs is as anticipated, or determine changes are needed in the land use plan policy to achieve plan goals. (Program 6) The city will develop a buffering plan that identifies various buffering needs and provides examples of the types of buffering that could meet those needs. The city will encourage the creation of new, interesting, quality -designed neighborhoods that relate to both their natural settings and their developed surroundings, protect natural resources and provide well distributed parks and open spaces that are interconnected by trails to neighborhood and community destinations. To these ends the City of Stillwater will: 19 3rd Draft October 16, 2008 • Work with future developers to ensure adequate and appropriate park land is planned for and developed based on the updated Park and Trail plan. (Program 2) • Work with future developers to ensure trail development is planned and developed according the updated Park and Trail Plan. (Program 3) • Create design guidelines that are intended to sustain Stillwater's unique natural features. (Program 7) • Ensure that design guidelines are in place or updated to promote high quality architecture and site design in all residential, commercial and industrial districts. (Program 7) • Encourage use of the innovative development concepts where appropriate, such as mixed use development and cluster housing to provide life cycle housing opportunities, minimize the need for and use of the automobile, protect natural resources and maintain open space. To continue greenbelt development and protection in the western and northern portions of the city, the City of Stillwater will: • Work with future developers to protect and maintain important resources. (Program 5) • If necessary, create design standard or incentive ordinance to preserve resources while allowing and supporting development and densities as guided in the land use plan. (Program 4) • Develop an overall planting plan for the greenbelts located in and around the city. (Program 5) 20 2008 Comprehensive Plan 1,600 Feet O O W O Open Water Aggregate Resource Types: 1 a) O E 1) fl (4 Cll W Co '— O r� t 7 O) O�� C COO Cl.)� m a) O a) I, a) +C m o) - NU10 1�o 12 0 a a Q) V C, a) a CO(4 m N (.) _ (� col0 Y i� O Y Y U • v�asas��9��a) _ cZ n a)COr, a) a)�oa)� 01 ai E N O p a) Y v, Ea oO IQ o Q Y 4 Tr V a N a Q) O a Y 0 N O O o O U) > v o a) > v > i- Ln d) L • 4 p O a E O) N a) 0 4 N O) w N N 4) � ' o°1 ° ° '` E• aOOcoa�°E °uuE °u�Em nN aO�� o 9�o a)o I� m U N N N (a (a (a U U U 1 15 I1d. N-.. n< ° p c j )°r e`• r•• •' ... ♦Y I � � I I` a ! 3 s 15 uellauJe3 IS 1.baRNLIO3 N °a } .,•:� �i♦ y� N13 JJagmaN�� I ° m J Ia" I I•I pI +� --- r '. N any IeaN "Tr ri Ir (I- II11. 1�III I'J :►.'�`�. �/ r._.._.._.._.._..i r.. j ! . . a 7�"�"� Ii I ♦. • / v. Ia 045 1 Y I I• ( k it 7 ill L. q1I �� \ I II I °•!iii H!! I I MA.IM1i•=••••MS N an0 auell10W ■ • I �ma 10 C O e5 Northland Ave �� po Tiaa- ire ewi 4 y 11 aa11 au!, 1S 1005) S V.aurie Darrell C) I �Mrn� �Pul ,"V a i-nsamylJ°N ° bP00 5A3 73 ta!!nn ua HnbeS �n5 el 1Prsg1N. s m o a� 9 o0 ai Nightingale--alud---t-- m •. O PAW puafial a qc N Q, ? enlj S1dl;yes 1 �..�..�..�..Ri 1 i \'-' I i J 13 LOCH • -.. 1�•••—••—.•—••—••—••—••—'•—••—••—••—••—•• I N�WV`f-uruuepy'•M••M••M••MI•. 3rd Draft October 16, 2008 APPENDIX A As mentioned in the Land Use Chapter, ten sites were identified for detailed study during the Comprehensive Plan Update process. These sites were considered some of the last in the City where new development was likely to occur. For each site, the Steering Committee was led through an analysis which identified existing land uses, topography, viewsheds, natural resources (based on Minnesota Land Cover Classification System), transportation access and existing plans. Based all of these factors, land use alternatives were presented along with the resulting development potential. The Steering Committee then selected a preferred alternative. The ten sites are shown in Figure Al below. Figure Al — Vacant Sites for Site Analysis During the analysis the key displayed below was used to provide information on important factors in the decision -making process, including ecological factors that exist on the site or adjacent to it that should be considered with future redevelopment. To ensure future land use decisions meet the goals and objectives, each of the site analyses were tied to the goals and objectives as outlined in the beginning of this chapter. These ten sites represent the majority of the changes to the 2030 Land Use Plan from the 2020 Future Land Use Plan. 22 3rd Draft October 16, 2008 "Off-limits" areas: Wetlands, etc. Wetland Buffers Drainage ways High value natural areas Connections Viewshed SITE A Site A is located in the southwest corner of Stillwater at the ! intersection of Highway 36 and Manning Avenue. Some of the Goals, Objectives, Policies and Programs that relate to this site 3include: • Increase the tax base and provide opportunities for �� economic growth for Stillwater and Stillwater area garb residents. • Provide new locations for job growth in close proximity to housing with convenient access. • Support business expansion in the downtown commercial district and West Stillwater Business Park area. ,� • Actively promote the creation of the R & D office park at the appropriate time along the TH 36 east of CR 15. This site had a number of existing natural features including wooded areas and wetlands. Good transportation access and visibility are also available at this site. A new interchange is planned for Manning Avenue and Highway 36. This transportation improvement affected ideas about what land use was most appropriate in this area. The Steering Committee determined that it was most appropriate to keep this area guided as a Research and Development Park in the hopes of attracting a large campus user. Figure A2 shows a conceptual development plan for a Business Park user in this area and includes the potential interchange design. Figure A2 — Site A Concept Development Plan 0 TFI 11 f4.CSAH f5 iMaein mgg AP tntrrrhanga Anal>•sl� Auxiliary Lane ar,A to rl1. s c 1. Nuer r_ 23 3rd Draft October 16, 2008 SITE B Site B is located just north of Site A with Manning Avenue as its western boundary. Some of the Goals, Objectives, Policies and Programs that relate to this site include: • Provide opportunities for enjoyment of natural resources within all areas of the community. • The city shall identify and protect neighborhood open space sites of aesthetic, recreational or natural resources value in preparing neighborhood plans. • Provide a balanced choice of housing types and densities suitable to a wide range of demographic groups, with a focus on life -cycle housing. Site B also contains some wetlands and valuable natural features and has direct access to Manning Avenue. The land uses surrounding the site were low to medium density residential uses. Given this fact, as well as its proximity to natural features and trail access, it was determined that the most appropriate land use for this site was a mixture of medium and low/medium density residential development. This site may accommodate roughly 170 units of varying type after build -out. +ti66M VALUE AIATUPAL AP EA POTENTIAL STDRMWAT€R TREATME?4T SITE C Site C is located east of Manning, just south of CSAH 12/Mrytle Street, and just north of Long Lake. This site has good transportation access, some access to Long Lake, and limited natural resource areas. Some of the Goals, Objectives, Policies and Programs that relate to this site include: • Designate residential densities and housing types sensitive to natural resources and land use conditions. • When new development occurs adjacent to a designated trail and pathway corridor, the city should require the development to install and maintain the trails. Given the character of surrounding land uses, it was determined that this site was appropriate for 24 3rd Draft October 16, 2008 the expansion of low/medium density residential land uses. SITE D Site D is located at the northeast corner of Manning Avenue and Mrytle Street. Some of the Goals, Objectives, Policies and Programs that relate to this site include: • Provide for neighborhood convenience store locations within walking distance of residential areas without negatively impacting those residential areas. • Provide new locations for job growth in close proximity to housing and with convenient access. The Comprehensive Plan update process included a market study to determine whether the western portion of Stillwater could support additional retail square footage given existing and planned future growth in the area. This study estimated that the area near this corner could support anywhere from 35,000 to 47,000 square feet of additional retail. This site also contains significant wetlands, which cover a large portion of the site. There is space for development on the site however, and a conceptual development plan made for the analysis shows a potential 10,000 square feet of restaurant and 37,000 square feet of retail. Given the visible location on a busy intersection, it was determined that this site should be guided "Neighborhood Commercial" to serve the surrounding residential areas with retail opportunities. SITE E Site E is located near the middle of the City, just north of CSAH 12/Mrytle Avenue. Some of the Goals, Objectives, Policies and Programs that relate to this site include: • Create new interesting quality -designed neighborhoods that relate to their natural settings and surroundings, developed areas, protect natural resources, provide central parks and open spaces that are interconnected by trails 25 3rd Draft October 16, 2008 to neighborhood and community destinations. • Continue establishing the greenbelt in the western and northern portions of the City. • Encourage use of innovative development concepts, where appropriate, such as mixed use, development, cluster housing to provide life -cycle housing opportunities, minimize the need for and use of the automobile, protect natural resources and maintain open space. Site E contains some significant natural resources, including wetlands, forested areas and a stream. The site also has some existing large -lot development, as well as some areas were development may still be occurring, and therefore any new development will need to be compatible with surrounding land uses. This site also has access to both CSAH 12/Mrytle and Boutwell Road. Given some of the significant natural features on the site, it was determined that the western portion be guided for low -density residential development, possibly with additional direction in the zoning code for conservation development to protect as much of the natural area as possible. The middle third of the site would be guided as low/medium density residential, and the eastern third would be guided as low density residential as it abuts existing larger -lot residential to the east. This area may contain 175 units after build - out. SITE F Site F is located just west of Site E. This site is made up entirely of existing large -lot residential development. Since the development pattern in this area is largely set, an exercise was done as part of the analysis to see if any of the existing lots would be able to be subdivided if the owners wished them to be. Many of the lots could be further subdivided, and roughly 40 additional units could be developed in this area if city sewer were provided. 26 3rd Draft October 16, 2008 SITE G Site G is north of CSAH 12/Mrytle and just east of Manning Avenue. Some of the Goals, Objectives, Policies and Programs that relate to this site include: • Provide single family, large lot and small lot and attached housing in the annexation area. • Encourage the incorporation of trails and pathways into corridors used for public and utility purposes. • Make sure open space resource areas, including sensitive natural resource areas, are identified and incorporated into the development design. This site contains significant areas of wetlands and natural areas, and includes a number of planned trails connecting to surrounding development. Two scenarios were developed for this site, one with only low/medium density residential guiding and one with medium density residential guiding near the corner of 80th Street and Manning and the rest of the site being guided for low/medium density. Because of the existing higher density development adjacent to the site across 80th Street, the second scenario with guiding for higher densities near the corner was chosen. At full build -out, this site may include up to 100 additional units of varying types. SITE H Site H is north of Site G at the corner of Manning Avenue and McKusick Road. This site contains some natural features and planned trails. Medium density townhome development currently exists to the south, but much of the surrounding land use pattern is single family and large -lot development. Because of this, the site was deemed appropriate for low/medium density residential guiding, except for a 2-acre area in the south adjacent to the existing townhome development that was guided for medium density residential development. This area may include an additional 90 units after build -out. 27 3rd Draft SITE I Site I is south of CSAH 96/Dellwood Road on Neal Avenue. The site is near a small lake and the surrounding land use pattern includes primarily large homes on large lots. Two scenarios were developed for this site, the first showing only low/medium density residential development on the entire site, and the second showing an area guided for medium density residential near the intersection. Because of the surrounding low -density land use pattern, this site was guided as all low/medium density. After build -out, this site could include an additional 90 units. SITE J Site J is located in the very northwestern corner of Stillwater, southeast of the intersection of Manning Avenue and CSAH 96/Dellwood Road. The site is adjacent to a significant wetland complex, and has many opportunities for trail connections. Development patterns in the area are all very low density, since much of the surrounding land is not part of the City of Stillwater. A guiding of low/medium density was considered appropriate for this area. This area may yield 30 additional units after build -out. October 16, 2008 28 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Housing 3rd Draft October 16, 2008 Chapter _ HOUSING Introduction As a maturing community Stillwater has many challenges and opportunities to maintain and provide housing choice and life -cycle housing for its residents. Stillwater considers its housing stock to be a critical building block of its neighborhoods, especially in its historic neighborhoods, and community development efforts. The livability and appearance of neighborhoods, and the housing within them, is very important to the community. Stillwater has historically had a wide variety of housing types to serve the needs of residents of different ages and income levels. Housing densities and types can be found in a wide range from Downtown Stillwater to the still -developing western edge of the community. Demographic trends suggest that the metro area will see an increased demand for smaller, more efficient housing units as baby boomers retire and make different housing choices. Downtown Stillwater, -+with its unique access to amenities such as the river and retail options, is uniquely situated to meet a portion of this demand. While growth rates may not equal those seen in the late 90's and early 2000's, Stillwater's remaining developable parcels on the west side of the city will likely be developed during this planning period (2010-2030). The housing types and densities seen in these areas will be similar to existing housing stock in the area: a mixture of detached, single-family units and attached townhomes. This chapter is intended to meet the requirements the Metropolitan Land Planning Act and the Metropolitan Council for planning for affordable housing need as well as describing the direction of housing policy in the City of Stillwater. Goals, Objectives, Policies & Programs The following goals have been reviewed and approved by the City Council and reflect the recommendations from the sub -committees and committees charged to refine the goals, objectives, policies and programs. Goals Goal 1: Provide a quality living environment for the residents of Stillwater by maintaining and improving the city's existing housing stock and by planning for a range of new housing opportunities. Goal 2: Provide a balanced choice of housing types and densities suitable to a wide range of demographic groups, with a focus on life cycle housing. Objectives Residential Character/Housing Conditions Adopt housing/historic preservation regulations and performance standards to maintain the city's existing housing stock. 1 3rd Draft October 16, 2008 • Enhance the livability of residential areas through development controls and the provisions of public facilities and services to meet the needs of the neighborhood. • Maintain the mix of housing types and tenure in Stillwater's older residential areas. • Continue to assist the Washington County HRA in the administration of the housing rehabilitation program to maintain the existing older housing stock, maintain neighborhood character and the diversity and supply of moderate cost housing. • Retain the unique and/or historic character of existing residential areas. • Explore development concepts such as higher density infill, mixed use developments and cluster housing to maintain open space character and provide a mix of housing types. • Preserve Stillwater's desirable small town character by planning residential development and the establishment of neighborhood character in new areas. • Designate multifamily housing sites in areas with residential services including the Downtown area. Special Housing Needs • Support the provision of a supply of affordable housing for the elderly, physically and mentally handicapped and others with special housing needs who wish to live in Stillwater. • Encourage housing for a range of household income and age levels where local services are available. • Work with the Washington County HRA to provide affordable housing for the elderly and families. • Encourage market rate rental apartments as an element of mixed use projects in the Downtown area. • Locate multifamily and attached housing close to community services and public parks. New Residential Development • Design local streets, in area plans and through subdivision design, to provide for neighborhood access and limit through traffic. • Provide for neighborhood convenience store locations within walking distance of residential areas without negatively impacting those residential areas. • Designate residential densities and housing types sensitive to natural resources and land conditions. • Use the planned unit development process for reviewing innovative development concepts and protecting natural resource areas. 2 3rd Draft October 16, 2008 Provide single family, large lot and small lot and attached housing in the annexation area. Policies and Programs Policy 1: Review affordable housing needs and develop a method of better matching needs to supply. Policy 2: Maintain the city housing stock in good condition. Policy 3: Support efforts of Washington County Housing and Redevelopment Agency in providing assisted housing at appropriate locations. Policy 4: Attempt to disburse assisted housing throughout the community. Policy 5: Locate assisted housing near transit lines and public parks. Policy 6: Participate in Minnesota Housing Finance Agency programs that provide housing assistance. Policy 7: The city shall participate in available housing rehabilitation programs. Policy 8: The city shall endeavor through the development design review process to maintain and enhance Stillwater's community character and housing quality. This shall apply to new and rehabilitated housing. Policy 9: Utilize the future land use map to designate residential sites appropriately located for a range of housing densities. Program 1: Explore using TIF and other funds to provide housing rehabilitation grants to very low and low income senior owner occupied housing needing rehabilitation assistance. Program 2: Work with local lenders, Washington County HRA, MNHFA and other housing agencies to provide a comprehensive housing assistance strategy for households needing assistance. Program 3: Attempt to meet regional lifecycle housing goals for the City of Stillwater. Housing Profile Total Units & Unit Type As seen in Table A, the majority of units in Stillwater are 1-unit detached homes. The second most common type is 1-unit, attached, which represents housing types such as attached townhomes or row homes that include separate entrances and do not have units on top of one another. Stillwater has very few multi -unit structures, and no mobile homes. The percentage of multi -unit structures has increased with the recent construction of new condominium projects in downtown Stillwater. 3 3rd Draft October 16, 2008 Table A — Units in Structure Units in Structure Number Percent 1-unit, detached 4,920 69.0 1-unit, attached 316 4.4 2 units 86 1.2 3 or 4 units 464 6.5 5 to 9 units 246 3.4 10 to 19 units 252 3.5 20 or more units 852 12.0 Mobile home 0 0 Source: City of Stillwater Housing Tenure As of January 1, 2007, there were 7,136 housing units in Stillwater; 5,504 of these units, or 77 percent, are owner -occupied. Table B shows housing tenure in terms of total units and percentage. Housing tenure refers to whether the unit is owner or renter occupied. Table B — Housing Tenure Type No. of Units Percentage Owner -occupied 5,504 77.1 Renter -occupied 1,632 22.9 Source: City of Stillwater The American Community Survey, part of the US Census, is completed every year. However, this updated data set is not available for the City of Stillwater, only for Washington County as a whole. Looking at this data for Washington County can still show a general pattern for the housing tenure by age. This information is valuable to show the pattern of need for rental and owner -occupied housing throughout an individual's lifecycle. Figure 1 shows the number of owner and renter households by the age of householder. 4 3rd Draft October 16, 2008 Figure 1 — Tenure by Age of Householder, Washington County, 2006 Households 25,000 - 58% - 70% - 60% 20,000 - 15, 000 - 10, 000 - 5, 000 - 15-24 25-34 35-44 45-54 55-59 60-64 65-74 75-84 85+ Owners o Renters t Rental Rate - 50% - 40% R - 30% y Source: US Census The red line in the figure shows the rate at which households are renting rather than owning their homes. This clearly shows that throughout the lifecycle, there is a need for both rental and owner - occupied housing. Over fifty percent of Washington County residents age 85 and older rent rather than own. Age of Housing Stock According to the Washington County Housing Study, completed in 2007, the housing stock in Stillwater has a wide range of ages. Table C shows the age of renter and owner occupied housing in Stillwater. 5 3rd Draft October 16, 2008 Table C — Age of Housing Stock Pct. of Housing Stock -0 Before 1950 23% c.L 1950-1969 12% a u 1970-1989 26% O 1990-2000 18% -a Before 1950 2% °' 'Q 1950-1969 10% w u 1970-1989 3% 1990-2000 6% Total 100% Source: Washington County Comprehensive Housing Needs Assessment; 2007 Building Permit Trends Table D shows the number of residential building permits issued each year between 1997 and 2006. The City experienced a peak in new residential permits between 1999 and 2004 before leveling out in 2005. The city experienced a high in 2000 with 222 residential permits issues. In 2006, 53 residential permits were issued. This peak is clearly demonstrated in Figure 2, showing the same data. Table D — Residential Building Permits 1997-2006 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 Single Family 9 37 106 122 104 104 104 60 48 45 Twin Home 2 8 17 4 0 7 2 0 0 0 Condo/Townhouse 0 0 0 96 83 80 71 58 14 8 Duplex 1 0 1 0 0 0 1 0 0 0 Multi -Family 0 0 0 0 6 1 0 1 0 0 Total 12 45 124 222 187 191 178 118 62 53 Source: City of Stillwater 6 3rd Draft October 16, 2008 Figure 2 — Residential Building Permits 1997-2006 250 - 200 150 100 50 0 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 ■ Multi -Family ❑ Duplex ❑ Condo/Townhouse ■ Twin Home ❑ Single Family Sales and Market Value The period between the completion of Stillwater's last Comprehensive Plan (1995) and the present update has seen a steady increase in the number of units sold followed by a dramatic decrease starting in 2004 and 2005. This decrease is in line with housing sales trends across the metropolitan area and nationally. Figure 3 shows sales of attached and detached housing units over the previous planning period. While this information makes planning for the future difficult, it is likely that sales will return within the next planning period (2010 — 2030). Stillwater is also nearing full build -out, and this fact may limit the detached housing being constructed and sold in the city. The market value of housing in Stillwater has been steadily increasing since the last plan update in 1995, with some decline or leveling -off occurring in 2005 through the present. One measure of market value is price per square foot, which is useful because it controls for the size of homes, rather than showing sales price irrespective of size. Figure 4 shows the median price per total finished square foot of attached and detached homes in Stillwater since 1998. 7 3rd Draft October 16, 2008 Figure 3 — Housing Sales 1998 - 2008 400 - 350 300 250 200 150 100 50 -� 0 V O'1) `O Sales of Attached Housing Sales of Detached Housing Source: Northstar MLS After hitting a peak in 2005, price per square foot has leveled off for attached housing and continues a downward trend for detached housing. This trend could be due to an oversupply of housing, or a tightening of credit markets, or both. Median sale price hit a peak in 2004 for attached housing and 2006 for detached housing. While attached housing values have since returned to their previous levels, detached housing is showing a decline in median sale price given data available through June 15 of 2008. Figure 5 shows median sale price of housing since 1998. 8 3rd Draft October 16, 2008 Figure 4 — Median Price Per Total Finished Square Foot 1998 — June 15, 2008 $180.00 - $160.00 $140.00 $120.00 $100.00 $80.00 $60.00 $40.00 $20.00 $- 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008* Attached Housing Detached Housing Source: Northstar MLS Figure 5 — Median Sale Price 1998 — June 15, 2008 $350, 000 $300, 000 $250, 000 $200, 000 $150,000 $100,000 $50,000 $- 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008* Attached Housing —.—Detached Housing 9 3rd Draft October 16, 2008 Growth Projections and Land Availability Due to the fact that Stillwater is nearly fully developed new growth in residential units will occur in remaining vacant sites in western Stillwater and through redevelopment. Table E demonstrates the remaining developable areas and associated density and resulting potential units. More discussion as to how these land uses were determined is available in Chapter _ Land Use. Table E- Development Potential- Residential Land Availability Planned Land Use Type Developable (Net) Acres Approximate Density Potential Units Low Density Residential 159.44 3 478 Low/Medium Density Residential 149.98 4.4 660 Medium Density Residential 46.03 6 276 Total 355.45 1,414 Considering the estimate of 7,136 existing household this table shows a projection to reach 8,550 by 2030 (compared to Met Council estimate of 8,600) anticipating development on only the remaining growth areas in western Stillwater in addition to existing units. This estimate does not account for future new units that may be constructed through redevelopment or infill. It is more difficult to predict the level of redevelopment and infill; however, Stillwater has already seen a surge in condominium redevelopment in its downtown. It is assumed that interest will continue as the market recovers. The remaining available growth (remaining 500 units between the City projection based on Western Stillwater potential growth and Metropolitan Council estimate for 2030) can provide the City flexibility for higher density in portions of western Stillwater or provide room for growth in other areas of the community. Housing Affordability One of the most important factors in analyzing the housing stock is its affordability and marketability. Stillwater has a good supply of affordable housing stock within its existing and older housing stock. This is due to the age of the housing as well as the size of the homes, particularly in the older neighborhoods. These same factors also contribute the city's marketability and housing value. With older and smaller homes, the average market value is less than that of the newer construction. It will be important to help homeowners to maintain this housing so it remains affordable. This is due to the age of the housing as well as the size of the homes. What is affordable housing? There are several different definitions of affordable housing. The definition most frequently cited and measured in this report is that housing is affordable if households do not pay more than 30 percent of their income on housing related costs. (Defined by the Federal Housing and Urban Development or "HUD"). Housing related costs include such things as mortgage or rent payments, taxes, insurance, basic utilities, and other related housing costs. This leaves the remaining income 10 3rd Draft October 16, 2008 to pay for other goods and services such as clothing, food, child care, transportation and medical expenses. When households have incomes at or below 80 percent of the area median income (AMI) home ownership becomes a challenge. This household group tends to pay more than 30 percent of their income on housing and has less disposable income to pay for other goods and services. Also, those residents with lower incomes have significantly fewer housing choices to meet their family needs. In addition to income, the age distribution of households (older residents staying in their homes longer) has an effect on the availability of homes that are affordable. The area median income (AMI) for 2006 was $78,500; 80 percent of median was $62,800. Most homeownership assistance programs are targeted to households at or below 80 percent of median income, thus this is the threshold that is used in determining whether ownership units are affordable in this plan. Affordability and Life -Cycle Housing Affordability is an important part of establishing life -cycle housing. Between 1996 and 2005 184 affordable rental units were built in Stillwater. This is 76 percent of all the rental units built in Stillwater during the same timeframe. Of the 1,155 ownership units that were built between 1996 and 2005 128 or 11 percent of them were affordable. To understand more recent trends in affordability, MLS data from 2006 through 2008 was analyzed to determine how many sales of attached and detached housing units met Metropolitan Council affordability thresholds in each year. The Metropolitan Council evaluates household income levels on an annual basis to determine housing affordability thresholds. Recent affordability thresholds are shown in Table F below. These thresholds are based on a family earning 80% of the area median income. 11 3rd Draft October 16, 2008 Table F — Recent Affordability Thresholds Year Affordability Threshold for Housing 2006 $201,800 2007 $206,800 2008* $214,901 Data through June 15, 2008- Metropolitan Council Sales for each of the previous three years were analyzed for affordability. Figure 6 shows the split between sales above and below the affordability threshold identified for each period. Red bars show the total sales (attached plus detached) and the split between those above and those below the affordability threshold. Since 2006, the total percentage of affordable sales occurring in Stillwater has increased each year. If a similar split percentage of affordable sales occur in Stillwater through the end of 2008, the City will have seen nearly 30% of the units sold being designated as "affordable" by the Metropolitan Council. Figure 6 — Percent of Sales Above and Below the Affordability Threshold — January 2006 - June 2008 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% .194.260 • • 52 • 184236 • • .15. • 61 • .76 66 D a) s m Q D a) s m p 2006 o ~ D a) s m Q D a) s m a 2007 o ~ D a) s m Q DTo a) s m a 2008 o ~ • Sales Above Affordability Threshold ❑ Sales at or Below Affordability Threshold Livable Communities Act In 1995 prior to the local comprehensive plan updates prepared for the period of 1998 and 2008 the Metropolitan Council created the Livable Communities Act (LCA). The goal of this program 12 3rd Draft October 16, 2008 was to stimulate construction of affordable housing within the seven -county metropolitan region. Metro area communities were asked to participate voluntarily and Stillwater has been a participant since its inception. Once they choose to participate, communities negotiate life -cycle housing goals with the Metropolitan Council. Various grant programs were established to assist local government in meeting their goals. 2020 LCA Goals As part of the 2030 Regional Development Framework, the Metropolitan Council estimates that approximately 50,000 additional affordable housing units will be needed in the region during the planning period of 2011-2020. The Metropolitan Council will be working with communities to adopt new agreements in 2011 for the next ten year cycle. In order to do this the Metropolitan Council conducted the study "Determining Affordable Housing Need in the Twin Cities 2011- 2020." With this new plan the Metropolitan Council has changed their definition of affordable housing from of 80% of area median income to 60% of area median income. The study then described an allocation method to all communities within the region based on the following four criteria: • Household Growth Potential • Ratio of local low -wage jobs to low -wage workers • Current provision of affordable housing • Transit Service Based on their analysis, the Metropolitan Council's new affordable housing goal for Stillwater is to create 142 new affordable housing units between 2011 and 2020. The affordability limit is 60% of area median income for both owner and renter occupied. In general, Stillwater has responded to this need in the past and is planning to work toward this goal by continuing to encourage infill development that occurs at higher densities and makes affordable housing more economically feasible. The City is also guiding some developing areas of the city in western Stillwater at higher densities. Action Plan for Affordability The City is creating a regulatory land use plan which identifies areas of density from 4-9 dwelling units/acre for Low -Medium Density, 6-15 dwelling units/acre for Medium Density and 12 dwelling units/acre and greater for High Density where most affordable housing will occur. Barriers to development of affordable housing still exist in the region as well as in Stillwater. Some of these barriers are beyond the City's control including: • Steady increases in land prices. • Increase in construction costs. When combined with land prices, it becomes more difficult to provide affordable units through new construction. • Physical limitations of land due to wetlands, poor access, poor soils that would increase the cost of land development or construction thus making it more difficult to build affordable units. 13 3rd Draft October 16, 2008 • Limited amount of remaining developable land. • Higher costs for redevelopment. • State, county and local tax structures. Implementation Housing Strategies and Recommendations The following Housing Action Plan identifies efforts Stillwater will pursue to create opportunities to maintain the existing housing stock, and to provide increased housing options for future residents. These strategies are designed as a resource tool for specific measures the City can effectively undertake and enforce while others are designed as tools to encourage developers to incorporate affordable housing into future development. As future subdivisions are proposed, the City will use these resources and implement the strategies in working with developers to create new affordable housing opportunities. The strategies and recommendations are reflected by community goals based on three main objectives as listed in the beginning portion of this chapter: residential character/housing conditions, special housing needs, and new residential development. Many of these items are things the City itself can do, while others will occur through partnerships the City will seek to provide for and maintain housing quality and increase affordable housing opportunities. Residential Character/Housing (existing) Conditions: Promote housing rehabilitation • Adopt stricter design regulations and performance standards, as ordinance requirements, for all historic neighborhoods and homes. • Support and actively promote housing rehabilitation programs for existing owner -occupied homes and rental buildings or units in historic neighborhoods. This includes promotion of County, State and non-profit programs. • Support and actively promote housing rehabilitation programs for existing owner -occupied homes and rental buildings or units. This includes promotion of County, State and non- profit programs. • Support and actively promote 1ST Time Homebuyers programs to assist new homeowners entering the market for existing homes. • Utilize the city's website, newsletter and other sources for promotion and advertising of housing programs. • Study the feasibility of establishing a program to require a property inspection and disclosure report before residential property changes hands. • Adopt a rental licensing program and maintain enforcement efforts. 14 3rd Draft October 16, 2008 Special Needs Housing- Improve the availability of affordable housing and senior housing. • Seek housing developers to work cooperatively with the City to construct affordable units. • Participate in the Livable Communities Act Local Housing Incentives Program. • Consider designating a portion of Tax Increment Financing to fund activities that increase new affordable housing. • Utilize techniques, such as land trusts, to maintain long-term affordability. • Partner with, support and market programs offered by the County, State, MHFA, Federal Government and non -profits to fund the development of affordable housing. • Complete an assessment of senior housing needs in the community. New Residential Development: Promote a wide range of housing types, styles, densities and choices to meet life cycle housing needs. • Use the land use plan as a tool to provide a variety of residential land uses in a range of densities, concentrating higher density opportunities along major transportation and transit corridors and around future job centers. • Update the zoning ordinance and subdivision ordinance to remove impediments to affordable housing. • Periodically review land use regulations to determine the effectiveness of current ordinances in encouraging additional affordable units as well as encouraging modifications to keep the existing housing stock desirable and livable. • Ensure that all new housing, including high density, adheres to the highest possible standards of planning, design and construction. • Allow the creative use of site planning or PUDs that provide flexibility for development containing affordable housing such as a reduction in lot size, setbacks, street width, floor area and parking requirements. • Encourage innovative subdivision design including clustering techniques to preserve open space or natural features. 15 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Historical Resources 3rd Draft October 16, 2008 Chapter — Historical Resources Introduction The abundance of historic resources is a vital component of Stillwater's character. The preservation, protection and use of historic properties is a public necessity due to their importance to the city's history, character and legacy. The city has worked over the past several years to record this valuable history. During the course of public visioning and goal setting, the public and city restated goals and objectives from the 1995 plan with updated program and implementation efforts to continue the work of preservation and public education towards this critical effort. Goals: Goal 1: Safeguard the heritage of the city by preserving historic properties which reflect Stillwater's cultural, social, economic, political, visual, aesthetic or architectural history. Goal 2: Protect and enhance the city's appeal and attraction to residents, visitors and tourists, using historic properties as a support and stimulus to business and industry. Goal 3: Enhance the visual and aesthetic character, diversity and interest of Stillwater. Goals 4: Foster civic pride in the beauty and notable accomplishments of the past. Objectives Preserve the Downtown Stillwater Commercial Historic District and adjacent historic properties through the design review process and other means as they become available. Preserve and protect commercial and residential historic properties (buildings, sites, miscellaneous structures and districts). Encourage compatible remodeling restoration, and/or reuse of historic buildings, including homes. Preserve locally designated historic structures and protect governmental and public buildings throughout the city. Determine which historic properties, identified by historic preservation surveys, are eligible for National Register of Historic Places designation or local designation. Preserve the Stillwater/Houlton Interstate Bridge. Consider developing preservation and restoration regulations. 1 3rd Draft October 16, 2008 Policies Policy 1: Continue conducting historic preservation surveys based on historic contexts to identify and evaluate the significance of all historic properties within the city limits. Policy 2: The city will continue to review site alteration permits for the downtown commercial historic district, the downtown plan and such other locally designated districts and properties in order to assure the preservation and restoration of historic properties. Policy 3: The city and citizen advisory groups will coordinate local efforts to preserve and protect cultural, natural and historic resources in the community. Policy 4: The Heritage Preservation Commission will continue to work to educate the community at large on cultural values and economic benefits of historic preservation. Policy 5: The city will develop new standards for public improvement projects (i.e., streets, sidewalks, lights, utilities) which will be sensitive to historic neighborhoods. Policy 6: The plan for preserving Stillwater's historic resources will be developed in accordance with the Secretary of the Interior's Standards for Preservation Planning. Policy 7: The city shall encourage cooperation from local lending institutions for financing a building renovation grant or loan program to assist in the rehabilitation and restoration of historic properties. Programs Program 1: Incorporate into decisions the designed historic contexts as the official overview of the history and development of the City of Stillwater. Program 2: Historic preservation planning areas shall be developed as defined for the purposes of conducting historic preservation surveys (reconnaissance, followed by intensive identification and evaluation activities) of Stillwater neighborhoods as outlined by the HPPA as follows: 2010 North Hill HPPA 2011 South Hill HPPA 2012 and beyond: Forest Hills, Lily Lake, Sunny Slope, Fairmeadows, Croixwood, Oak Glen and Deerpath HPPA's Program 3: The city shall locally designate those properties worthy of historic preservation. 2 3rd Draft October 16, 2008 Heritage Preservation Commission The Heritage Preservation Commission was formed by the City of Stillwater in 1980. The city was designated a Certified Local Government by the State Historic Preservation Office on January 29, 1988. The purpose of the Commission is two fold. First, to safeguard the heritage of the city by working toward the preservation of historical sites and structures. Second, to promote the community's rich architectural and cultural history through research and education. The Commission is responsible for review of applications for new development or renovations to existing sites in the Downtown Historic District and the Neighborhood Conservation District. This review is to ensure conformance to design guidelines in each of these areas. Additionally, the Commission acts as the city's Architectural Review Board for the West Stillwater Business Park and the Village Commercial area in Liberty on the Lake. In its research and education roll, the Commission has completed two context studies, 10 neighborhood studies, and one working report since 1989. The Commission has also completed the first phase of the "Heirloom and Landmark Sites Program", which is an effort to honor property owners who maintain the historical character of their building or site. More discussion on this program is provided below. Preservation Planning Efforts Stillwater has an active preservation program. The purpose of the program is to safeguard historic resources while protecting and enhancing Stillwater's appeal and promoting preservation. Through the years, the City of Stillwater in cooperation with various federal and state partners, has completed reports on the history of Stillwater neighborhoods and commercial areas. The first effort was the 1989 intensive National Registry Survey that resulted in the establishment of the 1992 "Stillwater Commercial Historic District." This area encompasses the Stillwater Commercial Historic District as show on Figure _ Downtown Historic Resources. The downtown/commercial historic district contains 57 contributing buildings, two contributing sites, three contributing structures and one contributing object. To protect this area the city developed a design manual for the Commercial Historic District and the surrounding Central Business District as is shown on Figure _. 3 2008 Comprehensive Plan z 1,600 Feet 0 0 oo 0 0 oo Right -of -Way Open Water 0 U N co. U N 0 0 0 co U N co 715 4- 0 0 1 I m C, 0 0 Contributing Site Contributing Structure Contributing Item Noncontributing Building Noncontributing Site Removed -Contributing Building Removed -Noncontributing Building N • ■ is kiwi �.. I�'I •,,I,'\I■iL•I -t--; -A,,,,x_- / ,.•..,"; St. Cr River fin- ,••• f •_.. _.._.. III -I i� 1 ill 1N�Q ry� 717171'171177- `•:•�; 40 c0 1 ■: ■_ T 1 11 H I H- 1111►'so J- III TI w °14-10 401 EMI 1111111, 101,0:;$ 1111: * leaf ,III 1■v H T L= H 1 HAM 4114 mmm a • • • • LL 0 LI mm ger`c 000 II ri el • • • 1 T C O mm :� pm MP 11111 II I11 H N III. iIN llr -1 • I ■ Emil ■ I y. / 1111111 I Ain ll� wird r■1 HI II H a 11111■ 11111111 ■ Ii" 11111111 1111 II 1111111E ■■ :1111■= 1111111 1. . 11■,11_rmomm NE II I■11,11 11111■ 1_ 1 1 III ■� 11 a I I ■■- IIIHH II XLIHTH Ire] W M1 M • St 1 �De000u --- i la 111 k:i i Isivr, riu 0 3 MIL ■I. ■♦II rIL u_ 0 0 0 3rd Draft October 16, 2008 In 1993 the Heritage Preservation Commission commissioned Robert Vogel, historian, to prepare a study that initiated a comprehensive historic preservation planning process for the City of Stillwater. Vogel's historic context document was compiled in accordance with the Secretary of the Interior's Standards for preservation planning, which call for the establishment of historic contexts and the use of these contexts to develop goals and ultimately register those that qualify on the national or local historic register. The context study divided Stillwater into 16 neighborhoods, each was suggested to be surveyed later in detail. To date, the city has received ten grants from the Minnesota State Historical Society (Certified Local Government Grants —CLG), with matching and in -kind funding from the city to survey neighborhoods. • North Hill Original Town (7/31/95) • South Hill Original Town (7/31/96) • Greeley Addition (7/31/97) • Dutchtown District (7/31/98) • Holcombe District (7/31/99) • Hersey Staples & Co.(7/31/00) • Carli & Schulenburg's Addition (7/31/01) • Churchill, Nelson & Slaughter -West Half (7/31/02) • Churchill, Nelson & Slaughter -East Half (7/31/03) • Staples and Mays Addition (7/31/05) Each of the neighborhoods is displayed on Figure_ Neighborhood Architecture Survey. The completed historical neighborhood studies are available along with a full Stillwater Historic Context prepared in 1993 on the city's web site at www.ci.stillwater.mn.us 5 z 1,600 Feet O O oo O O O oo I A, Dutchtown Addition B, Carli and Schulenburg Addition C, Staples and Mays Addition D, North Hill (Original Town) E, Greeley Addition L. F, South Hill 1.0 T/ 1:1510151007001 Igislmapslar chitectural survey.mxd i INRIV ritufpac vamp r x1 III rig IIII Iwll llli l®Id II 11 ?I %mat Mae 111110 61 1�1 lil t1®�II®1I®1 A® Rink ilw ®U1IIIVThII I -MIlrEmwe e..■beIIII IC 441 _.._.._.-.. ill tAl ot ›,.:,, <9 11 -• -.•-..-..- •-••-.•-..-...-• - •-•.1;L, .. •-••-• . �� y 1111111■ ■■ . ' iv v Ift111Nlt IBM a s . �I am 111111i111 _ ��C• lo.. • 11n11111111111III1 + yi spy :I IIIIII GI1■11= 111 1 1 I1111 ■■1 II am mu frtevOor ®IIII .. ■m I�r IIII :I■ 1I111 1111111 n■11111111111 00immtamb._ III■1 e • itzoi. xI IIII N1 ■I■ i , IIII III■ IIIIII111II - - ■ 11111 AIN1111NI■: xI11111 x ■■Ilex _ -- 1 �INI� ■11■1 ® .. _ _ 1■11111111 11111 11111■1 101IIlr 1mI11I 11111111■. 1m■ e1i111111■ 1 La slow :III■® �n 11�I �■■ wimp lu eg ■h� II ®■®'' N i .! pa III 4■ ■A '■ ■ Bin II :■IG- N1 guy,IJ■l■ :n e■■ ®.■.• ■ .-I■IIIF-- fi1jiNiii_III 1.Ile ?OP .®® .I11IIIn�I-0/ 1I IF *110900PM 'i:41464I .I1111II ■°1-111111111 � i !11 H11'III.4 iI r 111 li4,01 ■ iiwallF ON aaa11■11. II Migillit AilliSfAh011inlilin v ■Ir riamimo IlilairlIgd"lit ... Tii ■ , „;,r 3rd Draft October 16, 2008 Design Guidelines As mentioned previously two separate design guidelines have been prepared, one for the Commercial Historic District and one for the residential area known as the Stillwater Neighborhood Conservation District. Each of these has extensive guidelines and recommendations for new development and redevelopment and require a design review approval by the City. The Commercial Historic District also requires design review by the City on the renovation of existing sites in the district. Commercial Historic District Design Manual The Design Manual for the Commercial Historic District was prepared to guide the new development and renovation of buildings and sites in the Commercial Historic District and surrounding downtown area of Stillwater. The guidelines are designed to be flexible to allow for creative and imaginative design while preserving the historic attributes and maintaining the pedestrian character of downtown Stillwater. All exterior renovation projects require a design review permit that is reviewed and approved by the Commission. The design guidelines touch on all aspects of a site and structure including setbacks, building facades, roofs, materials, color, lighting, signs and graphics and landscaping. The design manual is comprehensive and includes a background for each topic describing the intent along with narrative and graphic details for each of the design elements. Stillwater Neighborhood Conservation District Design Guidelines A residential Neighborhood Conservation District has been established to help protect and preserve the unique character of Stillwater's historic residential neighborhoods, by regulating and providing design guidelines for new infill development within the district. Its purpose is to conserve the traditional neighborhood fabric, guide future infill development and discourage unnecessary demolition of structures that contribute to the district's character. The following Figure _Neighborhood Conservation Districtdisplays the boundaries of the district. Guidelines require any new construction projects to be reviewed using standards that emphasize compatible development in terms of size, massing, and relationship to the larger neighborhood context. However, additions and alterations to existing buildings are not yet subject to design review. It is hoped, however; by some members of the community, that the design guidelines will eventually be used for all additions and alterations given that such changes and improvements may impact adjacent residences, the streetscape and the neighborhood. The Design Guidelines are comprehensive in nature covering all aspects to infill including massing, setbacks and placement on the lot in regards to existing trees, slopes, etc. Design aspects of the entire home are covered including building height, roof design, location of the garage, front porches, facade design, windows, building materials, etc. Review and approval must be made by the Commission prior to issuance of a building permit. 7 i • St. Croix River ig ildhllryJ--alk — ____....., 1111111jpo°' INI 11111■I 1111■11:111� pate* I I 111 11 ■ I1 III■ 1■I ■I■ N u 1m ■1111- :nn n11- i I111 Ii.. II :II 1:■■III 1:1 ■li Nu IIi•1 II .00 I III II■ ■■ 111 ■11 R1 1� 11111■ ��� i■■11 �� Fill 1.1 �■ ■= ■I- I . - .. ammA Z'1 • aD I 1E!El 11�10111/1111=�-__11■ u-■■11111 1'■m�1 m1I�i „•1111 GIL=I Im 1 I■41M IE in El MIN mum IIm�1 �' I. ft iso' ml� gz • U- is N. ■: NE NE �. -- El IN ■ • AMA 4 A Ys 3N • • .114 .114 60, �■ :HHH H n m ■ mom Il� ■■1 -_ 11111■ 11■■ ■IIIl i■ .-■■11: ■ P■■1111111111 11pH •01min km ,.� *Ai 10:07111iiiiii__. 1 ..11�OI�LI1 � III lis HIII I I 11■I I I I I LIIIL]j Im■I H II I I� Ldl1 111■1 L II`II■■ T �y ■ nm1=- 111N11111111■I�u: u11:�1 Y: -' I 1 1111111 -- _ II ■11111 ■i : _MI I - '` 1 ■_ 116 "I .� -e ■ Wiwi ■11 111111111M.�1.r� ■'- �1 mom ■111 1 11:i 111■ I. ■�I� 111111 gmHIII IIN�11■■111111IIIIIi■ Np 111111: � � 11111 1 III 1;.I II 11111 11111 1 MIN ■■ 11111111111 ;' IIII' 1111111 Jl■i r c0 ■_EN i i ■1 111 ■ II: 11. :.- 11 11= III- III- 11= 11 0 �� INS, �mmmCP as �®. ow 0 ihtt AIM" ill; � • _ 4* Ael 144," I ION lif �'i1 Cl eta„ • vpitr7r; ' LC* aimpr— riP 41 sot j ■11111 sun ACE 1111NI tagI111111111111111111111•:1I1m1 M 111111111 ■1111111111111•II 11111111 . 1111■111111111 I11111111 N■11111 ■■ 11111■11111■11111111111 11111N ■•• V111■111111111111111i■111 ■11111111 Im1111111111:N ■11111■ 1111111111111111 I ■11111111111111111111:■1N IlilUl1 ■■■HIII R"' 1111� ■r 11HIIIIN1111111111111111 ■111I11111 BMW N111111 •" ■I■IIII11 HIIIIII 11111111 11 ■111111: NI11111111111111 MIME 111111111 ii ■111■111:111111 ®� I1 1111111�111 ■ �� Ali !■■ 1I11 III 11■ =:11� 1■ ■ M ■ .� HIII■ .11.■ ■■ ■■ • I- Eli mum • Y N � 3 ma A1 r.l1 1 UW p��� �0 e;,boaLa _. _.._.._.._ ._.._.._.._..._. _,._.n7 • III: "III lr 44 EN N. ME 1—' s 11 I I". 1111111■ I'll. 1 11111 11 El MI ,I 111 ■1 —■1111�■■m ■a ••• ■ ■ iIII I11111 u1 ■■ III ■i � .�� a: ■1 ■■ ■• I no 1 III ■� ---- ■._ =s■ 1 ■I:IN11:N OA M i iii '=1:1 III BI 111 ■i • •4 11 *11 kw oft roup4J. • ad= rAl 1.4 10 s iltst • 11 0� • mill11"14' MEM ME :L 1 MIME L ■i! : .1 Eh. ea or 1■11 I I I I I I D°000 I it k rs-Ary Jig *id JI 011 I .:=:■111111111 11 AFT 3rd Draft October 16, 2008 Existing Historical Resources The Stillwater Commercial Historic District is a National Registry of Historic Places district. The district contains 57 contributing buildings, two contributing sites, three contributing structures and one contributing object. In addition to the Stillwater Commercial Historic District, the city also has several individual buildings and sites listed on the National Register of Historic Places. The National Register of Historic Places is a listing of historic properties maintained by the National Park Service upon recommendation by the State Historic Preservation Office (SHPO) and the city. The following properties are on the national register and displayed on Figure _ Nation/Req/sterofH/stor/c Places. • Chicago Millwaukee and St. Paul Depot and Freight House: • Hersey Roscoe House: • Jenks, Austin House: • Lammers, Albert House: • McKusick, Ivory House: • Nelson School: • Sauntry, William Mansion and B & B: • St. Croix Lumber Mills/ Stillwater Manufacturing: • Territorial/State Prison Warden's house: • Washington County Historic Courthouse: • Webster, Mortimer house: • Territorial/State Prison (removed) 233 and 235 Water Street 416 South Fourth Street 504 South Fifth Street 1306 South Third Street 504 North Second Street 1018 South First Street 626 North Fourth Street 318 North Main Street 602 North Main Street 100 West Pine Street 435 South Broadway Street Stillwater's Heirloom and Landmark Sites Program In 2007 the City of Stillwater and the Heritage Preservation Commission (HPC) began development of a program to honor property owners who maintain the historical character of their building or site. The goals of the program are to: • Acknowledge property owners who have voluntarily preserved or restored their historic home, building or site. • Showcase historic homes on Stillwater's Heirlooms Homes and Landmark Sites Program website. • Educate the general public about historic properties in Stillwater. • Help property owners learn how to preserve their historic homes by providing technical assistance that shows homeowners how to maintain the historical character of their homes while also updating them to meet the demands of the twenty-first century. • Preserve Stillwater's historic neighborhoods to ensure that the community maintains its identity and appeal as a historic river city and tourist destination. 9 0 c N4-0 Ce U N z L.L E Q CO■Q C 4J U 0 .(I) co 0 N 2 z 1,600 Feet O O oo O O O oo Right -of -Way Open Water 1 2, 3, 5, Staples Mill 6, Lift Bridge 7, Chicago Milwaukee & St. Paul Depot & Freight House 8, Webster, Mortimer House 9, Hersey, Roscoe House 10, Washington County Historic Courthouse 11, Jenks, Austin House 12, Nelson School 13, Lammers, Albert House ric places.mxd I:I510/51007001 /gislmapsJhist I� Ril h:Win IQ�uu i MI JIM 11■ f0,1 1 ii •�••� St. Croix River 11 o N antl ll!H )IeQ. I ■ • 1 c c i5 o>fel VPlsaMel — ;17- a 3 d v a 1 r �.l H MIN MIN MM nu U � J is e U � I • i j/ IIIIIII' 8 w III11M1 Illlf N `o 3ts13 r y zs IN m Pd 4Sw£S r=1 eo,9 N. \ . - N `a ` �. \�- N-1-� 1S Lilt S Y 111111 I d5c } p ;n 5 1SLBCSLn xll ''l- c w �q aN3' ,-' I'> o III I ,,,, b 0.tri 5- ❑ r. -r". 3 ..1'''' t , ;,- �- as Liu S ° LL_L11L`! C� W �L� �, t; 505 �� 1i _m ■1 1 !. 1 l ��'N S III 11_ �jr u- Y n .vim i7ns a N N 1S Aa,an3 N U 11 Y - HI a a eiawe-� 1i ii ii is Kalaa,9N WWI ll ❑ 1 I TI� iS suaM 11 I 1 _ I W �g L u oN L- iS P,eru[ro l ' y== IS aul ngra4s N1W L- I I I C'� L - / is;ua9 N � -J 1S iaivaJ S is 1oluo3 S — c U) C. I T 40 mmm -1Mut in WM 0:ba 6 jrffilifignr 0 ,Q uospunuiy 0 Imo\ Hey ♦���\u0H' II�I1 '■I 111* /E0a �.._.._.._. C, ._ _.• _._.._.._.._■_■■_■■ Or/J- miner Ave F-� HUI pi ka l 1 ]S anm9 S N 1S lawert s 0 bpooMa6 SPUN N-HNH'-V ^bass p3 O'Cal IPA u0r1) lit l— Northland Ave H\ AH 111111 m ° o III V o nee Q,o at1 4 o a Y V hs II) T s U S N— afivani 11 1 avv. Jai saM4iroN II Fr :1 5 1 ❑ 1 H 1 FL PI II r- p L 77. O. N m v1 PO. k sti ' a --,, ff i Oc� ' pnl8 rPu0601 -a.omaCN if cap yalia5�t ,,,..0. I- �Q � ,Q trOa ri ,aa • 3rd Draft October 16, 2008 The program is voluntary and highlights homes that were constructed in the older part of Stillwater prior to World War II and that have retained their historical character and integrity. So far 69 homeowners (as of August 2008) are participating in the program and their locations are shown on Figure_ Heirloom Homes. In total approximately 776 homes are potentially eligible to be listed in the Heirloom Homes program. Resources are available to assist homeowners focus on best practices when considering renovations and restoration of a home. This includes discussion on materials, siding, window, roofs, porches and room additions. These externally visible elements of the home are important historical features to repair correctly in order to maintain the integrity of the design. Extensive information and resources are available on the city's website to make home owners research and decision making easy. The city will continue to market this valuable program and help provide city-wide recognition to owners preserving their homes but also keep the public interest high in supporting this effort. Building Demolition Ordinance The city has implemented a demolition ordinance in order to protect the historic and aesthetic qualities of the city by preserving, rehabilitating or restoring, when reasonable, buildings or structures which constitute or reflect distinctive features or architectural or historical resources of the city. Currently, all structures or portions of structures, which are 50 years of age or older that are proposed to be demolished are required to be reviewed by the Commission prior to the city issuing a building permit. Not only does this ordinance promote the protection of the city's historic and aesthetic qualities but it also protects some of the city's most affordable housing. Stillwater Cultural Landscape District During the cultural resource review for the St. Croix River Crossing Project, the Stillwater Cultural Landscape District was identified as a resource eligible for listing on the National Register of Historic Places (NRHP) in 1999. The Stillwater Cultural Landscape District is located primarily within Stillwater, but also partly within St. Croix County, Wisconsin. It is approximately 260 acres in size. In Minnesota, the boundaries of the district essentially coincide with the 1848 Original Town Plat (O.T.P.) for Stillwater and an adjacent strip of land along the waterfront extending south of town. On the Wisconsin side of the St. Croix River, the Stillwater Cultural Landscape District boundaries follow the boundaries of Kolliner Park. The Cultural Landscape District also includes the Lift Bridge and the earthen causeway that connects the bridge to the Wisconsin shore. The Stillwater Cultural Landscape District contains 250 properties that contribute to its significance, including residences and commercial buildings as well as public stairways, parks, and an archaeological site. Among the 250 properties that contribute to the Stillwater Cultural Landscape District, 12 individual properties and 82-property Stillwater Commercial Historic District are listed on the NRHP. The Stillwater Cultural Landscape District also includes 187 properties that are noncontributing to the district's significance. 11 iIC ■ -r 1 �1 CLOD MN 1114.111,1 W■ III 1Nnl MEN 1 11 MI II • 1 I. 1'R1'T1T�r�1TL'_. ••••4•,„ is • Dye Agate Emi ELEL 1MI ■- := Lo I OM • r • • • • • • St. Croix River 0/0 ■�11111�■1 1 11ri /A I. 91 1I111 11 ■p m: I II 1 • IIII 111 :. ■ 1/111 m ICI 1 I. IN rII ■■ ANN 1111 414 i/ m • _.._.._.1_......-1•---... _...._.._.._ I1 iF H III III IN -d: ■ 1■1: i 1111_ 11= • • • L I MN ■II' I II 0411 Too ost 0 146 II MI III H I II I °I A 0 100 1 ii IL =1 1 1111 irk Wel OWN El 11111 IIII ��IIII 11■1 INN 6 1:1■: ■�111 � II ' 11_ _ T 11 1�J 11111 lI I II 1111111 _ ::III 111111 1111111 11� III'1 I.: • II • II■ ■111 11111 11111 L I/ 1 I 11111 III I I I 1 �De000u III1 F- IIIII 1 IIIIlI ■ 1 :■: 111■ ■:1I1 II 1® \TN A 1111. J datIllet ;111 •I- :J T - ■ ■ 11111 111111 :11 MEM MOM 1111� EN 1111 III IIII II 111 111111111 1111 III II I Il 111■IN IIIIIII 1 .IIIIIIIII MI II_ ::I ■i 11111 I II III- ■ 11 4 L'I11I I . - III■I1 '1111 ■ 111 ®E 1 II II III 11111 1111111 1111' ■111 =11 • .i 111 • . • ■1 �111111:11:111611111 i! I I I ��1 pill 1 1 --I arh► I'll fii d IIIII all ■■1■ iirm I� IN _ • • L. II\ ■ .� II1114 N IIII■ ail■ 1 dinlY 101 l:l lllrion „„„,, 11111111 t". me `Iin offir, .10 ' a TI ilf O. VI ■N. ilk ir MI SAW, in m._ jai EN EMI Lo 3rd Draft October 16, 2008 Implementation To implement the historic resource preservation efforts, the city will consider the following implementation measures: Incorporate into decisions the designated historic contexts as the official overview of the history and development in the City of Stillwater. (Program 1) Through June of 2010 the city plans to continue to expand the Heirloom Home program. Starting in June of 2010 through June of 2011 the city plans to develop the Landmark Sites Program. Once the Heirloom and Landmark Sites program is completed, the city plans to consider developing a local historic designation district for the eastern residential district. Continue conducting historic preservation surveys (reconnaissance, followed by intensive identification and evaluation activities) of Stillwater neighborhoods. This includes the completion (or resurvey) of the following neighborhoods: • 2011: Sabin's Addition and HR Murdock's Addition • 2012: Wilkin's Addition • 2013: Churchill Nelson 2"d Addition and Marsh's Addition • 2014: South Hill • 2015: North Hill • 2016 and beyond: Forest Hills, Lily Lake, Sunny Slope, Fairmeadows, Croixwood, Oak Glen and Deerpath HPPAs. (Program 2) Revise the Neighborhood Conservation District Design Guidelines to be applicable to existing home renovations, additions and repairs to ensure historic integrity is maintained. Seek funds, public or through private lenders, to be used to repair/restore architecturally significant homes or sites. 13 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Downtown 3rd Draft October 15, 2008 City of Stillwater Downtown Stillwater Framework Plan Table of Contents: Acknowledgments I. Introduction: A. Purpose B. Process and Approach C. Study Area II. Background A. Summary of past plans B. Summary of Existing Conditions Development Patterns Downtown Parking Land Use and Character Districts Parks, Trails and Riverfront Urban Design and Character Connections C. Current Issues & Opportunities Potential New Highway 36 Bridge III. Downtown Framework Plan A. Land Use, Urban Design and Character Districts Goals, Objectives and Policies B. Transportation, Transit, and Streets cape Hierarchy Goals, Objectives and Policies Primary Streets Secondary Streets Special Streets C. Parks, Trails and Riverfront Goals Objectives and Policies Lowell Park Flood Control and Parking D. Local Economy and Tourism Market Research Summary Goals, Objectives, Policies, and Programs IV. Implementation Strategies V. Appendix Background Studies Summary of community issues workshops Market Research Study 1 3rd Draft October 15, 2008 Acknowledgments Our thanks go out to the following participants for their time, effort and expertise contributed toward the completion of this plan. Downtown Steering Committee Rob Gag, City Council Suzanne Block, Planning Commission Rob McGarry, Park and Recreation Board Phil Eastwood, Heritage Preservation Commission Larry Nelson, Heritage Preservation Commission Kevin LaCasse, Parking Commission Jennifer Severson, Chamber of Commerce Susanna Patterson, Neighborhood Representative Bob Lockyear, Neighborhood Representative Don Empson, Empson Archives Mike Kilkelly, Neighborhood Representative City Staff Larry Hansen, City Administrator Bill Turnblad, Community Development Director Michel Pogge, City Planner Shawn Sanders, Public Works Director Consultants Geoff Martin, Bonestroo John Slack, Bonestroo Nate Ekhoff, Bonestroo Jay Demma, Bonestroo Brian Larson, Larson Brenner Architects Fred Schwartz, lteris Army Corp of Engineers Tom Novak, Project Manager, Levee 2 3rd Draft October 15, 2008 I. INTRODUCTION Downtown Stillwater has evolved through dynamic incremental changes from the "Birthplace of Minnesota" to a major destination as Minnesota's iconic "River Town". Through its evolution the downtown has been the subject of numerous transportation, parking, planning, and design studies that provide key resources on which to build. The following mission statement from the 1988 Downtown Plan summarizes the sentiment and intent of all the downtown planning efforts and has guided this 2008 update to the Comprehensive Plan: The image and identity of Downtown Stillwater is of primary importance. It is represented in its historic buildings, its natural setting, and 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. A. Purpose Downtown Framework Plan This plan represents a real change for downtown by focusing on linking the surrounding neighborhoods to Main Street and the riverfront to create a framework for growth that reinforces Stillwater's `rivertown' character. The plan knits together a network of streetscapes, open spaces, and land uses to create amenities, which will attract and retain residents and businesses. It strives to balance pedestrian and vehicular needs, and to provide spaces for a variety of gatherings and festivals. The approach for this process involved gaining an understanding of what has already been done, synthesizing and weaving together the pertinent aspects of past plans to maintain continuity among these efforts and ultimately creating a single integrated comprehensive planning document. B. Recurring Themes Consistent among the numerous downtown planning efforts are three recurring themes: 1. Managing Growth to Reinforce Small City Character • Preserve and enhance the historic rivertown image of Stillwater. • Encourage a viable and compatible mix of community and visitor services and activities. • Preserve and reinforce residential neighborhoods. 3 3rd Draft October 15, 2008 2. Connect Main Street to Riverfront & Residential Neighborhoods Develop a system that provides convenient pedestrian interconnections amongst destinations such as the Lowell Park, open spaces along the river, community trails, Main Street and the surrounding residential neighborhoods. • Balance the functional design of flood control elements with aesthetic considerations and connections to the river. • Maximize the efficiency of the limited parking supply through user education, signage enforcement, pricing and other measures. • Minimize the negative impacts of traffic and parking on the downtown image while supporting appropriate economic activity. 3. Maintain Compact Core Downtown Area Downtown Stillwater is a unique community within the Twin Cities Metro Area because of its topography, riverside location, and historic infrastructure of buildings, streets, and bridges. Downtown Stillwater is fortunate to be contained by distinct boundaries defined by the St. Croix River and the crescent shape of the river bluff to the north, east, and south. These physical edges help contain development and utilize space within the downtown to more efficiently nurture a walkable, compact and diverse downtown. Stillwater's Downtown Plan should be considered in the context of existing and future growth pressures, as downtown's regional position and market desirability will evolve as the larger region grows and new projects, such as the St. Croix River Bridge and flood control project, change market dynamics. The ultimate success of this effort will be achieved by capturing the opportunities available in the market. C. Community Based Planning Some of the community's greatest assets for the comprehensive plan are the knowledge, interest and contributions that its citizens, businesses, local officials, and advisory commissions can make to the development of the community's vision and next - generation plan. The planning process provided opportunities for community involvement in creative and practical ways to help shape the future of the historic downtown. Steering Committee The Downtown Steering Committee was appointed as the primary group to guide the preparation of the Downtown Plan. The committee included representatives of the City Council, Planning Commission, Park and Recreation Commission, Downtown Parking Commission, Joint Planning Board, Chamber of Commerce, business owners, Heritage Preservation Commission, and residents. Workshops The major forces, issues, and opportunities associated with the downtown have been defined through a series of interactive community meetings which included issues workshops to define strengths, weaknesses, opportunities, and threats (SWOT), "dot- macracy", goal cafes, joint neighborhood and downtown planning meetings, open houses, and small group discussions. 4 3rd Draft October 15, 2008 The top five community responses in each category of the SWOT exercises were: Strengths 15 Natural resources Opportunities 12 Historical context 12 Enhancement of waterfront experience 8 View of river 11 Creative financing for improvements 6 True downtown with independent 9 Improve riverfront amenities businesses 6 Promotion as year round destination 5 Walkable 6 New bridge/better traffic control Weaknesses Threats 9 No lodging tax 13 Delay of levee new bridge projects 8 Lack of diversity of businesses 10 Traffic volume on Main Street 8 Not implementing past plans 10 Lack of funding by city on traffic issues 7 No common vision 9 Non -cohesive store hours 6 Traffic 7 Conditions of buildings and parking lots along water front The results of the community exercises have been synthesized into goals, objectives, policies and implementation programs to shape the vision for downtown and guide the creation of a Downtown Framework Plan. See Appendix ----for a summary of the community meetings. This chapter of the 2030 Comprehensive Plan organizes the results of the community based planning process in the following sections: • Background. This section includes a summary of past plans, existing conditions, and current issues & opportunities • Downtown Framework Plan. This section presents the goals, objectives, policies and implementation programs for the following key components: Land Use, Urban Design and Character Districts Transportation, Transit, and Streetscape Hierarchy Parks, Trails and Riverfront Local Economy and Tourism • Implementation Strategies and Phasing. This section outlines strategies for the implementation of proposed public improvements and includes a prioritized list of short, mid, and long-term action steps as well as cost estimates, potential funding sources, and responsibilities. D. Study Area The boundaries of the Downtown Plan are loosely defined as including both the downtown core area and its immediately adjacent Old Town neighborhoods (See Figure 1). 5 3 rd Draft October 15, 2008 LEGEND Public Buildings hurcb(os) [_ESEructure on National Historic Register Building • Downtown Project Boundary Figure 1. Downtown Framework Plan: Study Area Page 6 3 rd Draft October 15, 2008 II. BACKGROUND A. Past Studies The City of Stillwater has invested a significant amount of time and effort studying the different pieces of the downtown puzzle. The Downtown Framework Plan will weave together the relevant findings and outcomes from these past planning studies in an effort to ensure that the downtown remains viable. The pertinent projects include: • 1988 Stillwater Downtown Plan • 1992 Renovation of Lowell Park Plan • 1995 Comprehensive Plan • Aiple Property/Kolliner Park Master Plan (dated 12/8/98) • Comprehensive Trail Plan (dated 11/16/00) • North Main/Lowell Park Plan Update (dated January 2004) • Locally Preferred Plan for the downtown Stage Ill floodwall/levee project St. Croix River Crossing FEIS (dated 8/04) • Current and Future Trail Plan Revision (BRA, 11/1/05) • Shoddy Mills buildings relocated to Aiple Property (SRF, dated 1/1/06) • 2006 Design Manual, Commercial Historic District • Washington County Comprehensive Plan The key recommendations for physical improvements from the most relevant plans are outlined below. Figure 5 provides a composite view of the key recommendations of all the relevant previous studies. See Appendix for a summary of all the studies listed. 1. Stillwater Downtown Plan 1988 — Prepared by BRW, Inc. This plan is one of several area plans developed by the city subsequent to adoption of its 1979 Comprehensive Plan. The Downtown Plan is a predominantly visual guide to meet the challenges and opportunities of downtown in the late 1980s. Elements of the plan are listed below. • Land Use 1. A new Central Business/Commercial District recognizes existing uses and provides direction for complementary commercial uses. 2. New parks, recreation and open space, transportation, utilities and parking, and public administration/office districts are proposed to recognize existing development patterns and guide new development. 3. Nine special sites are identified because of their importance to the downtown and special land use and design guidelines proposed. 4. Development opportunities identified in the Economic Study are recognized and included as preferred uses of special sites. Page 7 3 rd Draft October 15, 2008 5. The site of the Maple Island city parking lot and Mulberry Point represent an opportunity for a major mixed use development, possibly including retail/office/hotel uses. • Parking 1. Alternative locations for parking structures are identified at Second as well as at Olive and Mulberry and Second Streets. 2. A financing plan to pay for parking improvements including possibly a parking structure is proposed for a first year activity. • Urban Design 1. Relocate railroad car storage outside of downtown. 2. Preferred land uses are shown along the riverfront and North Main Street. 3. A continuous riverfront pedestrian walkway should link downtown and other prominent points in the planning area; i.e., Pioneer Park, Lowell Inn, Broadway Overlook. 4. Surface parking lots should be small and well landscaped. 5. A series of observation and interest points should be connected by walkways to enable the visitor to overlook the downtown and get a closer view of parks and sites of interest. 6. Streetscapes for the St. Croix riverfront, Main Street, side streets, Water Street and visitor center and plazas are proposed. Pede Srrian Circulation i) Plaza Development r _3 Parks Doflning Landscape ape Areas STILLWATER DOWNTOWN ELAN 18 Pedestrian Circulation Parks & Open Space Figure 2. Illustration from 1988 Downtown Plan Page 8 3 rd Draft October 15, 2008 2. 1992 Renovation of Lowell Park Plan — Prepared by Sanders Wacker Wehrman Bergly, Inc. Almost 80 years old at the time, Lowell Park was showing its age and consequently the city became interested in park improvements. In response this 1992 plan was created. Depending upon whether improvements were to be undertaken in the southern part of the park or the northern, there was a specific set of proposed guidelines. South Design Guidelines • Develop a continuous riverfront pedestrian walkway linking new and existing areas of the downtown. • Create regular visual and pedestrian access corridors linking the riverfront, Lowell Park and Main Street. • Design parking to serve both the downtown and Lowell Park. Screen views of lots from within the park. • Provide short term docking along lower levee. North Design Guidelines • Upgrade Mulberry point to the passive recreational and pedestrian character defined by the Morrell and Nichols Lowell Park Plan • Consolidate boat launch and vehicles with trailer parking at the existing marina site and eventually north and south of downtown • Develop Mulberry Street into a more formal `processional' boulevard, linking the riverfront and Main Street Figure 3. Illustration from 1918 Morrell and Nichols Plan 3. Comprehensive Trail Plan (dated 11/16/00) — Prepared by City of Stillwater The goal for the 2000 trail plan was to develop and maintain a city-wide network of interconnected trails that provided valuable recreational and transportation opportunities for city residents and visitors. Page 9 3 rd Draft October 15, 2008 Goals specific to the downtown area of the city included: • Examine potential trail sites and develop trails as appropriate noting their historical and natural setting, such as the Minnesota Zephyr right of way, city ravines, and greenways, and their ability to connect downtown and residential neighborhoods, including the expanding annexation areas. • Integrate McKusick Ravine into the trail system as a natural extension of the McKusick Lake Trail to downtown. • Encourage MnDOT to provide continuous bicycle paths along the Frontage Road from County Road 15 to Trunk Highway 95 and along Trunk Highway 95 from Oak Park Heights through the downtown. 4. North Main Street/Lowell Park Plan Update — Prepared by SEH, January 2004 In 2002 the City of Stillwater purchased the last of the railroad right-of-way that bisected the downtown area. The purchase was a major milestone that made possible a number of potential improvements. To give initial form to the possibilities, the city initiated this 2004 study. Its key conclusions were: • Expand Lowell Park area by 0.76 acres and extend the park to Water Street. • Organize and consolidate parking. • Provide the opportunity for a visitor center/restroom/hospitality center for downtown visitors. • Locate a linear landscaped trail that traverses the entire downtown from north to south. • Provide location for a flood barrier on the west side of Lowell Park. • Provide for strong pedestrian connections between Main Street and the river. • Accommodate community festivals, farmers' market, and special arts and crafts events. Page 10 3 rd Draft October 15, 2008 KtY A. PEOTSTRFAN PLAZA B. PUDLIC PARKING -26 STALLS C. PUBLIC/PRIVATE PARKNG • 41130 STALLS O. PRIVATE PARKING - 60 STALLS R POPENT IALAMPHITHEATER E. POTENTIAL FLOATING IIANDSHE.LL G. LOW ELL PARK SNLARGRD H. MULBERRY PARKING ACCESS I. PICNIC PAVILLION J. PUBLIC PARKING - B7 STALLS K. RIVER TRAIL L. II.0O11 PROTECTION M. MARINA ACCESS N. IDEAL ALIGNMENT lACQUISITTON REQUIRED! PARKING SUMMARY PUBLIC PARKING 131 STALLS PRIVATE PARKING 119 STALLS 264 STALLS 441 PEDESTRIAN ACCESS 4� AUTO CIRCULATION 4 •P RIVER TRAIL FLOOD PROTECTION 1 PARKING CYn ll! I i.1I. il'll'Iil: P1 1{:1. I'ARK INC &Ill kk.11 Orly !fl111.IAdlt 51/14.t1y{)L4 .01711G,Ck:MO D7.10.70.171. 477CeLI-' 1+ Figure 4. Preferred Alternative from 2004 Study 5. Stage III floodwall/levee project (July 30, 2004) The first two stages of a project to protect the downtown from river flooding have already been completed. The third and final stage of the project is still being designed. The design is consistent with a conceptual plan referred to by the US Army Corps of Engineers as "The Locally Preferred Option". The locally preferred option was presented to the Corps of Engineers on July 30, 2004. The basic idea underlying the locally preferred option is that the flood barrier would give protection only for the 50 year flood. Any flooding more severe than that would be prevented through the use of dike construction prior to the flooding. This allowed the permanent flood barrier to remain low enough not to obstruct views of the river. The alignment of the flood barrier and an associated trail would be important to improvements both to Lowell Park and city parking lots. Page 11 3 rd Draft October 15, 2008 Public Buildings Church(es) Building on National Historic Register s a i Proposed Pedestrian Malls Vista Points 2005 Stage 3 Levee Proposed Parking Ramp y 1 • ,�-r North Main Street/Lowell Park Plan ' l.p'! Project Boundary Pioneer • I Park 1 1 Mill �r.r 1 w - � �' 1 1- I, 11116"Mat�' 111� • E'Arta street -- • L.,, _7.,...—ram ..6, �� „......str,„ i, 1, i i — c I_g le Ifw S ▪ 11 . !.e_ .a._ Ii_ _- EOtreet 1 r ' ▪ MI fNa!W "e' I I ■ . Teddy Bear :�;l.a .,, I Park MB • Aterans Mem. l• IM I OM ■ u�a33>�1 .: ■ I r+m: E{htn.0 r:veer Figure 5. Composite of Recommended Downtown Improvements Page 12 3 rd Draft B. Existing Conditions This section augments base information that has already been documented in previous studies. The primary purpose is to identify the unique components of the existing downtown that will define design parameters and shape the design alternatives. October 15, 2008 1. Development Pattern The St. Croix River and limestone bluffs have strongly shaped the downtown development pattern. The core downtown area is characterized by a traditional compact urban development, which creates pedestrian -scaled. The fringe areas outside of the core downtown area, specifically north of Mulberry Street and west of 2nd Street, evolve into a more open, motor vehicle oriented, suburban development pattern that results in an undefined pedestrian realm. LEGEN D Public Buildings Church.{es) [_;Structure on NatBanai Iisturic Register = Building f - . =:. I iv E. . r 1:11:41"Ei 3 1 on •I Figure 6: Downtown Development Pattern Page 13 3 I'd Draft October 15, 2008 2. Downtown Parking Sufficient parking that is easily accessed, well signed and convenient is necessary downtown for the success of retail, office, services, tourism, and community events. As of January 1, 2008 there were 2, 854 parking spaces downtown. Their location can be seen in Figure 6. On -Street Public Parking Off -Street Public Parking Off -Street Private parking 615 stalls 1,062 stalls 1,177 stalls • Parking along river creates barrier A majority of the publicly owned parking lots within the core downtown, comprising roughly 75% of all public parking spaces, are located adjacent to Lowell Park and the riverfront. The location of these parking facilities creates a physical and psychological barrier for pedestrians. The wide expanse of impervious surface void of trees and lacking pedestrian connections creates a negative visual image and barrier between Main Street and the riverfront. • Parking ramp on 2nd Street at Commercial Avenue During the planning process for the Downtown Framework Plan the City of Stillwater initiated an RFP process and invited architectural firms to submit proposals for a feasibility study for the design of a new public parking ramp within the downtown. Four sites that were identified within the North Main Street/Lowell Park Update Plan of 2004 continue to be recognized as potential public parking structure locations. The sites include: the corner of 2nd and Mulberry Street, 2nd Street at Commercial Avenue, 2nd Street between Chestnut and Olive, and 2nd Street at Nelson. For a number of reasons, the preferred parking ramp site became the 2nd Street location at Commercial Avenue. The new parking will: a. Provide a strong visual and physical link from the public parking ramp to Main Street and Lowell Park along Commercial Avenue. b. Create at least 300 parking spaces. c. Compliment the architectural fabric of the historical setting on 2nd Street north of Myrtle. • Downtown Parking Objectives The Downtown Framework Plan identifies some key objectives for the improvement of parking within the downtown. These key objectives are: a. Existing parking lots provide opportunities for future redevelopment and open space improvements. Page 14 3 rd Draft October 15, 2008 b. Look for shared parking opportunities associated with redevelopment of parking lots or downtown properties. c. Create multi -purpose spaces within parking lots that can be converted for public events or gatherings. d. Utilize shuttles and remote parking for large community events. e. Define opportunities to relocate parking within the downtown core away from Lowell Park and the riverfront. f. New parking should include pervious technologies to infiltrate, cleanse and manage stormwater on -site. g. Improvements to existing public parking lots should include more defined access, pedestrian connections, edge treatments and landscaping enhancements. LEGEND Publk parking P Private Parking Parking Lot Proposed Parking Ramp Potential Parking Ramp Site On Street Parking - '+ Downtown Project Boundary G i r *cry `1.y �ip` Parkina Counts , r / On Street Parkins 615 Off Sneet Private 1,177 "-�'1 if �- --yill On Street Public 1.66 ' --I I I •.. • Tata] 2,855 • 11 I lb y S Mulberry RNVIITEV Perk Figure 7. Downtown Parking Page 15 3 rd Draft October 15, 2008 3. Gateways and Viewsheds Gateways The gateways into the downtown form the first impressions, as well as provide a sense of orientation for visitors (See Figure 7.) The primary gateway corridors into Downtown Stillwater are: • North/South gateways on both ends of Main Street. • East/West gateways into the downtown on Chestnut and Myrtle Streets. Viewsheds Views of the riverfront, limestone bluffs, significant buildings, and other landmarks create a cognitive map of the city and orient people within the downtown. The natural features that define the boundaries of the downtown also create long encompassing views that allow you to see the entire downtown from one vantage point. The important view corridors within the downtown include: • North of Terra Springs looking south on Main Street into downtown. • South of the Oasis looking north on Main Street into the downtown. • South along E. Olive, W. Myrtle, Mulberry and E. Chestnut Streets from the top of the bluff into the core downtown and the riverfront. • North and south along 2nd, 3rd, and 4th Streets from the top of the bluff into the core and fringe downtown areas. The Downtown Framework Plan identifies some key objectives for the improvement of the gateway and view corridors within the downtown. These key objectives are: • Preserve natural character of bluffs and river along north and south gateways to downtown. Enhance these corridors with native landscaping, frame views to the downtown, improve pedestrian connections and open views to river. • Shape edge of gateway corridors with architecture, landscaping and sign ordinances. • Reinforce natural features, landmarks, steeples and significant structures along gateway corridors. • Reinforce E. Olive, W. Myrtle, Mulberry and E. Chestnut Streets as primary pedestrian view corridors into the downtown. Downtown Focal Points Focal points orient visitors, contain edges, provide visual stepping stones and reinforce, enhance and terminate vistas with in Downtown Stillwater. These focal points represent some of the more memorable architectural and cultural elements in the downtown. Primary Focal Points include: • Staples Mill • Historic Lift Bridge • Historic County Courthouse • Several city bluff stairways • Several downtown churches Page 16 3 rd Draft October 15, 2008 View Corridors Views Focal Points Parks! Public Open Space Vista Points Downtown Project Boundary Gateway Nodes Focal Points -Visually Orient Visitors -Contain Downtown Edges -Enhance, Reinforce, and Terminate Vistas -Provide Stepping Stones Enhance gateway corridor with similar native landscaping, frerrteviews to Downtown, open viewsofRive -*.• im•ro pedestrian connections - Enhance N. Main St. as primary gateway view corridor into Enhance gateway node,. with landscaping, signage and frame views ire pedestrian Il® Enhance N./via as primary gatew view corridor into down town Pioneer Park W, 1i Mulberry St. Commercial Av E Chestnut Street EOlive Street L NLlxun! Teddy Bear Park Street St. Croix River [hescnut soeet Figure 8. Gateways and Viewsheds Page 17 3 rd Draft October 15, 2008 4. Open Space and Pedestrian Connections Five and Ten minute walk Distance One objective of the framework plan is to encourage walking by defining safe, comfortable and appealing routes from the neighborhoods, peripheral downtown uses and parking areas to Main Street and the river. One -quarter mile is the approximate distance a person can walk in five minutes and is generally the distance people will consider walking to amenities, shops, and services. Beyond that distance, a car may become more appealing. Facilities within the five-minute walking distance of the core downtown include the Post Office, numerous retail shops, professional offices and restaurants, public open spaces including Lowell Park and Teddy Bear Park, and numerous historic sites including the Lowell Inn, the Freight House, Water Street, and the Historic Lift Bridge. The fringe areas are generally within a ten-minute walk of the core downtown. Included within this ten-minute walking distance are the city hall, public library, police/fire station, the veteran's memorial, Pioneer Park, and several churches. Primary and Secondary Pedestrian Circulation The primary pedestrian circulation occurs within the core downtown and along the riverfront. Secondary pedestrian circulation occurs within the fringe areas of the downtown. Currently within the downtown there is a nearly complete system of sidewalks to support the primary and secondary circulation. Some key objectives for pedestrian circulation within the downtown include: • Opportunity to enhance primary and secondary circulation systems with additional pedestrian amenities • Provide a hierarchy of streetscape treatments that reinforce the historic character throughout downtown • Provide wider walks within the downtown • Improve secondary pedestrian connections to adjacent neighborhoods with landscaping, lighting, signage and pedestrian crossings Future Trail Connections A series of future trail improvements and pedestrian connections have been identified for the downtown. Each proposed trail and/or connection will provide a missing link to create a complete park and trails system for the downtown. The future trail and pedestrian connections include: • Loop Trail • Zephyr line • Additional downtown stairs to connect to adjacent residential neighborhood • Connection to Mulberry Ravine Trail • Streetscape and open space connections between the riverfront, parking and Main Street • Future riverfront trail connections north and south to adjacent public open spaces Page 18 3 rd Draft MEN City stairway{sj City Pathway/ Bikeway City Trail Vista Points Primary Pedestrian Circulation Secondary Pedestrian Circulation Proposed Zephyr/State Trail Parks/Public Open Space Pedestrian Barrier PedestrianNehicu lar Conflict Area Downtown Project Boundary Proposed Loop Trial r emu: • to ?- rove ink ti6 M erry Ravine'Trail ditional trails Pioneer Park 'teddy Bear Park e link along p ivate property to fbture Zephyr trail grans Figure 9. Pedestrian Connections October 15, 2008 Parking is a pedestrian barrier to the river I f � Missing pedestra link along riverfront L Page 19 3 rd Draft October 15, 2008 5. Parks and Open Space Downtown Stillwater has attractive gathering places and spaces for outdoor events. There are three primary park spaces that cater to a wide variety of resident and visitor activities and needs. The three park spaces are Lowell Park, Teddy Bear Park and Pioneer Park. Primary recommendations to improve the parks and open space system within the downtown include: • Provide additional public docking or mooring areas along Lowell Park • Create multi — functional open spaces within the downtown • Define more opportunities for pocket parks, green space and outdoor cafes to activate street level • Increase accessibility to Lowell Park and river • Expand riverfront open space • Explore connections to Boom site and Aiple property LEGEND _' Woo Massin. Paries/ Public Open Space 1CO year flood Downtown Boundary Bluff Line fridge Proposed Zephyr/State Trail Stairway City Trail Proposed Loop Trail City PathwayfBikeway Vista Points Staples Park Goff Course 'ream Park Kealmer Park Figure 10. Downtown Area Parks & Open Space Page 20 3 rd Draft October 15, 2008 6. Downtown Opportunities The Downtown Framework Plan is shaped by the numerous opportunities that emerged from the analysis of existing conditions, as well as findings from previous planning studies. A synthesis of these findings and conditions is illustrated in Figure 11. Primary downtown planning and design objectives are illustrated as well. The Downtown Framework Plan described later in this chapter addresses these items. The primary opportunities for redevelopment and public investment identified through past studies and meetings with city staff and the Downtown Steering Committee include: a. Reinforce connections between river front, Lowell Park, Main Street and neighborhoods The riverfront, parks, trails, stairways, and streetscapes create a network of connections and amenities which will attract and retain residents and businesses, balance pedestrian and vehicular needs, and provide the necessary connections to create an integrated circulation system within the downtown. The opportunity exists to enhance the current circulation system with additional connections, open spaces and improvements to enhance and strengthen the current system. Some of the potential enhancements to the current circulation system include: • Define areas for pedestrian "malls" • Improve pedestrian connections along the river north and south of Lowell Park • Expand riverfront open space • Integrate Zephyr line into parks and trails system • Improve and highlight connection to Mulberry Ravine Trail • Reinforce pedestrian connections with a hierarchy of streetscape treatments • Locate farmers' market and programmed uses along riverfront • Provide additional public docking or mooring areas along Lowell Park • Integrate levee improvements into circulation system b. Focus streetscape treatments within a 10 minute walk distance of core downtown and adjacent neighborhood Many of the streets within a block of Main Street have very narrow rights -of -way and are utilized very efficiently. However, many of the secondary streets adjacent the core have wider underutilized rights -of - way. A hierarchy of streetscape treatments is recommended to emphasize and respond to the different downtown districts, role and function of each street within the downtown. Page 21 3 rd Draft October 15, 2008 c. Preserve natural character of bluffs and river along north and south gateways to downtown d. Reinforce view and gateway corridors along Myrtle, Mulberry, 2nd, 3rd and Main Streets The gateways and view corridors into the downtown form the first impressions and create a cognitive map of the city and orient people within the downtown. The primary recommendations to reinforce the view and gateway corridors include: • Shape edge of corridors with architecture, landscaping and sign ordinances • Reinforce natural features, landmarks, steeples and significant structures Page 22 3 rd Draft October 15, 2008 LEGEND Existing Bluff Vegetation Parks/ Public Open Space Public Buildings Church(es) Building on National Historic Register City stairways) Enhance Pedestrian connection City Pathway/ Bikeway Primary Streetscape Enhancements Secondary Streetscape Enhancements 9L Potential Parking Ramp Location Vista Points - `` v Downtown ProIect Boundry ,[ . !F1 i Improve link to Mulberry Ravine T with additional tr Church owned pro possible e redevelop Enhance Myrtle with boulevard treatments Potential location. for Art Center IP Potential parking ramp locations to have liner commercial uses f- Existing Farmers „ Market Location Improve ped connection to Boom site. Add stairway 1/2 mile up. Improve connection to North Hill Neighborhood Define future use of Zephyr depot Enhance link along private property to future Zephyr trail r Integrate Stage 3 levee location into riverfront improvements Veterans Mere. Improve ped connection — to Aiple prop. Improve stairway south of Oasis site to neigh borhoo I I 1 I - Pioneer I Park •: -n wirii t t ntial public 3 I docks/moorings 0 • • 0 % = Ill 0 a Potential location for ra Farmers Market Enhance connection along Commercial St. Expand Riverfront Green Space. Enhance connection to Main St. as. wsaltt , mil Sven Teddy Bear Park V Enhance ped. connection along Water St. -e cF:esiru{: s, pee 8—Existing Pedestrian JUnder pass P\ Pedestrian crossing conflict Expand Riverfront Green Space issing pedestrian link along riverfront Figure 11: Downtown Opportunities Page 23 3 rd Draft October 15, 2008 III. DOWNTOWN FRAMEWORK PLAN The Framework Plan is intended to guide public and private development in the Downtown Stillwater. It is also intended to identify improvements to the public realm that would reinforce, enable and encourage well planned growth. The Framework Plan offers design principles, goals and objectives that foster future development consistent with the vision of the community (See Figure 12.) Conceptual alternatives are presented for key components of the Downtown Framework Plan. The Framework Plan responds to the goals and objectives that were established by the community during numerous visioning sessions. The Framework Plan also weaves together the relevant components of numerous previous studies as well as flood control into a single integrated document. The primary components of the framework plan include: • Land use, downtown urban design and character • Transportation, transit, and streetscape hierarchy • Parks, trails and riverfront • Local economy and tourism Goals, Objectives, Policies and Programs The goals, objectives, policies and programs outlined in each section of this Framework Plan, are a refined compilation of the community visioning sessions and relevant items from the 1995 Comprehensive Plan. The Comprehensive Plan Committee, Downtown Plan Committee and City Council reached consensus on each of these items through a lengthy review and editing process. Page 24 3 rd Draft October 15, 2008 Stillwater Comprehensive Plan Update Bonestruu lune, 2003 LEGEND Residential Commercial! Mixed Use Institutional Potential Mixed Use Potential Institutional! Mixed Use Potential Parking Bike trail Lowell Park Proposed parking structure Commercial St. connection Lowell Park Amphitheater Potential transitlmixed use building Potential Post Office Proposed Loop Trail 6. Downtown Framework Plan Figure 12. Page 25 3 rd Draft October 15, 2008 A. Land Use and Downtown Urban Design Downtown Stillwater has a unique combination of historic architecture, a traditional commercial district and authentic Victorian homes nestled within a stunning river valley, which combine to create a compelling tourist destination and source of pride for the city and the state. The intent of the Downtown Plan is to preserve and enhance the components of land use, urban design and overall character that define Stillwater so that "the Birthplace of Minnesota," continues to be a special place to live, to work, and to visit. Goals Goal 1. Develop a land use plan that fosters economic growth and evolution by reinforcing the "rivertown" image of Downtown Stillwater and promoting a compact mixture of commercial, office, residential, recreational, and institutional uses, and is flexible to respond to varying market conditions. Goal 2. Encourage a viable and compatible mix of community and visitor - serving activities 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. Objectives ■ Encourage architecture and urban design which recalls late 19th Century commercial design, is refined and subdued, introduces more color consistent with the Victorian Era, and helps create an environment which is pleasing and interesting to pedestrians. ■ Reinforce pedestrian connections with a hierarchy of streetscape treatments. Focus streetscape treatments within a 10 minute walk distance of core downtown and adjacent neighborhoods. Policies Policy 1: Maximize the waterfront as a community and regional amenity. Policy 2: Preserve and reinforce views to natural features, landmarks, steeples, and other significant elements. Policy 3: Continue to refine and administer design guidelines 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. The guidelines should also encourage rehabilitation of existing buildings to the original style or design. Policy 4: Reduce the visual impact of overhead telephone and electricity lines. Policy 5: Preserve the limestone retaining walls located throughout downtown. Require new retaining walls fronting public areas to be limestone or a material consistent with historical retaining walls and similar to existing stone used throughout downtown. Page 26 3 rd Draft October 15, 2008 Policy 6: Continue to reinforce the unique character of the Downtown district through appropriate land uses, architecture, and site design. Land Use and Zoning The current 2002 Land Use plan has a mixture of community commercial, administrative office, multi family and open space designations. The 2005 Zoning ordinance designates the majority of downtown as the Central Business District Zone (CBD) with the Institutional area along 4th street designated as Public Administration. The CBD Zone is flexible enough to allow for a compact mixture of uses to foster a viable downtown. The city also recently adopted height limitations for the downtown area to preserve views to the river corridor (See Figures 13 & 14.) The Land Use Chapter of this 2030 Comprehensive Plan designates the downtown area as "Mixed Use", which more accurately reflects the mix of uses downtown and is more flexible than the current CBD Zoning designation. Figure 13. Downtown Massing Potential Page 27 3 rd Draft October 15, 2008 LEGEND 1.5 Story / 20' r i2.5 Story 130' 3.0Story 137' 13.0 Story / 35' 4.0 Story / 45' ■ -Project Boundary Source: City of Stillwater Downtown Height Zone I I I E Chestnut Street EqYrAirtFflt E Myrtle Street Figure 14. Downtown Height Districts Page 28 3 rd Draft October 15, 2008 Downtown Districts The Downtown Framework plan defines six downtown districts, each possessing its own unique character created by the mix of land uses, architecture and open spaces (See Figure 16.) 1. Downtown Mixed Residential District The Downtown Mixed Residential District helps shape the gateway into the core downtown from the north. The district has numerous buildings on the national register of historic places, including the Washington County History Museum and the Staples Saw Mill. The district includes most of the multi -family redevelopment that has occurred within the downtown as well as office space. 2. North Hill Residential District The North Hill Residential District is characterized by the historic single family homes and stone walls that line the residential streets. Mixed into the fabric of the historic homes are some larger multi -family residential buildings and multi -family conversions. The historic Lowell Inn is located in the district along Myrtle Street. From this district there exists long prominent views of the core downtown area and the St. Croix River Valley. 3. Public/Institutional District This district is home to many of the civic buildings in the community including city hall, the Stillwater Public Library, the fire/police station, the post office, the city water works and other public offices. Some existing Page 29 3 rd Draft October 15, 2008 single family housing, public parking lots and two significant church facilities also give form to the district. The framework plan recommends preserving and reinforcing this evolving institutional district through complimentary land uses, architecture and streetscape treatments. Trinity Lutheran Church owns several parcels at the intersection of Myrtle and 4th Street. Figure 15 illustrates how future expansion of the church facilities or other infill uses could reinforce the institutional district through complimentary architecture and site planning. The buildings are placed close to the street to both reinforce the view corridor along Myrtle Street as well as, shape the 4th street corridor. Parking is provided behind and or to the side of the buildings. Library --- City Flap North 4th Street Imernvements / Sidewalk bumpouts Improve aosswalks Boulevard with trees & lights Irrtill Derelopment Reinlor a Institutional District Shape gatewvy on Myrtle Street Green setback on 4th street Figure 15. Institutional District Page 30 3 rd Draft October 15, 2008 4. Historic Commercial District The historic commercial district is the heart of Downtown Stillwater and is the location of most small retail and service businesses. This district is also the location of many of the notable historic commercial structures and entertainment related businesses. 5. South Hill Residential/ Institutional District The South Hill Residential district is located between W Myrtle Street and E Pine Street adjacent to the Historic Commercial District. Included within the district are retail businesses, single and multifamily housing, Cub Foods Corporate Headquarters, Teddy Bear Pak and numerous public parking lots. From this district long prominent views of the core downtown area and the St. Croix River Valley can be found. 6. Riverfront District The riverfront district contains historic Lowell Park, the most prominent public green space in the City of Stillwater. Most of the western edge of the district is defined by public and private parking lots that serve the riverfront and downtown businesses. Also located in the district are notable structures that recall the history of logging and saw mills along the river, including the Freight House, Water Street Inn and the Historic Lift Bridge. In addition, the Minnesota Zephyr depot and the Stillwater Marina give definition to the northern end of this district. Page 31 3 rd Draft October 15, 2008 Downtown Land Use and Urban Design Implementation To implement the Land Use and Downtown Urban Design section of the Downtown Framework Plan, the city will consider: ■ Build on Stillwater's unique aspects by creating a marketing strategy based on the historic and Rivertown characteristics of the downtown. ■ Enhance aesthetics of corridors leading into the downtown along Myrtle, Mulberry, 2nd Street, 3rd Street and Main streets. This could include adoption of guidelines or ordinances that would shape the edge of the corridors with buildings, landscaping and appropriate signage. ■ Create architectural focal points at the river, such as arbors, sculpture or gazebos at terminal points of Mulberry, Myrtle, Chestnut, and Nelson Streets. ■ Incorporate an interpretive system to celebrate the historical and natural resources of the downtown including the river, the bluffs, east bank of the river, the ecology, and geologic history of the river corridor. ■ 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. Page 32 3 rd Draft October 15, 2008 LEGEND North Hill Residential District Downtown Mixed Residential District Public Institutional District South Hill Residential/Institutional Distri Historic Commercial District IRiverfront District —Downtown Project Boundary -144, fir North Hill Residential District i11111 �t I Publick'" I Institutional I District lM Myrtle' Street' Commercial Ave E Myrtle Street Historic Commercial E Chestnut Street E Nelson Street South Hill Residential/ Institutional District w tChostnot6 Figure 16. Downtown Districts Page 33 3 rd Draft October 15, 2008 B. Transportation, Transit, and Streetscape Hierarchy The quality, function and scale of the streets have a great deal to do with shaping the small city character of Downtown Stillwater. A goal of the Transportation Chapter of the 2030 Comprehensive Plan is to provide an integrated system of roads, bikeways, transit lines, and pedestrian paths throughout the city and particularly downtown. Washington County Comprehensive Plan and Transportation Planning Washington County is in the process of updating the county comprehensive plan and is preparing a transportation plan with traffic modeling for Downtown Stillwater as part of their planning process. The modeling will analyze traffic patterns both with and without the proposed Trunk Highway 36 bridge. Preliminary modeling indicates that traffic volumes will be significantly reduced from current volumes in downtown when the new bridge is completed. This reduction in traffic will open up many opportunities to create a better balance between pedestrian and vehicular needs within the downtown, particularly on Main Street. Rather than duplicate efforts, the transportation planning for Downtown Stillwater will rely primarily on the Washington County Plan. As of this writing, a draft of the Washington County Comprehensive Plan is anticipated to be completed in September 2008. The focus of this Stillwater downtown transportation plan is to recommend improvements to the streetscape system that will improve connections between neighborhoods and Main Street and Main Street to the riverfront. Highway 36 Bridge When the Stillwater comprehensive planning process began in April 2007, funding for the proposed Trunk Highway 36 bridge over the St. Croix River had not been defined and construction was not likely within the next 10 years or within the anticipated life span of this plan. In June 2008, the Minnesota Legislature approved a new program for funding transportation projects and defined the Trunk Highway 36 bridge as one of the top priorities with final design to occur in 2013 and construction to begin in 2014. Regardless when the new river crossing is constructed, its impact will be to alleviate the traffic congestion problems currently caused downtown by pass through traffic using the lift bridge. Until the new bridge is constructed, an interim downtown traffic management plan should be created and implemented to address the congestion problems. This plan will require a large scale coordination effort among Mn/DOT, Washington County, the City of Stillwater, the local Chamber of Commerce and business owners and residents in the Downtown Stillwater area. Page 34 3 rd Draft GOALS October 15, 2008 Goal 1. Support construction of the new interstate bridge and TH 36 corridor improvements to provide for regional traffic demands and to relieve cut - through traffic downtown and in residential areas. Goal 2. Develop and locate new roads sensitive to historic structures and sites, as well as natural features. Goal 3. Provide an integrated system of roads, bikeways, transit lines, and pedestrian paths. The transportation system should minimize the impact of through traffic. Objectives ■ Reduce through traffic impact in residential areas by means of road design and traffic management. ■ Enhance the function, safety and appearance of Stillwater's streets, highways and major entryways into the city. ■ Utilize pervious and other green technologies for stormwater treatment associated with parking lot and street improvements where possible and economically feasible. ■ Use topography and other site planning methods to minimize the visual presence of parking lots. ■ Maintain existing public stairways throughout the community, particularly in the downtown. ■ Study the use of the railroad line right of way for potential use as a walkway and/or bikeway connecting downtown to the city areas to the west. ■ Explore alternative transportation and transit opportunities for Downtown Stillwater. ■ Develop pedestrian pathway and bikeway plan to provide for recreational and commuter trips. ■ Work with Washington County and the state in developing park and ride lots, trailway systems and other programs to reduce auto use. ■ Increase transit ridership and support transit service for transit dependent residents, particularly senior citizens, provide adequate transit facilities (bus stops, transfer station) to support transit use, and cooperate with the regional transit authority and Washington County to provide conveniently located park and ride facilities at major transit stops. Page 35 3 rd Draft October 15, 2008 Policies Policy 1: Work with MnDOT, County, local government agencies and local businesses/employers to address transportation management methods to relieve bridge traffic congestion concerns. Policy 2: Ensure that planned transportation infrastructure, capacity and access will accommodate proposed land use and development. Policy 3: Improve traffic and parking in and around commercial areas. Policy 4: Encourage transit use through subdivision design, land use planning and education. Policy 5: Plan and construct a city-wide bikeway system throughout the city to connect major activity centers and scenic open space area. STREETSCAPE HIERARCHY A hierarchy of streetscape treatments is recommended to emphasize and respond to the different downtown districts, role and function of each street within the downtown. Many of the streets within a block of Main Street have very narrow rights -of -way and are utilized very efficiently. However, many of the secondary streets adjacent the core have wider underutilized rights -of - way. This presents an opportunity to use the area more efficiently and create more "complete" streets which balance the need to provide vehicular capacity and parking with pedestrian and bicyclist safety and comfort. The hierarchy of streets is illustrated on Figure 17, and includes four streetscape types. 1. Gateways and View Corridors: Preserving the Essence of Stillwater The streets classified as gateways act as the approach routes and gateways by directing regional traffic to the core downtown. These street segments should signal to motorists they are entering a downtown district and traffic calming elements should be added to the streetscape to reduce the perceived scale of the street. Treatments may include boulevard trees, distinctive lighting, entry monuments, and directional signing. Gateways include: ■ Trunk Highway 95 north of Elm Street and south of Nelson Street. The limestone bluffs, woodlands and views to the St. Croix River shape the character of the gateways in these segments and should be preserved. Page 36 3 rd Draft October 15, 2008 ■ Myrtle Street west of 2nd Street. The most dramatic view of Stillwater's natural setting is from the top of the bluff as you approach downtown on Myrtle Street. The street corridor, shaped by trees, buildings and limestone walls, directs your view to the gazebo, river and bluffs beyond. Future infill development should reinforce the view corridor through building placement, architecture, materials and streetscape treatments. The Comprehensive Plan also proposes a city bike path be included within the Myrtle Street corridor. View Corridors Views of the riverfront, limestone bluffs, significant buildings, and other landmarks create a cognitive map of the city and orient people within the downtown. The natural features that define the boundaries of the downtown also create long encompassing views that allow you to see the entire downtown from one vantage point. The important view corridors within the downtown include: • North of Terra Springs looking south on Main Street into the core downtown. • At the Oasis Restaurant looking north on Main Street into the downtown. • On Olive, Myrtle, Mulberry and Chestnut Streets from the top of the bluff looking into the core downtown and the riverfront. Page 37 3 rd Draft October 15, 2008 • North and south along 2nd, 3rd, and 4th Streets from the top of the bluff into the core and fringe downtown areas. The Downtown Framework Plan identifies some key objectives for the improvement of the gateway and view corridors within the downtown. These key objectives are: • Preserve natural character of bluffs and river along north and south gateways into downtown. Enhance these corridors with native landscaping, frame views to the downtown, improve pedestrian connections and open views to river. • Shape edge of gateway corridors with architecture, landscaping and sign ordinances. • Reinforce natural features, landmarks, steeples and significant structures along gateway corridors. • Reinforce Olive, Myrtle, Mulberry and Chestnut Streets as primary pedestrian view corridors into the downtown. Page 38 3 rd Draft October 15, 2008 LEGEND teway Streetscape Enhancements nary Streetscape Enhancements ondary Streetscape Enhancements eciai Streetscape Enhancements wntown Project Bounds Figure 17. Streetscape Hierarchy Page 39 3 rd Draft October 15, 2008 2. Primary Activity Streets: Linking Downtown to the Riverfront These streets are within the core retail, business and cultural heart of the city and serve as primary commercial frontage, vehicular and pedestrian linkages between the Core downtown along Main Street, municipal parking and the river. Primary activity streets include Main, Nelson, Olive, Chestnut, Commercial, and Mulberry Streets. These streets will receive the most intense streetscape treatments which may include on street parking, sidewalk bumpouts with street trees where possible, pedestrian scaled ornamental light fixtures, decorative paving, benches, parking lot buffers, planting areas, kiosks, banners, public art, and a coordinated signing system. The right-of-way for many of these streets is narrow and presents some spatial challenges for including streetscape treatments. The geometric requirements for each street will need to be evaluated to determine what is possible. Connections between Main Street and the Waterfront The following examples illustrate potential streetscape treatments to Nelson and Myrtle Streets that will improve connections to the waterfront by: • Improving pedestrian comfort and safety by providing sidewalk bumpouts to define traffic lanes, shorten crosswalks and provide space for trees and other landscape materials. • Provide space for directional signing, ornamental lights, kiosks, public art and interpretive wayfinding system. • Improve the view corridors by buffering parking areas and defining the street edge. These proposed improvements would not restrict the current traffic flow or necessarily change in response to reduce traffic counts anticipated after the construction of the Trunk Highway 36 bridge. Page 40 3 rd Draft October 15, 2008 Figure 18. Existing Nelson Street Figure 19. Proposed Nelson Street Figure 20. Proposed Nelson Street Page 41 3 rd Draft October 15, 2008 e Figure 21. Existing Myrtle Street I I �i` I E II i �i l l�r 1J Il is �f Figure 22. Proposed Myrtle Street Figure 23. Proposed Myrtle Street Page 42 3 rd Draft October 15, 2008 Main Street: Reinforce an Environment for Commerce While preserving the Historic Core Currently, the segment of Main Street between Commercial Avenue and Nelson Street is the most concentrated zone of commercial uses, buildings and pedestrian and vehicular activity. The right-of-way is constrained and packed full of competing interests. Fortunately the street wall, shaped by the continuous building frontage, creates a classic enclosed "main street" scale and character. The street wall begins to break down north of Myrtle Street with the inclusion of more conventional suburban site design and architecture. If and when the Trunk Highway 36 bridge is built, the anticipated significant decrease in traffic counts would provide an opportunity to revisit the geometrics of Main Street and possibly reduce the lane widths and widen sidewalks. Figure 25 illustrates the inclusion of sidewalk bumpouts on Main Street in areas where a right turn lane is not needed, such as Mulberry Street. Also illustrated are shortened and highlighted crosswalks, parking buffers street trees and planting areas. Figure 24. Existing Main Street at Mulberry Street Page 43 3 rd Draft r October 15, 2008 Figure 25. Proposed Main Street at Mulberry Street 3. Secondary Activity Streets: Linking Neighborhoods to Downtown This category includes all other local streets beyond the primary activity streets within a 10 minute walk of downtown. These streets serve the fringe of downtown and provide linkages between the neighborhoods, parking lots, and the commercial core. Treatment of these streets will have to be analyzed on a street by street basis and may include narrowing lanes, widening sidewalks and boulevards, storm water infiltration, incorporating street trees and decorative lights, as well as, highlighting crosswalks, and accommodating bicycles. 4. Special Streets Four streets within the downtown present opportunities to shape important districts, define important connections, and provide important pedestrian space for the future. These streets deserve unique treatments and include 3rd and 4th Streets, Commercial Avenue, and Chestnut Street between Main Street and the bridge. 3rd and 4th Street: Institutional District Third and Fourth Streets are designated as secondary streets and could be redesigned to utilize the right-of-way more efficiently. Figures 28, 29, and 30 illustrate how narrowing lanes, widening sidewalks and boulevards, incorporating street trees and decorative lights, as well as, highlighting crosswalks can create a safer pedestrian realm and compliment the institutional district. Page 44 - 60' ROW Figure 28. Existing 4th Street Section Figure 29. Proposed 4th Street Section October 15, 2008 Page 45 3 rd Draft Library City Hall North 4th Street Improvements Sidewalk bumpouts Improve crosswalks Boulevard with trees & lights mnfill Development Reinforce Institutional District Shape gateway on Myrtle Street Green setback on 4th street Figure 30. Proposed Street Treatment October 15, 2008 Commercial Avenue Connection: Linking Neighborhoods to Main Street and the River A primary objective of the Framework Plan is to improve Connections from the residential neighborhoods to Main Street and from Main Street to the river. Commercial Avenue will become the primary link between the new ramp at 2nd and Main Street. To improve this important connection Commercial Avenue is proposed to include parking on one side of the street only, sidewalk bumpouts and street trees where possible, highlighted cross walks, pedestrian scaled ornamental light fixtures, decorative paving, benches, parking lot buffers, planting areas, information kiosks and /or wayfinding elements (See Figures 31 and 32.) Page 46 3 rd Draft October 15, 2008 OR SALE LEASE q ,2 278-2742 Figure 31. Existing Commercial Avenue Figure 32. Proposed Commercial Avenue Page 47 3 rd Draft October 15, 2008 Commercial Avenue Plaza: Focus of Commercial, Pedestrian, Transit, and Cultural Activity A public plaza is proposed as the primary link along Commercial Avenue from Main Street to the river. A riverfront amphitheater is planned at the terminus of the plaza. This finger of open space will bisect the riverfront parking lots bringing a more direct connection to the river from Main Street (See Figures 34 and 36). A mixed use commercial building is proposed to infill the remainder of the public parking lot and vitality to the downtown by fronting directly on Commercial Avenue Plaza and Main Street. Transit Station A transit facility is proposed to be included in the river side of the mixed use building on Commercial Plaza. Water Street is proposed as the circulation route for buses with the primary stop at Commercial Street Plaza. The combination of the activity generated by the transit facility, commercial uses, pedestrian linkages to the river and amphitheater, plus the proximity to new bike paths should make Commercial Street Plaza a very active and memorable place. 1�TITrT&& Figure 34. Plan View of Commercial Avenue Plaza Potential pocket park Proposed parking structure Bike trail Improve connection to Lowell Park Potential transit/mixed use building Page 48 3 rd Draft October 15, 2008 Figure 35. Existing Condition Figure 36. Proposed Commercial Avenue Plaza Chestnut Street Plaza As part of the future Trunk Highway 36 bridge project the Minnesota Department of Transportation (MNDOT) will be converting the existing historic lift bridge into a vehicle free pedestrian and bicycle connection. Chestnut Street east of Main Street will also be partially converted into a pedestrian plaza. The Stillwater lift bridge will be maintained as an important connection for the park system and to the heritage of the area Structured Parking Four sites were identified within the North Main Street study of 2004 as potential public parking structures. The sites include: the corner of 2nd and Mulberry Street, Commercial Avenue at 2nd Street, 2nd Street between Page 49 3 rd Draft October 15, 2008 Chestnut Street and Olive Street, and 2nd Street at Nelson Street. At the time of this writing, the Commercial Avenue structure was planned to begin construction in the fall of 2008. Incorporating structured parking will foster a more compact development pattern by making available surface lots for a higher and better use such as housing/commercial mixed use infill redevelopment. The demand for surface parking along the water front may be offset by structured parking along 2nd Street and thus provide an opportunity to expand the riverfront open space. The steep terrain of Downtown Stillwater enables parking structures to be set into the bluff and thereby minimizing there visual presence. This condition also enables vehicles to enter on different levels of the ramp. The Framework Plan also illustrates the use of commercial liner buildings along the frontage of parking structures to promote a more active and vital street environment. Implementation To implement Transportation, Transit, and Streetscape Hierarchy section of the Downtown Framework Plan, the city will consider the following measures: To develop a coordinated transportation system that provides for local as well as area- wide traffic, the City of Stillwater will: • Develop an area -wide coordinated road improvement program with Mn/DOT and Washington County. To develop and locate new roads sensitive to historic structures and sites, as well as natural features, the City of Stillwater will: • Develop a comprehensive streetscape plan for planting and improvements shall be developed for major streets. This would have aesthetic and traffic calming benefits. To make it easy and convenient to travel in and around Stillwater, tie allowable new development to the capacity of roadways; limit impact of non-residential traffic in neighborhoods when possible and develop a comprehensive sidewalk, trial and bikeway system, Stillwater will: • Develop a comprehensive signage program. The program will identify key gateways into the city; will create gateway signage/monuments; will create consistent directional signage; and will direct regional traffic to downtown Stillwater via routes that avoid residential neighborhoods. • Provide bicycle parking, locations and attractive bicycle storage racks at key locations including parks, downtown and commercial centers. • Work with state, regional and other partners on a transit plan. • Keep updated parking plan and parking management program for the downtown area. • Consider developing a parking plan to improve the usage of underutilized public/private parking in Downtown Stillwater. Page 50 3 rd Draft October 15, 2008 To provide an integrated system of roads, bikeways, transit lines, and pedestrian paths, the City of Stillwater will: • Develop and implement a bikeway system facilities plan and implementation program. • Continue implementing the sidewalk/pathways maintenance and improvement program. • Develop a plan for sidewalk and trail snow removal. • Improve the appearance of bus stops and better integrate stops into neighborhood or area design. • Encourage MnDOT to provide continuous bicycle paths along the frontage road from CR 15 to TH 95 and along Highway 95 from Oak Park Heights to TH 95 through the downtown area. Page 51 3 rd Draft October 15, 2008 C. PARKS, TRAILS AND RIVERFRONT The riverfront has played a major role in the evolution of Downtown Stillwater as a major destination and Minnesota's iconic "River Town." A primary goal of this plan is to reinforce the riverfront as the focus of the downtown Stillwater's open space system and as a significant cultural and historical amenity, as well as a dynamic asset for economic development. Along with the riverfront, the parks, trails, stairways, and streetscapes create a network of connections and amenities which will attract and retain residents and businesses, balance pedestrian and vehicular needs, and provide spaces for a variety of gatherings and festivals to build economic value overtime. The riverfront plan proposed in this framework synthesizes and combines recommendations from several previous parks and open space plans including: the Lowell Park Plan (1992), the Aiple Property/Kolliner Park Master Plan (1998), the North Main Street/Lowell Park Plan Update (2004), and the Stage 3 Levee Plan. GOAL Reinforce the riverfront as the focus of the Downtown Stillwater open space system and as a significant cultural and historical amenity. Proposed Lowell Park Phonograph horn the Metrapolsran Cemer image Rank Figure 37. Proposed Riverfront Improvements Policy 1: Bikeways, hiking trails, rest areas and picnicking accommodations should be provided within designated trail corridors, wherever feasible. In addition the trails and staircases connecting neighborhoods into downtown should be well identified with signage. A linear trail should be developed in Lowell Park running from the Dock Cafe to the MN Zephyr depot. Trail connections should also be explored that connect Lowell Park to the Aiple property, Kolliner Park, the Boom Site, as well as to regional and state trails. Page 52 3 rd Draft October 15, 2008 Policy 2: The city should work together with other agencies to develop a trail system to connect the Aiple property to Downtown Stillwater and Kolliner Park. Policy 3: Continue to explore the feasibility of acquiring additional land along the St. Croix River for park purposes. Policy 4: The city -owned Aiple property and Kolliner Park shall be preserved for its natural setting and passive recreational opportunities. Policy 5: Balance the functional design of the levee with aesthetic considerations and connections to river. OBJECTIVES ■ Preserve, enhance and restore the riverfront based on its natural setting, recreational uses and historic integrity for the enjoyment of residents and visitors. ■ Design parking to serve both the downtown and Lowell Park. Screen views of parking from within Lowell Park and improve the visual impact of parking in the downtown area. ■ Encourage access to Downtown Stillwater from the river. ■ Provide setting, location, and design for special downtown festivals and events. ■ Integrate elements of the Stage 3 Levee by providing permanent 50 year flood protection that is designed into the downtown circulation and open space system. Improve the connections between Old Town neighborhoods, downtown, and the riverfront through improved visual access, trails, streetscape treatments, and spaces. Page 53 3 rd Draft October 15, 2008 Levee berm and bike trail One way roundabout with open space Flood barrier/seatwall Flood barrier/ Amphitheater wall Amphitheater Gazebo/performance area Barge stage area Potential transit/mixed use building Seating area Flood barrierlseatwall Formal gardens Flood barrier/seatwall Existing walk Proposed Loop Trail alignment Flood barrierlseatwall Proposed Loop Trail Trolley booth Potential walk connection Figure 38. Riverfront Plan LOWELL PARK FLOOD CONTROL, PARKING, AND REGIONAL TRAIL Page 54 3 rd Draft October 15, 2008 Concurrently with the downtown comprehensive planning process, the City of Stillwater has been collaborating with the Army Corp of Engineers in the preparation of final phase of the flood control improvements for the downtown riverfront. The timing of this process has been fortuitous because the objectives of the Downtown Framework Plan could be integrated with the objectives of the flood control plan to balance the functional design of the levee with aesthetic considerations and connections to the river. As a result the proposed levee south of Mulberry St. has been converted to a seat wall that will provide 50 year flood protection seamlessly integrated into Lowell Park. Levee berm and bike trail Flood barrierlseatwall Flood barrier/Amphitheater wall Bike trail Flood barrierlseatwall Existing walk Proposed Loop Trall alignment Flood barrierlseatwall Proposed Loop Trail Figure 39. Final Phase of Flood Protection Improvements Page 55 3 rd Draft October 15, 2008 The Army Corp of Engineers with SEH, Engineering Consultants, prepared an Engineering Documentation Report (EDR) that summarizes the key points of the flood control design and engineering. Pertinent excerpts for the Comprehensive Plan from the EDR are outlined below. St. Croix Riverfront Historical Background The St. Croix River is one of America's first "Wild and Scenic Rivers" and is subject to the legislation that protects such designated rivers. Stillwater was established in 1843 as the result of abundant timber resources and the river which provided the necessary transportation of the timber. Three and a half billion logs passed through the nine sawmills located on the riverbank at the Port of Stillwater. The sawdust and wood debris make up a portion of the soil of the riverfront. A formal park was established along the riverfront in 1911 and named Lowell Park. A double retaining wall system was constructed in 1938 to project the fragile riverfront from erosion, and protect most of the flood plain from annual flooding. The riverfront retaining wall was built by the WPA when the Corps of Engineers constructed Lock and Dam No. 3 on the Mississippi River at Welch, Minnesota. The wall, the park, a lift bridge across the St. Croix River, and downtown Stillwater are included on the National Register of Historic Places. Stillwater has a population of about 18,000 and is a major tourist destination. During the summer months and the peak fall colors it is not unusual to have 20,000 visitors a day to the city. The riverfront is a focal point for many of the tourist activities. Project Description The current flood control project is divided into three stages as described below. Stage 1 involved the repair and reconstruction of the 1,000 foot long existing double retaining wall system from Nelson Street on the south end of the project to the gazebo near East Myrtle Street at the north end. Construction of Stage 1 was completed in November 1997. Stage 2 involved extending the existing wall system to the north and installing riprap erosion protection to the south of the existing wall. The wall system was extended approximately 900 feet from the gazebo near East Myrtle Street to the north side of Mulberry Point located at Mulberry Street. Due to poor subsurface conditions which included an extensive layer of organic silt which was the result of a dam break on McKusick Lake and its associated debris flow, sawdust, and wood debris left over from sawmills that once existed in the area, a surcharge of the Stage 2 construction area was completed to improve the soil conditions at Mulberry Point. The surcharge project was designated Stage 2S. Construction of Stage 2S was completed in 1999 and construction of Stage 2 was completed in November 2002. Page 56 3 rd Draft October 15, 2008 Stage 3 involves the expansion of the wall system. This portion of the project consists of constructing a low floodwall along the western side of Lowell Park paralleling the railroad right-of-way. The floodwall consists of a sheet pile founded concrete I -wall extending approximately 3 feet above the existing ground level. Other Stage 3 project features include a seepage control system and interior flood control facilities including portable pumping facilities. In order to facilitate Stage 3 improvements, the City of Stillwater purchased the railroad property that traversed the entire downtown area and removed the railroad tracks. A secondary benefit of purchasing the railroad property is that the city can incorporate it into the floodwall project. Removal of the railroad tracks also impacts the plans for construction of the emergency levee during major floods. Regional Trails Loop Trail In conjunction with the new river crossing a continuous loop trail is proposed to connect Minnesota with Wisconsin. The trail would run across the new bridge, then north along Trunk Highway 95 through the former Aiple barge site and the city's South Main Street public parking lot, then continue through downtown along the former railway to Chestnut Street, where it would turn eastward over the historic lift bridge and head into Wisconsin and turn south to return to the new river crossing bridge. Zephyr Trail Washington County has committed funds for a significant portion of the cost of purchasing the Minnesota Zephyr railroad line. Together with the Minnesota Department of Natural Resources and other agencies the line would be converted to a trail. The trail would begin at the Zephyr Depot and follow the rail alignment northward into the Brown's Creek valley. From here it would head westward and join the Gateway Trail out of St. Paul. Other Trails The Parks and Trails Chapter of the 2030 Comprehensive Plan proposes other new trail segments. One is a city bike path within the Myrtle Street corridor all the way through the downtown to the river. Another trail link is proposed along East Elm Street to the north of downtown. This trail would utilize excess right-of-way and connect North Hill neighborhoods to the future Zephyr Trail. Riverfront Parking Currently, the riverfront parking lots present a physical and psychological barrier between Main Street and the riverfront. A primary objective of the Framework Plan is to design parking to serve both the downtown and Lowell Park, while minimizing the barrier effect through improved pedestrian connections, landscaping, streetscapes, signage and open space expansions. Also, demand for surface parking along the waterfront may be reduced somewhat by the construction of the proposed municipal structured parking on 2nd Street at Commercial Avenue. This would provide more flexibility in reconfiguring the current parking areas to allow for more landscape and open space improvements. Page 57 3 rd Draft October 15, 2008 The current dimensions for some of the parking areas are generous and inefficient. The Framework Plan illustrates a parking configuration that maintains a simple circulation pattern, minimizes the parking aisle and row dimensions and accommodates expansion of Lowell Park to the north. Water Street is maintained as a circulation route for service vehicles, visitors and future transit. •91-PROPOSED PARKING STALLS 6-PROPOSED PARKING STALLS Figure 40. Framework Plan's Effect on Parking Spaces Page 58 3 rd Draft October 15, 2008 Floodwall Alignment The alignment of the floodwall throughout the project area had to accommodate parking lots, the regional bike/walking trail, decks and patios for businesses, and historic park features. The city also stressed that they wanted minimum impacts to the trees in Lowell Park. In addition, the landward side of the floodwall must accommodate the construction of a temporary earthen dike for flood events that exceed the 50 year flood event elevation of the floodwall. Flood Control/Seat Wall One of the main goals in the layout of the floodwall alignment and parking lot grading was to minimize the exposed height of the wall. The City desired to have the wall as low as possible so that it would not block views of the river from downtown, or give the appearance of a barrier to the Lowell Park. It was also a goal of the city to use the floodwall as a seating wall. Where necessary the parking lots will be graded to give the appearance of a low wall. For the majority of the wall south of Mulberry Street the resulting wall exposure is about 2 feet. There are five sections planned for the floodwall. The design of each depends upon surrounding topography and other existing conditions. Therefore, each is unique to its specific location. The five sections are described below. Section A: North of Mulberry Street The portion of the floodwall north of Mulberry Street is located west of the current access road to the Stillwater Marina. This allows for the construction of additional parking in the area. The regional trail would be adjacent to the floodwall on its west side. Therefore, the exposed height of the wall on the west side will be about 2 feet. But, the exposed height on the east side of the wall would be 4-5 feet to accommodate the parking and access road. The top of the wall will not accommodate seating in this area and instead will have a railing for safety. This can be seen in Figure 40. Page 59 3 rd Draft October 15, 2008 Oid radraad $ 9.W. vanes 5' S" 2' I f-17 P' 3' 2' 6 Figure 41. Section A of Floodwall Section B: Mulberry Street The 1992 Lowell Park Plan included a performance pavilion at Mulberry Point. This caused the storm sewer discharge pipes and the water control structures at Mulberry Street to be routed around the proposed pavilion location. In the current Comprehensive Plan the pavilion at Mulberry Street has been eliminated and Commercial Street is now designated at the location of the amphitheater. The ground topography general tapers lower as you approach Mulberry Street. Thus, the exposed floodwall height increases therefore the seating area at the top of the floodwall was eliminated between Commercial Street and Mulberry Street. The exposed wall on the west, or landward, side of the wall is about 2 feet since the regional trail will be adjacent to the west side of the wall. The exposed height of the wall will be about 4.5 feet on the east, or landward, side of the wall at Mulberry Street. A road raise was designed in Mulberry Street at the floodwall in order to reduce the exposed height of the wall, to better accommodate the regional trail, and reduce the height of an emergency levee. The maximum height of the road raise is about 2 feet. Due to the road raise the speed limit of the road in this area will need to be reduced from 30 mph to 20 mph. Page 60 3 rd Draft October 15, 2008 Figure 42. Section B of Floodwall B,ke trail fl II parking to dram away Tom flood harrier Flood barrerlsoarwall iW. Elevation 691 Proposed walk Existing grade Section C: Commercial Avenue Amphitheater An amphitheater is proposed along this segment of the floodwall. The amphitheater would be an addition to Lowell Park at the terminus of the Commercial Avenue Plaza. The proposed improvements in this area would accomplish several objectives: • Increase the open space area of North Lowell Park to accommodate larger events. The Commercial Avenue location works well for this objective because it aligns with the floating stage that is currently used for Lumberjack Days and other events. • The city parking lots in this area facilitate expansion of Lowell Park. • A strong pedestrian connection is possible at this location that would link Main Street with the amphitheater and river beyond. The combination of activity generated by the planned municipal ramp one block west on Commercial Avenue, a potential transit facility, new commercial uses, pedestrian linkages to the river and amphitheater, plus the proximity to proposed new bike paths here should make Commercial Avenue Plaza a very active and memorable place. Figure 43. Proposed Amphitheater Improve connection to Lowell Park Potential transit/mixed use building Page 61 3 rd Draft October 15, 2008 Potential mixed usehesidential Commerdal Ave. plaza Potential mixed use/transit facility Bike trail Potential tree locations to be coordinated with flood control aperat000 24' Figure 44. Section C of Floodwall 10' 10' Figure 45. Section C of Floodwall Bike trail Flood barrier TW Elevation aol Amphitheater Fasting grade Hood control seat wall Page 62 October 15, 2008 Short term pedestrian connection Amphitheater Short term focal element/ sculpture Barge stage area Short term walk Existing private parking lot Seating area Flood barrier/seatwal'l Bike trail 3 rd Draft Alternative Section C: Short Term Alternative Alignment One of the challenges for the floodwall alignment in this section is that the city does not own all of the property immediately to the west of the former railroad right-of-way. Consequently, the full arc of the amphitheater can not be built at this time. Until that is possible an interim truncated version is proposed. This interim version can be seen in Figures 46 and 47. The short term solution for the floodwall is to terminate it at each side of the amphitheater. The grade between the ends of the floodwall would be raised to the 50 year flood event elevation of 691 feet above sea level, the same height as the top of the floodwall. The ground will be sloped toward the river so that people sitting on the grass in the park can look down toward the performance stage on a barge in the river. This solution would also allow for an emergency levee to be built without encroaching on private property. 90' Private Parking 6. Inter Amphitheater Plan y 10'-12'3� 10 Figure 47. Interim Amphitheater Cross Section Bike trail Pedestrian walk Flood harrier Existing grade Amphitheater Page 63 3 rd Draft October 15, 2008 Section D: Floodwall Alignment between Chestnut Street and Myrtle Street The main challenge in the alignment, in this section of floodwall, is the presence of The Water Street Inn located immediately adjacent to the former railroad right-of-way. Therefore, the regional trail corridor needed to be aligned so that there was a safe separation from both the Inn and the edge of the city parking lot. Another challenge in this reach is the presence of a historic retaining wall along the St. Croix River bridge concourse and electrical facilities required for operation of the lift portion of the bridge. The floodwall was curved to the west to avoid the wall and electrical facilities. In this section there are historic staircases in Lowell Park on the east, or riverward, side of the wall. The floodwall was positioned so that it would not impact the staircases and to allow for construction of a sidewalk between the staircases and the floodwall. ow X tn� G aV varies 76' • 87' 60' /'/ 4 / 7'l ✓' 5' Parking layout tnhe adjusted to site specific conditions Figure 48. Section D of Floodwall Bike trail Fill parking to drain away from flood barrier Flood harrier/seep/mil TW Eievation.691 Eristiag walk Faisting grade Section E: Floodwall Alignment between Nelson Street and Chestnut Street As with Section D, the challenge throughout this section of floodwall is in accommodating wall, boulevards, parking lot and trail corridor all within the relatively confined distance between Lowell Park and the deck of the Freight House Restaurant. A boulevard was designed between the parking lot curb and the floodwall to allow for snow removal and to account for the overhang of cars. Similarly a boulevard was factored in on the west side of the parking lot Page 64 3 rd Draft so that vehicles do not hang over the regional trail. The position of the regional trail is midway between the back of the parking lot curb and the Freight House Restaurant deck. October 15, 2008 As with Section D, the alignment of the floodwall was curved westward as it approached Chestnut Street in order to avoid the historic concourse wall at Chestnut Street. as 14▪ r OIr Varies 78" - 87' ga EI'-12' 2' 60' Parking layout to be adjustedto slte sperrlk rnnrl5r ns 3 a' Figure 49. Section E of Floodwall Bike trail Fill perking to drain away from Rood bard. - Fined hauler/seat-wall T.W. Elevation 841 Existing grade Implementation To implement the Parks, Trail, and Riverfront section of the Downtown Framework Plan, the city will consider the following implementation measures, which were developed from the goal and policy categories, listed in the beginning of this chapter. • Prepare integrated and detailed park plans for the downtown riverfront properties based on the concept plans developed as part of the Lowell Park Plan (1992), the Aiple Property/Kolliner Park Master Plan (1998), the North Main Street/Lowell Park Plan Update (2004), and the Stage 3 Levee Plan. • Maintain the Stillwater/Houlton Bridge as an important connection for the park system and to the heritage of the area. • Explore developing plans for additional points of public access to the river. • Upgrade Mulberry point to the passive recreational and pedestrian character defined by the Morrell and Nichols Lowell Park Plan. • Develop Mulberry Street into a more formal "processional" boulevard linking the Riverfront and Main Street. • Expand Lowell Park area toward Water Street. Page 65 3 rd Draft October 15, 2008 ■ Provide pedestrian amenities such as landscaping, visitor center, restrooms, trails, sidewalks, and interpretive sites of the downtown and river. ■ Consider incorporating performing and visual art within Downtown Stillwater. ■ Improve existing stairway connections to adjacent residential neighborhoods with landscaping, lighting, and a wayfinding system. ■ Incorporate more viewing areas with benches — particularly looking north from the south bluff. D. Local Economy and Tourism The City of Stillwater has made a conscious decision to build its economy by capitalizing on its historical riches and maintenance of a high quality of life. Stillwater is a destination location for residents of the Twin Cities Metropolitan Area and beyond. This destination status provides a wealth of economic activities that would not normally be expected in a community of the size and demographic characteristics of Stillwater. During the summer months and when fall foliage colors peak it is not unusual to have 20,000 visitors a day in the city. The riverfront is a focal point for many of these tourist activities. By maintaining the city's quality of place, not only does it receive additional economic benefit from tourism, but it attracts residents and businesses that treasure the unique marriage of small town living with high quality and unique merchants typically only found in much larger communities or the central cities. This Local Economy and Tourism section of the Framework Plan will: • Outline the city's goals and policies with respect to economic development and tourism; • Summarize market research and analysis that was completed for the 2030 Comprehensive Plan process; and • Provide a list of programs for implementation of the goals and policies. Local Economy As the "Birthplace of Minnesota", Stillwater has not only one of the oldest economies in the state, but also one of the more vibrant. The city has consistently exceeded the suburban economic norms for the metro area, particularly in the area of employment. The city worked with citizens to prepare economic development goals with supporting objectives, policies and programs. The goals, objectives and programs are the foundation of the Local Economy and Tourism section of the Downtown Framework Plan. They highlight the city's role in protecting and enhancing the local economy in the coming years. Page 66 3 rd Draft October 15, 2008 Goals Goal 1.Increase the tax base and provide opportunities for economic growth for Stillwater and Stillwater area residents. Goal 2. Promote and maintain the downtown as a central focus for community economic and cultural activity. Goal 3. Provide new locations for job growth in close proximity to housing and with convenient access. Objectives Support business expansion in the downtown commercial district and West Stillwater Business Park area. Policies Policy 4. Work with local and regional economic development interests to promote local economic development. Policy 5. Encourage downtown as a relocation destination for successful businesses. Tourism Stillwater's preserved historical sites of the 1800's lumbering era have made the city an attractive destination for tourists. Much of the downtown area is filled with businesses targeted to this tourist trade including historic hotels, beds and breakfast, museums, riverboats, the Minnesota Zephyr, specialty shops, and a variety of restaurants. Stillwater is also host to many special events that annually draw thousands of tourists to the community including, Lumberjack Days, The Rivertown Art Festival and Music on the Waterfront. Page 67 3 rd Draft October 15, 2008 Goals Goal 1: Promote tourism consistent with retaining Stillwater's unique natural resources and historic and architectural character. Objectives Maintain Stillwater's historic, cultural and natural resources, community uniqueness Support historic preservation efforts Support tourism as a major basic city industry Support public improvements and maintenance that enhances the attractiveness of downtown Policies Policy 1. Attract visitors and shoppers to the community Policy 2. Support year around activities that enliven the downtown public and cultural life Policy 3. Promote activities which lengthen the time visitors spend in Stillwater Policy 4. Reinforce the unique historic character of downtown Policy 5. Maintain public facilities so that the downtown is an attractive place to visit Policy 6. Work with the Stillwater Area Chamber of Commerce and Convention and Visitors Bureau in promoting downtown activities and improvements Page 68 3 rd Draft October 15, 2008 MARKET ATTRIBUTES OF DOWNTOWN STILLWATER Bonestroo analyzed the current and historic market trends for retail, office, and residential uses, as a majority of downtown is devoted to one of these three uses. Downtown Stillwater consists of a mix of businesses and residences that exist in a unique setting within the Twin Cities Metropolitan Area. The positive characteristics that contribute to the economic vitality of the area include: Positive Attributes • Location along a protected National Scenic Waterway (the St. Croix River) • Topography that is varied, which allows for desirable views of city structures and the St. Croix River Valley • Cohesive, well-preserved stock of historic buildings • Pedestrian -friendly environment • Well-known throughout the metropolitan region • Strong community identity (sense of pride) • Vibrant retail/commercial activity Despite the positive characteristics that have contributed to the downtown's economic vitality, there are challenges such as: Negative Attributes • Limited access from major metropolitan highways • Perceived lack of convenient and/or accessible parking • Traffic • Limited offerings for local residents • Few, if any, transit options • Limited development or redevelopment opportunities • Location that is somewhat isolated from the metropolitan area DEMOGRAPHIC ANALYSIS Because of Downtown Stillwater's uniqueness, many of the businesses draw customers from throughout the metropolitan region. This is also true of households who want to live in Downtown Stillwater. Therefore, the future potential of both commercial and residential growth is strongly related to regional demographic trends. The following are key conditions affecting Downtown Stillwater: • The population and household base of the 13-County Twin Cities Metropolitan Area is forecasted to grow steadily through 2020 (see Tables 1 and 2). A growing metropolitan area will mean a growing consumer base for businesses located in Downtown Stillwater. Page 69 3 rd Draft October 15, 2008 • The population is aging and the proportion of households with young children is declining at both the regional and local level (see Tables 3 and 4). This suggests that over the next 10 years, as more households reach retirement age, discretionary spending of the type that supports many downtown establishments will increase. • Through 2020, Washington County and communities adjacent to Stillwater are forecasted to grow at rates that will exceed the metropolitan growth rate (see Tables 1 and 2). This suggests that commercial activity associated with convenience -related and other non -destination retail has the potential to increase in the downtown provided these new growth areas are easily accessible to the downtown. CURRENT DOWNTOWN HOUSING CONDITIONS For -Sale Market The for -sale housing market is currently slumping locally, regionally, and nationally. Historically low mortgage interest rates, lax lending standards, and rampant speculation during the first decade of the century has led to an oversupply of for -sale homes on the market. To gauge the impact of current market conditions on the for -sale housing demand downtown, Bonestroo surveyed recent and current for -sale developments (see Table 5). Below are important findings: • New for -sale development primarily consists of multi -story condominium buildings • Since 2004, seven buildings have been built or are under construction with a total of 336 units • Of the 336 units, 112 (33%) are currently for -sale • Sales have slowed substantially over the last 18 months • Very few units under $250,000 remain available • Outside the central cities of Minneapolis and St. Paul, Stillwater has been one of the most popular locations for new condominium development Given its current condition, Bonestroo concludes the following about the future of for -sale housing in the downtown: • It will remain saturated with available supply and be marked by slow absorption for the next two years; especially for units priced above $350,000 • There is some immediate potential to absorb more units priced under $250,000; however, land and construction costs will make this difficult to achieve • Aging baby boomers and empty nesters will continue to trade down to smaller, more efficient units • Downtown Stillwater has an unparalleled array of amenities to offer condo buyers, which will result in a faster rebound in the market compared to other suburban areas Page 70 3 I'd Draft October 15, 2008 Rental Market In contrast to the for -sale market, the rental market has significantly improved over the last several years. Vacancy rates throughout the metro area have declined from a peak of 8% in 2005 to below 4% in 2007 (Graph 1). Related to declining vacancies are rising rents. Over the last two years, the average rent in the metro area, and Stillwater has increased between 3-5% (Graph 2). Although increased demand for rental housing has placed upward pressure on rents, properties in Stillwater typically do not command the same rental rates as those in other parts of the metro area. This is primarily due to the fact that the rental housing stock in Stillwater, especially in the downtown, is older and located in smaller buildings with few amenities (Graph 3). Given the condition of the rental market, Bonestroo concludes the following: • Limited new development in the past 10 years along with increased market demand has resulted in opportunities for additional rental housing in the downtown • The strongest demand is for properties targeted to seniors, especially market rate units with up-to-date layouts, features, and amenities • Some rental demand is from younger households; however, it is limited to those who work in the downtown or grew -up in the area HOUSING DEVELOPMENT POTENTIAL It is estimated that Downtown Stillwater could support up to 250 new housing units over the next 10 years. All of these units would be in multifamily buildings (owned or rented). A significant proportion (between 25- 50%) could be age -restricted. Because of current conditions in the for -sale market, most of this demand will not occur for at least three to five years, though there is some immediate demand for rental housing. From 2000 to 2007, about 20% of Stillwater's residential development occurred in the downtown. Given that available land on the outskirts of the city will become scarce over the next 10 years, we might assume that the 20% proportion will increase to 40%. Thus, since the Met Council anticipates Stillwater will grow by 600 households over the next 10 years, we would calculate that 40% (about 250 units) could be developed in the downtown. CURRENT DOWNTOWN COMMERCIAL ENVIRONMENT Commercial uses in the downtown (i.e., office and retail) mostly consist of professional service firms (e.g., real estate agents, financial planners, attorneys, etc.) that occupy small office spaces and destination -oriented retail shops that are dependent on non -local customers. The lack of other commercial uses is the result of a transformation that began several decades ago when the development of auto -oriented shopping centers outside of the downtown siphoned off convenience -related retail (e.g., grocery stores, hardware stores, drug stores, etc.). In order to assess Downtown Stillwater's Page 71 3 rd Draft October 15, 2008 position as an important commercial center, Bonestroo collected data on the retail and office markets, which are summarized below. Retail Market Conditions Metro -wide, the retail market has been strong for many years, but is now showing signs of a slowdown due to rising energy prices, sagging consumer confidence, and the slumping housing market. According to the Minnesota Shopping Center Association, retail vacancy is around 6% metro -wide, which, though healthy, is rising. The vacancy rate in Downtown Stillwater appears to be in line with the metropolitan area. A windshield survey revealed a small number of empty spaces due to the recent relocation of several businesses as well as a couple of recently constructed buildings with new space waiting to be filled. Nonetheless, the vacant retail space has not negatively affected rents, which range from $16 to $27 per square foot for new space and from $10 to $18 per square foot for older or less visible space. These are rents that are comparable to many of the smaller shopping centers located throughout the metro area. Interviews with real estate professionals familiar with Downtown Stillwater revealed that many remain bullish on retail market. Some respondents even cited examples of continued interest from national retailers to open stores. Despite this favorable impression, some respondents also noted that recent tax changes may have dampened demand somewhat. However, others are optimistic that the recent formation of a business association will improve market conditions by coordinating marketing efforts among many of the retailers. Given the current retail market, the following conclusions can be made: • A declining retail market will be most strongly felt by shopping centers built to anticipate residential growth. This won't be the case in Downtown Stillwater. Instead, Downtown Stillwater's retail market may increase during this latest economic slowdown because reduced air travel may increase interest to vacation and thus spend discretionary dollars closer to home. • Growth in the number of empty nesters and retirees will fuel demand for more destination -oriented retail. • Improved access to Downtown Stillwater will be essential for future growth; metro area residents must be able to get into and out of Downtown Stillwater. • Neighborhood retailers or convenience retail (i.e., hardware stores, drug stores, etc.) will remain absent from the downtown unless many more housing units are built in or near the downtown. Assuming the consumer spending habits of a typical household supports roughly 40 square feet of neighborhood commercial space, then Stillwater will need to add a minimum of 2,000 new housing units to support such a retailer. Page 72 3 rd Draft October 15, 2008 Office Market Conditions The metro -wide office market has been improving in recent years as the overall vacancy rate has declined from 18.9% in 2003 to 14.7% in 2007 (Figure 4). In particular smaller office buildings, which constitute most of the Downtown Stillwater market, have been performing very well as of late. Over 60% of the firms located in Stillwater have between one and four employees compared to the metro area rate of about 55% (Figure 5). Moreover, such figures include commercial properties in Stillwater that are outside the downtown. If we were able to isolate such data on the downtown, the proportion of firms with fewer than four employees would likely be even higher. The businesses that occupy office space in Downtown Stillwater are primarily financial, insurance, and professional service firms. These tend to be smaller businesses in which the proprietor has an established client base and locates their business in Downtown Stillwater out of choice and not out of necessity. In many instances, the proprietors live in Stillwater as well. The office space in the downtown tends to be concentrated along 2nd Street and in lower trafficked areas of Main Street (i.e., north of Commercial Avenue and upper story spaces). Rents for office space have a wide range, mostly depending on views. The low end tends to be around $10 per square foot, while the upper end can be as high as $20 per square foot. Based on the current office market conditions, the following conclusions can be made: • The demand for office space in Downtown Stillwater will continue to come from small professional service firms because the downtown lacks sufficient access to the remainder of the metro area to support large-scale office users • Growth in the number of early retirees may increase demand for niche office space in Downtown Stillwater COMMERCIAL DEVELOPMENT POTENTIAL It is estimated that Downtown Stillwater could support approximately 20,000 square feet of new retail space and 10,000 square feet of new office space over the next 10 years. Most of the retail would be limited to restaurants and specialty retailers who rely on destination shoppers. Meanwhile, most of the office space would be limited to small professional and business service firms with fewer than 20 employees. From 2002 to 2006, approximately 21,300 square feet of new commercial space was built in Downtown Stillwater, all of which was classified as Mixed - Use according to the Met Council. During this same time period, the Twin Cities developed on average about 560,000 square feet of Mixed -Use commercial space per year. Downtown Stillwater, therefore, captured a little more than 1 % of that annual average. If Mixed -Use developments continue at the same pace and Downtown Stillwater captures a similar proportion of that development, it would calculate to demand for nearly 65,000 square feet of Page 73 3 rd Draft October 15, 2008 space over the next 10 years. However, this would be aggressive given roadway capacity issues and the availability of developable sites. A more pragmatic adjustment to the calculation would, therefore, be to reduce this amount by 50%. The result is a forecast for something closer to 30,000 square feet, two-thirds of which is anticipated to be retail in orientation, while one-third is anticipated to be office in orientation. 1990 2000 Table 1 Population Growth Trends Stillwater Study Area 1990-2020 Pro ections 2010 2020 Stillwater 13,882 15,143 19,100 21,300 Oak Park Heights 3,486 3,957 5,500 5,400 St. Joseph, WI (town) 2,657 3,436 4,150 4,720 Bayport 3,200 3,162 4,600 5,300 May Twp. 2,535 2,928 3,200 3,600 Somerset, WI (town) 1,975 2,644 4,174 5,010 Stillwater Twp. 2,066 2,553 2,690 2,940 Somerset, WI (village) 1,065 1,556 2,840 3,580 Baytown Twp. 939 1,533 1,820 1,960 Marine on St. Croix 602 602 760 880 Subtotal 32,407 37,514 48,834 54,690 Washington County 145,880 201,130 258,542 316,083 St. Croix County (WI) 50,251 63,155 80,779 95,202 Twin Cities Metro Areal 2,538,834 2,968,806 3,471,727 3,916,357 ' 13-County Metropolitan Statistical Area (MSA) Change Numeric 90-00 00-10 10-20 1,261 3,957 2,200 471 1,543 -100 779 714 570 -38 1,438 700 393 272 400 669 1,530 836 487 137 250 491 1,284 740 594 287 140 0 158 120 5,107 11,320 5,856 55,250 57,412 57,541 12,904 17,624 14,423 429,972 502,921 444,630 Sources: U.S. Census; Metropolitan Council; Minnesota and Wisconsin State Demographic Centers; Bonestroo, Inc. 1990 2000 Table 2 Household Growth Trends Stillwater Study Area 1990-2020 Projections 2010 2020 Percentage 90-00 00-10 10-20 9.1% 26.1% 11.5% 13.5% 39.0% -1.8% 29.3% 20.8% 13.7% -1.2% 45.5% 15.2% 15.5% 9.3% 12.5% 33.9% 57.9% 20.0% 23.6% 5.4% 9.3% 46.1% 82.5% 26.1% 63.3% 18.7% 7.7% 0.0% 26.2% 15.8% 15.8% 30.2% 12.0% 37.9% 28.5% 22.3% 25.7% 27.9% 17.9% 16.9% 16.9% 12.8% Change Numeric 90-00 00-10 10-20 Stillwater 4,982 5,797 7,500 8,100 Oak Park Heights 1,322 1,528 2,180 2,300 St. Joseph, WI (town) 885 1,193 1,483 1,750 May Twp. 820 1,007 1,200 1,400 Somerset, WI (town) 668 927 1,500 1,870 Stillwater Twp. 639 833 960 1,110 Bayport 743 763 1,140 1,300 Somerset, WI (village) 406 635 1,216 1,590 Baytown Twp. 302 492 600 680 Marine on St. Croix 234 254 320 370 Subtotal 11,001 13,429 18,099 20,470 Washington County 49,246 71,462 97,749 122,764 St. Croix County (WI) 17,638 23,410 30,814 37,655 Twin Cities Metro Area' 960,170 1,136,615 1,366,056 1,570,974 13-County Metropolitan Statistical Area (MSA) Sources: U.S. Census; Metropolitan Council; Minnesota and Wisconsin State Demographic Centers; Bonestroo, Inc. 815 1,703 600 206 652 120 308 290 267 187 193 200 259 573 370 194 127 150 20 377 160 229 581 374 190 108 80 20 66 50 2,428 4,670 2,371 22,216 26,287 25,015 5,772 7,404 6,841 176,445 229,441 204,918 Percentage 90-00 00-10 10-20 16.4% 29.4% 8.0% 15.6% 42.7% 5.5% 34.8% 24.3% 18.0% 22.8% 19.2% 16.7% 38.8% 61.8% 24.7% 30.4% 15.2% 15.6% 2.7% 49.4% 14.0% 56.4% 91.5% 30.8% 62.9% 22.0% 13.3% 8.5% 26.0% 15.6% 22.1% 34.8% 13.1% 45.1% 36.8% 25.6% 32.7% 31.6% 22.2% 18.4% 20.2% 15.0% Page 74 3 rd Draft October 15, 2008 Number of Households Stillwater Oak Park Heights St. Joseph, WI (town) Bayport May Twp. Somerset, WI (town) Stillwater Twp. Somerset, WI (village) Baytown Twp. Marine on St. Croix Subtotal Washington County St. Croix County (WI) Twin Cities Metro Areal Percent of Total Stillwater Oak Park Heights St. Joseph, WI (town) Bayport May Twp. Somerset, WI (town) Stillwater Twp. Somerset, WI (village) Baytown Twp. Marine on St. Croix Subtotal Washington County St. Croix County (WI) Twin Cities Metro Areal Stillwater Oak Park Heights St. Joseph, WI (town) Bayport May Twp. Somerset, WI (town) Stillwater Twp. Somerset, WI (village) Baytown Twp. Marine on St. Croix Subtotal Washington County St. Croix County (WI) Twin Cities Metro Areal Total HH's 1990 2000 4,982 5,797 1,322 1,528 885 1,193 743 763 820 1,007 668 927 639 833 406 635 302 492 234 254 11,001 13,429 49,246 71,462 17,638 23,410 960,170 1,136,615 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Table 3 Household Type Stillwater Study Area 1990 & 2000 Family Households Married w/ Child Married w/o Child 1990 2000 1,616 1,589 324 324 372 430 161 142 358 386 249 310 321 357 122 138 138 218 73 65 3,734 3,959 19,058 6,439 269,928 32.4 24.5 42.0 21.7 43.7 37.3 50.2 30.0 45.7 31.2 33.9 38.7 36.5 28.1 24,307 7,206 294,213 27.4 21.2 36.0 18.6 38.3 33.4 42.9 21.7 44.3 25.6 29.5 34.0 30.8 25.9 Other * 1990 2000 1,388 1,724 331 374 298 453 249 233 274 378 216 324 222 334 91 121 100 185 88 92 3,257 4,218 14,671 '22,011 5,220 7,204 258,213 298,924 27.9 25.0 33.7 33.5 33.4 32.3 34.7 22.4 33.1 37.6 29.6 29.8 29.6 26.9 29.7 24.5 38.0 30.5 37.5 35.0 40.1 19.1 37.6 36.2 31.4 30.8 30.8 26.3 1990 2000 647 802 174 224 54 96 71 114 58 79 71 105 39 45 61 132 26 33 20 21 1,221 1,651 5,548 8,347 1,657 2,536 120,817 151,166 13.0 13.2 6.1 9.6 7.1 10.6 6.1 15.0 8.6 8.5 11.1 11.3 9.4 12.6 13.8 14.7 8.0 14.9 7.8 11.3 5.4 20.8 6.7 8.3 12.3 11.7 10.8 13.3 Non -Family Households Living Alone Roommates 1990 2000 1990 2000 1,097 1,408 234 274 427 532 66 74 122 160 39 54 219 237 43 37 96 128 34 36 106 141 26 47 40 72 17 25 97 170 35 74 31 44 7 12 48 60 5 16 2,283 2,952 506 649 7,927 13,374 2,042 3,423 3,480 4,958 842 1,506 238,122 303,050 73,090 89,262 22.0 24.3 4.7 4.7 32.3 34.8 5.0 4.8 13.8 13.4 4.4 4.5 29.5 31.1 5.8 4.8 11.7 12.7 4.1 3.6 15.9 15.2 3.9 5.1 6.3 8.6 2.7 3.0 23.9 26.8 8.6 11.7 10.3 8.9 2.3 2.4 20.5 23.6 2.1 6.3 20.8 22.0 4.6 4.8 16.1 18.7 4.1 4.8 19.7 21.2 4.8 6.4 24.8 26.7 7.6 7.9 Change 1990-2000 No. Pd. No. Pct. No. Pct. No. Pct. No. Pd. No. Pd. 815 16.4% -27 -1.7% 336 24.2% 155 24.0% 311 28.4% 40 17.1% 206 15.6% 0 0.0% 43 13.0% 50 28.7% 105 24.6% 8 12.1% 308 34.8% 58 15.6% 155 52.0% 42 77.8% 38 31.1% 15 38.5% 20 2.7% -19 -11.8% -16 -6.4% 43 60.6% 18 8.2% -6 -14.0% 187 22.8% 28 7.8% 104 38.0% 21 36.2% 32 33.3% 2 5.9% 259 38.8% 61 24.5% 108 50.0% 34 47.9% 35 33.0% 21 80.8% 194 30.4% 36 11.2% 112 50.5% 6 15.4% 32 80.0% 8 47.1 % 229 56.4% 16 13.1% 30 33.0% 71 116.4% 73 75.3% 39 111.4% 190 62.9% 80 58.0% 85 85.0% 7 26.9% 13 41.9% 5 71.4% 20 8.5% -8 -11.0% 4 4.5% 1 5.0% 12 25.0% 11 220.0% 2,428 22.1% 225 6.0% 961 29.5% 430 35.2% 669 29.3% 143 28.3% 22,216 45.1% 5,249 27.5% 7,340 50.0% 2,799 50.5% 5,447 68.7% 1,381 67.6% 5,772 32.7% 767 11.9% 1,984 38.0% 879 53.0% 1,478 42.5% 664 78.9% 176,445 18.4% 24,285 9.0% 40,711 15.8% 30,349 25.1% 64,928 27.3% 16,172 22.1% * Single -parent families Sources: U.S. Census Bureau; Bonestroo, Inc. Page 75 3 rd Draft October 15, 2008 Number of Persons Stillwater Oak Park Heights St. Joseph, WI (town) Bayport May Twp. Somerset, WI (town) Stillwater Twp. Somerset, WI (village) Baytown Twp. Marine on St. Croix Subtotal Washington County St. Croix County (WI) Twin Cities Metro Areal Percent of Total Stillwater Oak Park Heights St. Joseph, WI (town) Bayport May Twp. Somerset, WI (town) Stillwater Twp. Somerset, WI (village) Baytown Twp. Marine on St. Croix Subtotal Washington County St. Croix County (WI) Twin Cities Metro Areal Stillwater Oak Park Heights St. Joseph, WI (town) Bayport May Twp. Somerset, WI (town) Stillwater Twp. Somerset, WI (village) Baytown Twp. Marine on St. Croix Subtotal Washington County St. Croix County (WI) Twin Cities Metro Areal Total Population 1990 13,882 3,486 2,657 3,200 2,535 1,975 2,066 1,065 939 602 2000 15,143 3,957 3,436 3,162 2,928 2,644 2,553 1,556 1,533 602 32,407 37,514 145,896 201,130 50,251 63,155 2,538,834 2,968,806 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Table 4 Age Distribution Stillwater Study Area 1990 & 2000 Under 5 5 to 17 18 to 24 1990 2000 1990 2000 1990 2000 975 991 3,009 3,198 1,198 957 203 234 586 629 363 362 239 240 574 765 212 170 109 78 267 312 149 389 206 158 582 692 177 161 160 183 456 585 162 164 155 134 506 646 149 162 95 145 234 324 125 208 64 73 222 409 74 90 50 33 98 102 43 20 2,256 2,269 6,534 7,662 2,652 2,683 12,138 15,346 32,177 43,879 11,771 13,726 4,140 4,423 10,977 13,194 4,286 5,160 206,030 212,810 463,405 580,592 260,134 274,068 7.0 6.5 21.7 21.1 8.6 6.3 5.8 5.9 16.8 15.9 10.4 9.1 9.0 7.0 21.6 22.3 8.0 4.9 3.4 2.5 8.3 9.9 4.7 12.3 8.1 5.4 23.0 23.6 7.0 5.5 8.1 6.9 23.1 22.1 8.2 6.2 7.5 5.2 24.5 25.3 7.2 6.3 8.9 9.3 22.0 20.8 11.7 13.4 6.8 4.8 23.6 26.7 7.9 5.9 8.3 5.5 16.3 16.9 7.1 3.3 7.0 6.0 20.2 20.4 8.2 7.2 8.3 7.6 22.1 21.8 8.1 6.8 8.2 7.0 21.8 20.9 8.5 8.2 8.1 7.2 18.3 19.6 10.2 9.2 25 to 54 55 and Older 1990 2000 1990 2000 6,072 6,833 2,628 3,164 1,648 1,918 686 814 1,350 1,740 282 521 2,027 1,842 648 541 1,234 1,395 336 522 927 1,298 270 414 1,054 1,197 202 414 462 713 149 166 444 714 135 247 301 273 110 174 15,519 17,923 5,446 6,977 70,614 96,428 19,196 31,751 22,235 29,267 8,613 11,111 1,178,947 1,390,853 430,318 510,483 43.7 45.1 18.9 20.9 47.3 48.5 19.7 20.6 50.8 50.6 10.6 15.2 63.3 58.3 20.3 17.1 48.7 47.6 13.3 17.8 46.9 49.1 13.7 15.7 51.0 46.9 9.8 16.2 43.4 45.8 14.0 10.7 47.3 46.6 14.4 16.1 50.0 45.3 18.3 28.9 47.9 47.8 16.8 18.6 48.4 47.9 13.2 15.8 44.2 46.3 17.1 17.6 46.4 46.8 16.9 17.2 Change 1990-2000 No. Pct. No. Pct. No. Pct. No. Pct. No. Pct. No. Pct. 1,261 9.1% 16 1.6% 189 6.3% -241 -20.1% 761 12.5% 536 20.4% 471 13.5% 31 15.3% 43 7.3% -1 -0.3% 270 16.4% 128 18.7% 779 29.3% 1 0.4% 191 33.3% -42 -19.8% 390 28.9% 239 84.8% -38 -1.2% -31 -28.4% 45 16.9% 240 161.1% -185 -9.1% -107 -16.5% 393 15.5% -48 -23.3% 110 18.9% -16 -9.0% 161 13.0% 186 55.4% 669 33.9% 23 14.4% 129 28.3% 2 1.2% 371 40.0% 144 53.3% 487 23.6% -21 -13.5% 140 27.7% 13 8.7% 143 13.6% 212 105.0% 491 46.1% 50 52.6% 90 38.5% 83 66.4% 251 54.3% 17 11.4% 594 63.3% 9 14.1% 187 84.2% 16 21.6% 270 60.8% 112 83.0% 0 0.0% -17 -34.0% 4 4.1% -23 -53.5% -28 -9.3% 64 58.2% 5,107 15.8% 13 0.6% 1,128 17.3% 31 1.2% 2,404 15.5% 1,531 28.1% 55,234 37.9% 3,208 26.4% 11,702 36.4% 1,955 16.6% 25,814 36.6% 12,555 65.4% 12,904 25.7% 283 6.8% 2,217 20.2% 874 20.4% 7,032 31.6% 2,498 29.0% 429,972 16.9% 6,780 3.3% 117,187 25.3% 13,934 5.4% 211,906 18.0% 80,165 18.6% Single -parent families Sources: U.S. Census Bureau; Bonestroo, Inc. Page 76 3 rd Draft October 15, 2008 Table 5 Recent and Active Condominium Developments Downtown Stillwater April 2007 Project Name/ Date Total Unsold Price Range PricelSq. Ft. Location Open Units Units Unit Mix Unit Size Low High Low High Comments Terra Springs I & II 2004 59 2 1 - 1BR/L 1,084 $227,640 $210 Devdoper: Frauenshuh Sweeney 610 &620 N Main St 42 - 2BR 1,106 - 1,515 $209,000 - $310,575 $189 - $205 Bldg Type: 3- and 4-story bldgs (new construction) 8 - 2BR/D 1,379 - 1,434 $296,485 - $299,000 $209 - $215 Absorption: Marketing began Spr'03 8 - 3BR 1,870 - 2,174 $398,615 - $456,540 6 units/month during 1st yrof marketing Terra Springs III 2005 46 8 4-1BR 938-1,122 $209,900 - $231,650 $224 - $206 Developer: 630 N Ma in St 1 - 1BR/D 1,295 - $232,950 $180 - Bldg Type: 4-story bldg (new construction) 37 - 2BR 1,180 - 1,748 $239,900 - $379,900 $203 - $217 Absorption: Marketing began 4-2BR/D 1,640-1,748 $379,900- $232 -$0 Territorial Place 2006 36 11 - 1BR 689 Developer: Bob Engstrom at Terra Springs - 1BR/D 1,162 - 1,391 $229,000 - $339,000 $244 - $197 Bldg Type: 3-story bldg (new construction) 640 N Main St - 2BR 1,269 - 1,511 $339,000 - $425,000 $281 - $ 267 Absorption: Marketing began Riverview 2008 37 32 1 - 1BR 936 Devdoper: Frauenshuh Sweeney at Terra Springs 30 - 2BR 1,320 - 2,030 $399,000 - $625,000 $308 - $302 Bldg Type: 4-story bldg (new construction) 650 N Main St 3 - 2BR/D 1,990 - 1,998 $479,000 - $633,548 $317 - $241 Absorption: Marketing began 3 - 3BR 1,977-2,633 $627,000 - $659,000 $250-$317 Lofts of Stillwater 2005 62 15 31 - 2BR 1,285 - 1,750 $319,000 - $759,000 $248 - $434 Developer: Mark Saliterman 501 N Main St 31 - 2BR/D 1,800 - 2,491 $359,000 - $1,059,000 $425 - $199 Bldg Type: 4-story Condo (new construction) Absorption: Marketing began Spr'03; 1 unit/month. Stillwater Mills 2006 96 44 12 - 1BR 879 - 1,018 $219,240 - $249,570 $245 - $249 Devdoper: Steve Haglind 350 N Main St 31 - 1BR/D 1 ,0 57 - 1,250 $264,350 - $529,124 $250 - $423 Bldg Type: 4-story Condo (new construction) 41 - 2BR 1,057 - 1,746 $281,322 - $749,900 $266 - $429 Absorption: Marketing began 10 - 2BR/D 1,440 - 1,861 $440,640 - $659,251 $306 - $354 2 - 3BR+ 2,168 - 2,653 $749,426 - $1,095,000 $346 - $413 Totals 336 112 689 - 2,653 $209,000 - $1,095,000 $180 -$434 Sources: ProjectSa/es Offices & Websltes, Bonestroo Graph 1 Percent Vacant 10% 9% - 8%- 7% 6% 5% - 4% 3% 2%- 1 0% Twin Cities Apartment Vacancy Rates 2001-2007 t Metro Total f NE Metro Equilibrium 3a Op ti 3Q Na ti Source: GVA Marquette Advisors, Apartment Trends Page 77 3 rd Draft October 15, 2008 Graph 2 Twin Cities Average Rental Rates 2001-2007 $900 $850 - $800 -- $750 $700 - — $650 - $600 0 0 m 0 0 0 0 0 0 0 0 0 0 0 Total ENE Metro Stillwater --Metro Source: GVA Marquette Advisors, Apartment Trends Graph 3 Number of Units 350 300 250 200 150 100 50 0 Age and Size of Rental Properties Downtown Stillwater 2000 Building Size _ _ _ ❑1to4Units ■5to19Units ❑ 20+ Units 40+ years Source: U.S. Census 20 to 40 years Age of Building <20 years Page 78 3 rd Draft October 15, 2008 Graph 4 Percent Vacant 24% 20% - 16% - 12% - 8% 4% - Twin Cities Office Vacancy Rate 1997-2007 0% 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 Source: United Properties, July 2007 Outlook Graph 5 Percent of Businesses 70% 60% 50% 40% 30% 20% 10% 0% Business Size by Number of Employees 2005 0 Stillwater ■ Metro 1-4 5-9 10-19 20-49 Number of Employees Source: U.S. Census, 2005 County Business Patterns 50+ Page 79 3 rd Draft October 15, 2008 Implementation To implement the Local Economy and Tourism section of the Downtown Framework Plan, the city will consider the following implementation measures: To promote and maintain the downtown as a central focus for community economic and cultural activity, the City of Stillwater will: • Use tax increment financing to assist major new investment downtown • Encourage downtown as a relocation destination for successful businesses • Encourage small, locally owned, businesses particularly in the downtown • Promote office and service job locations in and around the downtown To promote tourism consistent with retaining Stillwater's unique natural resources and historic and architectural character, the City of Stillwater will: • Work with the Stillwater Area Chamber of Commerce and Convention and Visitors Bureau in promoting downtown activities and improvements • Support year around activities that enliven the downtown public and cultural life • Maintain public facilities so that the downtown is an attractive place to visit • Consider establishing incentive programs for rehabilitation of older buildings • Continue to use design review guidelines and processes to ensure new development and renovations consistent with the historic character of the downtown • Construct a new public parking ramp Downtown Stillwater for employees and visitors • Support the Downtown Parking Commission, as advisory group, for managing downtown parking Page 80 3 rd Draft October 15, 2008 IV. IMPLEMENTATION & PHASING OF PUBLIC IMPROVEMENTS The best plans are of little value if they are not implemented. Maintaining a vital downtown and implementing the opportunities outlined in this Downtown Stillwater Framework Plan is dependent upon continuous proactive leadership of the community and an orchestrated collaboration amongst city officials and departments, county and regional governing authorities, the business community, Chamber of Commerce, other civic organizations and developers. The approach to sustaining and enhancing Stillwater's downtown as a vital place to live, work, and play focuses on: Design and Planning Tools Community Organization and Promotion Public Improvements A. Design and Planning Tools A primary goal of the Framework Plan is to reinforce Stillwater's rivertown "sense of place." The design of the streetscape, buildings, signs, open spaces and landscaping, must all work together to reinforce a strong, cohesive and memorable identity. Currently, the 2006 Design Manual for the Commercial Historic District is a strong design tool that fosters buildings reflecting the historic character desired by the community. To bolster the design guidelines we recommend considering amendments that address the following: • Site Planning and retaining wall treatments • Parking Lot Edge Treatments • Stormwater Treatment • Sustainable Building Practices • Parking Structures • Landscape/streetscape treatments B. Community Organization and Promotion Key to long term success is organizing a diverse group of people to achieve the work tasks, build public/private partnerships, foster ongoing leadership, program events and promotions, and provide a voice for Downtown Stillwater. Downtown Chamber of Commerce Vision Concurrently with this comprehensive planning process the Downtown Stillwater Chamber of Commerce has prepared their Downtown Stillwater Vision Plan. This plan includes strategies for economic development, design, community organization and promotion. This group is committed to the downtown area and will act as an advocacy group to coordinate promotional campaigns and small projects. The Chamber has also expressed interest in forming public/private partnerships to implement short term seed projects such as: temporary and long term public art Page 81 3 rd Draft October 15, 2008 projects, landscaping, short term streetscape enhancements and landscaping, banners, arts competitions, rotating sculpture with Art Reach Alliance & others. C. Public Improvements The public improvements associated with the overall vision will act as a catalyst for reinvestment, and represent a positive step toward ensuring a vital long-term climate for living, working and playing in Downtown Stillwater. Implementation Strategies and Phasing: Figure 50 outlines a prioritized list of short, mid, and long-term public projects with cost estimates, potential funding sources, and agency responsibilities. Figure 51 illustrates the proposed phasing of city, county and state projects within the downtown. The following strategies should be considered for all public improvement projects in order to integrate the improvements into an ongoing revitalization and community building strategy and to gain the most benefit from streetscapes, parks, and other public amenities: 1. Coordinate Objectives with all City Departments The planning, engineering, and inspections departments, as well as potential advisory groups, should refer to the guidelines and associated public/private improvements and amenities when reviewing individual development proposals within the downtown area. Each proposed development should comply with the guidelines, reinforce the desired character of development, and contribute to creating a cohesive, pedestrian friendly, memorable, and economically viable place. Developers should work with city staff and refer to the guidelines within the Framework Plan — and previous planning studies — prior to generating design concepts, in order to better understand the overall goals of the community and how their property fits into the context of the framework plan and expectations for public/private amenities. The guidelines for site planning, building placement, parking lot edge treatments and landscaping should be referenced during the site design phase of the project. Developers should also discuss the options for their particular site with city staff to determine if parking lot edge treatments will be constructed as part of the site redevelopment or a larger public street improvement project. 2. Place projects in the Capital Improvement Plans City departments should refer to the components in this Framework Plan to coordinate, design, and budget for capital improvements and to define public/private partnerships to finance and maintain public realm improvements. City departments should refer to the schematic designs for the individual areas as a basis from which to develop more detailed plans for construction. 3. Coordinate Staging and Funding The city should share its redevelopment objectives with the state and county DOTs and determine schedules for street improvements and potential funding sources. 4. Coordinate Staging and Funding with Redevelopment Projects Page 82 3 rd Draft October 15, 2008 5. Define a Maintenance Strategy for Each Project The long term maintenance tasks and associated costs are a critical consideration for the success of public improvements and amenities. A strategy should be created that defines a funding source, such as a special maintenance assessment district that assigns responsibility for maintenance of the various streetscape or park components. Responsibilities may be delegated between the city and county staffs, property owners, volunteers, or private contractors. Downtown Stillwater Implementation Steps August. 1st . 2008 Public Improvements Costs Funding Source Other Short Term: 2 to 3 years 1. Coordinate Objectives with all City Departments 2. Place Projects in Capital Improvements Plans Define project costs Define runding sources 3. Coordinate Staging and Funding County Road Improvements MnDot Army Corp 4. Coordinate Staging and Funding with Redevelopment 5. Define Financial & Maintenance Strategy for Each Project Consider Municipal Service District 6. Short Term Projects Flood Control 5,000,000 Fed, Assistance, State Grant 2010 Completion, Lowell Park improvements 1,000,000 Park Reserves/ CO Bonds 1523,000) Parking Lot Improvements City, Army Corp Parking Structure at 2nd and Commercial St 6,000,000 City, TIF Trail Connections 500,000 City, State Grant $62,000 2010 Completion, City portion Commercial Street Pedestrian Plaza 375,000 City Reserves! CO Bonds Water St. Public Art Strategy Community Project Mid Term 3 to 10 years Myrtle St. MSA 3rd Street Streetscape Church 4th Street Streetscape MSA Commercial St.Streefscape Zephyr Bike Trail County, DNR, Private Long Term 10years plus Main Street Mulberry Streetscape Loop Trail SAiple Park Mixed Use Trail) State Mitigation Dollars Nelson Street Improve Stairs Chestnut Plaza: Water Street to Lift Bridge MnDOT Public Art Wayfinding System Community Project Parking Structure at 2nd and Olive St 5,000,000 Source: City of Stillwater Capital Improvement Program 2008-2012 Figure 50. Implementation Page 83 3 rd Draft October 15, 2008 LEGEND Phase 1: 2-3 years Army Corp. Project IMN City Project MNDOT Funding Phase 2: 3-10 years City Project Private/Public IlWashington County Phase 3: 10+years MNDOT Loop Trail L City Project Figure 51. Implementation Phasing Page 84 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Economic Development 3rd Draft October 16, 2008 Chapter 7 - Economic Development Introduction The City of Stillwater has made a conscious decision to build its economy by capitalizing on its historical riches and maintaining a high quality of life. Stillwater is a destination location for citizens of the metro area and beyond. This destination status provides a wealth of economic activities that are not normally expected in a community of this size and demographics. Maintaining the city's quality of place, allows to it receive additional economic benefit from tourism and attracts residents and businesses that treasure the unique marriage of small town living with high quality. These unique merchants typically are only found in much larger communities or the central cities. This chapter provides an overview of the employment and economic conditions in Stillwater and describes the districts where economic activity is concentrated. The chapter will then discuss the array of economic development tools and techniques available to the City and provide a list of implementation programs to meet the goals and policies. Goals and Policies Local Economy As the "Birthplace of Minnesota," Stillwater has not only one of the oldest economies in the state, but also one of the most vibrant. The city has consistently exceeded the suburban economic norms for the metro area, particularly in the area of employment. The City of Stillwater worked with citizens to develop economic development goals with supporting objectives, policies and programs. The goals, objectives and programs are the foundation of the plan and define how the City's economy will be protected and enhanced in the future. Goals Goal 1. Increase the tax base and provide opportunities for economic growth for Stillwater and Stillwater area residents. Goal 2. Promote and maintain the downtown as a central focus for community, economic and cultural activity. Goal 3. Provide new locations for job growth in close proximity to housing and with convenient access. 1 3rd Draft October 16, 2008 Objectives Support business expansion in the downtown commercial district and West Stillwater Business Park area. Provide local incentives to encourage clean light industrial and office development. Actively promote the creation of the R & D office park at the appropriate time along TH 36 east of CR 15. Cooperate with regional and local economic development organizations to promote the local economy. Work with the Stillwater Area Chamber of Commerce to promote local industries. Policies Policy 1. Designate land for commercial and industrial uses properly located with adequate support services to accommodate future forecast and anticipated economic development. Policy 2. Protect the city's industrial land base for industrial development. Policy 3. Assist local industries to prosper and grow in the community consistent with the city's needs. Policy 4. Work with local and regional economic development interests to promote local economic development. Policy 5. Encourage downtown as a relocation destination for successful businesses. Programs Program 1. Designate the Bergmann farm area for a research and development office industrial park as a part of the proposed land use plan. Program 2. Encourage small locally owned businesses particularly in the Downtown. Program 3. Promote office and service job locations in and around the Downtown. Program 4. Encourage a mix of employment, multifamily residential and retail and service activities in and around the West Business Park area. Program. 5. Use Tax Increment Financing (TIF) to assist major new investment Downtown and in the Stillwater West Business Park. 2 3rd Draft October 16, 2008 Tourism Stillwater's preserved historical sites of the 1800's lumbering era have made the city an attractive destination for tourists. Much of the downtown area is filled with businesses targeted to this tourist trade including historic hotels, bed and breakfast inns, museums, riverboats, the Minnesota Zephyr, specialty shops, and a variety of restaurants. Stillwater is also host to many special events that annually draw thousands of tourists to the community including, Lumberjack Days, The Rivertown Art Festival and Music on the Waterfront. Tourism is a far more important industry in Stillwater than in most other communities. It is estimated that 30% of all business activity in Stillwater and over 50% of business activity in the downtown area is accounted for by tourism. Stillwater's rich history and picturesque location have created an environment where new tourist -related businesses have been able to largely replace any businesses that have left the downtown due to increased retail activity along TH 36. Tourism has allowed the Stillwater downtown to avoid the vacant buildings and physical decline seen in many other traditional downtowns in spite of increased competition from highway -oriented retail. Stillwater's tourism success does not occur purely on its own. Rather it is a result of coordinated efforts between the private sector, city activities, quasi -public agencies, the community at large, and many others. One of these important advocates is the Greater Stillwater Chamber of Commerce, which represents Stillwater and beyond including Bayport, Lake Elmo, and Oak Park Heights. The mission of the chamber is to "serve, advocate, and promote the interest of businesses while enriching the life of our community." Since 1891, the St. Croix River Valley has been represented by a Chamber of Commerce. Throughout much of the 1900's, when Stillwater was the major business center in the St. Croix River Valley, the Chamber of Commerce served most of the outlying communities on both sides of the river. The primary service area stretched from Prescott, Wisconsin to Taylors Falls, Minnesota. This wide area became difficult to service from Stillwater. The distant communities grew and prospered, needing their own chambers of commerce. The Greater Stillwater Chamber of Commerce provides business promotion and support services for the four cities and plans numerous special events to promote tourism during the year. To continue to build upon this success, the following goals, objectives policies and programs are proposed: Goals Goal 1. Promote tourism consistent with retaining Stillwater's unique natural resources and historic and architectural character. Objectives Maintain Stillwater's historic, cultural and natural resources, community uniqueness. Support historic preservation efforts, 3 3rd Draft October 16, 2008 Support tourism as a major basic city industry. Support public improvements and maintenance that enhances the attractiveness of Downtown. Policies Policy 1. Attract visitors and shoppers to the community. Policy 2. Support year around activities that enliven the Downtown public and cultural life. Policy 3. Promote activities which lengthen the time visitors spend in Stillwater. Policy 4. Reinforce the unique historic character of Downtown. Policy 5. Maintain public facilities so the Downtown is an attractive place to visit. Policy 6. Work with the Stillwater Area Chamber of Commerce and Convention and Visitors Bureau in promoting downtown activities and improvements. Programs Program 1. Consider establishing incentive programs for rehabilitation of older buildings. Program 2. Continue to use design review guidelines and processes to ensure that new development and renovation is consistent with the historic character of Downtown. Program 3. Construct a new public parking ramp Downtown Stillwater for employees and visitors. Program 4. Support the Downtown Parking Commission as the advisory group for managing Downtown parking. Economy The economic health of a community plays a critical role in encouraging and maintaining a high standard of living and a desirable place to live for existing residents, as well as attracting new residents. The city has experienced growth that is forecasted to continue. The following information and tables identify current employment trends and other applicable factors. Employee and Employers Table 7-1 illustrates the historic and projected employment figures for Stillwater produced by the Metropolitan Council. During the three decades leading up to the year 2000, Stillwater experienced a very rapid employment growth rate, ultimately exceeding the employment per household rate of the metro area and resulting in the need for importing employees. This is a very rare situation for a community in the suburban metro area and illustrates the strength of Stillwater's own economic engine. The Metropolitan Council is projecting that this superior employment performance will continue throughout the life of this plan. 4 3rd Draft October 16, 2008 Table 7-1: Regional Forecasts 1970 1980 1990 2000 2006 2010 2020 2030 Employment 2,830 5,516 7,040 10,719 11,506 11,600 12,500 13,600 Households 3,035 4,065 4,982 5,797 7,025 7,500 8,100 8,600 E m p/H H 0.93 1.36 1.41 1.85 1.64 1.55 1.54 1.58 Source: Metropolitan Council, Bonestroo Figure 7-1: Employment Per Household 2.00 1.80 1.60 ..... --— 1.40 I I 1.20 `m a —Stillwater Area a) 1.00 a) >, 0 —Metro E. 0.80 E w 0.60 0.40 0.20 0.00 1 1970 1980 1990 2000 2006 2010 2020 2030 Source: Metropolitan Council, Bonestroo Commuting Table 7-2 identifies the mode of transportation that employees use to access their jobs. Like most communities, the vast majority of residents use private transportation to reach their places of employment. An unusual feature in Stillwater is that more than three times as many residents walk to work as take public transit, an indication of the city's strong live -work tradition. 5 3rd Draft October 16, 2008 Table 7-2: Means of Transportation Means of Transportation Number of Workers Percent Car, truck, or van - drove alone 6,772 84.4% Car, truck, or van - carpooled 597 7.4% Worked at home 314 3.9% Walked 226 2.8% Public Transportation 69 0.9% Other means 44 0.5% Workers 16 and over in 2000 8,022 100% Source: US Census, 2000 Analysis of commute times (Table 7-3 and Figure 7-2) also points to the strength of Stillwater's live -work economy as the city significantly exceeds metro averages for commute times less than 15 minutes. Table 7-3: Commute Times Stillwater Metro Area Less than 5 minutes 5.1% 2.3% 5-9 minutes 21.3% 8.9% 10-14 minutes 14.6% 14.0% 15-19 minutes 9.0% 16.2% 20-24 minutes 8.2% 17.6% 25-29 minutes 7.1% 7.8% 30-34 minutes 10.0% 14.0% 35-39 minutes 4.5% 3.1% 40-44 minutes 4.2% 3.5% 45-49 minutes 8.4% 5.5% 60-89 minutes 2.4% 2.2% 90 or more minutes 1.4% 1.1% Worked at home 3.9% 3.7% Source: US Census, 2000 6 3rd Draft October 16, 2008 Figure 7-2: Commute Times % of Workers 16 years+ 25.0% - 20.0% 15.0% 10.0% 5.0% 0.0% a) a) cr)cr)cr) cr) a) a) a) a) c c c c c c c c c c c c c c c c c c cc c c c �n rn' rn' rn' rn ▪ 0) 0) 2 - N N Cr) Cr) ▪ 00 - - N N CC) Cr) CO �+ L cr) CD J Worked at home - Stillwater - Metro Area Source: US Census, 2000 7 3rd Draft October 16, 2008 Major Employers and Industries There are several major employers within the community as shown in Table 7-4. Table 7-4: Major Employers Business Products/Services Total Employees Washington, County of Executive, Legislative, & Other Govt. Support 970 Stillwater Public Schools-ISD No. 834 Elementary & Secondary Schools 920 UFE Inc. Resin, Synth. Rubber & Art. Synth. Fibers & Fil. Mfg. 800 Cub Foods Grocery Stores/Corporate office 550 Lakeview Hospital General Medical & Surgical Hospitals 457 DiaSorin Scientific Research & Development Services 250 Target Department Stores 197 City of Stillwater Government 115 Gartner Studios Stationery, invitations, cards, printing 100 WR Medical Electronics Navig., Meas., Electromedical & Control Instrum 50 Lonnie Lovness Other Miscellaneous Manufacturing 24 Stillwater Gazette Inc. Newspaper, Periodical, Book, & Directory Publishers 24 Source: MnPro Community Profile The 2000 population over age 16 in Stillwater was 11,496, and of that population 8,298 were in the civilian labor force. Of the 8,298 people in the civilian labor force, over the age of 16, 8,134 were employed. Approximately 98 percent of the civilian labor force population was employed and approximately 71 percent of the population over 16 years of age was employed in 2000. Table 7-5 demonstrates the number of employees per industry. The industries that most heavily employ Stillwater residents include education, health and social services (20.3%), manufacturing (16.3%), retail trade (14.3%) and professional, scientific, management, administrative, and waste management services (9.7%). This mix of industry helps to protect a diversified tax base for the city. 8 3rd Draft October 16, 2008 Table 7-5: Number of Employees by Industry Industry No. of Employees Percentage Educational, health and social services: 1,649 20.3% Manufacturing 1,327 16.3% Retail trade 1,167 14.3% Professional, scientific, management, administrative, waste management services: 788 9.7% Finance, insurance, real estate and rental and leasing: 652 8.0% Arts, entertainment, recreation, accommodation and food services: 617 7.6% Public administration 503 6.2% Other services (except public administration) 355 4.4% Transportation and warehousing, and utilities: 331 4.1 Construction 307 3.8% Wholesale trade 250 3.1 Information 179 2.2% Agriculture, forestry, fishing and hunting, and mining: 9 0.1 Total Employed Citizens over 16 8,134 100.0% Source: US Census, 2000 Workforce The skills and training for the local workforce contributes to the local economy, influences economic development and also suggests potential demands of current residents. In suburban environments, the skills of the local residents are often an underutilized resource, as residents leave the community each day to their employment in other communities. As was illustrated earlier in this chapter, this is not the situation in Stillwater. More of the city's residents are able to utilize their skills within the economic base in the community than is generally seen in other parts of the metropolitan area. When a city's resident skill base and labor needs are more in alignment, as in Stillwater, there are often a number of benefits including reduced commute times, greater involvement/volunteerism within the community and reporting of a high quality of life from residents. Stillwater's residents are typically highly skilled with 37.5% of the population obtaining a bachelor's degree or higher (Table 7-6). This value exceeds the levels experienced in the remainder of Washington County. 9 3rd Draft October 16, 2008 Table 7-6: Educational Attainment Stillwater Washington County Population 25 years and over Population Percent Population Percent Less than 9th grade 118 1.2 1,982 1.5 9th to 12th grade, no diploma 393 3.9 5,684 4.4 High school graduate (includes equivalency) 2,468 24.5 33,378 26 Some college, no degree 2,690 26.7 33,126 25.8 Associate degree 626 6.2 10,617 8.3 Bachelor's degree 2,730 27.1 30,015 23.4 Graduate or professional degree 1048 10.4 13,413 10.5 Total 10,073 100 128,215 100 Percent high school graduate or higher (x) 94.9 (x) 94 Percent bachelor's degree or higher (x) 37.5 (x) 33.9 Source: US Census, 2000 Income As demonstrated in Table 7-7, the median household income in 2000 in Stillwater was $57,154 which is 86.2 percent of the Washington County median, 105.3 percent of the Twin Cities Metropolitan Area median, and 121.3 percent of the state median. The detailed breakdown of household income levels is in Table 7-8. Table 7-7: City and State Median Household Income Income Stillwater Washington County % of County Twin Cities % of TC State of MN % of State Median income $57,154 $66,305 86.2% $54,304 105.2% $47,111 121.3% Source: US Census, 2000 10 3rd Draft October 16, 2008 Table 7-8: Household Income Income Households Percentage Less than $10,000 208 3.6% $10,000 to $14,999 241 4.1 $15,000 to $19,999 276 4.7% $20,000 to $24,999 250 4.3% $25,000 to $29,999 260 4.5% $30,000 to $34,999 278 4.8% $35,000 to $39,999 254 4.4% $40,000 to $44,999 331 5.7% $45,000 to $49,999 351 6.0% $50,000 to $59,999 622 10.7% $60,000 to $74,999 626 10.8% $75,000 to $99,999 1,016 17.5% $100,000 to $124,999 529 9.1% $125,000 to $149,999 265 4.6% $150,000 to $199,999 169 2.9% $200,000 or more 145 2.5% Total 5,821 100% Source: US Census, 2000 Although the City's household income lagged Washington County's in the 2000 Census, the latest weekly wage information from the Minnesota Department of Employment and Economic Development indicates that Stillwater's employees earn more than employees in the rest of Washington County (Table 7-9) but lag the average in the metro area as a whole. Table 7-9: Average Weekly Wages (2007) Stillwater Washington County Metro Area Average Weekly Wage $747 $739 $977 Source: Minnesota Department of Employment and Economic Development, 2007 11 3rd Draft October 16, 2008 Economic Overview of City The City's tax base is primarily residential, with commercial contributions from the Downtown Area, and the County Road 5-Highway 36 Commercial Areas. Like many older communities, the City includes a high proportion of public and non-profit entities. Large public employers located within the City include Washington County and Independent School District #834. Stillwater's economy and employment picture is also influenced by the Andersen Window Corp, located in Bayport which employe approximately 3,500 people, 3M Corporation, and other major employers in the East Metro Area. Recent Economic Development Activities Most recent new development has occurred in residential areas particularly in the annexation areas and portions of downtown. In 1996 the City approved an Orderly Annexation Agreement with Stillwater Township. This agreement divides the total annexation area into three phases to be annexed between 1996 and 2015. The majority of the development within the annexation area has been residential use. A small area designated is for commercial use at the southeast quadrant of C.S.A.H 12 and C.S.A.H 15 and the Bergmann and Bradshaw properties along Highway 36 between County Road 5 and County Road 15. Construction has also been continuing on a variety of condominium projects within the downtown. Some of these are purely residential while others like Terra Springs and the Mills on Main,have a combination of residential and commercial. In 1995, the City created a specific land use designation for a Research and Development Park and it was applied to 84 net acres at the northeast corner of Manning Avenue and Highway 36. This action recognized that the community's economy would be enhanced with the addition of a corporate center, research facility, or educational institution that would bring both high quality building designs and high paying head of household jobs. This key site, with high visibility at a western entrance to the City, was chosen for this important purpose. At present, the site remains available for this type of Class A development and is competing for this sought after type of development with several sites along Highway 36 in other communities. DEVELOPMENT TOOLS This portion of the chapter presents items that serve as a focus for city actions. These actions seek to achieve the vision for the future of Stillwater in areas where market forces alone will not be sufficient. State law provides a broad array of powers and tools that may assist the city in these initiatives. The following section provides a brief discussion of the tools currently available to the city. Overview of Statutory Authority Every statutory power contains a unique set of authorizations and restrictions. Understanding these provisions is a key to effective use. In some cases, the city may have several options. For 12 3rd Draft October 16, 2008 example, public improvements can be financed with special assessments, special service districts, housing improvement areas, tax abatement, and tax increment financing. Some key sources of statutory authority come from the following: • Constructing public improvements and levying special assessments — Chapter 429 • Constructing, operating, and maintaining water, sanitary sewer and storm water utility systems — Section 444.075 • Creating and using special service districts — Sections 428A.01 through 428A.101 • Creating and using housing improvement areas — Section 428A.11 • Establishing and using tax increment financing districts — Sections 469.174 through 469.1791 • Making and using tax abatement levies — Sections 469.1812 through 469.1815 • Powers granted to cities through housing and redevelopment authorities — Sections 469.001 through 469.047 • Powers granted to cities through economic development authorities — Sections 469.090 through 469.1081 • Lease financing for real and personal property — Section 465.71 These statutes are available on the Internet at www.revisor.leg.state.mn.us/stats. Finance Tools Economic development actions require a framework for financial -decision making. The investment of public dollars to achieve economic development objectives should be guided by several key principles: • Financial resources are limited. The city has limited funding to apply to economic development initiatives, so the use of resources must be targeted to achieve the greatest effect on the community. • Financial decisions require long-term perspective. The current use of financial resources may reduce monies available in the future. In evaluating short-term opportunities, it is important to question the long-term impact on community development. • Public funds should lead to private investment. While this section focuses on public finance actions, economic development cannot become reality without private investments. The use of public funds should be targeted to actions that encourage private investment in Stillwater. A complete examination of the tools available to the city is not possible in this document, but providing an overview of the most commonly used finance tools is helpful. This discussion focuses on the highlights of those tools. 13 3rd Draft October 16, 2008 Tax Increment Financing Tax Increment Financing (TIF) is the primary development finance tool available to Minnesota cities. TIF is simple in concept, but complex in its application. Through TIF, the property taxes created by new development (or redevelopment) are captured and used to finance activities needed to encourage the development. The challenge in using TIF lies with the complex and ever - changing statutory limitations. Ass€ ss. d Value TAX INCREMENT FINANCING DISTRICTS Additional praperty tbauei Collected from Increased valuation due to Improvements goes to TIF fund TIF District boundary created and base assessed value established 4 TAX INCREMENT Property vnlor. without red evelopment After TIF District is disaol ed, ALL property tunes collected from wrawssud valuation aver distributed to city*, county, and school dietriet jurtedictions property tastes collected from base valuation con li nue to go to city, county and school dintriet jnritdic ti nos through the life of the TIC Dititrict HTime 0045 years) Uses Tax Increment Financing can be used to finance all of the important implementation actions facing the City: land acquisition, site preparation, parking, and public improvements. In addition, TIF creates a means to borrow money needed to pay for redevelopment costs. The City can issue general obligation bonds without an election if 20% or more of the debt is supported by tax increment revenues. These bonds are not subject to any debt limit. Type of TIF Districts The implementation of the plan may require the creation of one or more new TIF districts. The following overview highlights some of the considerations in creating a TIF district. The ability to meet the statutory criteria for establishing a district is a key to the use of TIF. Four types of TIF districts have an application to the plan. • Redevelopment: A redevelopment TIF district has two basic criterias. (1) Parcels consisting of 70% of the area of the district are occupied by buildings, streets, utilities, or other improvements. To be occupied, not less than 15% of the parcel's area must be covered by the improvements. And (2), more than 50% of the buildings, not including outbuildings, are 14 3rd Draft October 16, 2008 structurally substandard to a degree requiring substantial renovation or clearance (as defined by statute). A redevelopment district may consist of noncontiguous areas, but each area and the entire area must meet these criteria. • Renewal and Renovation: A renewal and renovation TIF district requires similar, but reduced criteria. The following three factors must exist. (1) The same 70% occupied test applies. (2) The minimum amount of structurally substandard buildings drops to 20%. And (3), 30% of the other buildings require substantial renovation or clearance to remove existing conditions such as: inadequate street layout; incompatible uses or land use relationships; overcrowding of buildings on the land; excessive dwelling unit density; obsolete buildings not suitable for improvement or conversion; or other identified hazards to the health, safety, and general well being of the community. • Housing: A housing TIF district is intended to contain a project, or a portion of a project, intended for occupancy, in part, by persons or families of low and moderate income. • Economic Development: Economic development TIF districts focus on industrial development. These districts can be established when the city finds it is necessary to (1) discourage commerce, industry, or manufacturing from moving their operations to another state or municipality; (2) increase employment; or (3) preserve and enhance the tax base of the state. The TIF Act defines specific types of industrial uses that are eligible for the establishment of this form of district. The primary uses are manufacturing, warehousing, research and development, and telemarketing. Limitations State Law imposes a variety of restrictions on the use of TIF. Several of these restrictions are particularly relevant to implementation of the Plan. Use of Tax Increments The use of tax increment revenues is controlled by both State Law and by local plan. State Law sets forth specific limitations based on the type of TIF district. These limitations generally tie back to the original criteria used for establishing the district. For example, at least 90% of the revenues derived from tax increments from a redevelopment district or renewal and renovation district must be used to finance the cost of correcting conditions that allowed for the designation of the district. This limitation requires careful consideration of the links between individual projects and the community development initiatives. The use of tax increments must also be authorized by a tax increment financing plan adopted by the city. POOLING The term pooling refers to the ability to spend money outside of the boundaries of the TIF district. For redevelopment districts, not more than 25% of revenues can be spent on activities outside of the TIF district. The limit is 20% for all other districts. Monies spent on administrative expense count against this limit. This limit reduces the ability of TIF to pay for area -wide improvements and to use excess revenues to support other development sites. 15 3rd Draft October 16, 2008 Timing Constraints Timing factors must be considered in creating a TIF district. Establishing a district too far in advance of actual development may limit future use. Within 3 years from the date of certification, the city must undertake activity within the district. The statutory criteria of activity includes issuance of bonds in aid of a project, acquisition of property, or the construction of public improvements. Without qualifying activity, no tax increment can be collected from the district. Within 4 years from the date of certification, the city or property owners must take qualifying actions to improve parcels within the district. All parcels not meeting the statutory criteria must be removed (knocked down) from the district. Upon future improvement, any parcel so removed may be returned to the district. After 5 years from the date of certification, the use of tax increment is subject to new restrictions. Generally, tax increment can only be used to satisfy an existing debt and contractual obligations. The geographic area of the TIF district can be reduced, but not enlarged, after 5 years from the date of certification. Existing TIF Districts in Stillwater: There are six active TIF Districts in Stillwater as shown on Figure_ Tax Increment Financing Districts and described below: • TIF District #1, Downtown and Industrial Park Scattered Sites. This redevelopment district was established in 1985 and has a 25 year duration. The increment was issued to fund public improvements in the downtown including storm sewer separation, rebuilding the collapsed sanitary sewer main, street improvements, burying electrical lines, new street lights. • TIF District #4, Woodland Lake Project. This redevelopment district was established in 1986 and has a 25-year duration. The increment was issued to construct Frontage Road West from Curve Crest Boulevard to Northwestern Avenue; to extend Curve Crest Boulevard from Washington Avenue to County Road 5 and to install stop lights at the intersection of Frontage Road West and Curve Crest Boulevard. • TIF District #6, Jr. High TIF District #6. This redevelopment district was established in 1993 and has a 25-year duration. The increment was issued to pay for the construction of the public parking lot as part of the redevelopment of the old Stillwater Junior High site into corporate headquarters for CUB Foods. • TIF District #8, Anchobaypro, Inc. This housing district was established in 2000 and has a 25-year duration. Pay-as-you-go increment was used to aid in financing a portion of tax increment eligible costs for the Long Lake Villas low to moderate income multifamily housing project. • TIF District #9, Curve Crest Villas. This housing district was established in 2002 and has a 25-year duration. Increment was used to aid in reimbursement of increment eligible costs to the developer. Curve Crest Villa is a low to moderate income multifamily rental project. • TIF District #10, Scattered Site Housing Projects. This redevelopment district was established in 2004 and has a 25-year duration. Two pay-as-you-go projects funded include Terra Springs and Lofts of Stillwater for reimbursement of tax increment eligible costs. • TIF District #10 Expansion. The City expanded TIF District #10 to additional properties in the Downtown Area. This redevelopment district expansion will be used to fund a new parking ramp to serve the Downtown. 16 I coc EL CD I— N E ' - ' t .(7: CD 0)'L ..r L c_ �N 7 c.0 U_? a b c o X (p U N 1,600 Feet 0 0 co 0 0 co C J 4- U 0 0 Right -of -Way Open Water U L d7 O U r 4k +T. 0 U > c 0 U c 0 U 0 n 0 U L- L- co L- co L- L- I— I— I— I- 111 N. A. N. �••••• St. Croix River NJE i TOD 111 �� 1N1"1161.1111�: 11rE ■�11111:■1� III El 7 LI III TI H T L H 111111 1 -- _■ En 1 T I I I H- HT m d] 11 di Moil I NM -- An `IMEW §, mik 11111 • II. T 0 00. liteihNO 11/ saw.052 VD ilETAW/. ...� :N _! ■■ 00 fto 111 IIIII 111111 H 7 II' 1111 ,: UI_ 1111 H III I y 1717177177 " '•� ■ ELEL Lo mmm Y= 3 N F J EMI I PM NI OP I Jo IN III f • •■ via*I ,� I - -..-..-.I-..-.. fl- i/ ±T 411 MAE 471 ass 04° lit r LLiL- a 111 -1 Is ■ • N III. ,- :III: -- 110 ill H II III I III. IIIII 11ro \• CD 111 = � •, 1 lip 111 11; II I POO. 1� 1liII1i: lIII 11■1 I.A■ E�.11i�11■1 1 II 1 H 1 T IIIIIII■ ■■ :uIIIn ■ 111111■ 1. . 11■I■I■_ !8i1 ■ 11 7 L. T 11 Fifa I1.1 1111 7 1 1_ 1'111�11 1_I I T 1- H H 1111 L L 1111111111 IPP" %� 0 •-.� PP .a1 11■ 11111 I I I L I I 1/ I I III I 1 1 I �De000u 1111 LI �I )1I LI 11111 1 H H- T1A. out 41 E r t% mg II MINIM Vi 44171,4 41/ Ott • II loom Li Oft r i 11) 3rd Draft October 16, 2008 Tax Abatement Tax abatement acts like a simpler and less powerful version of TIF. With TIF, the city controls the entire property tax revenue from new development. Under the abatement statute (Minnesota Statutes, Sections 469.1812 through 469.1815), the city, county, and school district have independent authority to grant an abatement. Uses Abatement in Minnesota works more like a rebate than an abatement. The city (and other units abating taxes) adds a tax levy equal to the amount of taxes to be abated. The revenue from the abatement levy can be returned to the property owner or retained and used to finance development activities. Tax abatement can be used to finance the key redevelopment actions in the downtown: land acquisition, site preparation, and public improvements. Tax abatement is perhaps best suited as an incentive for reinvestment in existing property. While TIF deals with only the value from new development, abatement can apply to both new and existing value. This power provides the means to encourage rehabilitation of commercial buildings and housing. The City could agree to abate all or part of the municipal share of taxes to encourage reinvestment tied to the plan. The statute grants the authority to issue general obligation bonds supported by the collection of abated taxes. The proceeds of the bonds may be used to pay for (1) public improvements that benefit the property, (2) land acquisition, (3) reimbursement to the property owner for improvements to the property, and (4) the costs of issuing the bonds. These bonds can be issued without an election and are not subject to the debt limit. Limitations State law places several important limitations on the use of tax abatement: • In 2003, the State Legislature increased the total taxes abated by a political subdivision in any year to an amount that may not exceed the greater of 10% of the current levy or $200,000. • If one political subdivision declines to abate, then the abatement levy can be made for a maximum of 15 years. If the city, county, and school district all abate, then the maximum period drops to 10 years. • The duration of the abatement can be extended to 20 years if it is for a "qualified business" as defined in the statute. This provision is targeted towards industrial development applications. • Taxes cannot be abated for property located within a tax increment financing district. 17 3rd Draft October 16, 2008 Example Tax Abatement Project City of Woodbury: 1-94 South Frontage Road East of Radio Drive The City of Woodbury used tax abatement to finance the frontage road, east -bound 1-94 access ramp and other roadway enhancements in the Radio Drive/Hudson Road, 1-94 region due to increases in population and vehicle traffic. The City felt that such improvements would improve traffic flow on Radio Drive and Woodbury Drive, which are both county roads, as well as provide better access to the freeway system. The City believed that in times of shortage of federal and state financing, tax abatement was the most practical and effective system of improving county roads. Total Project Cost: $66Million City Tax Abatement Bonds $4.8 Project Timeline July 2007through October2008 Special Assessments Public improvements are often financed using the power to levy special assessments (Minnesota Statutes Chapter 429). A special assessment is a means for benefiting properties to pay for all or part of the costs associated with improvements, and to spread the impact over a period of years. This tool can be applied to both the construction of new improvements and the rehabilitation of existing improvements. USES Special assessments can be used to finance all of the public improvements resulting from the plan. Eligible improvements include sanitary sewer, water, storm sewer, streets, sidewalks, street lighting, park, streetscape, and parking. Special assessments provide a means to borrow money to finance public improvements. Chapter 429 conveys the power to issue general obligation improvement bonds to finance the design and construction of public improvements. Important factors in the use of improvement bonds include: • A minimum of 20% of the cost of the improvement must be assessed against benefited properties. • Beyond the 20% threshold, any other legally available source of municipal revenue may be used to pay debt service on improvement bonds. • Improvements bonds are not subject to any statutory debt limit. • Improvement bonds may be issued without voter approval. Limitations The amount of an assessment cannot exceed the benefit to property as measured by increased market value. There are also practical considerations. In growth areas, cities must decide how to allocate costs between current and future development. Assessment policies must consider how to make this allocation and the financial resources needed to carry future costs until development occurs. For reconstruction, the challenge becomes determining how much benefiting property 18 3rd Draft October 16, 2008 owners should pay for enhancing an existing improvement. Within this limitation, several factors will shape the amount of the assessment. • The amount of the assessment must be 20% or more of the improvement cost to allow the issuance of bonds. • Local improvement policies and/or decisions made on previous projects often create parameters for assessments. Likewise, assessment decisions should be made with consideration of the potential implications for future similar projects. • The assessment must strike a balance between equity and feasibility. Properties that benefit from improvements should pay a fair share of the costs. The assessment must be affordable for both the property owner and the city. Reducing the assessment to the property requires the city to allocate other revenues to the project. Special Service District A special service district is a tool for financing the construction and maintenance of public improvements within a defined area. Minnesota Statutes, Sections 428A.01 through 428A.10 govern the creation and use of special service districts. This legislation is currently scheduled to sunset in 2009. A special service district provides a means to levy taxes (service charge) and provide improvements and service to a commercial area. Uses A special service district can be applied to both commercial and industrial areas. The district can provide an alternative means of financing the construction of any of the public improvements discussed previously with special assessments. The service district approach avoids the benefits test imposed by special assessments; the test for the district is that the amount of service charges imposed must be reasonably related to the special services provided. The costs of parking, streetscape, or storm water improvements, for example, may be better spread across a district than through assessments to individual properties. An important use of the special service district is the maintenance of public improvements. Some of the improvements described in the plan require a level of maintenance above the typical public improvement. Items such as banners and planted materials must be maintained and replaced. Higher levels of cleaning and snow removal may be needed. Without a special service district, these costs are typically borne through the General Fund of the city or a private group such as a chamber of commerce. Limitations The use of a special service district is subject to some important constraints: • The process to create a special service district and to levy taxes must be initiated by petition of property owners and is subject to owner veto. The use of a special service district requires a collaboration of property owners and the city. There are two separate steps in the process: (1) adoption of an ordinance establishing the service district and (2) adoption of a resolution imposing the service charges. Neither step can be initiated by the city; the city must be petitioned to undertake the processes to create a special service district and to impose service 19 3rd Draft October 16, 2008 charges. At a minimum, the petitions must be signed by owners representing 25% of the area that would be included in the district, and 25% of the tax capacity subject to the service charge. • The actions of the City Council to adopt the ordinance and the resolution are subject to veto of the property owners. To veto the ordinance or the resolution, objections must be filed with the City Clerk within 45 days of initial City Council action to approve. The objections must exceed 35% of area, tax capacity, or individual/business organizations in the proposed district. • The service charge applies solely to non-residential property. State Law limits the application of a service charge to only property that is classified for property taxation and used for commercial, industrial, or public utility purposes, or is vacant land zoned or designated on a land use plan for commercial or industrial use. Other types of property may be part of the service district, but may not be subject to the service charge. Several cities of varying sizes have utilized special service districts as a tool to fund streetscape and other types of amenities as illustrated in the chart below. Some of these service districts are no longer running, however the table provides some good ideas of what it can be used for. 20 3rd Draft October 16, 2008 City Services Funded by District Bloomington Provide street furniture, sidewalks, plowing, sweeping, irrigation and plants Crookston Duluth Fund downtown storefront improvements and citywide flood control Provide services related to safety, cleanliness, marketing and physical enhancements to the downtown waterfront district. Eagan Provide signage, landscaping, public parking facilities, and promotion of Cedarvale Mall Lakeville Provide flowerpots, marketing programs, festivals and events, cleaning, maintenance, signage and public art. Little Falls Fund multi -purpose facility for farmer's market and retail promotion Mankato Provide and maintain free parking facilities for customers of business district Mendota Heights Operate and maintain additional streetlights Minneapolis Provide additional decorative lighting, banners, security, cleaning, snow and ice removal and landscaping New Ulm Provide free on -street and off-street parking Roseville Fund parking lot improvements, landscaping, lighting replacement and improvements St. Louis Park Provide general upkeep, snow removal, landscaping, lighting, banners and waste removal White Bear Lake Promote and manage district as a shopping or trade area. Housing Improvement Area The City has the power to establish a special taxing district to make improvements in areas of owner -occupied housing (Minnesota Statutes, Sections 428A.11 through 428A.21). The housing improvement area is similar in concept to the special service district. It is a special taxing district that can be used to finance a variety of improvements. However, there is an important administrative difference with the housing improvement area. The City has the ability to assign the procedures for imposing "fees" and administering the area to another "authority," such as the HRA or EDA. A housing improvement area is a defined collection of parcels. The area may cover a single housing project or a broader area within the downtown. The city has the power to levy a "fee" on the housing units in the area. This fee may work like a property tax or may be spread using another approach determined by the city. The fee can be collected through the property tax system. Uses The statute allows each city to define the nature of housing improvements. This tool can be used to finance any form of public improvement, including streetscape, parking, and trails. A housing improvement area can also be used for private improvements that are part of new or existing housing developments. 21 3rd Draft October 16, 2008 Limitations The city does not have the unilateral power to establish a housing improvement area. The process must be initiated by petition of property owners. In addition, the actions to establish the area and impose the fees are subject to veto by the property owners. These potential complications become moot if the area is set up at the beginning of the development process. Typically, there is a single property owner at this stage of the process. In existing neighborhoods, this tool allows residents to take the initiative to improve local parks. Utility Revenues The city operates three municipal utilities: water, sanitary sewer and storm water. The revenues from the operation of these utilities are available to pay for capital improvements in support of community development initiatives. State Law (Minnesota Statutes, Section 444.075) gives the authority to pledge these revenues to general obligation bonds for utility system improvements. Street State Aid The city receives state aid for the construction and maintenance of the local streets. This aid can only be used for streets designated for inclusion in the local state aid street system. These revenues can also be pledged to pay debt service on bonds issued for the construction and maintenance of state aid streets (M.S. 162.18). Street Reconstruction A relatively new municipal power is the ability to issue bonds to finance street reconstruction projects (M.S. 475.58). To use this authority, the streets to be reconstructed must be part of a "street reconstruction plan" that describes the streets to be reconstructed, the estimated costs, and any planned reconstruction of other city streets over the next five years. The issuance of the bonds must be approved by a vote of all of the members of the governing body following a public hearing. The issuance is subject to a reverse referendum provision. The city must hold an election prior to issuance if petitioned by voters within 30 days of the public hearing. Unlike most municipal debt, these bonds are subject to the debt limit. Lease Revenue Bonds Public buildings can be financed through the issuance of lease revenue bonds. This tool combines two pieces of statutory authority. A housing and redevelopment authority (or EDA using these powers) has the ability to issue revenue bonds to finance projects pursuant to a redevelopment plan. These projects can include the construction of public buildings. Most HRAs do not, however, have sufficient revenues to secure these bonds. A city can provide this revenue through a lease purchase agreement with the HRA. The authority for the lease comes from Minnesota Statutes, Section 465.71. In considering the use of lease revenue bonds, several factors should be noted: • The lease is not a long-term, binding obligation in the form of most city bond issues. The lease is subject to a statutory "annual appropriation" pledge. In simple terms, the city council has the right not to appropriate funds to pay the lease in any fiscal year. This action would, however, mean forfeiture of the facilities financed with the lease. 22 3rd Draft October 16, 2008 • If the amount of the lease exceeds $1,000,000, then the obligation is subject to the statutory debt limit. This limit equals 2% of the taxable market value of property in Stillwater. • A levy by the city, to make payments on lease revenue bonds, qualifies as a special levy under the current levy limit system. A levy to pay debt of another political subdivision is an eligible special levy. Although a HRA is a part of city government, it is technically a political subdivision. Capital Improvement Bonds Capital improvement bonds are the newest capital finance power for Minnesota cities. This authority was granted by the State Legislature in 2003. Through this authority, the City can issue bonds to finance the acquisition or betterment of a city hall, a public safety facility, or a public works facility. The statute does not define the precise nature of public safety or public works facilities. This debt authority is subject to several procedural requirements and limitations: • The bonds must be issued pursuant to an approved capital improvement plan. • The issuance is subject to a reverse referendum petition. • The total principal and interest due in any year on all outstanding capital improvement bonds may not equal or exceed 0.05367% of taxable market value of the city. Transit and Alternative Modes of Transportation Transit service in the Stillwater Area includes regular express bus service and Dial -a -Ride bus service provided by Metro Transit and St. Croix Valley Transit. Metro Transit provides local and express service between Stillwater and Downtown St. Paul. Ridership in 2004 was approximately 300 passengers per day for the entire route, with 70 passengers per day from the Stillwater area. Metro Transit has identified TH 36 west of TH 5 as a future, bus -only shoulders facility. St. Croix Valley Transit currently provides Dial -a -Ride service, the St. Croix Circulator, in Bayport, Stillwater and Oak Park Heights, to St. Croix Mall and Target/Cub Foods shopping areas. Riders can transfer to the express bus serving Stillwater and Downtown St. Paul. There are no eligibility requirements for this service —anyone needing service can ride. Two park and ride lots are located in Stillwater that allow direct access to express bus services. The lots are located at the St. Croix Valley Recreation Center on Market Drive and at St.Mary's Church at 5th and Pine Streets. More detailed information on transit can be found in the Transportation chapter. Implementation To implement the economic development plan, the City will consider the following implementation measures: 23 3rd Draft October 16, 2008 To increase the tax base and provide opportunities for economic growth for Stillwater and Stillwater area residents, the City of Stillwater will: • Protect the city's industrial land base for industrial development • Consider using tax increment financing to assist major new investment in the Stillwater West Business Park (Local Economy Program 5) To promote and maintain the downtown as a central focus for community economic and cultural activity, the City of Stillwater will: • Consider using tax increment financing to assist major new investment Downtown (Local Economy Program 5) • Encourage downtown as a relocation destination for successful businesses (Local Economy Policy 5) • Encourage small locally owned business of particularly in the Downtown (Local Economy Program 2) • Promote office and service job locations in and around the Downtown (Local Economy Program 3) To provide new locations for job growth in close proximity to housing and with convenient access, the City of Stillwater will: • Designate land for commercial and industrial uses properly located with adequate support services to accommodate future forecast and anticipated economic development (Local Economy Policy 1) • Designate the Bergmann farm area for research and development office industrial park as a part of the proposed land use plan (Local Economy Program 1) • Encourage a mix of employment, multifamily residential and retail and service activities in and around the West Business Park area (Local Economy Program 4) To promote tourism consistent with retaining Stillwater's unique natural resources and historic and architectural character, the City of Stillwater will: • Work with the Stillwater Area Chamber of Commerce and Convention and Visitors Bureau in promoting downtown activities and improvements (Tourism Policy 6) • Support year around activities that enliven the Downtown public and cultural life (Tourism Policy 2) • Maintain public facilities so that the Downtown is an attractive place to visit (Tourism Policy 5) • Consider establishing incentive programs for rehabilitation of older buildings (Tourism Program 1) 24 3rd Draft October 16, 2008 • Continue to use design review guidelines and process to ensure new development and renovation is consistent with the historic character of Downtown (Tourism Program 2) • Construct a new public parking ramp Downtown Stillwater for employees and visitors (Tourism Program 3) • Support the Downtown Parking Commission as an advisory group for managing the Downtown parking (Tourism Program 4) 25 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Parks and Trails 3rd Draft October 16, 2008 Chapter_ Parks and Trails Introduction The City of Stillwater has acknowledged the importance of providing park, trail, and open space opportunities that enhance the quality of life of its residents and visitors. Parks and recreation facilities are essential in promoting community wellness, connecting the individual to ecological value and stewardship, promoting cultural understanding, and fostering economic viability. PARKS, TRAILS & RIVERFRONT Goals Goal 1: Provide a variety of passive and active parks and other leisure, recreational and cultural opportunities that are conveniently located, accessible, affordable, safe, physically attractive and uncrowded for all Stillwater residents. Goal 2: Enhance and expand existing recreational facilities for Stillwater residents based on the recreational needs of the community and its neighborhoods. Goal 3: Work to develop an area -wide interconnected recreation and facilities plan with other local governments, the school district and Washington County. Goal 4: Reinforce the riverfront as the focus of the downtown Stillwater open space system and as a significant cultural and historical amenity. PARK STANDARDS Objectives Bring the amount of Stillwater's park land into compliance with the city's adopted minimum standards: community park land at a city-wide total of 3 acres per 1,000 population; neighborhood park land at a city-wide total of 7 acres per 1,000 population; park facilities within one -quarter mile or less of residents, no major physical barriers within that one -quarter mile distance. Provide a balance of active and passive recreation opportunities, including facilities to serve the varied interests of the population. Designate adequate park sites for the future development of the city. 1 3rd Draft October 16, 2008 Provide for an annual evaluation, maintenance and replacement of recreational facilities. Policies Policy 1: The city shall require all new development to dedicate land or pay a park fee according to the park dedication policy. Policy 2: The city shall obtain and develop new public neighborhood parks at a rate consistent with new residential development and in keeping with the city's basic guidelines for park development. Policy 3: The city shall develop public community parks consistent with growth of the city's population and in keeping with the city's basic guidelines for park development. Policy 4: The city will provide recreation activity sites to respond to the active and passive needs of a diverse population. Policy 5: The development of private sector recreation facilities in the appropriate locations shall be encouraged. In addition to public park improvements required of developers, the city shall promote private open space and recreation facilities in large- scale residential developments. Programs Program 1: The city shall study and pursue various means of funding for acquisition, operation and maintenance of park, open space, trail and recreation facilities. Program 2: Acquire and develop land in the western part of the city for community park purposes. EFFICIENT USE OF FACILITIES Objectives Maximize opportunities for the joint use of public land and facilities such as schools, detention ponds and area under the jurisdiction of other public agencies that have land available for possible recreation purposes. Maximize the extended use of existing public facilities for year-round and evening use. Identify recreation areas that are owned by school district or other public entities and seek permission to use those lands for recreation programs or facilities. 2 3rd Draft October 16, 2008 Policies Policy 6: The city will work with the school district in identifying and evaluating the potential for park acquisition of school sites which might become surplus school lands. Policy 7: Joint development of community recreation facilities together with local schools and surrounding governments shall be encouraged. Programs Program 3: Develop and implement a program for year-round use of some recreation facilities. Program 4: Explore methods to integrate a trail system with the systems of surrounding local governments. PARK LOCATION AND DESIGN Objectives Locate new neighborhood parks in areas not necessarily adjacent to schools in order to better distribute urban open space and to enhance neighborhood identity. This is especially applicable in the South Hill and Oak Glen planning areas, where there are insufficient neighborhood park facilities. Design park and recreation facilities to serve the recreation and social needs of residents of all ages, economic situations and physical abilities. Establish a volunteer program to help maintain and enhance neighborhood parks. Add landscaping, sculptures and seating. Vary the landscaping, improvements and construction materials used in different parks to help establish park and neighborhood identity. Policies Policy 8: Residential developments adjacent to parks or open spaces should be encouraged to provide direct access to and common open space contiguous with such areas. Policy 9: In considering the location and redevelopment of parks, the city shall give thought to sites based on maximum geographic and handicapped accessibility, proper topography and visibility (for the safety of park users). 3 3rd Draft October 16, 2008 Policy 10: In the design and maintenance of parks, consideration should be given to minimize the impacts on the environment. Programs Program 5: Continue a regular patrol of parks to provide for the safety of park users. Program 6: Design, install and maintain standardized park signage for all city parkland and trails. Program 7: Develop and implement neighborhood park plans based on the priority list developed by the Park and Recreation Commission. EXISTING PARK SYSTEM The City of Stillwater has developed 34 park and recreation facilities, identified on Figure 1. These facilities total approximately 348 acres, and include the following: • Community parks, including: o Pioneer Park o Lily Lake Park o Lowell Park o Northland Park o Sunrise Park o Brown's Creek Park o Public Works Park/Boutwell Cemetery o Teddy Bear Park • Neighborhood parks, including: o Washington Square o Meadowlark Park o Ramsey -Grove Park o Staples Field o So. Broadway - Triangle Park o Schulenburg Park o McKusick Park o Benson Park o Anez Ridge Park o Nightingale Park o Legends Gazebo o McKusick Lake Park o Creekside Park o Settlers Park o Heritage Park 4 3rd Draft October 16, 2008 o Legends Park o Prairie Park o Bergmann Park o Liberty Square • Recreational facilities, including the St. Croix Valley Recreation Center, Lily Lake Ice Rink and the Skateboard Park • Open Space and nature areas, including: o Kolliner Park in WI o Brown's Creek Nature Preserve o Long Lake Nature Area o Croixwood Open Space o Long Lake Open Space o McKusick Lake Wetland Area Two other facilities that provide important recreation opportunities are the Jaycee's Fields and the Old Athletic Field, both owned by the School District 834. As these fields provide the public numerous benefits, it is the city's hope to acquire them if the school district ever considers selling them. It is the city's desire to continue to offer these two sites for public recreation purposes. The city completed Master Plans in 2005 and 2006 for three parks (Millbrook, Brown's Creek Reserve, and Boutwell Cemetery), in the western portion of the community. The city has either completed or has programmed funding to complete these parks in the Capital Improvement Program. In addition to the existing parks, the city has land for both a community park and a neighborhood park in the Millbrook development. Additionally, the Aiple Site, currently owned by the City of Stillwater, is anticipated to be developed as a community park after completion of the future St. Croix River Crossing. The historic and older portions of the community include larger community parks, such as Lowell Park and Lily Lake Park, and smaller neighborhood parks scattered throughout the older neighborhoods. The larger parks are associated with the city's higher quality natural resources and views, and provide a variety of recreational facilities, as well as locations for significant community events. Lily Lake Park, located on the southern edge of Lily Lake, is one of the larger recreation facilities in the older portion of the community. This park contains softball fields, tennis courts, a basketball court, a sand volleyball court and an indoor ice arena with one sheet of ice and seating capacity of 787. The park also has a picnic shelter with six picnic tables, B.B.Q. grills, playground equipment, single picnic shelters scattered on the beach, swimming beach, and boat launch with dock and fishing pier. In the Downtown Area, master plans have been completed for Lowell Park and the Aiple property. These plans are being reviewed and coordinated in the downtown plan, to take into account the proposed flood levee improvements and the future St. Croix River 5 3rd Draft October 16, 2008 Crossing with its loop trail and conversion of the lift bridge to a pedestrian and bicycle bridge. Over the past 10 years, the city has added new parks and recreation facilities as the Annexation Area in western Stillwater has developed. Many of these parks are associated with significant natural resources, such as the Brown's Creek Park and Nature Preserve as well as the Long Lake Nature Area. Others provide neighborhood and community recreation facilities for new neighborhoods. The city recently completed development of a neighborhood park as part of Brown's Creek Park Site on Neal Avenue, just south of the Zephyr railroad tracks. This park will provide recreational facilities as well as trail connections to Brown's Creek Park and Nature Preserve and residential neighborhoods to the south and east. The proposed Boutwell Cemetery Park focuses on preserving and interpreting a historic area associated with early settlement. The Millbrook development near South Twin Lake will include a larger community park and additional trails. The St. Croix Valley Recreation Center serves a regional audience. It provides indoor recreation facilities for all ages, including facilities for ice skating, hockey, soccer and walking. Its facilities may be rented for special events. Lily Lake Ice Rink serves as a secondary facility to the Recreation Center and provides additional ice during high demand times. In recent years, the city completed special studies of its park and trail facilities in the Annexation Area, including a long-term development and management plan for Brown's Creek Park and Nature Area. This plan includes detailed recommendations for restoration of natural communities, provision of interpretive facilities, and development of trails within these areas. It also discusses needs for maintenance of these areas and associated trails that link these areas to the city's trail system. 6 3rd Draft October 16, 2008 FIGURE 1: PARK FACILITY INVENTORY, 2008 > �8 a ii � 2 2 12 11 1! 1 4 1 .fir-, 3 .' „ I i i i i I o „ x x °g x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x x p8 8 x x x x x x8 I n w n' .-. w w -. w ,_l l0 , w w -. CA v v w x x x x x 3 3 3 3 Pioneer Park Lily Lake Park Washington Square Lowell Park Northland Park. Sunrise Park Meadowlark Park Ramsey -Grove Park Staples Field So. Broadway - Triangle Park Schulenberg Park McKusick Park Benson Park Anez Ridge Park E b x w Nightingale Park I Brown's Creek Park Brown's Creek Nature Preserve Leg ends Gazebo I Croixwood Open Space Long Lake Open Space St Croix Valley Rec Center McKusick Lake Trail & Dike Creekside Park Settlers Park Heritage Park (Leg ends Park Long Lake Nature Area Public Works Park Prairie Park I Bergmann Park I Teddy Bear Park I Liberty Square Skateboard Park m , , , m o , _ _ ; 74 h _ _ _ a .--11 `A n 'a ,9 n rn rn ,4, 7 3rd Draft October 16, 2008 PARK CLASSIFICATIONS: NEIGHBORHOOD PARKS Neighborhood parks provide for the recreation needs of a surrounding residential neighborhood. These parks provide a location for informal play and opportunities for social gatherings that promote a sense of community. They also provide open green space and visual relief for a surrounding neighborhood that can be highly developed. Park sizes can range from 1 to 15 acres but are typically less than 5 acres. They are located as central as possible to a neighborhood they serve and are usually accessible from a trail or sidewalk. Neighborhood park features include picnic areas, playground equipment, a multipurpose playing field and/or playing courts. Neighborhood parks are typically spaced at quarter mile increments. COMMUNITY PARKS Community parks serve as a focus for the community's recreation, social, and cultural needs and activities. They can provide a wide array of recreation opportunities ranging from active to passive. Community parks may be located to take advantage of significant cultural, historic, or geographic features. Some community parks will serve the entire city depending on their purpose. Parks should be strategically located and uniformly dispersed throughout the community. Community parks are larger than neighborhood parks generally requiring 15 acres or more. Park features include athletic complexes, large picnic shelters, large natural open spaces, playgrounds, and internal trails. OPEN SPACE Open space serves to protect important natural areas in the community. They also provide a visual relief for a surrounding neighborhood that can be highly developed. Due to the sensitivity of the areas it is not anticipated that these areas will be developed for active recreation uses. Rather for the most part they will remain in an undeveloped state will offer selective passive uses including trails and picnic areas. Table 1 Category Existing # of Parks Acres % of System Future # of Parks Acres % of System Neighborhood Parks 19 60 16% 20 61 15% Community Parks 8 111 30% 10 134 34% Open Space 6 202 54% 6 202 51% Total I 33 373 100% I 36 397 100% 8 Draft Parks L co o_ Y f L C co 2008 Comprehensive Plan z 1,600 Feet O O oo O O O oo Proposed Trails ----- Future DNR Trails Future Upgrades to Trail 3 U- 1 Existing Park Future Parks 1 Golf Course School Properties Right -of -Way C) I _ 0 U) I I 11 ._..I III I Ii / 0. �1. 111 111 Uri . ■ • • I I I ECM 111 111� Loox Trail .• �••� St. Croix River v7 .0 C I I 7 IN C 0 a m it \L- 7 'U / C - I m. 1 Al 11 J— I 1 -mm mn - T L T C I!• IV NI :.Inns. En TI mm �mm� ea 000 H I L L 1p 0 4111111 6000 F\ • A Aim, IIII !! ME i! PA Inn 11111 /o 0 2 1111E 1- ate ■ rk40 111111111E Illllllli \11111 0 Utio 40100 1111 1111E 1111 "I'll :E11 1 „,„, r, 02 2 is _414 71) I� 1I1 III I N 011 Em 111 IIII. MI 1- Ell li ■ �11 H C 1111E 1P� 11 111111.1E a• • 11 1 I - I4 Qa< IIT I io •o; 1" ii r00 rii� ' s ■IIII I I I 0...: 11■IIII -liti :CI; ■ E11 1 III cp I" I - H 1/ "iIi ,111E MINIIM 11111111E T 111N J11111111 111111E 1 {l111111 111111E 1_I 1N 11 T II II H H 0 N a� III UI Q 111111111 ■i 11111111 II 1111111E l m 1111111 • 1MEII=N - II_ NE• C 111 1E 11 L 1 W Erriait 1a„11 111E■I IS ' � k 11 ill ��+III® ha* Nllltltll ■111 11' � III IIII mi ¢ 111 to 1I 1111� 1 ii. Vat (1) I'*•,,l• i 1 ill /a.- ��11:11 r :i a 0 0 T T ard 1E11 sll 7N . NE _o op LINA dm ■ FAIN Nor RN muimip 10 la VI I I. I I 1� IV Y 11141-4.111/k 11= ` a rar ‘i 1111 �11 sit L1J1L 1 I C a 1 -. w1 I e �IR" 111 u WA --'• i z IINI- MI -111/ co o L a�a ®• I p q _ICY as o _o 1111 � taw , ote,„,:cf :u1ur 111111140 NM pi 61 L o' 111 ■1� _ xmmma ikivismo gal EI vs 4.1 • ift mon worm IN I MI Mr MI mi. 111 bra kist ill I El BO, eN El aim IMO 3rd Draft October 16, 2008 LOCAL TRENDS During the comprehensive planning process, public input was collected on how the community felt about parks and trails. Many value the open space and uniqueness of natural surroundings. These types of features should be preserved and made accessible when possible to enjoy up close. Overall the community values the park system, but sees opportunity for enhancement such as improving walkability and interconnectivity between neighborhoods and destinations. Expanding the trail system in multiple locations was a popular opinion voiced by many residents. Others in the community expressed the need for the following park amenities: o Public access to river (boat dock, fishing, swimming beach) o Public sporting complex that includes soccer, baseball, and softball fields o Public swimming pool/YMCA facility o Community center for the arts o Teen center o Frisbee golf course o Public restrooms downtown and along trails Stillwater has become a popular tourist destination in part due to its relationship to the St. Croix River. Visitors and residents alike are increasingly participating in boating and water sports as seen on a national level. As the city expands and improves its park system, consideration will be given to creating public access to the river. Aquatic amenities in local parks such as splash pads which provide shooting water play features are on the rise. Many cities throughout the country are constructing these water playgrounds as they become more popular and requested by citizens. They are also low maintenance for city staff to manage. Spray jets can also serve dual purposes by providing an attractive water feature in a public plaza. A popular neighborhood park, a new community park or Stillwater's waterfront could be an ideal location for placing a feature such as this. The above amenity list reflects the interest and lifestyles of Stillwater residents. These facilities can further be discussed as the city works to meet its goal of providing active, passive, and culturally significant activities within its park and trails system. SUSTAI NABI LITY The need and awareness to be environmentally sensitive in the way residents and visitors impact the city's natural surroundings is ever increasing. The City of Stillwater recognizes that in order for change to occur it must start by adopting goals and standards to protect resources for future generations. The city has ample opportunity to demonstrate and educate its residents on more sustainable practices through the park, trail, and open space system. 10 3rd Draft October 16, 2008 Sustainability in park planning can take a variety of forms. By reducing impervious surfaces such as parking lots, water body quality can be improved as surface water runoff pollutants are reduced. Stormwater treatment through alternative methods such as raingardens and native plantings can also reduce infrastructure costs. Utilizing the appropriate Best Management Practices (BMP's) for park maintenance and new development will lessen human impact on the natural environment. FUTURE NEEDS ADDITIONAL PARKLAND Understanding the community's current park and recreation needs will help to plan for future park improvements for the projected 2030 population. The city has established a goal of 7 acres of Neighborhood Park per 1,000 people and 3 acres of Community Park per 1,000 people. Table 2 shows the current and projected level of service based on these requirements. Based on this scenario, Stillwater would need to add 1 additional community park by the year 2030. This 1 additional community park is in addition to the Millbrook Community Park. Table 2 Category Existing # of Parks Existing Acres *** Local Standard (per 1,000) 2007 Need based on Local Standard * 2007 Surplus (Deficit) 2030 Need based on NRP Standard ** 2030 Surplus (Deficit) Neighborhood Parks 19 60.0 3.0 55.3 4.7 59.7 0 Community Parks 8 111.0 7.0 129.0 -18.0 139.3 -28 Total 27 171.0 10.0 184.3 -13.3 199.0 -28.0 Based on 2007 Estimated population of 18,431 ** Based on 2030 Projected population of 19,900 *** Includes future Millbrook Community Park, Millbrook Neighborhood Park, and Aiple Property (south of Dock Cafe) FACILITIES BY GEOGRAPHICAL DISTRIBUTION The City of Stillwater has set a goal to provide park facilities within one -quarter mile or less of residents, with no major physical barriers within that one -quarter mile distance. Figure 2 shows the adequacy of the community's park facilities including school facilities in terms of geographic distribution. It can be seen from the figure that there are two areas the city could consider for additional parkland. The first is south of New Heights School and north of Washington Square. In this area approximately 8 blocks of residential neighborhood are not served by a park or school facility. A small neighborhood park could be placed on a blighted single-family lot in this residential area. The second search area is in the NE quadrant of Manning Avenue (County Rd 5) and 75th Street (County Rd 12). Since this area is currently undeveloped, opportunity still exists to create a larger community park here. 11 3rd Draft October 16, 2008 The residential neighborhood between Stillwater Junior High and the Old Athletic Field does not meet the % mile Park Service standard. It does however fall into the % mile School Service standard. This area could also host a small neighborhood park to provide adequate recreational opportunities to residents. Many of the access issues are addressed in the future trail plan allowing safe pedestrian travelways to park destinations from residential neighborhoods. Additional trail planning will be needed as parks are added to the system. 12 (n U _ 0 0 > -c � 00 N V) 0 c co CD co 0_ 2008 Comprehensive Plan z 1,600 Feet 0 0 oo 0 0 oo Natural Trails Future DNR Trails Future Upgrades to Trail Future MNDOT Trails rn co N 0 0 11)C Existing Park Golf Course School Properties 1/4-Mile Park Service Area 1/4-Mile School Service Area Rig ht-of-Way Open Water 02 m° I:15101510070011gisimapslservicel .mxd 1 H 1 ,I] n 11 Ali :t r S r t.,4‘ ■ -■ ION MIR MN MI • • j MR 10 10 111 S.• - r rrU • fts • \0/ Looxi Trail �••� St. Croix River TED II _11 11 111 111� ii a 7 Ii I ■■ ■m -■ mn L H I H- J— =� H a■:1 t Is i10$ Si, ■ma" H T L 7 H L MIN N`Iliii!.Ems1 y.— �IINI�Eidim is MU aggiPPOWIgria is s ■+. Lo mmm • :1 IN 1111 Se ■ �■ 1 1 0 0 a 111 iOP s Haw. WAN 11 T • o.CI • +•I•••I _1 U =t 1111 IIIN m as I, fi too 1 1 11 1111 111111 Inn 11111 H �Km *NG K■ 1 0 U 1�III H III I H LI • W cu 0_ e•'cAO ttit Is ■ ■ ■ N■ I.. dill eta 1111 nal ME -! 010 �I I.N;i111■ ■ i;� 7 ■ II II L 11111 11■I 11 11■1 :■■ - n fill' 11 Wel NI Hi. wr .■ ME L I� IIIIIR■111111111111■i111■" I111101JI■■1■IIIIIIIII J11111111111■11 {1111■I ■11111■ -L I 11� _■ ■ ■I111■11111 111 IN i ri puniiimmirha all oil Nki9imerr LI111511.11 II III II 1111 J1114* mum m. I111 a cL� Na 1I- II H i 111p1 1 leA Olean T N 111111111 ■i J1111111 1111m =11 LL =. ON RN I"I it 1111 1iP!lll 1111111 turn ixmmxo 11 115� TT elk wit II co 0 Y i (0 U c J-N W MID Dna diE ■ �uu■ ard 11■11 ° 0 rn; L 00" Erma L matimmlmi Nom ump irrA maul Pri 111,4 Ito Is ay 111 co rtt it:mi is armleiti la 7 Vs id co k k. LO • • • 3rd Draft October 16, 2008 ADDITIONAL RECREATIONAL FACILITIES During the planning process, information was gathered at the city level to determine athletic usage and future program needs. The following chart summarizes the effort of calculating future population, considering existing facilities, recreational trends, and city staff comments. TABLE 3: PROJECTED ATHLETIC FACILITY NEED, 2008 BONESTROO Facility Type Existing NRPA 2007* 2007* 2030** 2030** Recommended Quantity Standards Need Surplus Need Surplus Facilities to be 2007 (NRPA) (Deficit) (NRPA) (Deficit) Added Baseball Fields 7 *** 1 per 6 1 7 0 0 3,000 Softball Fields 7 *** 1 per 6 1 7 0 0 3,000 Basketball Courts 4 1 per 4 0 4 0 0 5,000 Football Fields 10 1 per 1 9 1 9 0 20,000 Horseshoe Courts 11 1 per 0 11 0 11 0 7,500 Picnic Shelter 25 1 per 9 16 10 15 0 2,000 Playgrounds 18 1 per 9 9 10 8 0 2,000 Running Track 1 1 per 1 0 1 0 0 20,000 Soccer Fields 8 1 per 2 6 2 6 0 10,000 Swimming Pools 0 1 per 1 -1 1 -1 1 20,000 Tennis Courts 11 1 per 9 2 10 1 0 2,000 Sand Volleyball 5 1 per 4 1 4 1 0 Courts 5,000 Hockey Rinks 3 0 * Based on 2007 estimate population of 18,431 ** Based on 2030 projected population of 19,900 *** Includes Jaycee Fields owned by Stillwater Area School District TRAILS & PATHWAYS Objectives Construct a city-wide trail/bikeway system that connects major activity centers, schools, downtown, scenic open space areas and lakes and other adjacent community systems. Preserve and provide views of natural resources by aligning trails appropriately. 14 3rd Draft October 16, 2008 Provide alternative means to reach city parks, county parks, regional parks, state parks and other community destinations Preserve and enhance public -owned ravines. Policies Policy 12: Bikeways, hiking trails, rest areas and picnicking accommodations should be provided within designated trail corridors, wherever feasible. In addition the trails connecting neighborhoods into downtown should be identified with emphasis on the existing stair cases (Chestnut Street, Laurel Street, Willard Street, Broadway Street and Quarry Lane Stairs) and the creation of new stair cases. A linear trail should be developed in Lowell Park running from the Dock Cafe to the MN Zephyr depot. Trail connections should also be explored that connect Lowell Park to the Aiple property, Kolliner Park and the Boom Site. Policy 13: The city should control land development along designated trails and pathway corridors in order to provide sufficient right of way and to ensure that adjacent new development does not detract from the scenic and aesthetic qualities of the corridor. Policy 14: When new development occurs adjacent to a designated trail and pathway corridor, the city should require the development to install the trails. Policy 15: The design, construction and management of trails and pathways should be carefully planned and executed in order to minimize environmental disturbance. Policy 16: Public improvements such as roads that are to be located within trail and pathway corridors should be designed to provide safe and secure routes for trails, including grade separation whenever feasible. Policy 17: Encourage the incorporation of trails and pathways into corridors used for public and utility purposes. Programs Program 8: Implement the trails and pathways corridors plan. Program 9: Consider improving trail systems around the city's lakes including completion of the trail around McKusick Lake and Long Lake, as well as between the lakes. 15 3rd Draft October 16, 2008 TRAIL SYSTEM Communities across the country have worked hard to improve their quality of life through developing trail systems — connecting individual trail segments to form larger recreation and transportation networks. Creating more trail connections among existing trails multiplies their effect and usage. Trails provide opportunities for people of all ages to walk to local destinations, bike to work, exercise, meet neighbors, observe local wildlife, and experience the outdoors with their families in an efficient and safe manner. A new trend in trail planning has emerged that engages transportation engineers, water resource specialists, ecologists, planners, and open space advocates. Today, trails have become part of greenway corridors that provide wildlife habitat and movement corridors, open space vistas, water treatment benefits, and the opportunity to interpret local history and culture. In November 2000, the city completed a Comprehensive Trail Plan. The plan includes miles of trails, with 11 miles of existing trails. The goal of the plan is to develop and maintain a city-wide interconnected network of trails to provide recreational and transportation opportunities for City residents and visitors. The proposed trail network is shown on Figure 1 Parks and Trails. "Trails" in the older Stillwater neighborhoods are mainly sidewalks. The city has developed several trails in recent years that help to link the older neighborhoods with developing neighborhoods in western Stillwater, including the following: • The McKusick Ravine trail • Trails and boardwalk around McKusick Lake • County Road 12 and 5 trails • Stonebridge Trail • Eagle Ridge Trail New trails have been developed in the Annexation Area along Boutwell Road, Long Lake, and Brown's Creek and its tributaries. Washington County is developing a trail along County Road 15 (Manning Avenue) as part of improvements to the County Road that is under construction. Western Stillwater is the last part of city to have pockets of open developable residential and commercial land. In conjunction with the development of this property, consideration should be given to adding and improving to the current trail system in the area. One area of concern is around the Rutherford Elementary School. Many school districts are limiting bus service due to budget constraints and are required students to utilize other means to get to school; i.e. walking and biking. Currently there is no trail available on the north side of County Rd 12. This same planning process should be 16 3rd Draft October 16, 2008 applied wherever right-of-way is available, especially around schools outside of the core developed area. The Park and Trail Plan identifies the need at County Rd 12 for a future underpass. Potential location of future trail and underpass to provide safe crossing of CSAH 12 3rd Draft October 16, 2008 The Trail Plan includes specific direction for trail design, location, type, construction, maintenance and signage. It also discusses priorities for system improvements. Some of these priorities have been completed or designed during the past five years. The city is implementing the trail plan as a part of new development, and as improvements to roadways or other infrastructure occurs. The plan notes the following system issues that the city is continuing to work on: • Some trails are unfinished, or do not interconnect • Trails are not available to some primary destinations, such as elementary schools or parks • Trails are not sufficient to the St. Croix River or proposed future trail loop • Some older trails do not meet current design standards • There are needs for ongoing maintenance and consistent signage JACKSON WMA The city has discussed the future of the Jackson Wildlife Management Area (WMA) with the Minnesota DNR several times in recent years. The area is north of Long Lake, and the wetlands in the WMA are part of the drainage system for the lake. The WMA was donated to the DNR by a local resident. It does not meet many of the DNR's current goals for WMA's. The WMA offers an opportunity to connect the recreational trails from Long Lake to those along the Brown's Creek Tributaries and other trails in western Stillwater. DNR Wildlife Section staff and the Browns Creek Watershed District (BWCD) have indicated that agency rules do not allow development of recreational trails within their jurisdictions —their primary purposes are wildlife habitat, hunting and fishing. The property would need to be transferred to the city or another governmental agency to allow construction of trails within the WMA. The trail could also be built outside the WMA and in accordance with BCWD standards. In addition to the wetlands within the WMA, the southern portion of the site provides upland habitat and open space. A rare plant species (a small population of Tubercled Rein -orchid, Platanthera flava) was identified within the upland area of the WMA by a local resident. PROPOSED NEW TRAILS OF LOCAL AND REGIONAL SIGNIFICANCE In addition to these overall issues, two new opportunities have emerged, that present significant opportunities to expand the city's trail system, provide additional linkage between the Downtown and other neighborhoods, and link the city with other 18 3rd Draft October 16, 2008 communities and destinations in the eastern Metro Area. These proposed trails are shown on Figure 1, and include the following: o Conversion of the historic Lift Bridge to pedestrian and bike connection, and development of new trails along the St. Croix between the Lift Bridge and the new St. Croix River Bridge, on both the Minnesota and Wisconsin sides of the Riverway. These trail projects are proposed as a part of the St. Croix River Crossing Project. Construction of this project is dependent on funding, and projected to begin between 2009-2014, with the project completion estimated to be no sooner than 2012-2014. o Development of a potential Brown's Creek State Trail. Owners of the Zephyr Railroad have indicated that they wish to close or sell the line. The Minnesota DNR, local legislators and trail advocates are proposing the purchase of the Zephyr right-of-way and development of a state trail linking Downtown Stillwater to the Gateway Trail. The Metropolitan Council has required the city to include two additional trail segments on their trail master plan. These include the following: o Washington County Greenway Regional Trail (Future): This regional trail runs north -south in Washington County. It is intended to connect the City of Hastings to Cottage Grove Regional Park, Lake Elmo Park Reserve, and Big Marine Park Reserve. Part of the trail is located within Stillwater. In the future Washington County will be working with the City to plan more of the trail alignment. o White Bear Lake -Stillwater Regional Trail (Future): This proposed trail would connect the Gateway Trail that runs through neighboring metro cities to the City of Stillwater and the St. Croix River. This trail is part of the Lakes Links Trail master planning process that calls for this section of trail to be part of the Regional Park System. Implementation To implement the Parks and Trail Plan, the city will consider the following implementation measures, which were developed from the goal and policy categories, listed in the beginning of this chapter: Park Standards: To increase the amount of public park land the city will: Study and pursue various means of funding the acquisition, operation and maintenance of park, open space trail, and recreation facilities. (Program 1) Acquire and develop land in the western part of the city for community park purposes. (Program 2) 19 3rd Draft October 16, 2008 Efficient Use of Facilities: To maximize opportunities for the joint use of public land and facilities and efficient use of such facilities the city will: Consider cooperative efforts with the school district, athletic organizations, public utilities, the city and other public agencies in order to acquire and/or develop parkland, retain open space areas and recreation facilities and provide programs. This would include considering acquisition of the Old Athletic Field and Jaycee Fields from the school district should the school district ever entertain the possibility of divesting themselves of those properties important to the community. Periodically update and distribute the list of available public park facilities, park maps, and trail maps to the community and interested groups. Develop and implement a program for year -around use of some recreation facilities. (Program 3) Explore methods to implement the park and trail system and integrate it with the systems of surrounding local governments. Park Location and Design: To determine the most appropriate location, type and design of future parks the city will: Continue a regular patrol of parks to provide for the safety of park users. Design, install and maintain standardized park signage for all city parkland and trails. Develop and implement neighborhood park plans based on the following priority list developed by the Park and Recreation Board and level of service needs. These plans shall reflect neighborhood input into the planning process. (Program 2) 2009 - 2018 Park Improvement Priorities Approved by Stillwater Park & Recreation Commission on July 28, 2008 Community Parks Lowell Park • Major redevelopment Millbrook Community Park • New park development Pioneer Park • Continue park improvements • Renovate band shell (roof and west wall) 20 3rd Draft October 16, 2008 Northland Park • Replace upper play equipment • Make an "entryway" park • Replace irrigation systems Aiple Park • New park development Brown's Creek Park • New irrigation systems Lily Lake Park • Replace irrigation systems Neighborhood Parks Long Lake Open Space • Add Picnic Shelter • Add Nature Trails • Consider adding parking on north side Millbrook Neighborhood Park • New park development Boutwell Cemetery • New park development Staples Field • Acquire additional park property • Add additional facilities • Reopen basketball court or convert the courts to another park use Legends Park • Add additional equipment Bergman Park • Add addition equipment (play structure on north side of park) Triangle Park • Replace play equipment Ramsey/Grove Park • Replace play equipment with a structure for children 5 to 13 years of age Public Works Park • Continue baseball field improvements • New irrigation systems Trail Improvements • Replace steps at Chestnut Street, Laurel Street, Willard Street, Broadway Street and Quarry Lane Stairs 21 3rd Draft October 16, 2008 Require park land dedication or cash in lieu for all new residential, commercial and industrial developments. Acquire the Jaycee's Fields and the Old Athletic Field from School District 834 if the school district ever considers selling them. It is the city's desire to continue to offer these two sites for public recreation purposes. Seek opportunities through public or private funds for the establishment of new neighborhood parks and/or redevelopment of existing neighborhood parks. Trails and Pathways: To effectively maintain and expand a city-wide trail system that connects to all major activity centers, schools, downtown, scenic open space areas and lakes and other adjacent community systems the city will: Continue to implement the comprehensive trails and pathways corridors plan. Continue working with the state and county for the development of a potential Brown's Creek State Trail. Continue to improve trails and sidewalks as local roadways are improved or reconstructed. Create improved trail and pedestrian connections into downtown from the west and from the north through Lowell Park to the Aiple property south of Nelson Street. Consider improving trail systems around the city's lakes including completion of the trail around McKusick Lake and Long Lake, as well as between the lakes. 22 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Transportation 3rd Draft October 15, 2008 City of Stillwater Comprehensive Plan Update Transportation Chapter Prepared by: 'TERN ®Innovation for better mobility Page i 3rd Draft October 15, 2008 Introduction The transportation chapter (Transportation Plan) is a vital part of the City of Stillwater Comprehensive Plan. The transportation plan acts as a guideline for the city as it plans for future infrastructure needs and transportation facilities. In addition to a multi -modal analysis, this chapter will provide a brief description of the existing roadway system and provide recommendations for a general future transportation plan based on projected growth. The plan incorporates the findings of recently completed regional and local transportation studies. Washington County is currently in the process of completing its 2030 Traffic Study. The 2030 Traffic Study includes updates to the Washington County traffic model based on various growth and roadway improvement scenarios. In recent years, several detailed studies of specific corridors and planning areas within the City of Stillwater have been completed, including: • St. Croix River Crossing Project — 2006 SFEIS (2006, Mn/DOT, WisDOT, FHWA) • TH 36 Partnership Study (2002, Mn/DOT) • Boutwell South Area Plan (2002, City of Stillwater) The City of Stillwater has experienced significant growth in the past ten years and is expected to grow even more by the year 2030. The Metropolitan Council, as part of its regional forecasting, projects that the City of Stillwater will have a population of 19,100 by year 2010 and 19,900 by 2030. These projections reflect an increase of approximately 4,000 when compared to the 2000 levels. Increases in population will put a greater demand on the existing transportation facilities in the city. In addition to improving regional connections, there is also a need to improve east - west and north -south transportation facilities within the City of Stillwater. The city must work closely with the regional, state, county and adjacent municipalities in the planning of roadways and transit infrastructure to provide access and mobility for residents and visitors. The City of Stillwater is also home to one of the three major St. Croix River crossings in Washington County — the Stillwater Bridge. Future projected growth in the area has put an increased demand on the Stillwater Bridge. In November 2006, the U.S. Department of Transportation signed the Record of Decision for the St. Croix River Crossing. The construction phase for this bridge is planned to start as early as 2013, but could be delayed beyond that. Once the new St. Croix River Crossing Bridge (TH 36) is built and open for traffic, the old lift bridge (Stillwater Bridge) is planned to be used as a pedestrian/bicycle bridge. Page 1 3"d Draft October 15, 2008 Goals and Policies As part of the 2008 City of Stillwater Comprehensive Plan Update process, the City Council approved a set of goals, objectives, policies and programs in March 2008. The set of goals, objectives, policies and programs are a refined compilation of the items found in the 1995 Comprehensive Plan as well as area plans officially adopted by the City Council since then. In addition, several new items have been added through feedback obtained during neighborhood visioning sessions which occurred during the fall and early winter of 2007. Transportation Goals Goal 1: Provide efficient and environmentally sound transportation. Goal 2: Develop a coordinated transportation system that provides for local as well as area - wide traffic. Goal 3: Make it easy and convenient to travel in and around Stillwater, tie allowable new development to the capacity of roadways; limit impact of non-residential traffic in neighborhoods when possible and develop a comprehensive sidewalk, trail and bikeway system. Goal 4: Support construction of the new interstate bridge and TH 36 corridor improvements to provide for regional traffic demands and to relieve cut -through traffic Downtown and in residential areas. Goal 5: Develop and locate new roads sensitive to historic structures and sites, as well as natural features. Goal 6: Provide an integrated system of roads, bikeways, transit lines, and pedestrian paths. The transportation system should minimize the impact of through traffic. Transportation Objectives • Maintain the carrying capacity of through streets while minimizing the negative impact on adjacent residential areas through landscape treatment and street design. • Reduce through traffic impact in residential areas by means of road design and traffic management. • Work with Mn/DOT and Washington County to study and improve state highways and county roads where needed. • Plan new development areas to coordinate with planning for the roads that provide access to the development sites, i.e., CR 15, CR 12, CR 64, TH 96, TH 36. • Enhance the function, safety and appearance of Stillwater's streets, highways and major entryways into the city. • Utilize pervious and other green technologies for stormwater treatment associated with parking lot and street improvements where possible and economically feasible. Page 2 3rd Draft October 15, 2008 • Use topography and other site planning methods to minimize the visual presence of parking lots. • Maintain existing public stairways throughout the community, particularly in the downtown. • Study the use of the railroad line right of way for potential use as a walkway and/or bikeway connecting downtown to the city areas to the west. • Explore alternative transportation and transit opportunities for Downtown Stillwater. Transportation Policies Policy 1: Create a unified, continuous system of arterials and collectors. Policy 2: Designate segments of local residential or arterials. Policy 3: Policy 4: ets so that traffic flows onto collectors Work with other governmental agencies on a new TH 36 bridge, TH 36/CR 15 improvements and the planning and construction of a Frontage Road between CR 15 and CR5. Work with Mn/DOT, County, local government agencies and local businesses/employers to address transportation management methods to relieve bridge traffic congestion concerns. Policy 5: Ensure that planned transportation infrastructure, capacity and access will accommodate proposed land use and development. Policy 6: Improve traffic and parking in and around commercial areas. Policy 7: Continue to enforce traffic laws for safety in residential areas. Transportation Programs Program 1: Develop an area -wide coordinated road improvement program with MnDOT and Washington County. Program 2: Prepare corridor/traffic studies with Washington County for the following minor arterials: Greeley/Owens, and Third/Fourth Street at Churchill. Program 3: Provide a collector parkway connection from County Road 12 to Olive Street. Continue to explore the Brick Street option for this collector parkway. Page 3 3rd Draft October 15, 2008 Program 4: A comprehensive streetscape plan for planting and improvements shall be developed for major streets. This would have aesthetic and traffic calming benefits. Program 5: Develop a comprehensive signage program. This program will identify key gateways into the city; will create gateway signage/monuments; will create consistent directional signage; and will direct regional traffic to downtown Stillwater via routes that avoid residential neighborhoods. Program 6: Keep the parking plan and parking management programs up,to date for the Downtown. Program 7: Provide bicycle parking locations and attractive racks at key locations including parks, downtown and commercial center. Program 8: Work with State, regional and other partners on a transit plan. Program 9: Consider developing a parking plan to improve the usage of underutilized public/private parking in Downtown Stillwater. Transit Objectives • Develop pedestrian pathway and bikeway plan to provide for recreational and commuter trips. • Work with Washington County and the state in developing park and ride lots, trailway systems and other programs to reduce auto use. • Increase transit ridership and support transit service for transit dependent residents, particularly senior citizens, provide adequate transit facilities (bus stops, transfer stations) to support transit use, and cooperate with the regional transit authority and Washington County to provide conveniently located park and ride facilities at major transit stops. Policies Policy 8: Promote safe travel for pedestrians and especially school aged children going to and from school. Policy 9: Encourage transit use through subdivision design, land use planning and education. Policy 10: Use Travel Demand Management strategies to make most efficient use of existing road systems and minimize impact on adjacent areas. Policy 11: Plan and construct a city-wide bikeway system throughout the city to connect major activity centers and scenic open space area. Page 4 3rd Draft October 15, 2008 Policy 12: Programs Program New and upgraded bridges, crossings and overpasses and TH 36 Frontage Road shall include bicycle lanes where feasible. 10: Develop a bikeway system facilities plan. Program 11: Program 12: Program Program Program Consider amending the subdivision ordinance to require bicycle facilities according to bikeway facility plans. Develop and promote traffic safety and education programs. 13: Continue implementing the sidewalk/pathways maintenance and improvement program. 14: Develop a plan for sidewalk and trail snow removal. 15: Improve the appearance of bus stops and better integrate into neighborhood or area design. Program 16: Encourage MnDOT to provide continuous bicycle paths both along the Highway 36 frontage road from CR 15 to TH 95 and also along TH 95 from Oak Park Heights through downtown Stillwater to TH 96 at Brown's Creek and perhaps beyond to the Boom Site. Page 5 3" d Draft October 15, 2008 Existing Roadway System Characteristics This section provides a brief discussion of various roadway system characteristics, including roadway jurisdiction, traffic lane availability and the most recent traffic volume information. Roadway Jurisdiction Roadways within the City of Stillwater fall under the jurisdiction of the State of Minnesota, Washington County and the City of Stillwater. Figure 1 illustrates roadways under State and Washington County jurisdiction within the city. All other unidentified roadways in Figure 2 are considered municipal, or under City of Stillwater jurisdiction. Typically roadways with higher mobility functions (such as arterials) fall under the jurisdiction of a regional level of government. Roadways that serve larger geographic areas (thus resulting in longer vehicle trips and higher traffic volumes) fall under the jurisdiction either the State or the County. Roadways serving localized areas (shorter vehicle trips and lower traffic volumes) fall under the jurisdiction of the City of Stillwater. Roadway Lanes The majority of the roadways in and around the Stillwater area are two-lane facilities, with one lane flowing in each direction. There are some more traveled routes with exclusive left and/or right turn lanes at critical locations. Due to the population density and large amount of regional travel within and through the area, there are a few roadways within the City of Stillwater that contain more than two travel lanes. These include TH 36, portions of TH 5 (Stillwater Boulevard North), Curve Crest Boulevard, and Washington Avenue South. CSAH 15 (Manning Avenue N from TH 36 to CR 12/Myrtle Street) is being expanded to a four -lane facility starting in the summer of 2008. There is one three -lane road with two driving lanes and a dedicated center turn lane. This road is Market Drive. Existing Daily Traffic Volumes A basic planning tool used to determine the ability of a roadway toaccommodate existing or projected traffic levels that utilize a roadway, is to apply the volumes of daily traffic along that facility. Figure 2 details the most recent average annual daily traffic Counts (AADT) for various specific segments of roadway in the City of Stillwater. Traffic count information was taken from the City of Stillwater Municipal State Aid roadway counts and official traffic volumes counts listed on MnDOT's website. Page 6 153NV1 17MU ONN ISISL NIS1SL n 151 } w O NIS UNZ HHI N LNHHI ur`NA� {.1N�mNs��m 3 fAGLE RIOMTRL yyOOa .S'O' z w z _ 1 1110H13H N 3AV1V3 3Atlltl3N N 3AV 3NVllatlw O N63?JO 1f1N1NM N 3AV ltl3 N N 10 Aa?J39M MINI`R AVfN MINA 2N0 AS 3AV HI ¶ SISONC-� 5'15 SYS'd'}] m SI® 3R4® 515 H19 S IS H19 N3AtlNlap 5W � Gta 5SH :565H5©, SI'SH1L ti � =iH IiLHo31QH n�©SVHla®®.. 1O 2 w W 45�5 p NOA SNNIHH S INVIHIH a133H13NId 10 N393 S IS 113HRA3 0a EN 1 M OA19 NOSH z aU 3pN3f1 3A Na31S3MH1 AU 13NHNIN vSNIN 2008 Comprehensive Plan o� o� 0 0 0 0 cO 0 0 0 500 1,000 Existing Volumes (2005) 501 - 2000 2001 - 10000 10001 - 20000 a L al C o £ Nro 0 0 oa In m >C (0 F I U ' c O F wE 0 0 Q? 0 m co 0 0 �a N N to » O 0 ry i 2 U N ' u -Nnr 7 C 301S3}IV NEAL AVE N VMONOH0 N151SL NISISL 047 N IS N 3AV 1VIN N 3AV 3NVlKHVIN 3AV lSIN VHIAW) H V b V INARpVRN rc LAGLE RIDGE TRL 3AV I-1 AG 3NV7 111133H13NId 10 N000 IGHWAY 36 S 15 H19 S LS HIS S1S119H3A3 W ORLEANS 1 T W mania NOSN N 3AV N NOR 4R HO NGN3 0Al01 SIHISOSNl 5 O rc NAPN z ti NO 13N5VIN 110HrSI 3rd Draft October 15, 2008 Demographic Projections The Metropolitan Council has prepared socio-economic projections for the years 2010, 2020 and 2030 for City of Stillwater. These projections are a part of the Regional Development Framework that was adopted in 2004 and updated in the year 2005. These projections are utilized by the Metropolitan Council to plan for its regional systems. The Metropolitan Council projections for City of Stillwater are shown in Table 1. The city is in general agreement with these projections. Table 1: Metropolitan Council Population, Households and Employment Projections 1990 2000 2010 2020 2030 Population 13,882 15,323 19,100 21,300 19,900 Households 4,982 5,797 7,500 8,100 8,600 Employment 7,040 10,719 11,600 12,500 13,600 Source: Metropolitan Council Socio-Economic Data The Metropolitan Council also provides the Traffic Assignment Zones (TAZ) that they utilize in their regional planning model. The regional model TAZs are based on a regional level of growth. As part of the Washington County Traffic Study, specific growth areas were identified and the regional model TAZs were split into smaller zones to account for future growth and allow for more detailed planning. The revised TAZs are shown in Figure 3-Traffic Analysis Zones (TAZ). Page 9 3rd Draft October 15, 2008 Year 2030 Traffic Volume Projections Traffic volume projections for major roadways in the City of Stillwater have been estimated for the year 2030. These estimates are based on the city's Land Use Plan, Washington County's 2030 projections, the city's 2030 Comprehensive Plan, and other studies completed by the city. The estimates are utilized to help identify future potential corridors of congestion as well as potential lane and right-of-way needs for the future. As part of the current comprehensive planning process, the City of Stillwater has worked in conjunction with Washington County on traffic modeling for the 2030 volume projections. As such, this report incorporates the Washington County traffic modeling data and results by reference. The 2030 daily volume estimates are shown on Figure 4. Page 10 2008 Comprehensive Plan o� o� 0 0 0 0 co 0 0 0 500 1,000 Future 2030 Volumes Base Scenario 371 - 2000 2001 - 10000 >c� °�-u : N) 0 0 0 0 c 24(0. 0 O 0 O D vN 0 O 0 N-0 n.2' 0 L() If) 11) CO c 92 N CO (0 — C� I I I I - N F2 O U �y� 0 0 0 0 0 ;� 0 0 0 0 (f) oUS 0 O l0 N— N COf) In (0 N 1C lI. O C I I i O .SS�� N N $ 0)6 �'ur O L j U zi— LLO a 0 13) 5 0 0 LI cc 0▪ 3 ' U N T J T a> C co r 0 1- 0 Nci U C n ro52 N 0 C 8)2 N a CO 07ja 4, I0 n■u■uuii•u■u■u■i 2 K S\NENSON ST 2 to II■II■IIHIi z cmN 0 NEAL AVE N V '''wn1411i►w■u■u■nim ■I AIN ET N OLOI N151SL N IS ONE 00096 N 3AV1V33A71731,1 2 0 0 N 31V 3N71n171N 2 S S N1515L N IS ONZ t" :R• Soo 4, CO 0 3 S 0 2 IL) S1S ISL II 53AVH1• '.�'•i •S15 ONE S IS 0NS S IS ONE 009 i s is at 51515E S IS HIS S IS HIS 515 HIS SIS HIS S IS HIS S IS HEN S IS HIS S1S HIS S IS H19 515 H19 S 1S HIS 515 HIS 4, 11 s EAGLE RI5GET51 00966 z N m a 0'4 N0 3)0 411EEETRL r 1L11ISHV0 z /")..)) 0 z � SISH19 SISH19 N �SIS113a3A3 oPNE y/ oR1N�pS� / S WZ6 CD 0A-S 1VIAISl0 N I O O 0 S S VS 13Navw z O'. U y �� ,,OA,, \ / \ S a 4, ° Ni H353flSN 00 0001Z 10 ON7130 O O U /N 0AV NO1101 z T 0 O O 0 3rd Draft October 15, 2008 Functional Classification of Roadways The functional classification of roadways provides guidelines for the safe and efficient movement of people and goods within the city. Roads are categorized based upon the level of access and/or mobility provided. Functional classification of a roadway system involves determining what function each roadway should be performing with regard to travel within and through the city. The intent of a functional classification system is the creation of a roadway hierarchy that collects and distributes traffic from local roadways and collectors to arterials in a safe and efficient manner. Such classification aids in determining appropriate roadway widths, speed limits, intersection control, design features, accessibility and maintenance priorities. Functional classification helps to ensure that non -transportation factors, such as land use and development, are taken into account in planning and design of the roadway system. Figure 5 shows the functional classification map for the City of Stillwater. A brief discussion of the various functional classifications is provided below: Principal Arterials Principal arterials connect major activity centers to other major activity centers and carry higher traffic volumes. They provide regional connections with longer trips. Their emphasis is focused on mobility rather than access, and as such private access should not be allowed. Access on these roadways is limited and spacing of intersection points along each principal arterial varies from two to three miles for a fully developed area to three to six miles for a developing area. TH 36 is a prominent principal arterial roadway in and through the City of Stillwater area. Located at the southern boundary of the city, TH 36 connects the City of Stillwater to the rest of the Twin Cities metropolitan area. Minor Arterials Minor arterials connect urban service areas and rural principal arterials to larger towns and other major traffic generators capable of attracting trips over similarly long distances. They serve medium to short trips. The emphasis for minor arterials roadways is on mobility and spacing ranges from 1 to 3/4 of a mile in metro centers to one to two miles in a developing area. They connect with principal arterials, other minor arterials, and collector streets. Based on their function, minor arterials are further classified into A -minor augmentors, relievers, expanders, connectors, and B-minor arterials. Within the City of Stillwater, CSAH 12/Myrtle Street is classified as B-minor arterial, TH 95 is classified as A -minor collector and the following roadways are classified as A -minor expanders: • Hwy 96 from Manning Ave N to Hwy 95 • CSAH 12/Myrtle Street from Manning Ave N to Owens St • Olive St W from CSAH 5 to Owens St • E Chestnut St between 3rd St S and Main St • Orleans St between CSAH 24 and 4th Ave S Page 12 3rd Draft October 15, 2008 • • Manning Ave N between TH 36 and Hwy 96 • CSAH 5 from TH 36 to Olive St W • Owens St N between Olive St W and Hwy 96 • • 3rd Street South from Orleans St W to Chestnut St Paris Ave N between Lookout Trail N and Orleans St CSAH 24/Osgood Ave from TH 36 to Orleans St W Collector Streets The function of collector streets is to collect traffic from local roads to arterial roadways. Unlike arterial roadways, which provide more emphasis on mobility, collector roadways serve a dual function of providing both mobility and access. Collector road spacing ranges from 1/4 to % mile in a fully developed area to 1/2 to one mile in a developing area. Collectors are further broken down into two categories --major and minor collectors. The location of these collector roadways is shown in Figure 5. Major Collectors Major collectors generally connect to minor arterials and serve shorter trips within the city. Shorter trips consist of travel points within a city such as neighborhoods to neighborhoods or neighborhoods to business concentrations. In highly urban areas, they also provide connectivity between major traffic generators. A trip length of less than 5 miles is typical. These roads supplement the arterial system in that mobility is slightly emphasized over access. Minor Collectors Minor collectors provide the connection between neighborhoods and commercial/industrial areas and the major collector/minor arterial system. Access is slightly emphasized over mobility in minor collectors. Local Streets Local streets are the lowest classification of roadways. Their main function is to provide access to land uses. These roadways generally have lower speeds and serve shorter trips. Local streets generally connect to collectors and other local streets. Page 13 C .2 o co • ct ca co O y o c/ ..C,) f lu • ,^ • L C CO 0 2 3 U- 2008 Comprehensive Plan o� o� 0 0 0 0 co 0 0 0 0 0 0 0 0 cu J A Minor Reliever A Minor Expander A Minor Connector i Major Collector Minor Collector a 'o >0) L C 73 N 0 4 O ._ a � 003 co U 6 U UO 0 0 11191 -Nur gy T � C OF0 N N. L2 talAp 0 • en iIII � 2 Qo�a M IS Hit S15 H17v SIS HISe x SIS H19 u 1 3rd Draft October 15, 2008 Access Management Access management guidelines are developed to maintain traffic flow on the network so each roadway can provide its functional duties, while providing adequate access for private properties to the transportation network. This balance of access and mobility is the focal point to effective access management. "Mobility," as defined in this Transportation Plan, is the ability to move people, goods, and services from one place to another via a transportation system component. The degree of mobility depends on a number of factors, including the ability of the roadway system to perform its functional duty, the capacity of the roadway, and the operational level of service on the roadway system. As applied to the roadway system in Stillwater, the term "access" is the relationship between local land use and the transportation network or system. There is an inverse relationship between the amount of access provided and the ability to move through traffic on a roadway. As higher levels of access are provided, the ability to move traffic is reduced (Figure 6). Figure 5: Relationship between Access and Mobility P RCI POP.TI ON OF SERVICE Each intersection or driveway access creates a potential point of conflict between vehicles moving through an area and vehicles entering and exiting the roadway, also known as "crash potential". These conflicts can result from the slowing effects of merging and weaving that takes place as vehicles accelerate from a stop turning onto the roadway, or decelerate to make a turn to leave the roadway. At signalized intersections, the potential for conflicts among vehicles is increased, because through vehicles are required to stop at the signals. If the amount of traffic moving through an area on the roadway is high and/or the speed of traffic on the roadway is high, the number and type of vehicle conflicts are also increased. Types of increased crashes are rear end and right angle in nature. Accordingly, the safe speed of a road, the ability to move traffic on that road, and safe access to cross streets and properties adjacent to the roadway all diminish as the number of access points Page 15 3rd Draft October 15, 2008 increase along a specific segment of roadway. Because of these effects, there must be a balance between the level of access provided and the desired function of the roadway. In addition, studies have shown that businesses suffer financially on roadways with poorly designed access, while well -designed access to commercial properties supports long-term economic vitality. Access management is a combination of good land use planning and effective design of access to property. All land use planning should incorporate sound access spacing guidelines. Key points when reviewing access management include the followi • Adequate spacing of access points • Adequate sight distances • Avoid offset or dogleg intersections and entrances • Encourage development of turn lanes • Consider consolidating accesses or relocating accesses • Encourage proper driveway design including width, radii, and sight angles Access standards and spacing guidelines are recommended as a strategy to effectively manage existing ingress/egress onto city streets and to provide access controls for new development and redevelopment. The proposed access standards (driveway dimensions) are based on MnDOT State -Aid design standards. The access spacing guidelines for Stillwater are consistent with Washington County and MnDOT. The hierarchy of the functional classification system should be maintained when applying the access spacing guidelines to a roadway network. Since arterial roadways have a function of accommodating larger volumes of traffic and often at higher speeds, access to such facilities must be limited in order to protect the integrity of the arterial functions. Washington County Access Spacing Guidelines Through access management, Washington County strives to maintain the integrity of the roadway system by preserving the balance between safety and mobility of the roadway system. The County strives to adequately service the through traffic on a roadway with the limited ability to improve the system while simultaneously providing adequate access to serve development. The County can then stipulate the specific access spacing requirements for various county roads through plat reviews and/or specify the best location and requirements for access through their access permit process. Several benefits are established by the use of proper access management guidelines. These include a significant reduction in crash rates on highways; ensures the value of public infrastructure projects and extending the functional life of existing highways by increasing capacity, thereby decreasing the potential need for improvements. Table 3 outlines Washington County's current access spacing guidelines. It is important to note that the guidelines associated with the principal arterial classification are consistent with Mn/DOT's guidelines for principal arterials. These guidelines are also consistent with Washington County's long term goals for roadway segments. Page 16 3rd Draft October 15, 2008 Table 2: Washington County Access Spacing Guidelines Minor Arterial Principal ArterialADT > 7,500 ADT < 7,500 Collector Local Private Residential Driveway No direct access No direct access (1) (1) (1) Commercial Driveways No direct access No direct access 1/8 mile 1/8 i (1) Non -continuous Residential Streets No direct Access 1/8 mile 1/8 mile 1/8 mile (1) Local Streets and Collector Streets 1/2 mile 1/4 mile 1/4 mile 1/8 mile 1/8 mile Minor Arterials 1/2 mile 1/2 mile 1/2 mile 1/2 mile 1/2 mile Source: Washington County County reserves the right to increase the minimums based on other criteria (sight distance, speed, traffic volume, etc.) (1) Determination based on other criteria (sight distance, speed, traffic volume, etc.) City of Stillwater Access Spacing Guidelines For roads under the jurisdiction of the City of Stillwater, the City's practice is to follow generally -accepted access spacing guidelines laid forth by Washington County. The City realizes that due to various circumstances, access may be granted outside the parameters set forth in the accepted guidelines. Page 17 3"d Draft October 15, 2008 Roadway Capacity Issues The year 2030 traffic projections are used as a planning tool to help test the ability of a roadway to accommodate future volumes. In addition to the number of lanes provided, the daily capacity of any individual roadway is based upon many factors. Number of access points per mile, number of all -way traffic controlled intersections per mile, percentage of truck traffic, and the physical grade of the roadway are examples of some of these factors. For planning purposes, however, a generalized Average Daily Traffic (ADT) threshold for roadways is used. Table 4 shows the generalized ADT volume thresholds, set by Washington County, for a roadway type and number of lanes in terms of level of service. Level of service (LOS) is a qualitative measure describing operational conditions within a traffic stream, generally in terms of such service measures as speed and travel time, freedom to maneuver, traffic interruptions, and driver comfort and convenience. Six levels, LOS A to LOS F, are generally used for traffic analysis. LOS A is the best with free flow conditions and little to no delay. LOS F is the worst with congestion, long delays, and forced flow. Table 5 provides a brief description of Levels of Service. These values can be used for planning purposes. Table 3: ADT Volume Thresholds for Facility Type Facility Type Maximum A ADT Volume B at Level of C Service' D2 E 2-Lane Roadway - Without Turn Lanes 3,000 4,500 6,500 8,500 10,000 With Turn Lanes 4,750 7,200 10,300 13,500 15,900 With L Turn Lanes3 5,250 7,900 11,400 14,900 17,500 With L and R Turn Lanes3 7,500 11,250 16,250 21,250 25,000 4-Lane Roadway - Without Turn Lanes 7,100 10,700 15,400 20,100 23,700 With Timi Lanes 9,600 14,400 20,700 27,100 31,900 With L Turn Lanes4 10,100 15,200 21,900 28,600 33,700 With L and R Turn Lanes4 12,600 18,900 27,200 35,600 41,900 'ADT Volumes above LOS E maximum tireshold would be considered LOS F. 2LOS D is usually the lowest acceptable LOS allowed by most agencies within the metro area. 'Also considered the planning capacity for 3-lane roadway (one through lane in each direction with a center, two-way left turn lane) without or with a right turn lane. 4Also considered the planning capacity for a 5-lane roadway (two through lanes in each direction with a center, two-way left turn lane) without or with a right turn lane. The table above takes into consideration several roadway characteristics. These characteristics are then applied to roadway segments being compared to the values listed in Table 4. The roadway comparison parameters are listed below: • Capacity assumptions per lane • Peak hour percentages • Directional orientation • 1/4 mile all -way intersection control spacing Page 18 3rd Draft October 15, 2008 Table 4: Level of Service Description Level of Service Description A Lower volumes Little to no delay Unimpeded movement ----- B Minor delays Reasonably unimpeded operation Slightly restricted movement Mil I [ I I CEO C Stable conditions More restricted movements Speeds controlled by higher volumes ( I I l l I I 1 ® MD D Higher density traffic Volumes near capacity Some noticeable congestion I I I I I II) lD CEO ri-n l 1 [ I [ At capacity Major delays are common Lower speeds till f 1 0 1 1 1 1 1 CEO rim 1 1 1 1® [ 1 1 l o0 F Failing condition Significant delays Very low speeds with stop and go traffic ( I 1 l r 1 1 1 l 1 I 1 I I I 1[ I I II 1 1 1 i I I i f I 1 I I i I 1 I I I 1 "rill The 2030 traffic volumes, viewed in conjunction with the vollne thresholds shown in Table 4 utilize Level of Service D as an acceptable service level. Roadways that would appear to require corridor expansion consideration include: • CSAH 5 north of TH 36, • CSAH 24 north of TH 36, • Owens Street north of CSAH 5, • Myrtle Street east of CSAH 12, • Brick Street between CSAH 5 and CSAH 12 2030 perceived future volumes on these roadways are right at the LOS D capacity tolerances. CSAH 15 (Manning Avenue N) future volumes are right at capacity levels; however, this roadway is receiving capacity improvements that started during the summer of 2008. Main Street (TH 95) downtown Stillwater is already overcapacity. Relief to this roadway is slated to be addressed by a future St. Croix River crossing near the intersection of TH 95 and TH 36 south of downtown. Other roads may require some improvements pertaining to access management. Page 19 3rd Draft October 15, 2008 Transportation Issues Several transportation -related studies have been prepared for various roadway corridors in and around the City of Stillwater. The purpose of these studies was to investigate transportation/traffic concerns and interests by Mn/DOT, Washington County, and city staff and residents. In doing so, planning measures and timelines can be established in which to address these concerns and interests and right-of-way can be identified for future plans or transportation purposes. This is especially true in western Stillwater, where approximately 556 acres of net developable land exists, or about 9.6% of Stillwater's total 2030 municipal acreage. Where possible, improvements to the local roadway system should be considered prior to future development of open acreage in the Western Stillwater area. With this in mind, the city has worked closely with Washington County on the transportation element of the 2030 Comprehensive Plan in order to ensure a consistent approach to area transportation needs and goals. In addition, right-of-way needs for future transportation elements in the city will be acquired as property develops wherever possible. In general, the required right-of-way widths will be in accordance with current city practice. Typical required right-of-way widths for various street types are shown on typical street sections as presented in Figure 7. Downtown Stillwater Congestion issues in and around downtown Stillwater are magnified by the TH 36 Bridge crossing area and caused by overcapacity of traffic volumes on roadways that have limited expansion capability. This situation has also negatively affected the pedestrian experience downtown. This capacity issue has been identified by Mn/DOT and the area is scheduled to build a new St. Croix River crossing near the intersection of TH 36 and TH 95 south of downtown to divert traffic from the area. This new river crossing will cause traffic pattern shifts in and around the downtown area. At a point shortly before the completion of a final plan set for a new river crossing (within the next several years), an interim downtown traffic management plan should be created and implemented. This plan will require a large scale coordination effort among Mn/DOT, Washington County, the City of Stillwater, the local Chamber of Commerce and business owners and residents in the Downtown Stillwater area. Key Intersections and Roadway Extensions As part of Washington County's Intersection Control Ranking System (IRCS), 80th Street at CSAH 15, McKusick Rd (CR 64) at CSAH 15 and TH 96 at CSAH 15 are monitored for increased traffic control on a yearly basis. These intersections are important to the overall travel flow along Washington County Roadways. The IRCS is a program utilized by Washington County to quantitatively and qualitatively rank the importance and improvements needed for intersections under the jurisdictional authority of the County. City roadway facilities adjoining these intersections should be evaluated in the same schedule as Washington County in order to maximize potential collaborative efforts to improve city facilities. Curve Crest Boulevard and 62`"d Street Another planned roadway extension is the Curve Crest Boulevard and 62nd Street Connection. This section of roadway located just north of TH 36 between CSAH 15 (Manning Avenue) and CSAH 5 was originally analyzed in the report, "Special Area Plan North 62nd Street Area," by Bonestroo, Rosene, Anderlik & Associates dated October, 1998. This report details the need to Page 20 3rd Draft October 15, 2008 establish a frontage road between CSAH 15 and CSAH 5 as a reliever route to TH 36 as future development occurs. The report also details a signalized intersection at Curve Crest Boulevard at CSAH 5 that ties into the 62nd Street segment. ** Add simple diagram that show the general location of the connection. CSAH 5/Owens Street/Myrtle Street Intersection The location of the junction of CSAH 5/Owens Street/Myrtle Street in the central part of Stillwater positions it as a chokepoint due to the convergence of three heavily -used roadways. In addition, CSAH 5 to Owens Street is one of the few north/south routes through the city. This situation has captured the attention of both Washington County and the City of Stillwater. Washington County is currently engaged in an intersection and pedestrian study at this key intersection within the City of Stillwater. Deterioration in performance and safety concerns at this intersection inherent with its current layout and traffic control system have been noted by both the city and the county, and potential options for reconfiguration of the area should be forthcoming sometime later in 2008 from the Washington County study. Page 21 6Mp•6300sad63ZlZ90S91 900Z .0Z 4aory C) Q U) r+ CD CD U) CD C) r+ O o m rt- vs 0 3rd Draft October 15, 2008 Brick Street Brick Street is a local street in west central Stillwater that has a tendency to be utilized as a north/south shortcut from CSAH 5 to CSAH 12 for travelers attempting to avoid the intersection of CSAH 5/Owens St/Myrtle Street. Perceived overcapacity based on observation by concerned citizens and city staff has brought this section of roadway to the attention of the city. Without an immediate improvement plan for the intersection of CSAH 5/Owens Street/Myrtle Street, Brick Street is expected to continue to experience use as a cut -through route. Brick Street currently has a 36' cross section face to face of curb with one lane of travel in both directions and parking is allowed on both sides of the road. During 2007, recorded Average Daily Traffic (ADT) on Brick Street was 2500. Applying a Washington County accepted growth rate factor of 1.5% to the 2007 traffic volumes results in traffic volume estimates of 2600 for 2008 and 3500 for 2028. Comparing actual Average Daily Traffic Volumes (ADT) to Washington County street section guideline volume thresholds, shown in Table 4, details that Brick Street traffic volumes are within county recommended capacity levels for a Level of Service D on a two-lane roadway. Future traffic volume projections are still within the 8500 ADT roadway capacity volumes listed for a two-lane roadway. A discussion about widening Brick Street in order to provide optimal capacity for cut -through traffic was held with the Comprehensive Plan Steering Committee. Widening Brick Street from 36 to 58 feet allows for a three -lane section, consistent with Washington County roadway cross- section design standards. This widened section would accommodate traffic volume increases and allow the continuation of parking on both sides of Brick. While some challenges on the west side of Brick Street between CSAH 5 and CSAH 12 remain in the area of grade correction and a radio tower on the adjacent church property, the Steering Committee discussed options for the eventual widening of Brick Street and determined that the best course of action at this time, for the perceived traffic increases, would be to restripe the existing roadway as three twelve -foot lanes (center turn lane and two regular traffic lanes, one on each side). This recommendation would require that parking on Brick Street between CSAH 5 and CSAH 12 be eliminated in order to keep existing right-of-way and curbing in place (see Figure 8). This approach will allow the City of Stillwater to accommodate future increases in traffic volumes on Brick Street with a minimal initial cost and disruption to property owners. One challenge with this scenario is the displacement of current parking usage along Brick Street. Residences along Brick Street would lose the ability to park on Brick Street and would have to park along Ramsey Street West or in driveways and garages. Overflow parking from Our Savior's Lutheran Church located in the northwest corner of CSASH 5 and Brick Street would be required to move from Brick Street on days in which church services and events are held. The Church is considering expanding its current parking lot or moving parking elsewhere on its lot. Because of the ongoing County study at the intersection of CSAH 5/Owens Street/Myrtle Street, permanent infrastructure improvements to Brick Street should not be implemented until a plan has been set forth for area -wide improvements. At that time, roadway capacity needs on Brick Street should be reevaluated. At the present time, Washington County has no intention of Page 23 3rd Draft October 15, 2008 incorporating Brick Street into the county road system. In addition, current traffic levels do not justify intersection control improvements at Brick Street and CSAH 12 or CSAH 5. Figure 7: Brick Street Widening — Discussed Alternative N Church 15, 1 1 1 1 1 1 1 1 1 1 1 1 1 1 T T CR 12/MyrtleStreet Notes: - Existing street width 36' - 12' Center left turn lane - 12' Through lanes - No parking lanes Ramsey Street —12-12'--12' Widening with existing curb in place N.Olive Street CSAH 15 Washington County has identified the need to increase capacity on CSAH 15 north of TH 36 in the City of Stillwater. A technical memorandum dated, August 13, 2007 titled "Washington County Critical Needs" by SRF Consulting Group, Inc. identified the need for continuous north - south corridors through Washington County and noted CSAH 15 as a target route. Prior to this study, Washington County has programmed CSAH 15 to be improved to a four -lane section from TH 36 to '/2 mile north of CSAH 12 in 2008 (construction started summer 2008) and included the section from '/2 north of CSAH 12 to TH 96 in their 5-year CIP plan for improvement. With this widening, the intersection of CSAH 15 and CSAH 12 will receive a permanent fully actuated signal system. CSAH 12 at Northland Ave Intersection Future development and concern by neighbors related to traffic near the intersection of CSAH 12 and Northland Avenue prompted the City of Stillwater to investigate potential travel routes through the area. Initially, a north/south Neal Avenue collector from CSAH 12 to Boutwell Road N. was analyzed, but rejected because of concerns voiced by Croixwood neighborhood residents about potential cut -through traffic in their neighborhood. With adjacent neighborhood concerns in mind, Steering Committee members reviewed several alternative methods of Page 24 3rd Draft October 15, 2008 providing access to the future residential neighborhood between Boutwell Avenue and CSAH 12, while at the same time not allowing a direct through -street in the area that may encourage additional cut -through traffic through the Croixwood neighborhood. Steering Committee members support unlimited access to areas both north and south of the Northland Avenue intersection from CSAH 12 as long as no traffic from the north side of CSAH 12 can cross south over CSAH 12 and enter the Croixwood neighborhood. This preferred alternative is shown below in Figure 9. Current traffic volume levels do not justify the need for all -way intersection control at the location of this intersection. However, traffic volume could increase with future development and potentially reach levels that would justify intersection control in the future. Washington County has stated however that it has no desire to add future intersection control improvements as designed. The reason is that it would not be a full access intersection. If the county were to acquiesce and approve such intersection control improvements, their cost may have to be borne solely by the city. As proposed and supported by the committee, the intersection's features would: • Allow westbound movement onto CSAH 12 from Northland Avenue, • Restrict southbound movement from northern areas off CSAH 12, • Limit conflict points through cle*annelization at intersection, improving intersection safety, • Allow all movements from Northland Avenue (east, west, and northbound), • Is consistent with Washington County Intersection Spacing Guidelines along an A -minor expander at one -quarter mile. Fi ure 8: Northland Avenue Intersection - Preferred Alternative Access Point ITERJS Neal Avenue Extension Alternative 1 Schematic Drawing of Intersection (Option A) CSAH 12+75th Street North A DgAFr 2008 svlweter Comprehensore Plan update Page 25 3rd Draft October 15, 2008 Transit With the projected increases in population, households, and employment, the need for additional and expanded transit facilities is apparent within the City of Stillwater. With the increase in population, there will be a need for improved transit service to transport residents to the Twin Cities and other major employment areas. The transit objectives and programs listed in the first section of this chapter outline the transit needs of the city. The existing transit service in Stillwater is shown in Figure 10. The city is currently served by one express bus route (No. 294). This route provides express commuter bus service to Downtown St. Paul during rush hours on weekdays at a 30 minute frequency and serves the communities of Bayport, Oak Park Heights, Stillwater, Lake Elmo, Oakdale and 3M. There is one park and ride lot located at the St. Croix Valley Recreation Center. An informal car pool parking area also exists on TH 36 at Manning Avenue. The park and ride facility at the St. Croix Valley Recreation Center (Market Drive between Orleans and Curve Crest Blvd.) utilizes the south half of the lot and has a capacity of 100 vehicles. The TH 36 & Manning Avenue car pool area (located on the TH 36 northern frontage road just west of its intersection with Manning Avenue) has a capacity of 15 vehicles. Metro Transit also operates a dial -up service — 246 St. Croix Circulator. The St. Croix dial -up service is available within the limits of Bayport and portions of Oak Park Heights and Stillwater. It connects to St. Croix Mall and the Target/Cub Foods shopping areas. It also connects with Route 294. The St. Croix Circulator operates Monday through Friday from 8:00 am to 5:00 pm. The City of Stillwater falls within the Metropolitan Transit Taxing District. Metropolitan Council's 2030 Transportation Policy Plan has identified TH 36 as a future express commuter bus service thoroughfare. Page 26 • '• • ,•I��i i 7 A ■ OAKH I LL.Ci 0 NEALAVE N I a i NIVW Gl-E�YR` J. Ia OHIOH N 3AVTV3N $7 m! z 0 N3nv3Ntllnatlw �/ F L 111II■4•44Humiart■rr■i INHISPIIIIMIlHiri■k umermilimm :4(s.uIaliL,.II.II.II.II.II*, MAIN ST N ri4/N n 3�N IS AVMOVOHS �15151 N1515L S1515L N IS ONZ H ES N 1S SIS N IS OHE I H z NI^VHIW NVO O if] H J N o r OnNS 0 / , Pdi5 1131N N 3AV -VEN 2 N 1$ 113N3A3 N IS Wtl111M NI 131 N IS A3133 AGLE RIOGETRL I d e ee• ,N Y gs _ D®�ee 2NO J j HIGHWAY S :3WO:TOH S HAS HLl 3AG 141 A 3Atl HIS sSlS 1SL S IS ONS S IS ElE 515 HIS S IS HI9 31,10310H SI HIS NVH S SWVIIII S SWtll 0 2 ON15A3133`IOSI N IS SN3M0 9p,scs '\ N 10 ASS33 HO NTI3a31f1N1NM N3 1LI3nV me- s.. IMRN 2 SICK RC N Z a m H z 3NH no 5 HIGHS a 51. 30 W3H Hn 13SNh5 Y St SHGMO �isooIH3 SLA H3I3 z a0 3Hyl ti 7 5 A31 3S R !V 19133S13NId ▪ / tld Nl d N333 515 HIS F-� �bsll 43 I 3AG OH 3AN HI 3AG H19 m l9 r 53AV H19 S_S0NZS_SON 51505E 51 N3d 3d NSISHIN03 2 a o G C SIS HIS N3ntlN 0 • d■II■II•II S z 1T'5 5H o �w t x p�O 4 ▪ \ 2 0 NGEPR S15113/A3A] W HGIGN3n LI SON CAR ORLEANS 2 �1p\aGOOMN, yRHVpLLj" \ N7Q 4N' NL, OOv� � n�NE Oz NOR �y OAME 11IHISnONl IT C 3A'% NH3153MHI O'1)8aA 7i _ 1y z ° z NIGHTINGALE 61�V0 2 w 5 H .VHtlWO 10 L AVE 11 OVAON TI3aON':: Ni Ha03fHH /From St. Pa r AV a39 All Y ai LOQ SJ 13 N333 �IIMUMMAIlffjf.I,I 111 IIMMus aNINn Fit /N 3.0e- N01HO1 z H s 3rd Draft October 15, 2008 Aviation The closest airport to City of Stillwater is the Lake Elmo Airport located in Baytown Township (see Figure 11). The airport is owned and operated by the Metropolitan Airports Commission and serves as a reliever airport for the Minneapolis -Saint Paul International Airport. The airport has two runways under 4,000 feet long and is designed to accommodate primarily the private and recreational flyer operating single- and twin -engine propeller aircraft. Lake Elmo Airport serves the business sector with higher performance single- and twin -engine aircraft and an occasional small jet aircraft. The facility is served by a fixed -base operator and an aircraft maintenance provider. Page 28 N 3AV 1130ON Z F. 3AVONIN NO ,2, C I �� O 2 vpNSSG P � a Z O N I o ❑ J N N3AV0NCWI0 az l F N3AV 1O IMS311 a MN N 3nV s1VH �O2 N� d01ETA w 111111 � Z hl 5 r N i,1�� �7� r ,COJ J 0V�' c rilfiS nr ,v 1 ti N3 • VOA MVP N3AVVOVWVf 0 u�l (0 0N/IN n ONO N3AV ONINN W N IA 00 s N NAV0000S0 3A•-00I1N NNV1 N 3AV COO N 3ny N 3AV N33N N 3AV NV N AN NO ISIAIO NbA j'3Abi13 3AVVHV 0 N 3AV 3001NO10 N N3AV N33H ON�e IS3N0'.0N NON 3N N 3AV1V3N N N 01031 Ntl N 3AV NV10N N 3AV000 ti H NO 13H N 3AV ON 469 3IVISN CROIXVIEW OR S AV OOOANO PP/ MOAN FAIN 0 ON3NN3131 ♦ ♦ ♦ • • • NO NIA S SS HSSI. yyIG OqS a r 3AV N33NONIVO NH N 3Atl ONINNYW N 3AV ONINNVW S3AV AN 30 S3 - :nl 30 L 3rd Draft October 15, 2008 Implementation To implement the transportation plan, the city will consider the following implementation measures: To develop a coordinated transportation system that provides for local as well as area -wide traffic, the City of Stillwater will: • Develop an area -wide coordinated road improvement program with Mn/DOT and Washington County. (Program 1) • Prepare corridor/traffic studies with Washington County for the following Minor Arterials: Greeley/Owens and Third/Fourth Street. (Program 2) • Provide a collector parkway connection from County Road 12 to Olive Street. Continue to explore the Brick Street option for this collector. (Program 3) To better integrate roads into new residential neighborhoods, as well as into natural settings, the City of Stillwater will: • Develop a comprehensive streetscape plan for plantings and improvements along developed or major streets. This would have aesthetic and traffic calming benefits. (Program 4) To make it easy and convenient to travel in and around Stillwater, tie allowable new development to the capacity of roadways; limit impact of non-residential traffic in neighborhoods when possible and develop a comprehensive sidewalk, trail and bikeway system, Stillwater will: • Develop a comprehensive signage program. The program will identify key gateways into the city; will create gateway signage/monuments; will create consistent directional signage; and will direct regional traffic to downtown Stillwater via routes that avoid residential neighborhoods. (Program 5) • Provide bicycle parking, locations and attractive bicycle storage racks at key locations including parks, downtown and commercial centers. (Program 7) • Work with State, regional and other partners on a transit plan. (Program 8) • Keep up to date parking plan and parking management program for the Downtown area. (Program 6) • Consider developing a parking plan to improve the usage of underutilized public/private parking in Downtown Stillwater. (Program 9) To provide an integrated system of roads, bikeways, transit lines, and pedestrian paths, the City of Stillwater will: • Develop a bikeway system facilities plan. (Program 10) • Consider amending subdivision ordinance to require bicycle facilities according to bikeway facilities plans. (Program 11) • Develop and promote traffic safety and education programs. (Program 12) • Continue implementing the sidewalk/pathways maintenance and improvement program. (Program 13) • Develop a plan for sidewalk and trail snow removal. (Program 14) Page 30 3rd Draft October 15, 2008 • Improve the appearance of bus stops and better integrate stops into neighborhood or area designs. (Program 15) • Encourage MnDOT to provide continuous bicycle paths both along the Highway 36 frontage road from CR 15 to TH 95 and also along TH 95 from Oak Park Heights north through downtown to TH 96 at the Brown's Creek area. (Program 16) Page 31 Appendix Transportation a) -o Q � L.a) c � t a) c E CO CZ as a? 11 W Q . a)..., 0_ co C CD ' > O X coIPI in co C 2 a) a) o 2 cD _c y � (Nd) � a L � � Q � E z o 0 Brick Street Widening C 0 E na3 N Lei, o • Z2 L4- CI) O)I .-+ cm co C C C a) O -0 a -r< CD 0 a) a) a)2 4_,-• E _,_; 0 _ -0 = CO �LO c� 0 ct - a) _ o° 5fl o o 00 U Q 0 u) a) cz -5 ° -5 _c O o u) o u) CO 0 c -t -5 -. c co 0 0 0 -0 -0 o c00 .. ,O o_c 0 0 za a) 4) O La . L 8 2 a)(1) t t c _a tni _a u) o_ _c a) _C 2 C E-45 _.• a) 0 .0) L- 0) . o W •� c Z c 0 . L O � Q 1- 1- 0 . . cs)O 1— .c -2E° L •L L L O N co > OQ O 0-o`/) frt Uo oz O -5 ca co u) 1;5 0 c N U) ca O o O •N O 0 0 movement from southbound ows direct westbound movement from ws CV Cn 0 0 O Z E 0 4- Q Z 0 o_ 0 ows westbound movement onto CSAH 12 Q . O a) > Q CO 0 Z E 0 9- Restricts southbound movement from . northern areas off CSAH 12 I'd U) c . O 0 0 9- 0 0 U) E 0 . .• co N O co 0 . intersection W > C CO 0 Z movements from co cn Q Access Point CSAH 12/75th Street North onuany PUaI BJoN p c 0 . nc W N— x CO0 W> Z o to O C L- p 0 0 0- > 0 Q Q co 0 Z 0 n� W > 0 0 5 Z o co to o 0) o .= • .o 2 0) 0 x u) 0 0 U) D • W c 0 > W 0 co c - O > � Q 0 Z -a c o co 'El0 : 0 T o E o Z 0 > E 0 0 E Q . 0 ow northbound movement from Does not a . 0 c 0 > Q c co 0 Z /4 CSAH 12/75th Street North T anuany pueli.woN L a7 ct a m a) c C a) s m a E 0 0 a) a co 0 N 0 a) Q >© ti▪ o C E <C a) O • a) E C o x W 0) c c ct3 a) L Q • 0 Cz co a)E Z a) L 0 U) I- o� C 0 7 co L IL) c Q E O U CI) co co) N 0-4 (1)o a) C.; w a) o > E < < co a) a) Z O 0 0 Rd. N. and CSAH 12 but does - U O ow direct westbound movement from U z 0 a_ 6 E E c c O 2 co (13 LI-4- - Eo UD-t -00= cn�o co c a) Z O (NI a) U � � > -tE Q C6 O O P_ I -0 _c Z 4- O < C Co (I)`- W CO 2c0 }' cn 00E U O . U co Z tij c c 0 -0 17).0 0 - x c 0 U +, p a)0 }' co p >' 0 ID 5 U p c =Ea N o oc 0 z = C)N— U > N 0 Ig<D0 o) c Q 1-6 co t c 0 ..-t71 •7 C� - 0 .- 0) L w II. w fl I Q 0 O O 0 0 > Q U C6 0 0 0-4- U_ c O � U 0 w N C6 0 . c E co wU . . . Access Point CR 12/75th Street North ( a) �a c u7 m tis O 2t Z `oco z E a) o o a) ( a) m � y Ha) IL m Qa c co 0 C a) L a7 CQ C 0 U a) m U7 co CV C Q 0 C O 0 C U▪ N X L W w a Q a Q • •5 Cti W Z cla fD U U) . O U a) Lu2 a) 0 • 5 O > z _o a) O CO (13 c E a) > O o Q Q co c� L a) z - C� 7 F- Restricts southbound access from Nea Ave Extension to Northland Ave Free movements on eastbound/westbound .O a) Co U) coL. i ® Co L E O ...; 4- v 0 ' `'~ 4- >, 0 co 2 o ci ( .N N a Co c <Ec Cn •- _c owo CR 12/75th Street North z 71r enuany Pue141JoN 1—a) o. oD C C 0_ E 0 U y�y v/ co N 0 Q O C C 0 0 U X � W It Z© (0 L a) a) c -g 0 %. 0N. ,71a) ca 0 ce) Lo -i-vd ,Z Q co4* E ai 45 c o a) To' i_ Eoloo._ 2 E g ,-, a) }, a)c L Q Q co Zti (75 c o c "5"<f = > co = CD CD 2 a)a)E a)� a) Q a)�Q a)W O t a)O > O > > E) >'_ _a 0 a 0 ti < i U a) 2 Q >> _c co ca ca Q O L ENV) CO}' CD N (/) Z t O—U 2 § z W4*z O .�� ▪ eL co w a) v L rQ LaT- s 17. r0 co N Trip Generati — 13 existing housing units 7 (/) c co E a) o) o) 2 co -o a) cn o o. 2 0. cn .L. a) F— (I) co E a) 0) 0) co2 0) .X w x w L C) 2 w 1- N- Lo AM Peak Hour ti N- N- PM Peak Hour 0 CO 0 CO Weekday (ADT) cn .L. a) F— (I) co E a) 0) 0) co2 a) (/) 0 -0 L a. x w L 2 w co co CO CO O N- N N- CO AM Peak Hour PM Peak Hour Weekday (ADT) co 02 Q (ID) 2 E c� = o c > co U N t. cocm 2 cn H CSAH I2ADT CO t CO LC) O O N LO Co ti I — 1900 (2008 est.) — 2400 (2028 est.) — 7500 (2008 est.) — 10,100 (2028 est.) Washington County Roadway Capacity Standards t f�m / m#f■ =a; !■%# #!; @f!« -57.;, ° f!f E%§§ !$|$ / §§§! /;'h ' ;n §q!§ -_; • *f\/ /\/ §§ff !!■■ §g«§ M§. ts k /f)} il ))1/ fi 1/ . 44 ) ! } f } �t{YIP FAKE 1 0) I- 0 o = Q (6 Co CO Q CDO _ a)N I ._ L a) co N " O A, a) o _c O 3.) -0 > O O Co L. L U) a)a--' j a) C a) a) L (6 (I) 7 � CON � N N o a) 0 >N N— o L() 0 co�D7 o o +a CO • (I) r: C w ki) (7) 8 �>��(�O'o.. Q. QOON � -- - 2 �,D 2N U}co LLI co 7 a) en > ( 1 3 w - {�Or0 a)v)}.�NT5 8 NO O p! Na) N OC'7 a) a) N Co O�CO N. o a) a) ° -oD c�I-� _ 0 _a _a � �_ N co0 0 w N°. bbD >Cc p a)L<(6 a)E = ( <wo a OOE O O U o w 11 1 1 0_ 1-�Na) F • CR 12/MyrtleStreet Ramsey Street V ■ • w c7). 1)) 0 • J - - Y ■ I c co a) c C v Q E 0 U L CD 3 v/ CD Q N C 0 U Q) U) N O L 0 a� Cl) 0 Q O 0 U 0 C) C L 0 0 CU E U) U O N U O U N 2— -0 CZ czo_}, 0) 0- cz o 2 O U p a)coco — a)_c . > U o -0 O N N 73 o a) _a •L 2 p CDL CO cz = -0 8 _._. - a)= -P. 00 U c c _cz o Cn Q•p- co o CZ co t L 0)N U) N co - • Ea) 0 N E c CD cz N = o a) 26 co a) 82onn O .0 'c p co N p L O N p= p O O O O p o 2 2 U U -t -'Ef _c 9c2 E y2a) Luj= O — O O c O p 0 0- U Z ca 7 Z W Z U U�> .E 8 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Water Resources, Including: - Water Supply - Surface Water Management - Sanitary Sewer 3rd Draft Chapter- Water Supply October 14, 2008 Background The Metropolitan Land Planning Act (amended 1995) requires local governments to prepare comprehensive plans and submit them to the Metropolitan Council to determine their consistency with metropolitan system plans. One element of these plans must address municipal water systems. Minnesota Statute 473.859 requires Water Supply Plans (also referred to as Water Emergency and Conservation Plans) to be completed for all local units of government in the seven -county Metropolitan Area as part of the local comprehensive planning process. Additionally, Minnesota Statute 103G.291 requires all public water suppliers that serve more than 1,000 people to have a Water Supply Plan approved by the Minnesota Department of Natural Resources (DNR). An approved Water Supply Plan is also a requirement to obtain a Water Appropriations Permit Amendment from the DNR. Stillwater's Water Supply Plan was submitted to the DNR and Met Council in 2005. The Water Supply Plan consists of four parts: Part 1: Water supply system description and evaluation Part 2: Emergency response procedures Part 3: Conservation plan Part 4: Metropolitan Land Planning Act requirements. The purpose of this chapter of the comprehensive plan is to provide a summary of the Water Supply Plan. For brevity and security reasons, the more detailed document is not included in this 2030 Comprehensive Plan. Forecasts Water usage within the City has remained relatively steady during the last 10 years. In 2004, the City of Stillwater pumped approximately 721 million gallons of water into the system. Peak day water demand in 2004 was 4.7 million gallons per day (MGD). Stillwater's Water Supply Plan contains a detailed analysis of existing water usage, including historic water demand and high volume users. Water usage in Stillwater is projected to remain relatively steady and even decline after 2020 due to projection of fewer people per household as the city ages. The projected water demand for 2030 is a daily average of 2.3 MGD with an estimated daily maximum of 6.0 MGD as shown in Table _Projected Water Demands. Projections were found by using the methodology from Stillwater's Water Supply Plan. The average day projections were found using population projections and 116 gallons per capita per day (average of last 10 years). Maximum day was found by applying a factor of 2.6 to the projected average day. Water conservation is discussed later in this chapter. 1 3"d Draft October 14, 2008 Table _: Projected Water Demands Year Total Projected Population Avg. Day Demand (MGD) Max. Day Demand (MGD) Projected Demand (MG per Year) 2010 19,100 2.2 5.8 803 2020 21,300 2.5 6.5 902 2030 19,900 2.3 6.0 840 Water Supply System The City presently obtains its raw water supply from 7 wells. The City is currently developing an eighth well (well #12) on the Legends Park site with plans for it to be operational in 2009. All wells obtain water from the Jordan aquifer. The total firm capacity of the wells is 5,400 gallons per minute (gpm) or 7.7 MGD. Firm capacity is defined as the total system capacity with the largest well out of service. Because Stillwater's water source meets or exceeds all Federal and State drinking water standards, minimal treatment is required. Water from the supply wells is pumped into the distribution system, after chlorine and fluoride are added to disinfect and prevent tooth decay, respectively. Polyphosphate is also added to the water before it reaches the distribution system. Four storage facilities stabilize pressures during peak water demands and also serve as a source of water during fires or power outages. There is a total existing storage volume of 3.25 million gallons. Other Water Supply Issues Emergency Response Procedures Stillwater has prepared a water system vulnerability assessment and emergency response plan in accordance with the Safe Drinking Water Act, as modified by the Bioterrorism Preparedness and Response Act of 2002. These documents identify contacts for emergency situations, emergency response procedures, describe water sources and services areas, and provide procedures for augmenting water supplies in the event of an emergency. The Water Supply Plan identifies triggers for implementing demand reduction procedures in the event of a water system emergency. Water use is rationed in accordance with water use priorities established by state statute. These triggers and water use priorities are regularly reviewed and adjusted as needed. Demand reduction measures are instituted by the Board of Water Commissioners. 2 3rd Draft October 14, 2008 Water Conservation Plan Water conservation programs are intended to reduce the demand for water, improve the efficiency in use and reduce loss and waste of water. Conserving water can be a cost-effective way to reduce the need to construct and operate additional water supply facilities. Stillwater's water conservation goals include the following: • Maintain low unaccounted for water use • Reduce overall water use (residential and total per capita water use) • Maintain low peak day water usage Stillwater's Water Conservation Plan (contained in the Water Supply Plan) details each of the conservation goals and how Stillwater compares to "benchmark" metrics for each of the goals. The conservation plan also details existing and proposed conservation programs. These programs include: • Metering of water usage. All wells and customers in Stillwater are metered, so that Stillwater has an accurate account of water pumped and water sold. • Water audits. Stillwater regularly compares water pumped to water sold, and estimates un-metered water use (such as construction and hydrant flushing). • Leak detection programs. These are currently conducted every 2 years. • Conservation oriented water rates such as Stillwater's increasing block rate for residential meters. • Regulation and enforcement of federal, state and local regulations such as: plumbing codes, rain sensors on irrigation systems, water efficient plumbing fixtures and watering restrictions. • Education programs such as Consumer Confidence Reports and Community Newsletters. Implementation Future System Needs The future design system for Stillwater consists of the following improvements: • Additional water supply wells. The Water Supply Plan contains a more detailed analysis on the sustainability of the aquifer to sustain Stillwater's current and projected demands. • There are currently no plans to construct new storage facilities. • Additional trunk and lateral water distribution mains, added with development. Capital Improvement Plan Stillwater annually updates the trunk water system Capital Improvement Plan (CIP). The current CIP is included in Stillwater's Water Supply Plan. 3rd Draft October 14, 2008 Costs for constructing, operating and maintaining Stillwater's water system are recovered from water availability charges and water rates. 4 3rd Draft October 14, 2008 Chapter — Surface Water Management Executive Summary The Local Surface Water Management Plan was completed and adopted in January 2008 and is incorporated into the Comprehensive Plan by reference only. This plan will serve as a comprehensive planning document to guide the City of Stillwater in conserving, protecting, and managing its surface water resources. This plan has been created to meet the requirements detailed in Minnesota Statutes 103B and Minnesota Rules 8410, administered by the Minnesota Board of Water and Soil Resources. This plan is also consistent with the goals and policies of the Metropolitan Council's Water Resources Management Policy Plan, and the three watershed management organizations having jurisdiction within the City: Brown's Creek Watershed District, Middle St. Croix Watershed Management Organization and Carnelian -Marine St. Croix Watershed District. • Section 2 describes the physical setting; the history, natural resources and land uses within the City. • Sections 3 through 5 describe the regulatory agencies having jurisdiction in Stillwater, and past studies and agreements related to surface water resources. • Section 6 summarizes the inventories, assessments and modeling completed for this plan, and provides a current assessment of surface water management in Stillwater. • Section 7 lists the goals and policies identified to address surface water management needs in the City. • Section 8 summarizes current ordinances and capital projects planned to implement the goals and policies listed in Section 7. • Section 9 outlines the continued administration of this plan. Natural landscape features are a strong element in defining Stillwater's character. Figure 2.2 in Appendix A shows the topography within the City. In addition to the St. Croix River, Brown's Creek, Lily Lake, McKusick Lake and Long Lake, surface water resources within Stillwater include several more ponds and wetlands. The preparation of this plan included a full review of the current surface water system in Stillwater. The physical system was mapped to establish watershed sub -basins and runoff paths. This information was used to create a hydrologic model of the entire City, using HydroCAD modeling software. The modeled sub -basins and system layout are shown on Map 1 attached to this plan. Overall, the City has effectively managed the conveyance of stormwater runoff. Based on discussions with the City Engineer, flooding problems are localized and minor. This determination is supported by the hydrologic model completed for this plan. Portions of the City of Stillwater have water quality assessment models either completed or currently under development. As part of this surface water management plan, the three remaining basins in the City have been modeled using P8 Urban Catchment Model software. Figure 6.1 shows the basins modeled for water quality, as well as the modeler and date. Table 6.4 in Appendix B contains the P8 model results on a sub -basin basis, including watershed area, BMP 1 3rd Draft October 14, 2008 area, BMP type, and BMP percent load reductions of total phosphorus, total suspended sediment, and water volume. The preparation of this local surface water management plan also included an inventory and assessment of wetlands within the City. Wetland inventories have been partially completed by each of the three watershed management organizations (WMO) with jurisdiction in the City. The goal of this project was to provide a unified wetland management plan to facilitate the City's role as Local Governing Unit (LGU) for the Wetland Conservation Act (WCA.) In the months and years ahead, the City will face multiple challenges in surface water management. Having just applied for NPDES permit coverage, the City must now begin to implement new programs to address stormwater pollution. The governing watershed management organizations within the City will continue to implement surface water standards that impact City reconstruction and development projects. The MPCA will complete local TMDL studies that will lead to challenging implementation projects throughout the City. Growth in and around the City will put additional pressure on local surface water resources, while the aging infrastructure will require significant reconstruction and capital investment. The City has a strong interest in protecting and managing its valuable water and natural resources, recognizing the relationships between resource protection, land use management, development, redevelopment and fiscal responsibility. The goals and policies outlined in this plan are grouped by their relationship to the key issues listed below: • Section 7.2 Land Development and Redevelopment — Goals and policies to prevent flooding and adverse impacts to water resources from land disturbance and impervious surfaces. • Section 7.3 Water Resource Management — Goals and policies for managing Stillwater's wetlands, lakes, streams and groundwater, to preserve the functions and values of these resources. • Section 7.4 Management of Floodplains, Shorelands and Natural Areas — Goals and policies for managing these areas, to preserve the functions and values of these resources. • Section 7.5 Citywide Program Elements - Goals and policies for managing water resources and drainage systems on a citywide scale, to effectively achieve surface water management goals. • Section 7.6 Support of Other Agencies - Goals and policies to coordinate local surface water management with the work of watershed management organizations and state agencies. This Surface Water Management Plan is incorporated into the City's 2008 Comprehensive Plan update by reference and will be applicable until 2018, at which time an updated plan will be required. Periodic amendments may be required to incorporate changes in local practices. In particular, changes in the three applicable Watershed Management Plans may require revisions to this plan. 2 3rd Draft October 16, 2008 Chapter 8-Sanitary Sewer Executive Summary Background The Metropolitan Land Planning Act (amended 1995) requires local governments to prepare comprehensive plans and submit them to the Metropolitan Council to determine their consistency with metropolitan system plans. The local Comprehensive Plan is to include a sanitary sewer element covering the collection and disposal of wastewater generated by the community. Similarly, the Metropolitan Sewer Act requires local governments to submit a Comprehensive Sewer Plan (CSP) which describes the current and future service needs required from MCES. In March 2005 the Metropolitan Council adopted a revised Water Resources Management Policy Plan (WRMPP). The 2030 WRMPP includes the metropolitan wastewater system plan with which local comprehensive plans must conform. The method Stillwater has chosen to demonstrate its conformance is through this sanitary sewer chapter. This chapter updates the City of Stillwater's Comprehensive Sanitary Policy Plan or CSPP. The City last updated its CSPP in 1995 and described the expansion of the City's trunk system (in particular within the annexation areas extending west to County Highway 15) and the demands this expansion places on the Metropolitan Disposal System (MDS) operated by Metropolitan Council Environmental Services (MCES). MCES also uses the CSPP to determine whether capacity upgrades will be needed at the Metropolitan Wastewater Treatment Plant (WWTP). This update is necessary to reflect land use changes that have occurred since the 1995 CSPP was prepared and to reflect land use changes proposed in the Comprehensive Plan for the 2030 period. Stillwater's sewer system connects to the Met Council Interceptor 9101 at meter number 606 on the southern border. Interceptor 9101 travels south and arrives at the St Croix Valley VVVVTP in Oak Park Heights. Forecasts Table 1 present's projections of sewered population, households, and employees for the City of Stillwater, as prepared by Metropolitan Council and presented in its 2030 WRMPP. A decline in overall population is projected after 2020 due to an anticipated reduction of people per household as the city ages. 1 3rd Draft October 16, 2008 Table 1 -- Metropolitan Council Projections for Sewered Areas Year Sewered Population Sewered Households Sewered Employment 2010 18,300 7,500 11,550 20152 19,425 7,800 12,025 2020 20,550 8,100 12,500 20252 19,875 8,350 13,050 2030 19,200 8,600 13,600 'Metropolitan Council Water Resources Management Policy Plan, May, 2005 2Values Interpolated The City of Stillwater has its own sewered population projections which are shown in Table 2. These projections are based on vacant, underutilized and undeveloped parcels remaining in the City. Table 2 -- City of Stillwater Projections' Year Sewered Population Sewered Households Sewered Employment 2010 18,300 7,350 11,550 2015 19,050 7,650 12,025 2020 20,200 7,950 12,500 2025 19,650 8,250 13,050 2030 19,100 8,550 13,600 The City arrives at its projections based upon an inventory of existing underutilized lots and a mix of development densities to achieve the Metropolitan Land Planning Act obligations. The City's projections closely align with Metropolitan Council projections. The City's lower projection of households (only 500 units) will provide the City flexibility in density in the remaining undeveloped areas and further redevelopment or infill that has occurred in the downtown. 2 3rd Draft October 16, 2008 Table 3 presents projected sewer flows for the entire service area represented in Figure 1. Both Stillwater and Metropolitan Council Projections are provided. Stillwater has based average flow projections on the 2007 meter data and adding the proposed flow from the small portion of future development remaining in the City. The flow from the future development areas was generated by applying the unit rates from Table 4 to the proposed land uses. Based on the Proposed Land Use Plan, the City will be fully developed by 2015-2020; therefore this flow is carried through to 2030. Metropolitan Council's projected flows for the years 2010, 2020, and 2030 are from its Water Resources Management Policy Plan (updated 2005). The City's projections generally correspond with the Met Council projections. Table 3 -- Wastewater Flow Projections Year MCES Projected Average Flow (MGD)1 City Projected Average Flow (MGD) 2007 2.02 MGD2 2010 2.53 MGD 2.53 MGD 2015 --- 2.68 MGD 2020 2.68 MGD 2.68 MGD 2025 --- 2.68 MGD 2030 2.57 MGD 2.68 MGD 1. Metropolitan Council's Water Resources Management Policy Plan (May 2005). 2. Based on metered data The projected flows in Table 3 vary from the 1995 CSP due to a decrease in the 2010 population projections by Met Council and the City. A detailed description of the changes is described earlier in this Comprehensive Plan. 3 3rd Draft October 16, 2008 Sanitary Sewer Design Criteria The land use plan for the City of Stillwater served as the basis for the development of the sanitary sewer flow projections and analysis of the trunk system. Using the land use plan, the area of each land use was determined for each sewer district. Existing land uses used in this plan include low density, low/medium density, medium density, and high density residential, commercial, research and development(R&D)/industrial, public and open space. Several types of commercial and residential land use are proposed. For the purposes of generating sewer flows, these are lumped into the general categories. Detailed descriptions of the various land uses are found earlier in this Comprehensive Plan. Municipal wastewater is made up of a mixture of domestic sewage, commercial and industrial wastes, groundwater infiltration, and surface water inflows. With proper design and construction, groundwater infiltration and surface water inflows, often called infiltration/inflow (I/I), can be minimized. The flows due to I/I are accounted for in the analysis and design of the trunk sewer system. The anticipated average wastewater flows from the various subdistricts were determined by applying unit flow rates to each of the land use categories. The "system design" unit flow rates are presented in Table 4. For all land uses unit rates/acre were used to generate average flow projections. The units per acre assumptions for Low, Low/Medium, Medium, and High Density Residential, Commercial, R&D/Industrial were based in part on information from the 1995 CSP and City staff regarding projected number of units for each land use. Open Space was assumed to not generate any sewer flows. Table 4 -- System Design Wastewater Unit Flow Rates Land Use Type Gal/Unit/Day Units/Acre Gal/Acre/Day Low Density Residential 340 3 1,020 Low/Medium Density Residential 300 4.4 1,320 Medium Density Residential 280 6 1,680 High Density Residential 190 15 2,850 Commercial -- -- 1,300 Institutional -- -- 500 4 3rd Draft October 16, 2008 Land Use Type Gal/Unit/Day Units/Acre Gal/Acre/Day Downtown/MU -- -- 2,000 R&D/Industrial -- -- 2,000 Stillwater's "system design" flow projections originate from the land use statistics based directly on the land use plan. Certain reductions in land use area are made to account for wetlands, steep slopes etc. and a net developable acreage for each land use category is thus created. The net acreage is multiplied by standard unit flow rates to obtain an average flow for each sewershed. Sanitary Sewer Trunk System The trunk sewer system layout for the City of Stillwater is presented on the Trunk Sewer System Map, Figure 1. This map shows the main sanitary sewer districts, existing and proposed trunk sanitary sewers, and existing and proposed lift stations and force mains. The modeling of the sanitary sewer system was based on a variety of parameters, such as: land use, population density, standard wastewater generation rates, topography, and future land use plans. Based on the topography of the undeveloped areas, the sewer subdistricts were created and the most cost-effective locations for future trunk line facilities were determined. The location of smaller sewer laterals and service lines are dependent upon future land development plats and cannot be accurately located from a study of this type. Both the existing and proposed pipe systems were evaluated and broken up into design segments. Each end of a design segment has a node assigned to it. The nodes were designated for the following reasons: 1. Flow from a subdistrict entering the pipe network. 2. Significant grade change has occurred. 3. Change in pipe size. 4. Two or more trunks connect. 5. Manmade elements (roads, railroads, etc.) affecting location and installation costs for the trunk system or lateral service of the subdistricts. 5 3rd Draft October 16, 2008 The proposed alignments shown on the Trunk Sewer System Map generally follow the natural drainage of the land to minimize the use of lift stations and consequently provide the City with the most economical ultimate design sanitary sewer system. Minor adjustments in the routing and size of the trunk facilities will take place as determined by the specific land use and development conditions at the time of final design. Any such adjustments are expected to deviate minimally from this plan. Each subdistrict contains at least one collection point where the subdistrict's sewage is defined to enter the pipe network. Upstream of that collection point, a lateral network of 8" gravity lines can serve unserviced areas. Table 5 represents capacities of existing and proposed trunk pipes shown on Figure 1. Table 5 — Capacity and Design Flows for Trunk System Node Pipe Size Pipe Slope' Capacity Average Flow Peak Flow2 From To (in) (%) (MGD) (MGD) (MGD) 5-1 S-2 24 0.08 5.0 1.412 4.236 S-3 S-4 FM -- -- 0.713 2.353 S-4 5-5 27 0.067 6.2 0.207 0.788 5-5 S-6 30 0.058 7.6 0.088 0.353 S-2 S-6 30 0.058 7.6 1.449 4.201 S-6 M606 36 0.046 11.0 0.284 1.052 1) Where data was not available, minimum pipe slopes have been assumed based on Ten States Standards 2) After applying a standard peak flow factor As shown in Table 5, all sanitary sewer trunk pipes have adequate capacity for the peak flows. The majority of the sewer system for Stillwater was originally designed to accommodate both sanitary sewage and stormwater runoff. Sewer separation was accomplished in 1972 and 1973 throughout the original city. The remaining sewer was designed to serve sanitary sewage only. Since the older sewer was designed as a part of the combined system, the majority of the sanitary sewer has excess capacity as illustrated in Table 5. The City of Stillwater is committed to the proper design, location, installation and ongoing maintenance of ISTS. The Stillwater Code requires that all new systems be installed according to Minnesota Pollution Control Agency (MPCA) rule 7080 permit requirements. Groundwater conditions, soil borings, distance to surface water, percolation tests, and design and type of ISTS are further factors included in the developer's site evaluation. Permitting and maintenance is 6 3rd Draft October 16, 2008 handled by Washington County due to the small number of onsite systems. There are no private onsite treatment systems, except in the northeast area of Stillwater. Infiltration and Inflow The City of Stillwater has a proactive program directed at identifying and correcting Ill, including the following: • From the City's ordinance first passed in 1973: Sec. 29-5. Prohibiting deposit of stormwater in sewer system. Subd. 1. Discharge of surface water. No person shall discharge or cause to be discharged any stormwater, surface water, groundwater, cooling water or industrial process waters into any sanitary sewer. No rainspout or other form of surface drainage and no foundation drainage shall be connected to any sanitary sewer. Subd. 2. Inspections. The public works director and other authorized employees of the city, bearing proper credentials and identification, shall at reasonable times be permitted to enter upon all properties connected to the city sanitary sewer system or the city storm sewer system for the purpose of inspection, observation, measurement, sampling and testing. Subd. 3. Separate connection required. When separate sewer mains and storm sewer mains have been constructed and are available to property, the owner of the property shall take all action to separate the sewers and connect them separately to the sanitary sewer and the storm sewer in accordance with the provisions of this section within 90 days after the date of mailing or delivery of official notice to do so. The notice shall be given to the owner or occupant in writing by the public works director on the order of the city council. Subd. 4. Interceptors. Grease, oil and sand interceptors shall be provided when they are necessary for the proper handling of any liquid waste containing grease in excess amounts of any flammable waste, sand or other harmful ingredients. Interceptors shall be located so as to be easily accessible for cleaning and inspection. If necessary, in the opinion of the public works director, a suitable control manhole in the building sewer shall be installed to facilitate observation and sampling of the waste. The manhole shall be constructed by the owner in accordance with plans approved by the city engineer. The owner shall maintain the manhole so as to be safe and accessible at all times. The owner shall take action to install the interceptor in accordance with this section within 90 days after the date of mailing or delivery of notice to do so. The notice shall be given to the owner or occupant by the public works director on the order from the city council. Subd. 5 Connection by city. Whenever any owner or occupant fails to comply with the written notice, the city council shall, by resolution, direct that the sewers be separated and installed and connections made with the sanitary and storm sewer systems or that a grease, oil and sand interceptor be installed, and the cost of the installation be paid in the first instance out of the general fund, and then assessed against the property benefitted in accordance with subdivision 6 of this section. Subd. 6. Assessment. After the installation and connection have been completed pursuant to city council resolution, the clerk shall serve a written notice of the assessment upon the owner or the owner's representative directing the owner to pay the assessment to the treasurer within ten days. If it is not paid, the clerk shall certify the amounts to the county auditor for collection in the same manner as other special assessments and real estate taxes. The city council may, by resolution, spread the assessment over a three- year period. (Code 1980, ,¢ 29.05,' Ord. No. 755, 4-8-92) • 20% of the City sanitary sewer lines are televised annually for potential Ill sources. 7 3rd Draft October 16, 2008 • Five total flow meters are set up to identify areas of town with potential inflow. • Replacement of vented sanitary manhole lids (estimated 10-20 replaced annually) • Visual inspections of manholes in low lying areas to assure lids are sealed. • Installation of external manhole seals on all new sanitary sewer manholes and replacement of seals and castings on street projects (estimated 30-40 annually). • Ongoing annual review of flows to develop the next stage of improvements. The City spent over $206,000 on I/I reduction measures in 2007. The Metropolitan Council has instituted its Inflow/Infiltration Surcharge Program since Stillwater's previous plan. The fundamental policy statement summarizing this program is that Metropolitan Council "will not provide additional capacity within its interceptor system to serve excessive inflow and infiltration." The Council establishes inflow and infiltration thresholds for each of the communities that use its system. Communities that exceed this threshold are required to eliminate this excess flow within a reasonable timeframe. The Metropolitan Council annual I/I surcharge for the City of Stillwater is $84,000. The City has been able to show adequate progress through its numerous programs to reduce I/I over the past two years to not be charged. 8 If ) 0 State Hwv 96 - • • S1 S • • )i •• • a3 r • • • a ♦ • • • • • • •• • • • • •• • • •• • R 62nd St 15 1,6 • CSW 1 1 I� I I � i I • Jj • 24 e. S6 s C 8 1k) " N 12 12 • k2 3 21 12 a 8 8 • tq 24 80 24 r 4 ; 10 151Auil kb r P II. 47 1 O r co • co CO 0 N • d0. - e ED 66 co N • N CO b N N 77 12 12 1t 8 8 1 • P • Gravity Pipe + Manhole Existing City Gravity Truric Pipe 0 Lift Station Forcernan Met Council Meter M606 I City Boundary parcels 1.11.11 � Sanitay Districts • Sanitay Node s-i Sanitary Node ID SI Sanitay District Number ii water. 7HE BIRTHPLACE OF MINNESOTA Figure 1 Truck Sanitary Sever Map June 2008 3,000 1,500 N 0 3,000 Feet •� Bonestroo I: \510\51007001 \G S\avprcj ects\sanitarysysterr062008. rrxd Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Community Resources 3rd Draft October 16, 2008 Chapter — Community Resources Stillwater is a full service community, home to many facilities enjoyed and used by the public. It is home to some of the county's larger facilities including the Washington County Government Center and Lakeview Hospital. It is also home to numerous local institutional, recreational and municipal facilities and services. Each of these facilities does their part in providing the necessary services to support residents in the community and beyond. Most of the city's public facilities are identified on Figure _, Public Facilities Map and are discussed in more detail below. Goals and Policies During the Comprehensive Plan process the City of Stillwater worked with citizens to develop goals, policies and programs for the public facilities and services provided by the city. Goal 1: Efficiently provide quality city utility services at a reasonable cost. Goal 2: Make sure there is adequate supply or capacity of service to accommodate future development. Goal 3: Develop water resource conservation measures to preserve the Jordan aquifer as the city's only long-term source of water. Goal 4: Provide new facilities that meet the needs of Stillwater residents first. Allow other units of government; school district, Washington County or joint powers groups to serve broader area -wide populations. Goal 5: Provide fire and police department facilities to adequately respond to needs within the entire service area. Policies Policy 1: Routinely review city-wide needs for city facility maintenance and new construction improvement and program those improvements in a capital improvements program. Policy 2: Coordinate public facility improvements with preparation of neighborhood plans, i.e., special streetscapes, neighborhood parks, sidewalk or trail improvements. Policy 3: Provide water and sewer services to areas only as urbanization occurs. Policy 4: Coordinate the provision of urban services: water, sewer, storm sewer policy, police and fire protection with adjacent local governments to provide more efficient services and save costs. Policy 5: Plan for the phased expansion of public services and facilities consistent with the growth and expansion of the Orderly Annexation Area. 1 3rd Draft October 16, 2008 Policy 6: Work with the school district to plan for future school facilities while maximizing the use of existing facilities. Policy 7: Coordinate orderly annexation extension of municipal urban services with comprehensive plan proposed land use. Programs Program 1: Continue to administer pavement and sidewalk management programs for the existing city. Program 2: Implement a conservation and emergency management plan for the city. 2 N VI 011 N LC) - J ll■,:i' Fi III °III •�••� St. Croix River p'•�..�•�.••_��_.._.._.._.._.._..►..�••� park L°w e Q ■11'1 II111�' L■*won mliii mob c U r- � Y .0 L • • tla 46 v gat , �y0 )r YI i � .�/ j f Ir 77=7=7 ••�. c c- 1 �� v 05/ `2 a Yc 11111 1111 1111 E U� I� °_ a Ian L' S N anti l a m as N 111111 N cUt4LtSjilt II1�.L U- i 0 m a a 3 70 Y °°MN E: I 0 kwh / i" A g :is 71! "Iv 0, M L L n ■ i is ftINIF_ tarnum.rp s,, Ani 1 Babia • _• _.•_.._.._ J: 2 U eo v-N _= -. F S 0 as S omit �9 N S S 3 is Na 1SwerlIMN co NollI�1 Si u ) H t U 0 -41 ri s"`5'- �y - w c 0 T st da _ ufion T U O a T tic t+ '���■,f 1. y 1: = 0 I mil v w St 7 J 3 St U a Nacn _ IHT o ', 1SNIL S0 W C 'kW I N3 N- 0 • ��;fit 0 N III �L1JI nL▪ r` 1� _ IIIII 11� 1_v m" IIII 1� a 1 »ter MIN N■ •. l,nr� -. d5 e4Pelm D I. Y �aR3 A 2 ■ a 0 d r11 1E _ �n�l - 1S WeIIIIMS ¢ a zl IlhlLII ui1� 1S Falaa�`0 N � O L DEI c 111laas liL-1 q Fo -1 N 1 c � �rN 1S awmpa4STNi l I N � � I I 111 ' S jaluaH S 0 4s anosO S LL N 0 0 T co 5 N w 3 c 0 • y 7 w D 1S suann0 S Q1 x oaaa PH S lv II ME N 0 11. 5 419 s m �Lo N 7 L70 a N O O S <.11a�an3 1 a N MEN In f F E O Y rEq La 1Srvi 8S ° 1 1 I `., L nI �i•155vivv 0' Y� I I V I raLL0_ o10`�-r.2 ' ,III -i L W)f(• ...../ �IJJI 0 ▪ JTN 'D m • 1S 1sa Lii c Y1r!JJ m Z - Y n n CC o a a 2 s L J O o a ▪ Darrell Ct ❑ m` At `!' 5 o1V9r o �1tyxn o l •11I � u ._.._..;.1_.... 1. N Y 0s- P7 ° al ▪ U 0- �Lj N S �11narA�e�l •_.n • to N 0 Y 1S0p01waHS:i L P-� ka pooMa6p3 a e� ICh Northland Ave • In nr� t rll m 0 0 N Y 3a In 7 N ■ N Y aN co N C 0 ma J lf) �/, 7 LL, no afivani - In 'I III'. any unalsanngiso N L 0 J CJ FDI H I JQt • ■ 3rd Draft October 16, 2008 City Services and Facilities Public Works The Public Works Department is responsible for the maintenance of the city's infrastructure, park system, and capital improvements program. The Public Works Department is split into two areas, Engineering and Public Works and has 27 fulltime employees with the assistance of eight seasonal employees during the summer months. A variety of services are provided by the Public Works Department and Engineering Department, which include: • Repair, patch and plow 90 miles of streets. • Maintain 120 miles of sanitary and storm sewers. • Operate 12 sewer pump stations. • Maintain and upgrade over 30 city parks, 400 acres of parks and public open space. • Replace and care for over 3000 city traffic signs. • Trim trees and brush on city right-of-ways and parks. • Prepare and cleanup Stillwater special events. • Annual street and sidewalk reconstruction projects. • Update Pavement Management Program. • Provide emergency response and preparedness for disasters. This work is done with standards to maintain Stillwater as a very desirable place to live and do business. Fire Department The Fire Department is located adjacent to City hall on 216 North Fourth Avenue and is responsible for protecting a 61 square mile area and a population of approximately 22,532 people. The Department is configured as a combination Fire Department with eight full-time staff and 30 part-time paid -on -call staff. Services provided by fire personnel include: fire suppression, code enforcement/inspections, fire prevention/education, fire investigations, technical rescue, and first responder EMS services. As the city continues to expand westward, meeting the six minute response time the department has as its goal is becoming more difficult. Thus, the city completed a Fire Service Delivery Studyin 2005 to determine what will be necessary to ensure adequate service is provided for all areas of the city. One option that the city has been exploring is a replacement Fire Station that is more centrally located. A new central location is also important as Stillwater services not only the city but also has contracts to serve Stillwater Township, two- thirds of the City of Grant, and half of May Township. 4 3rd Draft October 16, 2008 Police Department The Police Department is located in the lower level of City Hall at 216 North Fourth Street. The department includes 23 full-time officers, 1 part-time officer, 3 full-time non -sworn employees, 4 part-time non -sworn employees, and 10 volunteer non -sworn employees (reserves). The service areas of the police department is the city limits. The police department offers numerous services including gun safety classes, vehicle lockouts, speed trailer, vacation/house watch, car seat safety inspections, crime prevention, and commercial/residential alarm checks. City Hall Stillwater City Hall is located at 216 North Fourth Street. The original building was constructed in 1966 and renovated and expanded in 1997. The City Hall is home to the Fire and Police departments as well as Finance (5 full time employees), Administration (6 full time employees), Planning/Community Development (5 full time employees), Engineering, and Parks. The Mayor has an office in City Hall and all City Council and City Commission Meetings take place in the City Council Chambers. Stillwater Public Library The Stillwater Public Library was established in 1897. The original building was constructed in 1902 on the current site with funds provided by the Andrew Carnegie Foundation. An addition was built in 1973 with financial support from the Margaret Rivers Foundation. The building was completely renovated in 1987. In March 2005, the City Council formally approved a resolution to provide city funds of $5 million towards a library renovation and expansion project, and authorized the Library Board to proceed. Matching funds to complete the project came from the generous support of foundations, corporations, and individuals in the Stillwater community. Groundbreaking for the project was in September 2005. Construction was completed in the fall of 2006. The library reopened at the Third Street site on September 18, 2006. Features include: • Stillwater's 100 year old Carnegie library has been preserved while adding space in a sympathetic fashion. • The underground parking ramp provides convenient parking no matter what the weather. • With its splendid view, the roof terrace is the site of relaxed reading and exciting programs and available for rent for special events. • There is more space for shelving, seating, computers, and study. • The St. Croix Collection of local history is now open whenever the library is open. 5 3rd Draft October 16, 2008 • Teens have their own area with seating, computers, and a group study room. • The children's library has its own program space for story times, class visits, and homework. • The library has more automated features and greater staff efficiency. • The enhanced library is better able to serve all ages and segments of the community. The St. Croix Collection The St. Croix Collection is the local history resource of Stillwater Public Library. Focus of the collection is Stillwater, the St. Croix Valley, and Washington County, Minnesota. A variety of materials make up the collection, including books, photographs, maps, clippings file, audiovisual items, and more. Additional resources helpful to the Stillwater history researcher are available in the regular reference collection and circulating collection of the library. Public Works Facility The Public Facility is located at 3325 Boutwell Road located in the western part of Stillwater, south of Boutwell Road and east of Manning Avenue. Constructed in 2002, the facility was designed to house public works offices, maintenance vehicles, equipment and machinery. Great care was taken to design the structure to fit into the landscape and agricultural/rural atmosphere of the surrounding area. Add PIC Park and Recreational Facilities Parks and Recreational facilities in the City are discussed in chapter Parks and Trails. Other recreational facilities located in the city include two privately owned golf courses, Oak Glen Golf Course and Stillwater County Club, both located on the northern portion of the city. The St. Croix Valley Recreation Center is located east of County Road 5 and north of Curve Crest Boulevard and provides facility space for hockey, figure skating and open skating. The dome space is used for social events, soccer, lacrosse, softball and baseball. The facility is home to the Stillwater Area Hockey Association and the Mahtomedi Area Hockey Association. The facility was constructed in 1997 and is operated by the City of Stillwater. Add PIC School District Facility and Property Minnesota's first schoolhouse was built in Stillwater in 1848, a year before Minnesota became a territory. Located on Olive Street between Second and Third Streets, the schoolhouse was a one - room building with cracks in the walls. Stillwater became the State's first school district just two years later, a full four years before the city of Stillwater was incorporated. This district, now known as Stillwater Area School District (834), stretches for 30 miles along the West bank of St. Croix River from Afton to Marine, with the school district office located in the city. As the oldest K-12 public school district in the state, it serves over 9,300 students, which makes it the 17th largest in size among 343 public school districts in Minnesota. The district includes 13 cities and five townships. There are four elementary schools located in the Stillwater city limits along with Stillwater Junior High School. The Senior High School is located just across the border in Oak Park Heights along 6 3rd Draft October 16, 2008 Highway 5. Many of these local schools contain athletic fields used by athletic associations for youth sports. The city desires to see this cooperative effort continue to ensure facilities are used efficiently. The Jaycee's Fields, north of W. Myrtle Street, and the Old Athletic Fields located on South Sixth Avenue contain softball/baseball fields, soccer fields for area athletic associations and adult leagues. Other Facilities Lakeview Hospital Stillwater is home to Lakeview Hospital located on 927 Churchill Street. Lakeview Hospital is the second oldest hospital in the state of Minnesota. Starting in a two-story house in Stillwater, Lakeview Hospital began in 1880 by a group of twelve women. Due to its successes, a new hospital building was built at the corner of Greeley and Anderson Streets in 1892. In 1958, Lakeview Memorial Hospital Association was incorporated into a voluntary non-profit Minnesota corporation. This association served as a vehicle to raise money for the construction of a new hospital, which began in 1959 and was completed in 1961. The new 67-bed hospital was a showpiece for years as the first hospital in the United States to use a circular design in its patient care units. Lakeview celebrated the grand opening of a major addition in the 1990's. Today, Lakeview is licensed for 97beds. Stillwater Water Department The Water Department is owned and operated by the city but is under the control and management of the Board of Water Commissioners and located at 204 North Third Street. The Water Board is responsible for day to day operation of the city's water supply which maintains 92.23 miles of water main (2007), seven wells with one addition in the near future, and four water reservoirs. The purpose of the Water Department is to do any and all things in and about the city which it may deem necessary for the proper sanitary, healthful and economical operation of all water works. Washington County Government Center The Washington County Government Center located just north of Highway 36 and east of S. 2nd Street is home to all the administrative services of Washington County including the courts. Washington County Historic Courthouse In the aftermath of the Civil War, Washington County turned its attention to rebuilding and westward expansion. Lumber prospects in the St. Croix Valley never looked brighter. The opening of the new county courthouse in 1870 was cause for celebration. Located on "Zion's Hill", it overlooked the bustling commerce of Stillwater 3rd Draft October 16, 2008 and the river. Its grandiose exterior reflected the wealth of the Valley. Designed by Augustus Knight of St. Paul, the courthouse favored the Italianate style of architecture. Limestone foundation and brick facade were capped by an imposing dome, cupola, and flagpole, which soared as a landmark above the river city. Jutting skyward were eleven chimneys, necessities for the potbellied stoves that provided heat for the building. The courthouse complex, which included the jail and sheriff's residence, served as the administrative and judicial center of the county for over a century. In 1971, the Washington County Courthouse was placed on the National Register of Historic Places, as the oldest standing courthouse in the state of Minnesota. In 1975, the County offices moved to a new location along Highway 36 and plans were underway for an adaptive re -use of this old building. Implementation To implement the public facilities and services plan, the city will consider the following implementation measures: To routinely review city-wide needs for city facility and maintenance and new construction improvements and program those improvements in a capital improvements program the City of Stillwater will: • Continue to administer pavement and sidewalk management programs for the existing City. • Implement a conservation and emergency management plan for the City. 8 Council and Commission Review Draft City of Stillwater 2008 Comprehensive Plan Update Implementation Plan Third Draft October 13, 2008 Chapter 11: Implementation Plan Introduction The Comprehensive Plan is a valuable tool to guide the development and redevelopment of land in the City as long as the visions, goals and policies called out in the Plan are implemented. The purpose of this implementation chapter is to identify the specific strategies and action items that the City will undertake, over the course of several years, to ensure that the programs and policies established in the Plan are reflected in the decisions of the city. Most chapters of the Comprehensive Plan contain implementation items. These chapter -specific items are the detailed policies and programs that are proposed to carry out the goals and objectives of the individual chapters. The purpose of this Implementation Plan chapter is to provide in a single chapter the collected implementation statements identified throughout the Plan. Implementation Tools Official Controls Official controls, such as zoning regulations, subdivision regulations, and the zoning map, are required by state law to be consistent with the Comprehensive Plan. These controls represent the rules and regulations that govern city decisions related to growth and development. Updates to the official controls will include the following items: • Amend the official zoning map to be consistent with the land use designations of the 2030 Future Land Use Map (Figure 1). • Review and update if necessary the existing residential zoning district requirements and subdivision regulations to ensure that the densities envisioned in the Plan can be achieved. • Review and update design standards if needed to ensure high quality residential, commercial and industrial development in the community. • Review and update the zoning and subdivision ordinances to reduce impediments to affordable housing. • Review and update as necessary the park and trail dedication requirements to ensure appropriate amount of dedication for developing parks and trails. Other Policy Plans The Comprehensive Plan also refers to other policy documents that the city uses to manage and construct municipal systems such as sanitary sewer, water supply and distribution, and surface water management. These documents include transportation studies, the Comprehensive Sanitary Sewer Plan, the Comprehensive Water Supply and Distribution Plan, the Storm Water Pollution Prevention Program, the Local Surface Water Management Plan and several water quality studies. These documents are the specific ongoing implementation tools for achieving their respective portions of this Comprehensive Plan. 1 Third Draft October 13, 2008 Capital Improvement Plan State law requires that the Implementation Plan chapter for the Comprehensive Plan contain a capital improvement program (CIP) for transportation, sewer, water, park and trail facilities. The city's current CIP is incorporated by reference into this Comprehensive Plan. The CIP is a five year program that identifies budgeting priorities for capital projects. Intergovernmental Coordination Implementing the Plan will require coordination with many municipalities, counties, agencies and organizations. Stillwater is located within Washington County and also: • Is adjacent to three municipalities and one township (Oak Park Heights, Lake Elmo, Grant and Stillwater Township). • Lies within Independent School District 834 (Stillwater Area School District). • Is divided amongst three watershed districts (Brown's Creek Watershed District, the Middle St Croix Watershed Management Organization, and Carnelian -Marine -St. Croix Watershed District. • Is served by State Highways 36, 95 and 96 as well as numerous county roads. • Borders on the St. Croix River, a National and Scenic River. Continued coordination with these entities is integral to ensuring successful implementation of this Plan. Public Education and Outreach The entire Stillwater community will be affected by the Comprehensive Plan and the public's involvement in supporting and helping achieve the Plan's vision and goals is critical. Public involvement began with an extensive visioning and goal identification process. That involvement will be encouraged to continue through education and outreach tools such as the city's website www.ci.stillwater.mn.us, the city newsletter, publications, public hearings, community or neighborhood meetings, and special advisory panels. Major Implementation Items Implementation items are identified in most of the Comprehensive Plan's chapters. The following is a presentation of these items and initiatives.' Note however, that the water resource elements (sanitary sewer and water supply) are included in the CIP (Appendix B) and not in the list above. Also, a Local Surface Water Management Plan was adopted by the city in January 2008 and approved by the Metropolitan Council. That plan has been used by reference in discussions within the Natural Resource and Surface Water chapters of this Comprehensive Plan. Though the extensive and detailed implementation section of that surface water plan is not repeated here in this Comprehensive Plan, it is incorporated within the CIP. Likewise, the Downtown chapter of this Plan was prepared with a very specific implementation section and that is not duplicated here either. 2 Third Draft Land Use October 13, 2008 • Regularly monitor development and redevelopment to determine whether impacts are as anticipated and determine whether changes are needed in land use plan policy to achieve Comprehensive Plan goals. • Develop a buffering plan that identifies the city's various buffering needs and provides examples of the types of buffering that could meet those needs. • Require all developers and builders to provide evidence that they satisfy buffering guidelines. • Work with future developers to ensure adequate and appropriate park land and trails are developed based upon the Park and Trail plan. • Ensure design guidelines are in place or updated to promote high quality architecture and site design in all residential, commercial and industrial districts. • Encourage use of innovative development concepts, where appropriate, such as mixed use development and cluster housing to provide life cycle housing opportunities, minimize the need for and use of the automobile, protect natural resources and maintain open space. • Update zoning and subdivision guidelines that are intended to sustain Stillwater's unique natural features. • Utilize information from the site analysis in Appendix A and work with future developers of those properties to protect and maintain important resources. • If necessary, create conservation design or incentive ordinance to preserve resources while allowing and supporting development and densities as guided in the land use plan. • Develop an overall planting plan for the greenbelts located in and around the city. 3 Third Draft Housing October 13, 2008 Promote housing rehabilitation • Support and promote housing rehabilitation programs for existing owner -occupied homes and rental buildings in both historic and other neighborhoods. This includes promotion of county, state and non-profit programs. • Support and promote First Time Homebuyers programs to assist new homeowners entering the market for existing homes. • Utilize the city's website, newsletter and other sources for promotion and advertising of housing programs. • Study the feasibility of establishing a program to require a property inspection and disclosure report before residential property changes hands. • Adopt a rental licensing program and maintain enforcement efforts. Special Needs Housing: Improve the availability of affordable housing and senior housing. • Seek housing developers to work cooperatively with the city to construct affordable units. • Participate in the Livable Communities Act Local Housing Incentives Program. • Consider designating a portion of Tax Increment Financing to fund activities that increase new affordable housing. • Utilize techniques, such as land trusts, to maintain long-term affordability. • Partner with, support and market programs offered by the county, state, MHFA, federal government and non -profits to fund the development of affordable housing. • Complete an assessment of senior housing needs in the community. New Residential Development: Promote a wide range of housing types, styles, densities and choices to meet life cycle housing needs. • Rely on the land use plan as a tool to provide a variety of residential types in a range of densities, concentrating higher density opportunities along major transportation and transit corridors and around future job centers. • Review the zoning ordinance and subdivision ordinance to remove impediments to affordable housing as necessary. • Periodically review land use regulations to determine the effectiveness of current ordinances in encouraging additional affordable units as well as encouraging modifications to keep the existing housing stock desirable and livable. • Ensure that all new housing, including high density, adheres to high standards of planning, design and construction. • Allow the creative use of site planning or PUDs that provide flexibility for development containing affordable housing such as a reduction in lot size, setbacks, street width, floor area and parking requirements. • Encourage innovative subdivision design including clustering techniques to preserve open space or natural features. 4 Third Draft October 13, 2008 Natural Resources To create a natural resource open space system that preserves, protects or restores environmental resources, the City of Stillwater will consider: • Preparing and adopting an official greenway corridor plan. • Maintaining an inventory of all ravines and remnant lands in the existing city and developing a policy regarding ravine management that balances ravine usage amongst natural resource protection, public utility and open space/recreation opportunities. • Reviewing ownership of ravines and remnant land and obtaining control over such lands through fee ownership, open space easement, utility easement or resource protection regulations. To use the natural resource open space system to connect open spaces, parks, activity centers and neighborhoods, the City of Stillwater will consider: • Requiring developers to submit natural resources information for all preliminary plats. • Requiring protection of the natural resource areas identified on the NRI maps as open space or parks if they are located within the proposed development area. • Ensuring open space resource areas, including sensitive natural resource areas, are identified and incorporated into development design. • Improving public access to the river. To provide opportunities for enjoyment of natural resources within all areas of the community, the City of Stillwater will consider: • Developing environmental education programs in natural areas to study plant and animal communities. • Providing education and resources to homeowners on what they can to on their property to protect natural resources. Economic Development To increase the tax base and provide opportunities for economic growth for Stillwater and Stillwater area residents, the City of Stillwater will: • Protect the city's industrial land base for industrial development. • Consider using tax increment financing to assist major new investment in the Stillwater West Business Park. To promote and maintain the downtown as a central focus for community economic and cultural activity, the City of Stillwater will: • Consider using tax increment financing to assist major new investment downtown. • Encourage downtown as a relocation destination for successful businesses. • Encourage small locally owned business particularly in the downtown. • Promote office and service job locations in and around the downtown. 5 Third Draft October 13, 2008 To provide new locations for job growth in close proximity to housing and with convenient access, the City of Stillwater will: • Designate land for commercial and industrial uses properly located with adequate support services to accommodate future forecast and anticipated economic development. • Designate the Bergmann farm area (northeast corner of Trunk Highway 36 and County Road 15) for research and development office industrial park as a part of the proposed land use plan. • Encourage a mix of employment, multifamily residential and retail and service activities in and around the West Business Park area. To promote tourism consistent with retaining Stillwater's unique natural resources and historic and architectural character, the City of Stillwater will: • Work with the Stillwater Area Chamber of Commerce and Convention and Visitors Bureau in promoting downtown activities and improvements. • Support year around activities that enliven the downtown public and cultural life. • Maintain public facilities so that the downtown is an attractive place to visit. • Consider establishing incentive programs for rehabilitation of older buildings. • Continue to use design review guidelines and process to ensure new development and renovation is consistent with the historic character of downtown. • Construct a new public parking ramp in Downtown Stillwater for employees and visitors. • Support the downtown Parking Commission as advisory group for managing downtown parking. 6 Third Draft October 13, 2008 Historic Resources To strengthen the city's historic resources, the city will: • Incorporate into decisions the designated historic contexts as the official overview of the history and development in the City of Stillwater. • Expand education efforts and promotion of the Heirloom Home and Landmark Sites Program. • Continue conducting historic preservation surveys in the city's following Historic Preservation Planning Areas (HPPAs): o 2011: North Hill HPPA o 2012 South Hill HPPA o 2013 and beyond: Forest Hills, Lily Lake, Sunny Slope, Fairmeadows, Croixwood, Oak Glen and Deerpath HPPAs. • The city shall consider locally designating those properties worthy of historic preservation. • Consider revising the Neighborhood Conservation District design guidelines (for historic residential neighborhoods) to be applicable to home renovations and repairs to ensure historic integrity is maintained. • Consider strengthening design standards in historic districts, both residential and commercial, by converting existing standards into ordinances. • Seek funds, public or through private lenders, to be used to repair/restore architecturally significant homes or sites. Transportation To develop a coordinated transportation system that provides for local as well as area -wide traffic, the City of Stillwater will: • Develop an area -wide coordinated road improvement program with Mn/DOT and Washington County. • Prepare corridor/traffic studies with Washington County for the following Minor Arterials: Greeley/Owens and Churchill/Third/Fourth Street. • Provide a collector connection from County Road 12 to Olive Street; continue to explore the Brick Street option for this collector. To make it easy and convenient to travel in and around Stillwater, tie allowable new development to the capacity of roadways, limit impact of non-residential traffic in neighborhoods when possible and develop a comprehensive sidewalk, trail and bikeway system, Stillwater will: • Develop a comprehensive signage program. The program will identify key gateways into the city; will create gateway signage/monuments; will create consistent directional signage; and will direct regional traffic to downtown Stillwater via routes that avoid residential neighborhoods. • Provide bicycle parking, locations and attractive bicycle storage racks at key locations including parks, downtown and commercial centers. • Work with state, regional and other partners on a transit plan. • Keep an updated parking plan and parking management program for the downtown area. 7 Third Draft October 13, 2008 • Develop a comprehensive streetscape plan for planting and improvements on major streets. This would have aesthetic and traffic calming benefits. To provide an integrated system of roads, bikeways, transit lines, and pedestrian paths, the City of Stillwater will: • Develop a bikeway system facilities plan. • Consider amending subdivision ordinance to require bicycle facilities according to bikeways facility plans. • Develop and promote traffic safety and education programs. • Continue implementing the sidewalk/pathways maintenance and improvement program. • Develop a plan for sidewalk and trail snow removal. • Improve the appearance of bus stops and better integrate stops into neighborhood or area design. Encourage MnDOT to provide continuous bicycle paths along the Highway 36 frontage road from CR 15 to TH 95 and also along TH 95 from Oak Park Heights through downtown Stillwater to TH 96 at Brown's Creek and perhaps beyond to the Boom Site. Parks and Trails Efficient Use of Facilities: To maximize opportunities for the joint use of public land and facilities and efficient use of such facilities the city will: • Consider cooperative efforts with the school district, athletic organizations, public utilities and other public agencies in order to acquire and/or develop parkland, retain open space areas and recreation facilities and provide programs. • Periodically update and distribute the list of available public park facilities to community groups. • Develop and implement a program for year -around use of some recreation facilities. • Explore methods to implement the park and trail system and integrate it with the systems of surrounding local governments. Park & Trail Location and Design: To determine the most appropriate location, type and design of future parks the city will: • Develop and implement neighborhood park plans based on the following priority list developed by the Stillwater Park and Recreation Commission. The plans for these improvements will be sensitive to the desires of neighbors and park users, as communicated in public meetings incorporated into the planning process for each improvement. 2009 - 2018 Park Improvement Priorities Approved by Stillwater Park & Recreation Commission on July 28, 2008 Community Parks Lowell Park • Major redevelopment 8 Third Draft October 13, 2008 Millbrook Community Park • New park development Pioneer Park • Continue park improvements • Renovate band shell (roof and west wall) Northland Park • Replace upper play equipment • Make an "entryway" park • Replace irrigation systems Aiple Park • New park development Brown's Creek Park • New irrigation systems Lily Lake Park • Replace irrigation systems Neighborhood Parks Long Lake Open Space • Add Picnic Shelter • Add Nature Trails • Consider adding parking on north side Millbrook Neighborhood Park • New park development Boutwell Cemetery • New park development Staples Field • Acquire additional park property • Add additional facilities • Reopen basketball court or convert the courts to another park use Legends Park • Add additional equipment Bergman Park • Add addition equipment (play structure on north side of park) Triangle Park • Replace play equipment Ramsey/Grove Park • Replace play equipment with a structure for children 5 to 13 years of age Public Works Park • Continue baseball field improvements • New irrigation systems Trail Improvements • Replace steps at Chestnut Street, Laurel Street, Willard Street, Broadway Street and Quarry Lane Stairs 9 Third Draft October 13, 2008 Trails and Pathways: To effectively maintain and expand a city-wide trail and sidewalk system that connects to all major activity centers, schools, downtown, scenic open space areas and lakes and other adjacent community systems, the city will: • Implement the trails and pathways plan. • Continue working with the state and county for the development of a potential Brown's Creek Valley State Trail. • Continue to improve trails and sidewalks as local roadways are improved or reconstructed. • Create improved trail and pedestrian connections into downtown from the west and from the north through Lowell Park to Nelson Street and south to the former City Barge Terminal. • Consider improving trail systems around the city's lakes including completion of the trails around McKusick Lake and Long Lake, as well as between the lakes. Miscellaneous: The city will: • Study and pursue various means of funding the acquisition, operation and maintenance of park, open space, trail and recreation facilities. • Acquire and develop land in the western part of the city for a community park. • Continue a regular patrol of parks to provide for the safety of park users. • Design, install and maintain standardized park signage for all city parkland and trails. • Require park land dedication or cash in lieu for all new developments. • Seek opportunities through public or private funds for the establishment of new neighborhood parks and/or redevelopment of existing neighborhood parks. 10 W g p r 5 rc rc o T o g o Eli w y el LiN U m m > J J W wp W QI� UU yZ Le, W N Qr J ? W m O U w Wm T, L FF����1111 K K K i z_ N F o W " O W p WW Q K r K Q Q Q O m W Z_ z N w S U' a a a U m S fA W K W O ZFoq(�I w w w 2 o a o s°° Wl'i, S rI�1 c0i z z z w r wu Q m p Ci•^y 8 N N N z z o z m w o S o K w 5 y p>>> w w rc w R z t2 w p Q m m m 0 p p 0 a O - Y i U r- 5 o a 0 0 0 w 0000000000000000000000 1.1aZ CIP Projects & Funding Sources by Department Department City of Stillwater, Minnesota Capital Improvement Plan 2008 thra 2012 PROJECTS & FUNDING SOURCES BY DEPARTMENT Project# Priority 2008 2009 2010 2011 2012 Total Administration I Copier 08-4040-001 2 25,000 ComputerlLaplop Replacement 08-4040-002 2 4,800 2,400 Laser Workgroup Printer 08-40404303 2 2,000 Websile Upgrades 08-4040-005 1 2,800 Projector 09-4040-001 2 1,000 Postage Machine 09-4040-002 2 6,000 Web Casting 09-4040-003 2 10,000 Digital Recording System 10-4040-006 2 25,000 1,200 3,900 12,300 2,000 2,800 1,000 6,000 10,000 4,000 4,000 Administration Total 34,600 19,400 4,000 1,200 3,900 63,100 Annual GO Debt -Current Year Annual GD Debt -Prior Years 31600 19,400 4,000 1,200 3,900 60:300 2.600 2,600 Administration Total 34,600 19,400 4,000 1,200 3.900 63,100 Building Inspections I Workstations 08-4080-002 2 3,300 3,300 3,300 Wireless Network (Ruggedized Laptops) 08-4080-003 2 6,000 Inspections/Planning Software 08-4080-005 1 19,500 Pickup Truck 09-4080-001 2 25,000 6,000 9,900 12,000 19,500 25,000 Building Inspections Total 28,800 28,300 3,300 6,000 66,400 Annual GO Debt -Current }'ear Annual GO Debt -Prior Years Building !nspectfans Total 3,300 2.8,303 3,300 6,006 40,000 25.500 25,500 3,366 6,000 66,400 Civil Defense Emergency Operations Center 08-4085-001 1 6,300 6,300 Civil Defense Total 6,300 6,300 Annual GO Debt -Prior Years 6,300 6,300 CM! i3ef'nse TOM/ 6,300 6,300 City of Stillwater's Capital Improvement Program 2008-2012 Page 21 Department Project# Priority 2008 2009 2010 2011 2012 Total ,Community Development Computer Desk Digital Camera Inspections/Planning Software Pedestrian Plaza Computer/Laptop Replacement Trail Connection Arts and Guttural Center Recreation/Training Center Terra Terminal Park Improvement (Aiple Property) 08-4055-001 1 1,000 08-4055-002 2 1,100 08-0055-005 1 6,000 09-4055-002 1 375,000 09.4055-004 2 2,400 09-0055-006 1 500,000 10-4055-001 3 10-4055-002 3 12-4055-001 3 Community Development Total 1,200 4,000,000 4,000,000 6,000,000 1,000 1,100 6,000 375,000 3,600 500,000 4,000,000 10,000,000 4,000,000 4,000,000 8,100 877,400 8,000,000 6,001,200 4,000,000 18,886,700 Annual GO Debt -Current Year 2,T00 240000 1,20t) 5,700 Annual GO Debt -Prior Year 6,000 375-000 381,006 Capital Reserw,s 62,560 62,500 Cantrlbutiont'nlhr 11106,4M :,Oo0:000 Federal Assistance 1.75,iaQ0 375,000 Grants . State F52,'S00 62,500 Unfunded 7,000,000 6000,000 4„000,060 17,000,000 Community Development Total 8,100 877.401) 8,000,000 15,001,200 4,000,000 13,880,700 Elections Voting Booths 10-4010-001 1 5,000 5,000 Elections Total 5,000 5,000 Animal GtiDebt-Current Year Elections- Tool 5,000 5,000 5,000 5,40E Engineering 1 Annual Street Improvement Project 084090-001 1 1,464,100 1,610,510 1,771,560 1,948,716 2,143,587 8,938,473 Annual Sidewalk Rehabilitation Project 08-4090-004 1 50,000 50,000 50,000 50,000 50,000 250,000 AutoCAD 08-4090-005 2 2,000 5,000 5,000 12,000 Wildpine Pond Upgrades 08-4090-006 1 100,000 100,000 Stage 3-Flood Control Project 08-4090-008 1 5,000,000 5,000,000 Computer/Laptop Replacement 08-4090-009 2 1,500 3,900 1,200 2,400 3,900 12,900 County Road 121£ County Road 5 Traffic Signal 08-4090-010 1 75,000 75,000 Driving Park Ravine 08-0090-011 1 150,000 150,000 Printer -Large Format 09-4090-001 2 4,000 4,000 Curve Crest Boulevard Connection 09.4090-004 2 1,500,000 1,500,000 Marylane Sanitary Sewer 09-4090-005 2 450,000 450,000 City of Snllwater's Capital Improvement Program 2008-2012 Page 22 Department Project# Priority 2008 2009 2010 2011 2012 Total County Road 15 Improvements and Signals Modular Furniture Renovation Neal Avenue Street Improvement T.H. 36 Improvements/Bridge Project Color Plotter Total Station Washington Avenue Street Improvement Myrtle Street Ravine Manning Avenue (CSAH 15) CSAH 12 to TH 96 Color Scanner -Document Imaging System GPS Remote Sensing Greeley Street Rehab Vehicle Replacement 09-4090-007 104090-001 10-4090-002 104090-005 10-4090-006 10-4090-007 11-4090-001 11-4090-002 11-4090-003 114090-004 11-4090-005 12-4090-001 12-4090-003 Engineering Total 2 2 1 2 2 3 1 2 2 2 2 1 2 150,000 15,000 1,100,000 50,000 13,000 15,000 400,000 300,000 250,000 7,000 30,000 150,600 15,000 1,160,000 50,000 13,000 15,000 400,000 300,000 250,600 7,000 30,000 500,000 500,000 25,000 25,000 6,842,600 3,m,410 3,015,760 2,988,116 2,727,487 19,347,373 Anneal GO Debi -Current Pear Board of Water Commissioners Capital Rn'cs Developer Fee Federal Assistance Grants = State Municipal State Aid Funds &inita y Sewer Futid Signs and Lighting Fund Special Assessments Storm Sewer .Fund 5lorm Water Utility (Perm imp Fund) Engiri8ering Total 3,500 60,000 642,050 4,50,000 500,000 100,000 40,000 25,060 757.050 115.000 10Q,00Q 12,000 44,200 39,400 50.000 Z0,003 60,000 515,510 645,760 841,658 2,100,000 500,000 200,000 33,.900 60 10 836,794 115,000 515.000 315,000 320,000 40,0 40.600 40,000 40,000 50,000 830,000 1,110,780 991,858 t,136.793 100,000 100,000 100,000 100,000 a50,000 100,000 13.3,800 300,000 3,5B 1,902 2,Bfl0,000 4,500,000 500,000 t365,000 200,000 7'a.900 4,026.401 515,000 550,m0 6,842,600 3,773,410 3,015,760 2,985,11E 2,727,487 19,347,373 Finance Computer/Laptop Replacement Printer-Workgroup Color Scanner -Document Imaging System Springbrook Software Upgrades Laser Printer -Color Server for Springbraok Printer Replacement 08-4030-002 2 09-4030-001 1 09-4030-002 2 09-4030-003 2 10-4030-001 2 10-4030-002 1 10-4030-003 2 Finance Total 4,500 2,400 3,000 7,000 15,000 2,500 9,000 4,000 3,600 10,500 3,000 7,000 15,000 2,500 9,000 4,000 4,500 27,400 15,500 3,600 51,000 Annual GO Dent -Current rear .Finance Total 4,500 27,400 15,500 3.600 "51,000 4,500 27,400 15,500 3,680 51,000 City ofStillwatcr's Capital improvement Program 2008-2012 Page 23 Department Project# Priority 2008 2009 2010 2011 2012 Total Fire Minitor IV Pagers 08-4070-001 1 3,700 4,500 4,500 12,700 Turn Out Gear 08A070-002 1 8,000 8,500 8,500 10,000 10,000 45,000 Fire Engine 08-4070-003 1 100,000 100,000 100,000 125,000 125,000 550,000 Computer/Laptop Replacement 08-070-004 2 9,500 5,200 1,200 10,400 5,200 31,500 Records Management System 08-070-005 1 13,000 13,000 High Pressure Air Compressor 08-070-007 1 35,000 35,000 Fire StationfPublic Safety Facility 08-4070-008 1 40,200 5,000,000 5,040,200 Firehouse Mobile 08-4070-009 2 4,000 4,000 800 MHz Public Safety Radio System 08-4070-011 1 27,500 27,500 Respirator Fit Testing Equipment 09-4070-001 2 12,000 12,000 Fire Hose Gear Dryer 09-070-002 3 10,000 10,000 Gear Lockers 09-4070-003 2 20,000 20,000 Epoxy Floor Covering Apparatus Bay 09-4070-004 3 24,500 24,500 Paint Apparatus Bay Area 09-4070-005 2 10,500 10,500 GPS Units 09-4070-006 1 2,000 2,000 4,000 Deputy Chief/Command Vehicle 09-070-007 1 40,000 40,000 Station Carpel Replacement 10-070-001 2 15,000 15,000 Replace Upgrade SCBA 10.4070-002 1 150,000 150,000 Firefighting Helmets 11-4070-001 1 20,000 20,000 Station Furniture 11-4070-004 2 5,000 5,000 Fire Total 240,900 5,176,200 274,700 219,400 158,700 6,069,900 Annual' GO debt -Current fear Annual GO Debt -Prior Years Unfunded Fire Total 198,200 176,290 274,700 219.400 158,700 1,027,7.00 42.700 4.2,700 5=000.000 5,005,000 240,900 5,175,200 274,700 219,400 158,700 6,069200 Library Staff Work Pad 08-4230-001 1 3,750 3,750 Network Switch 08-4230-002 1 8,000 6,500 14,500 Print Management System 08-4230-005 2 5,000 5,000 Programming Equipment 08-4230-007 2 7,000 7,000 Building Monitoring Improvement 084230-008 2 2,000 2,000 2,000 6,000 Shelving -Juvenile Nonfiction 08-4230-009 2 4,500 4,500 Computer Replacement Program 08-4230-010 1 19,000 23,000 24,000 26,000 28,000 120,000 Trash Room Roof 08-4230-011 2 15,000 15,000 Printer Replacement 08-4230-012 1 3,000 3,000 2,500 3,000 3,000 14,500 Homework Center Equipment 08-4230-013 3 7,000 7,000 Cabling 09-4230-002 3 1,000 1,200 1,400 1,600 5,200 Laptop Computers 09-230-003 2 2,000 2,000 4,000 SelfCheck 09-230-004 1 24,000 24,000 City of St llwater's Capital Improvement Program 2008-2012 Page 24 Department Project# Priority 2008 2009 2010 2011 2012 Total System Software 09-4230-006 2 1,000 1,200 1,400 1,600 5,200 Public Computer Stations 09-4230-009 1 5,000 2,500 2,500 10,000 Audiovisual Equipment 09-4230-010 1 8,000 2,500 2,500 5,000 18,000 Digital Library Assistant 10-4230-001 2 10,000 10,000 Integrated Library System -City Share 10-4230-003 1 10,000 10,000 Scheduled Building Improvement Program 10-4230-005 3 5,000 5,000 5,000 15,000 Security Gates 11-4230-001 1 15,000 15,000 Videoconferencing Equipment 12-4230-001 3 10,000 10,000 Copier and Color Copier 12-4230-007 1 9,200 5,300 14,500 Library Total 82,250 63,500 40,900 87,000 64,500 338,150 Annual GO D br-C rrrent Year Annual GO Debt -Prior Years 63,250 6,500 411900 07,000 64,500 319,150 19,000 19,000 Library Total ea,250 63,500 40,900 97,000 64,500 ' 38,150 MIS I ArcView Software License 08-4020-001 2 4,800 2,500 5,000 5,000 17,300 Server Purchase/Software Upgrades 08-4020-002 1 8,000 8,000 8,000 16,000 40,000 Network Infrastructure Upgrade 08-4020-003 1 41,000 31,000 72,000 Recabling-Computer 08-4020-004 1 25,000 20,000 45,000 Software License -Microsoft 08-4020-005 1 12,200 12,200 12,200 12,200 12,200 61,000 Antivirus Software Licensing 08-4020-006 1 4,000 3,400 3,600 3,800 4,000 18,800 Surf Control Licensing 08-4020-007 1 3,000 4,000 4,000 4,000 4,000 19,000 Telephone System Upgrade 08-4020-008 2 10,000 8,000 18,000 SQL Server 08-4020-009 1 5,000 5,000 Mobile Security Software 08-4020-010 1 1,000 1,D00 Voice Over Internet Protocol (VOIP) 09-4020-001 2 18,000 18,000 Computer/Laptop Replacement 09-4020-003 2 1,500 2,400 1,500 5,400 Website Upgrades 09-4020-011 1 1,500 1,500 MIS Total 89,000 115,100 55,200 41,000 21,700 322,000 Annual GO Debt -Current Year Annual GO Debt -Prior Years 72.000 115,1000 55,200 41,000 21,T00 3a5,00d1 17,1100 17,000 IS Total 89,000 115104 55r209 41,006 21,700 322,000 Parking I Parking Ramp 08-4720-001 1 6,000,000 Parking Enforcement Vehicle 08-4720-002 1 28,000 Downtown Parking Ramp-2nd & Olive 09-4720-001 3 License Plate Recognition Software 09-4720-002 1 5,000,000 20,000 6,000,000 28,000 5,000,000 20,000 City of Stillwater's Capital Improvement Program 2008-2012 Page 25 Department Project# Priority 2008 2009 2010 2011 2012 Total Parking Total 6,028,000 5,020,000 11,048,000 Parking Fund Tax Increment Financing Unfunded 28,000 20,000 6.000,000 5,000,000 48,000 6,000,000 5,0130,000 Parking Iola! 8,02B4O00 5,020,000 1948,000 Parks Park Improvements 08-4240-001 3 104,800 80,000 95,000 120,000 135,000 534,800 Utility Vehicle 08-4240-003 1 26,000 26,000 Annual Trail Improvements 08-4240-004 1 25,000 25,000 25,000 25,000 25,000 125,000 Trail Improvements 08-4240-005 2 2,700 2,700 Park Equipment (2006 Carryover) 08-4240-006 1 8,900 8,900 Browns Creek Park (aka Munkelwitz Park) 08-4240-007 2 32,200 32,200 Time Sheet Software 08-4240-010 1 2,500 2,500 Millhrook Park 09-4240-001 2 67,500 200,000 100,000 367,500 Computer/Laptop Replacement 09-4240-002 2 2,400 1,200 3,600 Lawn Tractor 094240-003 1 45,000 45,000 Lowell Park Improvements 09-4240-005 1 520,000 480,000 1,000,000 Lawn Tractor 10-4240-001 1 22,500 22,500 Trail Machine Toolr at 11-4240-001 1 45,000 45,000 Hard Court Rehabilitation 11-4240-003 1 72,000 72,000 Boutwell Cemetery 11-0240-004 2 50,000 50,000 One Ton Truck with Plow & Sander 11-4240-005 1 55,000 55,000 Mower-60' 12-4240-001 1 8,000 8,000 Mower-72' 12-4240-002 1 8,000 8,000 Rough Cut Mower 12-4240-003 1 8,000 8,000 Parks Total 202,100 739,900 623,700 567,000 284,000 2,416,700 Annual GO Debi -Current. Year 126,000 219,900 143,700 567,000 284.000 1,340,800 Annual GU Debi -Prior Years 76,100 76,100 Lowell Park Reserves 520,000 52I).000 1;n funded 460,000 480,000 Parks Total 202,100 739,900 623,700 567,000 284,000 2,416,700 [Plant/City Hall Floor Buffer 08-4050-001 3 4,500 Kitchen Sink Upgrade 08-4050-003 2 1,500 Energy Efficiency Upgrades 08-050-004 2 94,000 Upgrade HVAC Control System 09-4050-001 1 Fire 8 Police Department Renovation 09-4050-002 2 30,000 250,000 4,500 1,500 94,000 30,000 250,000 City ofStillwater's Capital Improvement Program 2008-2012 Page 26 Department Project# Priority 2008 2009 2010 2011 2012 Total Building Security 10-4050-001 2 60,000 60,000 Plant/City Hall Total 100,000 280,000 60,000 440,000 Annul GO Debt -Current Year ArrrrraGd GO Deter -Prior Years PlczrtllCiiy fia11 Total 31,000 30,X)U 60,000 121,000 69.000 t 9,00a 100,000 30,000 60,000 Police Radar Units 08-4060-002 2 2,500 2,500 2,500 2,500 2,500 12,500 Lidar Replacement 084060-003 3 2,500 3,500 3,500 9,500 Computer/Laptop Replacement 08-4060-004 2 4,800 2,400 4,800 8,700 2,400 23,100 800 MHz Radio Station 08-4060-005 i 70,000 70,000 In -Car Video Recording Systems 08-4060-006 1 22,000 15,000 10,000 10,000 10,000 67,000 Mobile Data Computers (Laptops) -Replacement 08-060-007 1 25,000 20,000 30,000 30,000 30,000 135,000 Squad Weapon Replacement 084060-010 1 18,000 18,000 Marked Squad Cars 08-4060-011 1 100,000 132,000 133,000 134,000 135,000 634,000 Unmarked Police Vehicles 084060-012 1 54,000 27,000 28,000 29,000 30,000 168,000 Less Lethal Equipment 08-4060-013 1 7,000 7,000 Scanner 08-4060-014 2 6,000 6,000 Audio Recorders 08-0060-015 1 1,500 1,500 Handgun Replacement 094060-004 2 15,000 15,000 Taser Replacement 094060-005 1 4,000 4,000 4,000 4,000 16,000 Document Imaging System 09-0060-007 1 2,500 2,500 Cameras 09-4060-009 1 1,000 1,000 1,000 1,000 4,000 Projector Replacement 09-4060-010 2 1,800 1,800 Speed Wagon 10-4060-001 3 19,000 19,000 Color Scanner -Document Imaging System 10-4060-002 2 7,000 7,000 Police Total 295,300 223,200 242,800 219,200 236,400 1,216,900 Annual GO Debr-Current Year 2d8.3043 223,200 242 600 219.200 236.400 1,209,900 alrtnua! GO Debt -Prior Years 7.000 7,000 Police Tail 295,300 223,200 242,800 219,200 236,400 1,215,900 Sanitary Sewer I Lift Station Upgrades 084700-001 2 177,500 60,000 60,000 60,000 60,000 417,500 Sanitary Sewer Flow Meters 08-4700-002 1 50,000 50,000 Vehicle Replacement -Van (Sewer Cam) 08-4700-003 1 90,000 90,000 SRX-C Sewer Cleaner 08-700-004 i 15,000 15,000 Telemetry Workstation Upgrades 08-4700-005 2 6,800 6,800 Reline Sanitary Trunk Sewers 08-4700-006 3 400,000 200,000 200,000 200,000 200,000 1,200,000 Computer/Laptop Replacement 08-4700-007 2 3,500 1,500 2,700 1,200 8,900 City of Stillwater's Capital Improvement Program 2008-2012 Page 27 Department Project# Priority 2008 2009 2010 2011 2012 Total Time Sheet Software Tractor Backhoe Sewer Truck -One Ton Truck Sewer Jetter - Vector Maintenance Software -Lift Station Equipment Brick Street Lift Station Generator 08-4700-010 10-4700-001 11-4700-601 11-4700-002 11-4700-003 12-4700-001 Sanitary Sewer Total 1 2,500 2 1 1 2 1 80,000 50,000 350,000 15,000 2,500 80,000 50,000 350,000 15,000 100,000 100,000 738,500 266,800 341,500 677,700 361,200 2,385,700 Sanitary Sewer Fund Sanitary Sewer Total 738500 266,800 341,5u0 6r7:700 3E1,200 2,385,7011 74500 266,800 341,500 677,700 361,200 2,335,7110 Signs & Lighting Time Sheet Software Computer/Laptop Replacement Sign Shop Printer/Cutter S Software Air Compressor 08d710-010 09-4710-001 10-4710-001 12-4710-001 Signs & Lighting Total 1 2,500 2 2 1 1,200 15,000 18,000 2,500 1,200 15,000 18,000 2,500 1,200 15,000 18,000 36,700 .SiRtrs and Lr, 1ttirtR Farad Signs & Lighting Total 2.500 1,200 15,0011 ia,eos 36,700 2,500 1,200 15,000 16,000 36,700 St Croix Vally Rec Center Replace Restroom Partitions Bobcat Toolcat Monitors -Locker Rooms Server Purchase/Software Upgrade Telephone/Software Upgrade Turf Replacement -Field House Replace Doors -Lily Lake Furnace Replacement -Lily Lake Louver Replacement -Lily Lake Refrigeration Retrofit -Lily Lake Parking Lot Overlay -Lily Lake Resurface( Locker Room Clocks Computer/Laptop Replacement Dasher Board Replacement -Lily Lake Roof Replacement -Lily Lake Air Monitoring Device Ice Resurfacing Machine Water Boiler 08-0202-001 3 10,000 08-4202-004 3 20,000 20,000 08-4202-005 2 5,600 08-4202-006 2 1,200 08-4202-010 3 8,000 08.4203-003 2 60,000 60,000 180,000 08-4204-001 1 20,000 08-4204-002 2 5,000 084204-003 2 1,000 08-4204-004 1 60,000 168,000 172,000 08-4204-005 2 200,000 09-4202-001 1 90,000 09-4202-003 3 13,200 09-4202-007 2 2,400 2,400 10-4204-001 1 90,000 10-4204-002 1 60,000 11-4202-001 1 11-4202-002 2 11-4202-003 1 3,000 90,000 12,000 10,000 40,000 5,600 1,200 8,000 300,000 20,000 5,000 1,000 400,000 200,000 90,000 13,200 4,800 90,000 60,000 3,000 90,000 12,000 City of Stillwater's Capita! Impravemeat Program 2008-2012 Page 28 Department Project# Priority 2008 2009 2010 2011 2012 Total Spectator Netting 11-4202-004 3 Compressor -Rebuild Top End Kits 12-0202-001 1 Skate Tile 12-4202-002 2 Score Borads-South Rink 12-4202-003 2 2 Make Up Air Unit 12-4202-004 1 Kia Vac 12-4202-005 2 Floor Scrubber 12-4202-006 2 5,000 5,000 5,000 5,000 30,000 30,000 15,000 15,000 25,000 25,000 5,000 5,000 9,000 9,000 St Croix Vally Rec Center Total 390,800 353,600 504,400 110,000 89,000 1,447,800 Annual GO Debt -Current rear 245,600 353,500 3E4,4176 fi0,0O0 89,000 1,185,600 Annual GO Debt -Prior Years 166 2X "20,00j 725,290 Storm Sewer Fund 35,00o 40E1 St Croix Valiy Rec Center Total 39O40O 353,60G 504,400 110,000 89,000 1,447,300 Storm Sewer Street Sweeper 09-4705-003 1 185,000 185,000 Storm Sewer Total 185,000 185,000 Storm Sewr Fund Storm Sewer Total 1851100 185,000 185;000 185,000 Streets One Ton Truck with Plow & Sander 08-4100-001 1 50,000 50,000 Loader 08-4100-002 1 155,000 155,000 Snowblower 08-4100-003 i 125,000 125,000 Machinery & Equipment (2007 Carryover) 08-4100-005 1 48,500 48,500 Computer/Laptop Replacement 08-4100-007 2 1,500 1,200 1,200 1,200 1,200 6,300 Time Sheet Software 08-4100-010 1 2,500 2,500 Switch 08-100-014 1 1,300 1,300 Trailer for Asphalt Roller 09-4100-001 1 7,500 7,500 Grader 09-4100-002 1 155,000 155,000 Asphalt Hot Box 09-4100-004 2 24,000 24,000 Wood Chipper 09-4100-005 1 35,000 35,000 Grader 104100-001 1 180,000 180,000 Asphalt Drum Roller 10-4100-002 1 25,000 25,000 Copier 10-4100-003 2 15,000 15,000 One Ton Truck with Plow & Sander 10-4100-004 1 55,000 55,000 Cartegraph Module 10-0100-005 1 4,000 4,000 Asphalt Plate Compactor 11-4100-001 1 2,500 2,500 One Ton Truck with Plow & Sander 11-4100-002 1 55,000 55,000 Dump Truck with Plow & Sander 11-4100-006 1 175,000 175,000 City of Stillwater's Capital Improvement Program 2008-2012 Page 29 Department Project# Priority 2008 2009 2010 2011 2012 Total Loader 12-4100-001 1 165,000 165,000 Loader 12-4100-002 1 190,000 190,000 Streets Total 383,800 222,700 280,200 233,700 356,200 1,476,600 Annual GO Debt -Current Year 331,500 222,700 277,203 233,700 356-M0 1,42=,3e0 Annual GO Drht-Prior Years 52,300 5Z300 Sanitary .Sewer _Fund 3,00 3,000 Srreets Total 366,800 222700 277201 233,700 356,200 1,476,606 Grand Total 15,478,050 17,373,110 13,481,960 11,151,516 8,324,687 65,809,323 City of Stillwater's Capital Improvement Program 2008-2012 Page 30