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MINNES07A
COLLECTION
BASIC PLANNING STUDIES
STI LLWATE R PLANNING AREA
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MnF711.4
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1961
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Stillwater Public Li b ra r
BASIC PLANNING STUDIES
STILLWATER PLANNING AREA
Community Planning &
Design Associates Inc
August 1961
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FEB 2 0 1990
ST tj-wATm Pusuc LIBRARY
223 NORTH 4TH STREET
STILLWATER, MN 155032
DENNIS GREBNER THOMAS HODNE REYNOLD ROBERTS AIA
COMMUNITY PLANNING & DESIGN ASSOCIATES INC
ARCHITECTS PLANNING CONSULTANTS DESIGNERS
21 August 1961
Stillwater. Planning Commission
City of Stillwater
Stillwater, Minnesota
Stillwater Town Board
Stillwater Township
Stillwater, Minnesota
Gentlemen:
In accordance with our agreement, we are pleased to submit the
report, Basic Planning Studies, Stillwater Planning Area. The
report is essentially presented in three parts - economy, pop -
ulation and land use and represents the completion of the basic
studies element of Phase II of your current planning program.
Prior to this publication, Interim Guide Plans representing
Phase I of your planning program we -re prepared individually for
both the City and Township of Stillwater. These studies provid-
ed a basis for answering pressing problems of development
and served as a framework for continuing, detailed planning
activity.
Your interim planning efforts, in essence, served to get the
planning function off the ground. Now you are involved in the
comprehensive planning process of which this report is an in-
tegral part. The next step will be the translation of the findings
of this report and community development goals into a physical
plan for guiding and regulating the area's future growth. Zoning
and subdivision controls will be investigated as a means of plan
implementation. They will be presented as part of the Compre-
hensive Guide Plan.
We feel that the City and Township of Stillwater deserve partic-
ular commendation in light of their joint planning effort. Special
acknowledgement is due the Stillwater Chamber of Commerce,
The City Building Inspector, the City Engineer, the Minnesota
ROBERT ISAACSON ASSOC AIP: PRINCIPAL PLANNER
2635 UNIVERSITY AVE ST PAUL 14 MINN MI 5 -8617
Stillwater Planning Commission -2- 21 August 1961
Stillwater Town Board
Department of Health and the Twin Cities Metropolitan Planning
Commission for pertinent data used in this report.
Sincerely,
COMMUNITY PLANNING &
DESIGN ASSOCIATES INC
Thomas H. Hodne
THH: cmt
TABLE OF CONTENTS
LETTER OF TRANSMITTAL
LIST OF TABLES
LIST OF ILLUSTRATIONS
Chapte r
I. SUMMARY
II. INTRODUCTION
About this Report
Planning Area Approach
Historical Sketch
III. ECONOMY
Regional Economic Indicators
Employment
Retail Trade Area
IV. POPULATION
Stillwater Area - Past and Present
Stillwater Area - Tomorrow
V. LAND USE
Existing Conditions
Land Demand
Land Development Objectives
iv.
Page
ii
v
vi
1
2
4
16
LIST OF TABLES
Table
Page
1.
Value Added by Manufacture -
5
Twin Cities Metropolitan Region
2.
Wholesale Sales - Twin Cities Metropolitan Region
6
3.
Retail Sales - Twin Cities Metropolitan Region
7
4.
Receipts from Business Services -
7
Twin Cities Metropolitan Region
5.
Stillwater's Share in Washington County Employment
10
in Retail Trade, Wholesale Trade and Selected
Service 1939, 1948, 1954, 1958
6.
Route, Direction and Distance of Stillwater
13
Retail Trade Area Extension
7.
Retail Activity Indicators 1939 - 1954
15
8.
Population Trends - Stillwater Planning Area
16
9.
1980 Estimated Age Composition
25
10.
Total Planning Area Existing Land Use
28
in Acres
11.
Total Land and Total Developed Land
30
in Planning Area
12.
Percentage Relationships of Existing Land
30
Use in Total Planning Area
13.
1980 Land Demand Stillwater Planning Area
36
V.
LIST OF ILLUSTRATIONS
Figure
1.
Stillwater Area RTA
2.
Population Trends
3.
Population Distribution 1960
4.
Change in Population Age Structure,
1930 to 1960 for City and Township
5.
Direction of Growth 1952 - 1961
6.
Share of Stillwater Planning Area in
Washington County Population
1910 to 1980
vi.
Page
14
17
19
21
22
24
I .
I. SUMMARY
As an assist to the hurried reader, a summary listing the major
points of importance in this report will be presented at the onset.
For the hurried reader when he has more time and the studied
reader who wishes a detailed presentation of the major findings,
the remainder of the report is commended.
The major points of importance stressed in this report are as
follows:
1. The research, analysis and findings of this report
are presented on a planning area basis including
both the City and Township of Stillwater.
2. Washington County economic activity, which to a
considerable degree reflects planning area trends,
,indicates continuing rise in manufacturing activity
and marked stability in retail, wholesale and
business service activities.
3. The planning area's economic support is much the
same today as it was in the 1930's.
4. Retail trade and business services appear to
represent areas of largest potential employment
growth.
5. Stillwater Retail Trade Area extends to a substantial
degree into Wisconsin and serves both sides of the
St. Croix Valley north of Highway 12 and just south
of Highway 8.
6. Planning area population decreased steadily from
1910 to 1940 when the trend was reversed. Today
the area totals 9, 700 people.
7. Eighty -six per cent of the area's population resides
in the City of Stillwater.
8. The Stillwater area can expect a population increase
of approximately 1, 600 by 1970 and 6, 200 by 1980
for a total count of 17, 500.
9. There exist over 15, 200 acres in the planning area,
1, 700 acres of which are developed (not used as farms
and not vacant or covered with water).
2.
II. INTRODUCTION
Planning activity in the ;Stillwater area the last two years has been
characterized by revitalization and initiation of the planning function
utilizing interim approaches designed to meet critical and special
problems. The City of Stillwater has completed Phase I of their
comprehensive planning program which was presented as Stillwater
Interim Plan Report. Based upon this work two special studies
have been conducted. One, the Downtown Parking Study, is being
evaluated by a special committees the other, Downtown Circulation
Plan, is serving the purpose of presenting the Community's desires
to the State of Minnesota Highway Department relative to highway
proposals in the Central Business District.
Stillwater Township became aware of the benefits of planned develop-
ment and initiated Phase I of their comprehensive planning program,
including the provision of interim zoning controls. Their Phase I
work was presented in report form as Interim Development Guide
Plan. They are also preparing subdivision controls to expand on
their powers to regulate future development,
ABOUT THIS REPORT
At this point, the major concern is for a refinement of the interim
planning efforts and the provision of a firm basis for continuing the
comprehensive planning program. This report is intended to per-
form these functions. It will be concerned with the economy of the
area and its potential in this respect and refine previous population
and land use determinations. With this data as a foundation the
physical plan of the area can be formulated, indicating the location
and amount of future land use, circulation, and community facilities.
In turn, the plan will serve as the basis for revision, refinement
and /or provision of zoning and subdivision controls.
The importance of this report thus lies in its use as a tool for con-
tinuing planning. It is of value also as a guide for local citizens in
planning their individual business and in factually presenting the
Stillwater area to others.
Since this report is an extension, review and re- evaluation of both
the Township and City Phase I Interim Guide Plan Reports, it
would be helpful to be familiar with these previous works. This is
not absolutely necessary, however, because the major points in
them are brought out at various stages in this report. The studied
reader may find omissions or vagaries in this report that he would
3.
not find if he were familiar with the other reports. Nevertheless,
this work can stand alone as well as act as a link in the area's
Comprehensive Planning Program.
PLANNING AREA APPROACH
For purposes of continuing planning activity an area consisting of
both the City and Township of Stillwater has been defined and
termed the "planning area. " Comprehensive planning will be con-
ducted on the basis of the expanded planning area. Because of the
concentrated urban development within the City of Stillwater,
special consideration must be given that segment of the planning
area.
The most important aspect of the planning area approach is that
mutual problems can be analyzed in their true perspective and
that future development can be guided on a uniform basis. This
is especially true since two governmental units, both possessing
the necessary powers to regulate and direct construction, have
decided to approach their planning jointly. Stillwater City and
Township are to be highly commended for the farsighted approach
they have elected to follow in meeting their planning needs.
HISTORICAL SKETCH
The City of Stillwater was incorporated in March of 1854, but
even before then the area had been quite active. Lumbering
flourished during the 1830's and Stillwater acted as the meeting
place in 1848 when action was begun to create the Territory of
Minnesota. Minnesota grew to statehood and Stillwater continued
as an active lumber center.
In 1914, however, following the depletion of regional lumber
resources, Stillwater lost its original reason for being and entered
a period of economic strife. At the peak of the lumbering days the
area boasted a population of around 20, 000 people. This population
steadily decreased to a low of approximately 8, 000 in 1940 and has
grown slowly to about 9, 700 today. The entrenching and recovery
from the economic blow of the dying of the lumbering industry was
based on the attraction of new industry and the promotion of the
area's scenic and recreation attributes.
Today Stillwater is on sound footing with a diversified economic
base. The future looks promising, as the area participates more
in the metropolitan region of which it is an integral part. It is
hopeful that the area's current planning effort can be instrumental
in shaping the community in the best interests of its inhabitants
and assist them in adequately meeting their future challenges.
0
III. ECONOMY
As a basis for physical planning it is important to consider economic
factors operative in an area that help shape future growth and develop-
ment. An answer to the basic question of how an area makes its
living and its prospects for continued life is provided by its economy.
An examination of the comparative position of the Stillwater area
in the Metropolitan Region, a look at the area's employment picture
and a determination and analysis of a trade area will give mean-
ingful insight in to the basic question. This, in turn, will provide
another yardstick to measure future needs in a physical sense.
REGIONAL ECONOMIC INDICATORS
Value added by manufacture, wholesale sales, retail sales, and
receipts from selected services are weather -veins of economic
activity. Value added by manufacture gives an indication of the
amount of manufacturing activity that takes place within a given
area. It is the monetary difference expressed in dollars between
the value of the shipments of manufacturing establishments and the
cost -of materials, supplies, and containers, fuel, purchased
electric energy and contract work. Wholesale, retail sales and
receipts from business services are merely the dollar volume in
these three areas of commerce.
An analysis of each can give an indication of the strengths and
weaknesses of an area's economy. Located within the Twin Cities
Metropolitan Region, Stillwater naturally is an economic and social
part of the larger region. (For purposes of this analysis the Twin
Cities Metropolitan Region will be the seven counties outlined as the
Metropolitan Planning Area defined by the Twin Cities Metropolitan
Planning. Commission, namely: Anoka, Carver, Dakota, Hennepin,
Ramsey, Scott and Washington). In the past this may not have been
the case, but few can deny that it is not true today. The new super-
highway link and the gradual but steady population growth from the
Twin Cities are evidences of this fact.
As would be expected, Hennepin and Ramsey Counties dominate the
economic activity of the Twin Cities Metropolitan Region. The
other counties (Washington, Anoka, Carver, Dakota and Scott) as
a group share from about three to fifteen per cent of the activity in
the various indicators. Hennepin and Ramsey share the remainder.
Value Added by Manufacture
Relative to the Metropolitan Region, Washington County has risen
in its share of total manufacturing activity as measured by value
5.
added from 2. 0 per cent in 1929 to 3. 1 per cent in 1954. (See Table 1)
In 1947, the only year that comparable data is available between the
above dates, Washington County's share slipped to 1. 5 per cent. Its
rank among the metropolitan counties was fourth in 1929, fifth in
1947 and fourth in 1954. Dollar value showed a steady increase from
five million in 1929 to thirty -five million in 1954.
When the lumber industry flourished prior to 1920 it is probably safe
to assume that Washington County's share (and Stillwater's contribu-
tion to it) was considerably more impressive.
TABLE 1
VALUE ADDED BY MANUFACTURE - TWIN CITIES METROPOLITAN
REGION
Area
1929
$(000)
%
1947
$(000) %
$(000)
1954
%
Anoka
3,037
1.0
14,022
1.9
35, 198
3.1
Carver
1,014
0. 3
2, 728
0.4
5,006
0.4
Dakota
17,080
5.9
32, 310
4.5
37, 592
3. 3
Hennepin
153, 687
54.0
385,211
52.6
536,293
47.6
Ramsey
104,067
36. 6
281,919
38.4
472,239
41.9
Scott
592
0.2
4, 613
0.7
7, 698
0.6
Washington,
5, 177
2.0
1 11,177
1. 5
1 35,394
3.1
TOTAL Z84,654 100.0 731,980 100.0 1, 129, 420 100.0
Source: U. S. Census of Manufacturing
Of interest to note is the increasing share of Ramsey County in the
Metropolitan Region's manufacturing activity. This is apparentXy at
the expense of Hennepin County, the region's leader. Although it is
difficult to state with assurance, the increased importance of Ramsey
County may indicate a trend that would affect Washington County and
Stillwater sometime in the future. If this occurred, it would probably
be in conjunction with the outward expansion from the Twin Cities
discussed in the population chapter.
Wholesale Sales
Washington County's share in the Metropolitan Region's wholesale
activity has remained constant, rising only one--tenth of one per
cent from 1939 to 1958. (See Table 2) Its rank declined from fourth
in 1939 to fifth in 1954 and 1958, losing its ground to Scott County.
Nevertheless, Washington County showed a steady increase in dollar
value from Z. 5 million in 1939 to 17. 5 million in 1958.
0
Wholesale activity has strengthened its position in Hennepin and
Scott Counties presumably at the expense of Ramsey and to a
lesser degree Dakota and perhaps Washington.
TABLE 2
WHOLESALE SALES - TWIN CITIES METROPOLITAN REGION
Area
1939
$(000) %
1954
$(000) %
$(000)
1958
%
Anoka
604
0.1
5, 706
0. 1
7, 535
0.2
Carver
2,485
0.2
3,801
0.1
4,965
0.1
Dakota
124,634
11. 5
505, 115
12.1
567,242
11. 5
Hennepin
721,360
66.9
2,849,973
68.4
3,454,514
69.6
Ramsey
227, 107
20.8
7673 136
18.4
862,920
17.4
Scott
2, 103
0.2
21,273
0. 5
37,310
0.8
Washington
2, 530
0.3
14,129
0.4
17, 531
0.4
TOTAL
1,080,823
100.0
4,167, 133
100.0
4,952,017
100.0
Source: U. S. Census of Business
This tends to indicate that metropolitan wholesaling is moving away from
the eastern counties of the region and leaving this activity in areas
such as Stillwater to serve more local markets,
Retail Sales
Washington County's share of total retail sales in the Metropolitan Region
indicates a very stable situation, ranging from 1, 6 per cent in 1939 to
1. 8 per cent in 1954. (See Table 3) The only County representing a
steady decrease in per cent of total was Ramsey. The others represent
steady and unpretentious growth patterns. Washington County reached
its peak share of regional retail sales in 1948 but has registered a
continuous rise in dollar value -- from 7.4 million in 1939 to 35.4
million in 1958.
7.
TABLE 3
RETAIL SALES - TWIN CITIES METROPOLITAN REGION
Area
1939
$(000) %
1948
$(000) %
1954
$(000) %
1958
$(000) %
Anoka
4,263
0.9
13,282
1.0
25,631
1.6
38,047
2.0
Carver
4,604
0.9
13,660
1.1
16,807
1.0
20,065
1.0
Dakota
10,935
2.2
35, 095
2.7
54,855
3.4
68,174
3.6
Hennepin
287,487
58.5
776,752
60.3
987,517
62.0
1,198,568
62.5
Ramsey
17Z,060
35.0
413,317
32.1
464,016
29.1
536, 355
23.0
Scott
4,042
0.9
12,086
.9
17,838
1.1
21,486
1.1
Washington
7,423
1.6
23,981
1.9
30,009
1.8
35 357
1.8
TOTAL
490,814
100.0
1,288,173
100.0
1, 596, 673
100.0
1,918,052
100.0
Source: U. S. Census of Business
Receipts from Selected Services
Washington County's share in this activity has also remained quite con-
stant over the 20 year period 1939 to 1958. It remained at 0. 7 per cent
of the regional total through 1939 and 1948, increased to 0. 8 per cent
in 1954 and returned to 0_7 per c&nt. in 1958. (See Table 4) Anoka
County is the only other county approaching Washington's constant share
trend. Ramsey County witnessed a steadily decreasing share of the total,
dropping eleven per cent from 1939 to 1958.
TABLE 4
RECEIPT FROM BUSINESS SERVICE - TWIN CITIES METROPOLITAN REGION
Area
$(000)
1939
%
$(000)
1948
%
$(000)
1954
%
$(000)
1958
%
Anoka
172
0.4
484
0.5
1,727
0.7
2, 337
0.7
Carver
234
0.6
363
0.4
559
0.2
1,168
0.3
Dakota
1,759
4.5
1,092
1.3
3,012
1.2
3, 508
1.0
Hennepin
24,656
63.0
56,104
69.4
184,048
75.9
274,730
77.8
Ramsey
11,872
30. 3
22,161
27.3
51,314
21.1
67,618
19.2
Scott
198
0.5
364
0.4
280
0.1
1, 179
0.3
Washington
295
0.7
589
0.7
1,968
0.8
2, 659
0.7
TOTAL
39,186
100.0
81; 157
100.0
242,908
100.0
353, 199
100.0
Source: U. S. Census of Business
Relation to Stillwater Planning Area
The preceding discussion is aimed at giving an over -all indication of
the Stillwater area's economic strengths and weaknesses. It was
assumed for the purposes of further analysis that an investigation of
Washington County's share in the economic activity of neighboring
counties, somewhat bound together in their relationship to the Twin
Cities Metropolitan Region in a geographical and socio- economic
sense, would in turn give insight into the relative economic strength
of Stillwater.
Many factors support the contention that the Stillwater area is a
center of considerable importance in Washington County. Primary
among them are:
9
1. Stillwater is the County seat
2. Stillwater is headquarters for School District #834
3. In 1960 the Stillwater area contained over sixteen per
cent of the County's population.
4. In 1954 Stillwater conducted 48. 5 per cent of the
County's retail trade, contained 33. 3 per cent of its
retail establishments and employed 47. 8 per cent of
its retail employees.
5. In 1954 Stillwater contained over fifty per cent of the
County's wholesale establishments and employed
fifty -eight per cent of its wholesale employment.
6. Stillwater has an impressive history in the develop-
ment of the County as well as the entire State.
7. Stillwater is a popular metropolitan boating and
recreation area.
8. Stillwater houses several industries of regional
and national significance and is a "next door neighbor"
to two more.
A more precise determination of the economic role Stillwater plays in
Washington County is hampered by availability of data. Since County
data is more readily available it is used to gain a comparative picture
of economic activity.
The picture relative to the Stillwater area's economy gained from
the analysis of regional economic indicators can perhaps be sum-
marized as follows:
91
1. The area's greatest strength lies in its manufacturing
activity.
2. Wholesale sales, retail sales and receipts from selected
services have not been active growth activities.
3. The area has not yet felt the impact of metropolitan
g ro wth.
4. Although there are indications of change, the area's
economic support was much the same in the 1950's
as it was in the 1930's.
5. The area has been able, for the most part, to hold its
own and is in a good position to determine and guide its
future development.
EMPLOYMENT
Since Stillwater is an integral part of a Metropolitan Region rather
than a more self- contained and supporting area, its employment
picture is fairly complex. For instance, it is difficult to correlate
employment structure of the local community with the employment
opportunities existing in the area. Seven of the area's manufacturers,
for example, employ over fifty people and undoubtedly draw employees
from outside the Stillwater area. Also, many people living in the
Stillwater area gain their livelihood in the huge Twin Cities employ-
ment market, as is evidenced by a 1958 study of the commuting
pattern of Washington County workers. It is true that this situation
tends to create job opportunities in such categories as retail trade
and business services, but as was pointed out in the examination of
economic indicators, these categories have been quite stable in their
proportionate share of growth.
Generally, then, the local employment picture in a future sense depends
a great deal upon the type of community that develops in the years
ahead. That is, will the area be primarily a bedroom area for larger
employment centers in the Region or will it develop as a manufacturing
and region serving commercial center? These roles, at this point, are
still dependent to a certain degree on how the area wishes to develop
and the prospects of either one or the other occurring.
Since manufacturing employment data is not available for areas less
than 10, 000 population, wholesale, retail and selected services
employment data will be used to draw at least broad conclusions
relative to the area's roles and to estimate manufacturing employment.
10.
The County analysis of economic indicators showed that Washington
County's share in the Metropolitan Region exhibited a rather slow
rise in manufacturing activity and considerable stability in whole-
sale trade, retail trade and receipts from business services. As
shown in Table 5, Stillwater's share in Washington County's retail
employment fluctuated up and down, ending in 1958 at the same
share it had in 1939; wholesale employment climbed slowly from
1939 to 1954 and then dropped twelve per cent in 1958 to a point
even below the 1939 share; and selected services employment
dropped from forty -one per cent in 1954 to thirty -five per cent
in 1958.
TABLE 5
STILLWATER'S SHARE IN WASHINGTON COUNTY EMPLOYMENT IN
RETAIL TRADE, WHOLESALE TRADE AND SELECTED SERVICES - 1939,
1948, 1954, 1958
These data tend to indicate the Stillwater area is not maintaining its share
of employment in a County that is about holding its own in the Metropolitan
Region. This may well support the contention that growth in Washington
County has been most dramatic in closer proximity to the Twin Cities.
This does not mean that total employment is less, however. Retail trade
and services employment showed actual increases while wholesale em-
ployment decreased between 1954 and 1958. On this basis it is logical
to assume that manufacturing employment in Stillwater witnessed a
slight decrease in per cent of total Washington County manufacturing
employment but at the same time increased in total numbers.
Retail
Wholesale
Selected
Trade
Trade
E Services
County
812
99
Comparable
1939 City
' 395
54
Data
%
48.6
55. 6
County
1,128
112
Not
1948 City
669
65
Available
59. 3
58. 6
County
1,164
219
220
1954 City
527
I 127
90
45.4
58.0
40.9
County ' 1,380
i
234 278
1958 City 674
! 98 9 96
48.8
41.9 u 34.5
These data tend to indicate the Stillwater area is not maintaining its share
of employment in a County that is about holding its own in the Metropolitan
Region. This may well support the contention that growth in Washington
County has been most dramatic in closer proximity to the Twin Cities.
This does not mean that total employment is less, however. Retail trade
and services employment showed actual increases while wholesale em-
ployment decreased between 1954 and 1958. On this basis it is logical
to assume that manufacturing employment in Stillwater witnessed a
slight decrease in per cent of total Washington County manufacturing
employment but at the same time increased in total numbers.
11,
The question remains, what about the future? It appears that the
existing situation as described above will continue well into the
second half of the planning period. It is felt that by then the impact
of metropolitan expansion will have a more dynamic effect on the
economic and employment picture in the Stillwater area.
It is quite difficult to forecast an area's future employment structure.
This is especially so when it is integrally related to a metropolitan
region with its own trends and characteristics. In guiding over -all
growth, however, it is important to have an indication of probable
future employment structure. From the preceding brief analysis A
appears that:
1. No forecasted major change in the Stillwater area's
employment structure will occur for at least ten to
fifteen years.
Z. The biggest advances could well be in retail trade and
services as the vanguard of metropolitan expansion
reaches the area. Evidences of this are already be-
coming clear, particularly relative to residential
growth.
3. Manufacturing employment for the next ten years will
be primarily due to expansion of existing facilities.
4. Some gain is likely in governmental employment,
especially since increasing urbanization requires
more public services. This is already evident at
the county level and will become so at the City level
as time progresses.
5. Agricultural employment in the area will become less
and less important but will not vanish.
RETAIL TRADE AREA
That area from within which the Stillwater area can logically expect
to draw the predominant number of its trade customers is termed
the retail trade area (RTA). A definition and analysis of this area
serves the planning function by providing a guide for commercial
land forecasts and in determining the levels and type of commercial
services and employment. It may also be of value to local business-
men in planning their private activity.
12.
In determining Stillwater's RTA, consideration was given such factors
as:
1. Proximity to surrounding centers
2. Relative population of the centers
3. Highway distance between Stillwater and the centers.
It is important to note that Minneapolis and Saint Paul naturally
engulf the Stillwater area in their impressive trade areas. What is
done here is to define an area that Stillwater can expect to influence
with the level of services it provides. This is in recognition that
many trips are made to the Twin Cities from the Stillwater RTA for
shopping and other trade functions and that many local concerns may
extend beyond or not extend as far in their individual influence.
A studied view of a regional map indicates that Stillwater is framed
by four major highways:
1. On the west by U. S. 61 in Minnesota
2. On the north by U. S. 8 in Minnesota and Wisconsin
3. On the east by U. S. 63 in Wisconsin
4. On the south by U. S. 12 in Minnesota and Wisconsin.
In addition, Stillwater has the only major east -west highway con-
tinuity between Minnesota and Wisconsin across the St. Croix River
between Hudson (U. S. 12) and St. Croix Falls (U. S. 8). This
route is State 212 in Minnesota connecting with State 35 -64 in
Wisconsin.
Within this frame of major highways are a number of other trade
centers with varying degrees of influence that tend to surround
Stillwater and shape its trade area. These cities and their respective
1960 populations are:
North Saint Paul, Minnesota 8, 520
White Bear Lake, Minnesota 12,849
Forest Lake, Minnesota 2,347
St. Croix Falls, Wisconsin 1,249
New Richmond, Wisconsin 3,316
Hudson, Wisconsin 4,325
13.
Admittedly, the above Cities have varying degrees of influence on
trade activity in Stillwater, but they do tend to define limits for the
majority of Stillwater's services. These Cities also provide a level
of services that are adequate enough to have their own sphere of
influence. This was accounted for in determining the "breaking
point" between Stillwater and the other Cities. The breaking point
was basically determined by relating comparative size and highway
distance. Figure 1 illustrates the Stillwater area RTA.
It was determined that the RTA extends along major highway routes
in the directions and distances indicated in the following table.
TABLE 6
ROUTE DIRECTION AND DISTANCE OF STILLWATER RETAIL TRADE
Stillwater's RTA was large enough in 1954 to account for retail sales of
$14, 550, 000. This amount of activity supported 135 establishments,
employing 527 people. Census figures further show (as presented in
Table 7) that retail sales in Stillwater have continually increased from
1939 through 1954. A closer examination reveals that the number of
establishments was fewer in 1914 than in 1939 but somewhat increased
over the 1948 figure, and that employment fluctuated from a low in
1939 to a high in 1948 and an inbetween position in 1954.
AREA EXTENSION
Route
Direction
Approximate Distance (miles)
Minnesota 95
north
17-1/2
Wisconsin 35 -64
northeast
21
Wisconsin 35 -64
east
12-1/4
Wisconsin 35
south
7
Wisconsin 95
south
5-1/4
Minnesota 212
southwest
7
Minnesota 212 -36
west
7
Minnesota 96
west
7
Stillwater's RTA was large enough in 1954 to account for retail sales of
$14, 550, 000. This amount of activity supported 135 establishments,
employing 527 people. Census figures further show (as presented in
Table 7) that retail sales in Stillwater have continually increased from
1939 through 1954. A closer examination reveals that the number of
establishments was fewer in 1914 than in 1939 but somewhat increased
over the 1948 figure, and that employment fluctuated from a low in
1939 to a high in 1948 and an inbetween position in 1954.
STILLWATER RETAIL TRADE AREA
figure 1
15.
TABLE 7
RETAIL ACTIVITY INDICATORS 1939 - 1954
Since Washington County exhibited a similar trend, a comparision
between Stillwater and the County reveals a fairly constant relationship.
In all categories, except sales and employment in 1948, Stillwater's
share of Washington County retail activity varied less than one per
cent. Stillwater witnessed its greatest share in Washington County's
retail sales and employment in 1948 and dropped in 1954 to about
the same level enjoyed in 1939.
In absence of later data for Stillwater it is difficult to determine whether
the 1954 information reveals a downward trend or leveling off of the
importance of Stillwater as a Washington County retail center. County
retail sales amounted to $35, 357, 000 in 1958 representing an eighteen
per cent increase over 1954. Assuming Stillwater maintained its same
share of Washington County retail sales in 1958 as it did in 1954, it
would have sold retail goods worth approximately $17, 100, 000 in 1958.
Because Stillwater's RTA extends to a sizable degree into primarily
agricultural eastern Wisconsin, metropolitan expansion would have
less an impact on Stillwater than on other centers in the County.
Therefore, it may be optimistic to assume that Stillwater would main-
tain its 1954 share in retail as well as other economic activity. This
situation should reverse itself when metropolitan growth is felt more
in Stillwater after 1970 as presented in the discussion on population.
1939
Est.
Sales
$(000)
Em p.
1948
Est.
Sales
$(000)
Em p.
1954
Est.
Sales
$(000)
Est.
City of
143
3,558
395
121
12,624
669
135
14,550
527
Stillwater
Washing-
418
7,423
812
362
24,002
1, 128
406
30,009
1,104
ton County
Per Cent
34.2
48.0
48.6
33. 5
52.6
59.3
33. 3
48.5
47.7
City of
Count
Since Washington County exhibited a similar trend, a comparision
between Stillwater and the County reveals a fairly constant relationship.
In all categories, except sales and employment in 1948, Stillwater's
share of Washington County retail activity varied less than one per
cent. Stillwater witnessed its greatest share in Washington County's
retail sales and employment in 1948 and dropped in 1954 to about
the same level enjoyed in 1939.
In absence of later data for Stillwater it is difficult to determine whether
the 1954 information reveals a downward trend or leveling off of the
importance of Stillwater as a Washington County retail center. County
retail sales amounted to $35, 357, 000 in 1958 representing an eighteen
per cent increase over 1954. Assuming Stillwater maintained its same
share of Washington County retail sales in 1958 as it did in 1954, it
would have sold retail goods worth approximately $17, 100, 000 in 1958.
Because Stillwater's RTA extends to a sizable degree into primarily
agricultural eastern Wisconsin, metropolitan expansion would have
less an impact on Stillwater than on other centers in the County.
Therefore, it may be optimistic to assume that Stillwater would main-
tain its 1954 share in retail as well as other economic activity. This
situation should reverse itself when metropolitan growth is felt more
in Stillwater after 1970 as presented in the discussion on population.
16,
IV. POPULATION
Basic to the planning program is an understanding of the area population.
This section will study the past trends and present situation and formu-
late forecasts for future population. Then in the physical planning for
the area an indication of how many people to accommodate will be
gained.
STILLWATER AREA - PAST AND PRESENT
A brief review of past population trends in the City and Town individually
and also in combination will provide an indication of what the population of
the total planning area will be ten or twenty years from now.
Total Population and Past Trends
Table 8 and Figure 2 reveal that the population of Stillwater City as
well as the total planning area decreased steadily from 1910 until 1940
when the trend was reversed. During this period, the Town population
decreased sharply from 1910 to 1920 and then increased at a slow pace
during the next twenty years. The past twenty years saw substantial
growth in both the City and the total planning area although the 1960
count is considerably less than the 1910 tally. In 1949, Oak Park
separated from Stillwater Township; however, for statistical purposes
we have considered Oak Park and Stillwater Township as one unit.
TABLE 8
POPULATION TRENDS - STILLWATER PLANNING AREA
Year
City
Per Cent
Change
Township
Including
Oak Park
Per Cent
Change
Oak
Park
Total
Planning
Area
Per Cent
Change
1910
10,198
-
1,207
-
11,405
1920
7,735
-24%
1,027
-15%
-
8,762
-240/c
1930
7, 173
- 70/6
1,053
+ 3%
-
8,226
- 6%
1940
7, 013(a)
- 2%
1,059
+ 1%
-
8,072
- 2%
1950
7, 674(b)
+ 9%
1,128
+ 7%
580(c)
8,802
+ 9%
1960
8, 372(d)
+ 8%
1 1,342
+19%
582
9,714
+11%
Source: U. S. Census
POPULATION TRENDS
STILLWATER PLANNING AREA 1890 TO 1960
12
11
10
9
m
ro
c�
7
0
6
a�
5
4
3
2
1
0
Total Planning Area
Stillwater City
Stillwater Township
including Oak Park
Oak Park Township
(Oak Park separated
from Stillwater
0 0 0 o
Township in 1949)
�
oN o, o1 o1 o1 o1
figure 2
(a) Part of City annexed to Township in 1932.
(b) Part of Township annexed to City in 1949.
(c) Oak Park Township separated from Stillwater Township in 1949,
(d) According to the 1960 Federal Census, the population of Still-
water Township is currently 822 persons. The Census,
however, was conducted before the Fair Oaks Development
was annexed to the City. When this is factored out at the rate
of four persons per dwelling unit, it is estimated that roughly
760 persons remain in Stillwater Township. When the Fair
Oaks residents are added to the City population count, the
revised figure becomes 8, 372 persons.
Cause of Change
Table 8 reveals that the Stillwater Planning Area has gained over 900
residents during the past decade, The City of Stillwater alone has
received nearly 700 new persons - more than three - fourths of the
total Planning Area increase.
What has caused this gradual, but significant, growth to occur? Was
it due to natural increase (more births than deaths) or to net in-
migration (more people moving to Stillwater than the number leaving)?
The answer to these questions can be determined by analyzing the
number of births and deaths that have occurred in Stillwater during
the last ten years. Birth and death rates for townships are not
recorded by the Minnesota Department of Health; thus only Stillwater
City data may be examined. Between 1950 and 1960 there were 995
more births than deaths in Stillwater. This figure is actually larger
than the City's absolute population increase. When the number of
persons added as a result of the Fair Oaks annexation is factored
out, it appears that Stillwater witnessed a net out - migration of 359
persons during the 1950's. Thus, growth due to natural increase
was offset by those who moved away from the City.
Distribution
A geographical breakdown of the population in the Planning Area is
shown on Figure 3. Logically, the distribution pattern favors the
City of Stillwater where eighty -six per cent of the Area's residents
live. An interesting observation is that almost one - fourth of the
total population residesin the southeast portion of the City, which
comprises less than two per cent of the land in the entire Planning
Area.
1960 POPULATION DISTRIBUTION
BY ENUMERATION DISTRICTS
(remainder of
planning area)
760 �i 8%
62 M-1 1 %
City Limits
-7 It,
13,02 13%
..a Pine
� gels on
1068 11
@1
O
602
6%
959
10%
St. Croix
—Jrs-ti
Wilki s
1230
13%
776
8%
Mulberry
13,02 13%
..a Pine
� gels on
1068 11
@1
O
Township Boundary
KEY:
number of % of total
residents ( _) 0 ( planning area
10 2285 24%
U0
City Limits
582 6%
figure 3
O
602
6%
O
Township Boundary
KEY:
number of % of total
residents ( _) 0 ( planning area
10 2285 24%
U0
City Limits
582 6%
figure 3
_,
Composition
By analyzing the changes that have occurred in the composition of the
population in the past, pertinent trends can be established which will
aid in determining the future make -up of the Area's residents. This
knowledge will afford a better understanding of future housing needs,
schools, parks, shopping convenience and job opportunities. Different
age groups also require different kinds of public and private facilities.
Figure 4 demonstrates the share of total population that each of four
age groups have witnessed over the past thirty years. The four age
groups are pre - school (under 5), school age and young adult's (5 to 24),
main working (25 to 64) and senior citizen (over 64).
Direction of Growth
Based upon recorded building permit data available since 1952, it is
apparent that the City has witnessed most of its growth toward the
west and southwest. See Figure 5. Many factors probably have
contributed to this phenomenon. Primary among them are available
land, pleasant topography and natural features, and proximity to
major region serving highways. They seem to illustrate a trend that
will in all likelihood continue during the planning period. The only
mechanism that could halt this trend to the above general areas would
be a concentrated effort at rebuilding the older, built -up areas of the
City. Interestingly enough, the major area suitable for rebuilding is
in the northern part of the City (sandwiched between golf course
development and Highways 95 and 96) which is nearby an expanding
area. Although the downtown area could profit from renewal, resi-
dential development would be most logically of the apartment, high
density type that would not generally attract the same population as
would the outlying areas.
The direction of growth in the Township is more difficult to trace.
Residential building activity to date has been sporadic throughout the
area. It appears safe to assume that the most active area in a
development sense will occur in areas bordering the City. Established
Township policy, primarily in relation to zoning, substantiates this
assumption.
*For comparison purposes it was necessary to combine the school
age (5 to 17) and the young adult (18 to 24) groups because detailed
age breakdowns varied from one census period to another.
20.
CHANGE IN CITY AND TOWNSHIP POPULATION
AGE STRUCTURE 1930 TO 1960
0
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STILLWATER CITY
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0
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25 to 64 yrs.
-■
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over 64 yrs.
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STILLWATER AND OAK PARK TOWNSHIPS
0 0 0 0 0 0 0 0 0 0 0 0 0 0 0
,I' Lr) %'0 cr) t Lr) 110 cle) 't Lr) � c1r) n4 Lr) 110
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figure 4
under 5 yrs.
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over 64 yrs.
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ON ON 0� ON 0` ON CTI 01 a, (71 CTI 0� CTI CTI CTI
figure 4
DIRECTION OF GROWTH BY PRECINCTS
1952 TO 1961
LO
ii
W-AMIS
WA
City Limits
SOURCE:
City of Stillwater building permit records
0
y
0
U
V)
City Limits
figure 5
23.
STILLWATER AREA TOMORROW
The Stillwater Planning Area has witnessed a steady, but unpretentious,
population increase since World War II. It is safe to assume that the
number of residents will continue to rise at least as rapidly as in the
recent past. The degree to which the future growth rate will surpass
the past rate is open to conjecture. The following discussion will
attempt to establish this degree and forecast the area's future popu-
lation.
Growth Potential
As the first step in determining a realistic estimate of future popula-
tion, certain assumptions must be made to aid in the task. Thus far
the growth of the Stillwater Area has been caused, for the most part,
by internal factors such as stable employment opportunities within
the Area and the Twin Cities, and a good living environment. Generally
speaking, external forces have not yet played an important role in
boosting the Stillwater Area population. In coming years, however, a
very significant portion of the Area growth will come about as a direct
result of Twin Cities Area urban expansion.
Projected Population Increase
An indication of the future population of the Stillwater Planning Area
can be gained by examining it in relation to the County within which
it is located. Figure 6 demonstrates that the Planning Area's share
of Washington County's population has been decreasing steadily since
1910. This has occurred even though the area has witnessed an
absolute increase in numbers since 1940.
The Twin Cities Metropolitan Planning Commission ( TCMPC) has
estimated that the 1980 population of Washington County will be
111, 500 persons -- more than double its present count. Further,
TCMPC believes that roughly two - thirds of that increase will occur
between 1970 and 1980.
Most of the twenty year County growth will occur as a continuation of
the past outward expansion of the Twin Cities Area. Hence, it would
be optimistic to believe that Stillwater's share of the projected County
growth will increase substantially during that period.
It is assumed that the Planning Area's share in Washington County's
population growth will continue to decrease but will do so at a de-
creasing rate so that it will eventually stabilize or actually increase.
It is this future point of stabilization that is open to speculation.
SHARE OF STILLWATER PLANNING AREA
IN WASHINGTON COUNTY POPULATION
1910 TO 1980
45
40
35
30
cd
0
a�
25
a�
bt
k
it
w
0 20
a�
U
a�
15
10
5
m
11, 405
0
0
0
0
0
0
0
8, 762
N
M
It
Lc1
N
00
8, 226
8, 071
0`
O1
0�
Cl
0�
\k8,
782
9, 714
\ \ \�11,
11,30
700
10, 900
0
0
0
0
0
0
0
0
--i
N
M
It
Lc1
N
00
Q�
c�
0`
O1
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Cl
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19, 500
17, 500
15, 600
figure (i
2 5'.
Figure 6 demonstrates the possible high and low extremes that this
percentage curve could well exhibit. It is felt that a point midway
between the two extremes should be accepted as the share that the
Planning Area will enjoy in Washington County's future population.
It can be seen that the projected curve levels off sometime after
1970 and actually exhibits a slight upswing by 1980. This indicates
that the bulk of the twenty year growth in the Planning Area will
likely occur during the latter half of the period. Thus, it is esti-
mated that the Planning Area will receive approximately 1, 600 new
citizens by 1970 and an additional 6, 200 persons for a total count
of 17, 500 persons by 1980.
Future Age Composition
Based on past trends and the kind of population growth that will likely
take place, some meaningful observations can be made about the
make -up of the Planning Area's future residents. It was observed
earlier that the recent growth has been due primarily to natural
increase rather than in- migration. This situation is expected to
continue into the immediate future, but by 1980 the trend should be
reversed so that the bulk of the population increase will be due
primarily to an excess of persons moving into the Area over those
that leave. Thus, the 1980 age composition (summarized in Table 9)
based on a Planning Area Population of 17, 500 persons, will be as
follows:
TABLE 9
1980 ESTIMATED AGE COMPOSITION
Group
Amount
0 -4
(Pre- school)
2,300
5 -17
(School Age)
5,200
18 -24
(Young Adult)
900
25 -64
(Main Working)
7,500
65 and over
(Senior Citizen)
1,600
TOTAL
17,500
26.
0 to 4 (Pre - school) - this group has demonstrated a steady increase
in the past. It is felt this growth will continue, but at a slower pace.
By 1980, thirteen per cent of the Planning Area population may be
represented by children under five years of age. In absolute
numbers this would mean approximately 2, 300 persons.
5 to 17 (School age) - due to the method of reporting census data,
it was impossible to establish past trends for this group. It is
known, however, that it presently accounts for twenty -eight per
cent of the total population. By 1980 its share could very well
grow to thirty per cent or 5, 200 students.
18 to 24 (Young adult) - this group includes the college age persons
and provides the bulk of new recruits into the labor force. It is the
age range within which most families are formed. It is also the
most mobile group, thus they tend to migrate .to large urban centers
where employment opportunities are more numerous. About seven
per cent of the present Planning Area residents are within this age
range, but by 1980 the share may drop to five per cent or 900 per-
sons.
25 to 64 (Main working) - for the past thirty years, this group's
share in total population has been decreasing. Sometime during the
next twenty years this trend will be reversed due to the expected
influx of new residents within this age range. By 1980 the main
working group in the Planning Area may total forty -three per cent
or 7, 500 persons. This group will most likely not be primarily
employed in the Stillwater Planning Area but will rely on work in
the Twin Cities for their livelihood. This will tend to create the
atmosphere of a more typical suburban community than Stillwater
is currently accustomed to.
65 Years and older (Senior citizen) - The share of total population
that this group has enjoyed in the past has been rising steadily,
although the City rate has lagged behind the Township pace. The
lengthening of the average life span will continue to increase this
group's share; however, the upward trend will eventually be offset
by the future growth of the main working group. Hence, it is
plausible that the senior citizens may number 1, 600 or nine per
cent by 1980.
Probable Direction of Growth
Mainly, population increases will occur to the most significant de-
gree as an outward expansion of the existing built -up areas. Most
of this activity will take place in the vicinity of Long Lake
27.
recognizing the present west- southwest movement and more generally
in a gradual accretion to existing built -up areas.
Some development will, of course, occur in the existing rural parts
of the Township. This development, however, will tend to be of a
low density, estate type, and thus not add appreciably to the Area's
population.
W
V. LAND USE
At this point, a re- evaluation of land use considerations developed
as a part of Phase I for both the Township and City is in order.
This second look at previous land use study is primarily to relate
it to the expanded Planning Area and test quantitative forecasts in
relation to economic and revised population considerations.
EXISTING CONDITIONS
Land use surveys conducted and recorded as part of the City's and
Township's previous planning efforts are considered adequate.
Thus, they will not be presented in great detail but rather will be
combined and summarized for clarity of presentation and for con-
venience of reference.
Table 10 presents a summary of existing land uses by acres for
the Township and City, both individually and in combination.
TABLE 10
TOTAL PLANNING AREA EXISTING LAND USE IN ACRES
Category
City
Town
Planning Area
Single - family
383
172
555
Multi-family
34
-
34
Commercial
22
5
27
Industrial
20
40
60
Institutional
65
53*
118
Park
11
-
11
Recreation
90
80
170
Wate r
82
440
522
Roads
308
320
628
Rail
21
60
81
Vacant
1,204
-
1,204
Rural
-
11,000
11,830
TOTAL
2,240
13,000
15,240
*Made up entirely of forty -eight acres in cemetery use, four acres of
concentrated development of the Pine Point Nursing Home, and the
one acre Town Hall site.
30.
12. The 2, 315 dwelling units in the City plus the 172 in the
Township results in an average household size of 3.9
persons per dwelling unit when related to the 1960
population of 9, 714.
13. City average household size is 3. 6 persons per household.
14. Township average household size is 4. 4 persons per
household.
TABLE 11
TOTAL LAND AND TOTAL DEVELOPED LAND IN PLANNING AREA
Total Planning Area Land 1 5, 240 acres
Less:
Vacant 1, 204 acres
Rural* 11,830 acres
Water 522 acres
TOTAL DEVELOPED LAND 1, 684 acres
*In a very real sense this category can be considered developed
land, however, it does include pasture and idle land as well as
cropland and cannot be considered as permanent developed land.
TABLE 12
PERCENTAGE RELATIONSHIPS OF EXISTING LAND USE IN TOTAL PLANNING AREA
Category
% Total
City 77
% Developed
Town
% Total % Developed
Planning Area
% Total % Developed
Single Family
2.5
22.8
1.2
10.1
3.7
32.9
Multi- family
.2
2.2
-
-
.2
2.2
Commercial
. 1
1.3
. 1
.3
.2
1. 6
Industrial
.1
1.2
.3
2.4
.4
3.6
Ins titutional
. 5
3,8
.3
3.2
.8
7.0
Park
. 1
.7
-
-
. 1
.7
Recreation
.6
5.2
.5
4.8
1.1
10.0
Water's
.5
-
2.9
-
3.4
-
Roads
2.0
18.2
2.1
19.0
4.1
37.2
Vacant*
7.9
-
-
-
. 5
4.8
Rural*
-
-
77.6
-
7.9
-
TOTAL
14.6
56.6
1 85.4
43.4 1100.0
100.0
'Not considered in determining total developed land
31.
LAND DEMAND
Now that certain economic factors have been investigated and
population forecasts reviewed and revised, a more firm foundation
is available for determining the amount of land needed in the future
to support the Area's various land using functions. This discussion
will refine land demand forecasts presented in previous work and
will relate them to the Planning Area. Quantitative determinations
will be forecasted for the Area's future land needs. These gross
amounts of required land will be provided for in a physical sense,
and their location, distribution and relationships will be graphically
presented as part of the Comprehensive Guide Plan.
For purposes of estimating future land demand it was assumed that
the median population estimate for 1980 of 17, 500 people in the
Planning Area is the most realistic. The land demand quantities
presented for the various land use classes are meant to present
the 1980 picture.
Residential
Future residential land demand is, of course, directly related to
population increase. By 1980 it is forecast that the Planning Area
will grow by approximately 7, 800 people. Due to the nature of the
Planning Area some of this population will be urban and some rural.
Presently 85. 5 per cent of the Planning Area population is considered
urban, ie. , living in the City of Stillwater. Differences in density
presents another way to approach urban and rural characteristics.
The amount of urban as compared to rural residential land results
in a 70 per cent - 30 per cent split. Because of the apparent trend
toward outlying areas for new residential development and the
increasing urbanization of Township living, it was assumed that by
1980 seventy -five per cent of the new population will be urban in
character and twenty -five per cent will be living at lower densities.
Densities for the various possible population classes are assumed
to be as follows:
Urban single - family 10,000 sq. feet /d. u.
Urban multi - family 3, 750 sq. feet /d. u.
Rural non -farm 15,000 sq. feet /d. u.
Rural farm and estate one acre /d. u.
Applying the per cent urban to total new population, an estimated
5, 850 people will be living at urban standards. It is assumed that
the per cent of multi - family urban land uses will increase from an
existing six per cent to ten per cent in 1980. It is further assumed
the rural farm and estate uses will account for one -third of the
rural category. The existing average household size of 3. 9 urban
and 4. 4 rural represents what is perhaps a logical future family
size.
Estimating 1980 residential land demand thus becomes a fundamental
mathematical process. By applying the above percentages, the
following numerical population breakdown is obtained:
Urban single - family 5, 265 people
Urban multi - family 585 people
Rural non -farm 1, 300 people
Rural farm and estate 650 people
TOTAL 7, 800 people
The next step is to present population in terms of families to gain
an indication of dwelling units needed to house the 1980 forecast
population. This is obtained by applying average household size to
population and results in the following breakdown:
Urban single-family
Urban multi - family
Rural non -farm
Rural farm and estate
1, 350 d. u. 's
150 d. u. 's
296 d. u. 's
148 d. u. 's
TOTAL 1, 944 d.u.'s
By applying the density standards to the number of dwelling units
the following estimate is obtained for amount of residential land
required:
Urban single - family
Urban multi - family
Rural non -farm
Rural farm and estate
310 acres
15 acres
105 acres
150 acres
TOTAL 580 acres
The presentation of land use by sub classes does not mean that all
urban uses will necessarily be located in the City of Stillwater.
They were presented to give a range of densities to which new
residential development in the Area will likely take place. The
location and distribution of these sub classes will be presented
as part of the Comprehensive Guide Plan and later reflected in
the zoning ordinance and subdivisions control ordinance.
32.
33,
Comme rcial
What factors operate that tend to shape the future needs for commercial
land use? Certainly the population to be served, the competitive posi-
tion of existing commercial activity within its trade area, the strength
of existing facilities to attract commercial activity and the level
of leadership in the business community are all important factors.
Some of these factors are more easily measured than others. Existing
population and commercial land use have been well established and
estimates for future population have been firmed up. Economic
findings, personal observation of the local scene and previous work
conducted as part of the planning program will help give an insight
into the other factors.
By forecasting future commercial land demand based strictly on esti-
mated population and the existing relation between population and
commercial land area, a 1980 demand of twenty -two additional acres
results. This forecast, however, does not allow for more adequate
standards of development than exist today, does not consider the
establishment of outlying commercial centers or the revitalization
needs of existing commercial activity. For instance, parking is a
problem in established areas, new highway construction and resi-
dential expansion create demands for outlying commercial service
facilities and the-age and condition of existing centers (particularly
the downtown area) are such that remodeling and new construction is
necessary to make the area attractive enough to area residents to
use to an increasing degree. This latter element is important in
expanding Stillwater's influence in its trade area and in presenting
itself favorably enough to encourage newcomers to use its facilities.
Evidence of this exist in new construction recently undertaken down-
town and in the community effort to relieve its parking problems.
Since very little commercial activity exists outside Stillwater's
downtown area, the rough estimate of twenty -two additional acres
by 1980 represents their needs almost entirely. Providing for
adequate parking, drives, landscape and revitalization would require
another ten acres of land for commercial use downtown. This is
in recognition of the extreme topographic limitations to expansion of
the existing area. From this analysis it is logical to assume that
the downtown area would need approximately thirty acres of ad-
ditional land by 1980.
To provide the services required to complement the downtown area
and serve the highway oriented and expanding residential districts
in outlying areas, thirty -five acres of land may well be needed by
1980.
34.
Industrial-
The Stillwater area compares most favorably with other metropolitan
centers in manufacturing activity than it does in other economic
indicators. Although the St. Croix Valley may never reach the
industrial peak of other metropolitan region centers, there could
well be increased activity in this function as growth moves east -
1 ward from the Twin Cities. As explained in the economy section,
however, perhaps the greatest demand for industrial land will corne
from expansion of existing centers.
Manufacturing employment does not seem likely to increase at as
rapid a rate as population. This indicates that industrial land demand
is not proportionate to population increase. But as a yardstick, if
industrial land demand grew proportionate to population, the sixty
acres of existing industrial use would increase to approximately
110 acres. Based on employment and economic indications, the
actual demand would be somewhat less than an additional fifty acres
by 1980. Since new industrial development is characterized by low,
spacious buildings with ample off - street parking and loading space
as well as sufficient open space, more land will be required. Assuming
a base land demand of forty acres, it would not be illogical to expect
that an additional forty acres would be needed to provide for modern
industrial demands. Thus, by 1980, the Stillwater Area will have
to provide for a minimum of eighty more acres of industrial land
demand.
Institutional
The amount of land needed for future institutional use will depend
primarily on the number, kind and size of future schools to be con-
I; structed. Also constituting institutional use are churches; local
governmental buildings; hospitals; institutions for the blind, deaf,
aged, etc. , ; museums and libraries. The total of these latter
activities will probably utilize little land in the Planning Area in
coming years.
Roughly speaking, probably no more than thirty per cent of the
estimated 1980 population would be within the school age group -
5 to 17 years of age. This means that by 1980 about 5, 200 students
may reside in the Planning Area and would require educational
facilities. Existing facilities provide schooling for 2, 700 pupils.
Assuming that these can be made to remain adequate throughout the
planning period, new accommodations will have to be provided for
2, 500 pupils. Some of these will undoubtedly be accommodated in
existing schools within Stillwater City as it exists today and some
elsewhere in the Planning Area. A more precise determination of
location will be presented in the Comprehensive Guide Plan report.
37,
Z. Prime agricultural land should be reserved and kept out
of urban use.
3. Residential development should occur, as nearly as
possible, in such a manner as to encourage identity
and neighborhood feeling.
4. Commercial growth should be encouraged that would
strengthen the existing downtown core. Outlying
commercial activity should complement downtown
uses and serve the function it is designed to perform,
ie. , highway oriented business and neighborhood con-
venience.
5. Comme rcial growth should be in well regulated and
planned centers rather than strung out along roadways.
6. Industrial growth should be provided for in unified,
single purpose areas where it can be protected from
encroachment and more efficiently provided with
necessary services.
7. Roads should be planned as an integral network, each
designed to perform a specific function.
8. All land uses should be located on land best suited to
their particular needs and should be logically grouped
and related to each other.
9. All land uses should be protected from encroachment
from others unless in the best interest of the total
environment.
10. Urban development should be encouraged only where
adequate services and facilities can economically be
provided.
11. All development should have as its foremost objective
the creation of an aesthetically pleasing environment.
PUBLIC
3 zoss 000,s ersz
For Reference
Not to be taken from this room
MINNESOTA
COLLECTION
COMPREHENSIVE GUIDE PLAN
STILLWATER PLANNING AREA
MnR711.4
1 Com
1961
Stillwater Public Librar 3
i
COMPREHENSIVE GUIDE PLAN
STILLWATER PLANNING AREA
Community Planning &
Design Associates, Inc.
October 1961
2 0 1990f
STILLWATER PUIBLIC LIBRARY
223 NoFiTH 4TH STREET
SrILLWATER, IAN 55082
CITY OF STILLWATER
MAYOR
Andrew Madsen
CITY COUNCIL
D. Charlsen
Edward Simonet, Jr.
J. L. Simpson
R. B. Tennant
PLANNING AND ZONING COMMISSION
STILLWATE14 PUBLic LIBRARY
223 NORTH 4TH STREET
STILLWATER, MN 55082
Robert D. Hagen, Chairman
James Mulvey
C. D. Bourdaghs, Vice Chairman
Richard N. Olsen
I. A. Bergen
Mrs. John Oriel
Leighton Charlsen
Searle Sandeen
Sherman S. Crane
Arno Schwantes
Richard Dewhurst
Shields Smith
Arthur L. Edstrom
Chester Wilson
W. G. Handevidt
C. T. Thompson, Secretary
Mrs. Roger Hayes
(Ex- officio)
Jack Hooley
Ronald Ehlinger, City
Glen Johnston
Engineer (Ex- officio)
Myron Melstrom
STILLWATER TOWNSHIP
TOWN BOARD
George L. Rydeen, Chairman
Harry Hooley
Elmer H. Olson
Charles M. Alcorn, Clerk
Percy Slater, Treasurer
PLANNING CONSULTANT
Community Planning &
Design Associates, Inc.
ACKNOWLEDGMENTS
In addition to the members of the Stillwater Planning and Zoning
Commission and the Town Board, who all contributed immeasurably
to the preparation of this report through many meetings and lengthy
discussions over the contents, special acknowledgment is also due
the City Engineer and his staff, the Building Inspector, the Chamber
of Commerce, the U. S. Department of Agriculture Soil Conservation
Service, Northern States Power Company, the Minnesota State High-
way Department, Stillwater area Public Schools, and the Twin Cities
Metropolitan Planning Commission. If we have overlooked anyone in
our listing of helpful contributors to this report it is only because
there were so many they may have slipped our mind.
Community Planning & Design Associates, Inc. , as sole contractors
for the professional content of this report, assume full responsibility
for any misrepresentations or errors that may be presented.
DENNIS GREBNER THOMAS HODNE REYNOLD ROBERTS AIA
COMMUNITY PLANNING & DESIGN ASSOCIATES INC
ARCHITECTS PLANNING CONSULTANTS DESIGNERS
9 October 1961
City Planning and Zoning Commission
City of Stillwater
Stillwater, Minnesota
Town Board
Stillwater Township
Stillwater, Minnesota
Gentlemen:
The transmittal of this report represents the final phase of tech-
nical aid under your current planning program. It presents you
with a plan for guiding the future development of the area and
with proposed zoning and subdivision controls to assist in
implementing the plan.
The guide plan is now a reality and important devices to implement
its recommendations are proposed. The next step is to work with
what you have, using this basis to direct future development, con-
tinually reviewing it to meet changing conditions and strengthening
the administrative and legal devices necessary to do the job. It
is our deep felt desire to continue beyond the completion of the
present planning program as technical assistants to the Planning
Commission in guiding these as well as other aspects of a con-
tinuing planning program.
Our association with the community in assisting in their planning
effort has been particularly rewarding. We were impressed with
the degree of cooperation and understanding exhibited by all those
concerned as we worked through the various phases of your plan-
ning program -- interim efforts, special studies, basic studies,
plan preparation and effectuation devices.
Sincerely,
COMMUNITY PLANNING &
DESIGN ASSOCIATES INC
Thomas H. Hodne
RI o dlf
ROBERT ISAACSON ASSOC AIP: PRINCIPAL PLANNER
rJE"-.MR UNIVERSITY AVE ST PAUL 14 MINN MI 6 -8677
TABLE OF CONTENTS
ACKNOWLEDGMENTS
LETTER OF TRANSMITTAL
LIST OF TABLES
LIST OF ILLUSTRATIONS
Chapter
I. SUMMARY OF PLAN RECOMMENDATIONS
Land Use
Community Facilities
Major Thoroughfares
II. INTRODUCTION
Planning Area Approach
Purpose of Planning
Planning Goals
Comprehensive Guide Plan
III. PHYSICAL CHARACTERISTICS
Natural Features
Existing Urban Development
IV. BASIC STUDIES REVIEW
Economy
Population
Land Use
V. COMPREHENSIVE GUIDE PLAN
Major Land Use Assignments
Community Facilities
Major Thoroughfare System
V.
Page
ill
iv
vii
vii
1
n
7
11
15
TABLE OF CONTENTS (continued)
-- VI. PLAN IMPLEMENTATION DEVICES 31
Zoning
Subdivision Control
Urban Renewal
Capital Improvements Budgeting
Official Map
APPENDIXES
I. -ZONING AND SUBDIVISION CONTROLS -- 37
INTRODUCTORY REMARKS
II. PROPOSED ZONING ORDINANCE 38
STILLWATER, MINNESOTA
STILLWATER TOWNSHIP, MINNESOTA
III. PROPOSED SUBDIVISION ORDINANCE 81
STILLWATER, MINNESOTA
STILLWATER TOWNSHIP, MINNESOTA
vi.
LIST OF TABLES
Table Page
1. Existing and Future Land Use Acreages 12
2. Residential Neighborhood Analyses 17
3. Functional Roadway Classification 26
LIST OF ILLUSTRATIONS
Figure Page
1. Comprehensive Guide Plan, Stillwater
Urban Area 14
2. Land Use - Circulation Plan, Stillwater
Planning Area 18
3. Zoning Use Districts, City of Stillwater 41
4. Zoning Use Districts, Stillwater Township 42
vii.
I. SUMMARY OF PLAN RECOMMENDATIONS
_This chapter has been included to provide the hurried reader with the
basic elements of the Comprehensive Guide Plan. It should be stressed
that the recommendations reviewed below are only the major proposals --
that they provide a framework for more detailed plan recommendations
which are included in the report and commended to the studied reader.
LAND USE
-- Establish four clearly definable residential neighborhoods
to accommodate most of the medium and high density
housing developments and their related uses.
-- Encourage the construction of multiple- family structures
in scenic locations near the Central Business District
(C BD).
-- Permit the development of medium density housing along
most of the river front area in the northern portion of
the Planning Area.
-- Permit only low density housing such as residential
estates and farms in the remainder of the Planning Area.
-- Strengthen and maintain the existing Central Business
District as the Area's foremost trade center.
-- Permit the horizontal expansion of the CBD only to the
surrounding bluffs so that a natural buffer is provided
between the CBD and the higher residential land.
-- Restrict the development of highway- oriented com-
mercial establishments to four concentrated areas
thereby minimizing a "string" development.
-- Permit in residential neighborhoods only those com-
mercial establishments that would serve primarily the
neighborhood within which the activity is located.
-- Reserve two areas, in addition to the industrial land
near the CBD, for use by new or expanded industrial
development.. One should have rail access and the
other highway access.
2.
-- Protect the proposed industrial areas from encroachment
by other land uses, and establish minimum requirements
-= to assure proper industrial development.
COMMUNITY FACILITIES
-- Encourage the construction of the two new elementary
schools that will be required by 1980, if population
grows as forecast, to occur near the center of the two
proposed western neighborhoods.
-- Reserve the bluffs, ravines and portions of the river and
lake front areas for permanent public use. Some of this
land should be developed with facilities for use as neigh-
borhood parks.
-- Provide playgrounds in urban areas where the distance
to an elementary school play area is more than one-
half mile.
-- Encourage the reservation of the ravine, bluffs and
attendant woodland north of the "boom" area for use as
a regional park. Its development might be undertaken
by the County or some other large scale authority.
-- Encourage the construction of a new municipal building
and fire and police station, that will be needed within
the planning period, to occur in the vicinity of the CBD.
-- Encourage the retention and expansion of the existing
institutional cluster immediately above the bluffs to the
south of the CBD. Construction of the new County Court
House in this area would be advantageous to both the
County and the Planning Area. This area would also
provide a fine site for a new municipal building housing
City administration offices.
MAJOR THOROUGHFARES
-- Provide a new "western bypass" route to serve as the
major north -south traffic artery in the area.
-- Construct a new bridge over the Saint Croix River to
relieve CBD congestion and to improve the flow of traffic.
3.
-- Upgrade Owens and Greeley Streets and alter their align-
ment to serve as one facility for accommodating the major
internal north -south traffic in Stillwater.
-- Upgrade and extend Myrtle Street westerly to act as the
major east -west artery between Highway 96 and Highway
212 in the north and south respectively.
-- Provide a ring road system around the intensely used area
of the CBD to bring about an orderly movement of vehicular
traffic with due respect to the pedestrian.
-- Provide internal streets in the four neighborhoods to act
as routes for the collection and distribution of local
traffic. Their use as through traffic arteries should be
discouraged.
-- Construct a system of parkways to connect and provide
access to the many seeniv - areas of the community.
R
II. INTRODUCTION
Planning activity in the Stillwater area the last two years has been
characterized by revitalization and initiation of the planning function
utilizing interim approaches designed to meet critical and special
problems. The City of Stillwater has completed Phase I of their
comprehensive planning program which was presented as Stillwater
Interim Plan Report. Based upon this work two special studies
have been conducted. One, the Downtown Parking Study, is being
evaluated by a special committee; the other, Downtown Circulation
Plan, is serving the purpose of presenting the community's desires
to the State of Minnesota Highway Department relative to highway
proposals in the Central Business District.
Stillwater Township became aware of the benefits of planned develop-
ment and initiated Phase I of their° comprehensive planning program,
including the provision of interim zoning controls. Their Phase I
work was presented in report form as Interim Development Guide
Plan. They are also preparing subdivision controls to expand on
their powers to regulate future development.
PLANNING AREA APPROACH
For purposes of continuing planning activity, an area consisting of
both the City and Township of Stillwater has been defined and
termed the "Planning Area. " Comprehensive planning has been
conducted on the basis of the expanded Planning Area. Because of
the concentrated urban development within the City of Stillwater,
special consideration must be given that segment of the Planning
Area, which is referred to as the Stillwater Urban Area.
The most important aspect of the Planning Area approach is that
mutual problems can be analyzed in their true perspective and
that future development can be guided on a uniform basis. This is
especially true since two governmental units, both possessing the
necessary powers to regulate and direct construction, have decided
to approach their planning jointly. Stillwater City and Township are
to be highly commended for the farsighted approach they have elected
to follow in meeting their planning needs.
PURPOSE OF PLANNING
The purpose of the present planning program is to develop a long -
range Comprehensive Plan for guiding the future physical
development of the Stillwater Planning Area in line with its social
5,
and economic needs. Unless a community has planned in advance,
day to day decisions which will necessarily affect its future form
_ will be made with no basis upon which to evaluate them. These
decisions must be based upon a competent analysis of basic data
and the determination of desired community goals,
PLANNING GOALS
A fundamental element of any plan or program is the formation of
general policies or goals within or toward which more detailed
planning and action can be directed. The general goals which served
as the framework for the development of the Comprehensive Guide
Plan for the Stillwater Planning Area are as follows:
To protect prime agricultural land from encroachment
by urban development.
To preserve open space areas within and around
urbani zation.
To encourage residential development to occur, as
nearly as possible, in such a manner as to provide
identity and neighborhood feeling.
To encourage commercial growth that would strengthen
the existing downtown core. Outlying commercial
activity should complement downtown uses and serve
the function it is designed to perform, ie. , highway -
oriented business and neighborhood convenience.
To encourage commercial growth to occur in well regu-
lated and planned centers rather than in ribbon fashion
along major thoroughfares or on all four quadrants
of an intersection.
To provide unified, single purpose areas for industrial
development where it can be protected from encroach-
ment and more efficiently provided with necessary
services.
To plan roads as an integral network, each designed to
perform a specific function.
To locate all land uses on land best suited to their
particular needs and group them so that they relate
logically to each other.
To permit urban development only where adequate
facilities and services are practical to provide.
A
To encourage the development of civic and related buildings
in balanced, harmonious and functional groupings.
To prevent and eliminate urban blight and encourage
desirable urban character and appearance.
COMPREHENSIVE GUIDE PLAN
The Comprehensive Guide Plan is a policy document which will serve
as a guide for future physical development. It will help assure that
all elements of the physical layouts relate logically to each other
and that urban development will occur in an orderly, efficient and
economical manner.
The Plan is general and flexible enough to meet varying conditions of
actual development as they occur. It is long -range so as to anticipate
the needs of an expected population twenty years in the future. It is
comprehensive, taking into account physical, social and economic
needs, and their relation to the future.
Planning and anticipating the future needs of the Stillwater Area
is necessarily a continuous process. To enable the Plan to meet
any unforeseen changes that may occur, it should be periodically
studied and revised. Its end goals should remain intact, but the
method by which these are achieved may require alteration. After
adequate public review and discussion, the Plan should be adopted
by the Stillwater City Council and the Stillwater Town Board to
serve as official policy for the future physical development of the
Area.
7.
III. PHYSICAL CHARACTERISTICS
An examination of the physical characteristics of the Stillwater Planning
Area - - both natural and man -made - e will aid greatly in fashioning a
plan for the Area's future growth.
NATURAL FEATURES
Possibly the most important asset the': Stillwater Area enjoys is its
bountiful supply of natural beauty and charm. Its location on the
scenic Saint Croix River where the turbulent northern water is trans-
formed into the "still water" of Lake Saint Croix is indeed impressive.
The Area is dominated by quite hilly and broken topography. The
most abrupt slopes occur north of Stillwater City where the land drops
to the Saint Croix River exhibiting a slope in excess of 450 in places.
Three sizable areas of relatively level land exist which do not conform
to this general description. They are located in the northeast, west,
and south central portion of the Area.
A succession of low rounded hills and depressions are apparent through-
out the area. Nine good sized lakes and numerous small ponds occupy
some of the depressions. Others, which have no surface outlet and
probably were once small lakes, are now filled with peat and muck.
Although the Area is in close proximity to the deepcut Saint Croix
River Valley, only three short streams flow into this drainageway.
Elsewhere in the Area drainage is downward into underlying sands
and gravels or for short distances into lakes, ponds and semi - swampy
areas.
Numerous woodland clusters remain throughout the Area but the
largest concentrations are grouped along the shores of inland water
bodies, on the river bluffs and in the many ravines. These are
mainly scrub oaks, however, stately pines abound along the northern
river banks and add greatly to the scenic view afforded from State
Highway 95.
EXISTING URBAN DEVELOPMENT
Generally speaking, the urban development in the Stillwater Area is very
impressive. It presents an attractive physical appearance and also
operates well from a social standpoint. But like all communities,
some elements of its urban structure leave something to be desired.
A brief, general rundown of the strengths and weaknesses of
Stillwater's man -made environment from a planning viewpoint will
provide an invaluable insight regarding its present and future
development.
91
Area Strengths
The area is fortunate in being very well served by a major
-- highway network. Recent improvements on Highways 36,
212 and 95 have provided fine facilities for the movement
of people and goods. Additional improvements on Highway
95 will be forthcoming.
For the most part, the major land uses -- residence,
commerce and industry -- have been concentrated in
separate groupings thereby precluding conflicts resulting
from incompatible developments.
Nearly all industrial development has occurred in the
vicinity of the CBD where rail access is available or,
more recently, south of the City near Highway 212.
The region- serving commercial establishments are con -
centrated in one area (the CBD) rather than being strung
out along a major highway.
Most of the buildings in the CBD are structurally sound.
Recent building activity in the CBD reflects its vitality.
With few exceptions, only neighborhood commercial
service establishments have diffused into residential
areas.
OnEy one significant area of highway- oriented commerce
has developed thus far.
Most of the residential additions to the City have not
exhibited a tendency to "leapfrog" (locate on land some
distance from existing built -up areas), but instead
have occurred as a natural outgrowth of the City.
Numerous stately residences exist in the area, many of
historical significance.
The location of the Municipal Building, Fire Station,
Armory, Post Office, Library, Court House and other
institutional land uses near the CBD gives life to the
Area's primary trade center.
The Area is fortunate in having a fine Country Club
Gulf Course facility.
The Lowell Park waterfront and river development
complex is an immeasurable asset.
a
The attractive new hospital is well located and its in-
fluence upon surrounding development has been and
will continue to be beneficial.
The Area is fortunate in having a new senior high school
on a site large enough to permit future building expansion
and installation of outdoor athletic fields.
Area Weaknesses
Vehicular circulation within Stillwater City does not
operate well in relation to existing land uses. There
are numerous through streets illogically located for
accommodating east -west traffic; thus, heavy traffic
is permitted to use streets which should logically
function as local service routes.
There is need for a good north -south route in the
western portion of the Area.
The CBD is congested, due in part to the presence of large
volumes of through traffic especially in peak hours and
seasons.
The absence of over -all planning is evidenced by the
relation among some of the various additions to the
City. In many cases where one subdivision has been
developed adjacent to another, the internal streets do
not meet logically, but instead are offset and sometimes
discontinued.
The unregulated subdividing of land has resulted in the
formation of illogical block shapes and street inter-
sections in some subdivisions.
The system of street labeling is quite confusing to some-
one not familiar with the Area since streets are not
named alphabetically, and, in the southeast portion of
the City, streets with identical numerical designation
run parallel to each other.
The blighted residential area in the northern part of
the City is a definite liability.
There are a number of land uses in the CBD that are
incompatible with its function.
10.
Residential development has been permitted to occur up to
the edge of the ravines and river bluffs in Stillwater thereby
precluding their use as public open space. Unfortunately,
some of the ravines have been filled in places.
While the new senior high school is a fine facility, its
location is somewhat unfortunate due to its traffic
generating qualities. Ingress and egress to the school
is gained through a well established residential area.
There is a definite lack of neighborhood parks and play -
lots in most of the residential areas.
11.
IV. BASIC STUDIES REVIEW
The purpose of this chapter is to present the highlights of the three
basic studies that have been undertaken as a part of the planning
program. Its inclusion will refresh the reader's mind as to the
framework upon which the development of the Comprehensive Guide
Plan is based.
ECONOMY
Washington County economic activity, which to a considerable degree
reflects Planning Area trends, indicates continuing rise in manu-
facturing activity and marked stability in retail, wholesale and
business service activities. The Planning Area's economic structure
is much the same today as it was in the 1930's.
The Stillwater Area has not maintained its share of employment in
Washington County during the past two decades although the total
absolute employment in the Area has increased. Retail trade and
business services appear to represent areas of largest potential
employment growth.
The Stillwater Retail Trade Area extends to a substantial degree
into Wisconsin and serves both sides of the Saint Croix Valley north
of Highway 12 and just south of Highway 8. Due to metropolitan
expansion, Stillwater's share of Washington County's retail sales
has been decreasing. This situation may be reversed after 1970
when Twin City metropolitan growth is felt more in Stillwater.
POPULATION
The population of the Planning Area decreased steadily from 1910
to 1940 when the trend was reversed. Today the Area totals
9, 700 persons of which eighty -six per cent reside in the City of
Stillwater. The Area's share in Washington County total population
has been decreasing steadily since the turn of the century but this
is expected to be reversed toward the latter part of the planning
period. Absolute population increases of 1, 600 persons by 1970
and 6, 200 persons for a total count of 17, 500 by 1980 is anticipated.
LAND USE
There exist over 15, 200 acres of land in the Planning Area of which
1, 700 acres are developed (not used as farms and not vacant or
covered with water). The following table presents the amount of
12.
developed land by use category that exists in the Planning Area today
and that may be required by 1980.
TABLE 1
EXISTING AND FUTURE LAND USE ACREAGES
The following are some observations relating to how the land in the
Area is used:
Rural land amounts to an overwhelming majority of the
total land in the Planning Area, nearly seventy -eight
per cent.
The overwhelming amount of rural land gives an indication
of the current importance of agriculture to the Area's
economy.
A very sparce eleven acres of park land exist in the
Planning Area, all of which is in the City.
The City contains only fifteen per cent of the total land
in the Planning Area while it contains nearly fifty -seven
per cent of the total developed land.
The Township contains over eighty -five per cent of the
total land in the Planning Area and forty -three per cent
of the total developed land.
The largest single developed land use in the Planning
Area is roads, accounting for over thirty -seven per
cent of the developed land.
Residential land is the next largest single user of land
with slightly over thirty -five per cent of the developed
land.
Existing
20 Year
1980
Category
Acreage
Demand
Acreage
Residential
589
580
1,169
Commercial
27
65
92
Industrial
60
80
140
Institutional
118
80
198
Park- Recreation
181
35
216
Roads
628
210
838
Rail
81
-
81
TOTAL
1.684
1.050
2.734
The following are some observations relating to how the land in the
Area is used:
Rural land amounts to an overwhelming majority of the
total land in the Planning Area, nearly seventy -eight
per cent.
The overwhelming amount of rural land gives an indication
of the current importance of agriculture to the Area's
economy.
A very sparce eleven acres of park land exist in the
Planning Area, all of which is in the City.
The City contains only fifteen per cent of the total land
in the Planning Area while it contains nearly fifty -seven
per cent of the total developed land.
The Township contains over eighty -five per cent of the
total land in the Planning Area and forty -three per cent
of the total developed land.
The largest single developed land use in the Planning
Area is roads, accounting for over thirty -seven per
cent of the developed land.
Residential land is the next largest single user of land
with slightly over thirty -five per cent of the developed
land.
13.
The 2, 315 dwelling units in the City plus the 172 in the
Township re sults in an ave rage hous ehold s i ze of 4. 4
persons per household.
COMPREHENSIVE GUIDE PLAN, STILLWATER URBAN AREA
LAND USE
PUBLIC FACILITY
RESIDENTIAL- MEDIUM DENSITY
PRIVATE FACILITY
RESIDENTIAL-HIGH DENSITY
ELEMENTARY SCHOOL
COMMERCIAL
JUNIOR HIGH SCHOOL
INDUSTRIAL
�\ \ \ \ \ \\
INSTITUTIONAL
SM
PARK- RECREATION -OPEN SPACE
- - - -
NEIGHBORHOOD BOUNDARY
COMMUNITY FACILITIES
MAJOR THOROUGHFARES
PUBLIC FACILITY
D
PRIVATE FACILITY
ES
ELEMENTARY SCHOOL
JHS
JUNIOR HIGH SCHOOL
SHS
SENIOR HIGH SCHOOL
CH
COURT HOUSE
FS
FIRE STATION
L
LIBRARY
H
HOSPITAL
MB
MUNICIPAL BUILDING
MAJOR THOROUGHFARES
N
EXPRESSWAY
MAJOR ARTERIAL
MINOR ARTERIAL
COLLECTOR
- - - - -- PARKWAY
FEET
0 600
L
COMMUNITY PLANNING
r DESIGN ASSOCIATES
FIGURE Z
15.
V. COMPREHENSIVE GUIDE PLAN
The Comprehensive Guide Plan in graphic form (Figure 1) together
with the textural material in this report and the Land Use -
Circulation Plan (Figure 2), constitute the Comprehensive Guide
Plan for the Stillwater Planning Area. The Comprehensive Plan
illustrates graphically the desirable relationships between the
physical parts of the Area. It is designed according to principles
of sound planning and in recognition of local civic aspirations. It
does not attempt to distinguish between existing and proposed fea-
tures and, in most cases, designates only the general pattern of
development. Detailed design and location of specific developments
must be studied further by interested individuals and organizations.
The Plan is comprised of three basic elements -- land use, community
facilities and major thoroughfares. These three elements are very
closely related to one another; hence, it would be unrealistic to plan
for one without considering the others. To illustrate, activity on the
land generates traffic which requires transportation facilities. The
type of land use is a factor in determining the type of transportation
facility required. Similarly, transportation has an appreciable effect
on land use as witnessed by the varying shapes of land parcels created
by transportation routes, the blighting effect of some transportation
facilities on adjacent land,and the effect on land values, occasioned by
access to transportation routes.
The following sections should be read with the realization that they are
integral parts of the Comprehensive Guide Plan and were, developed as
such.
MAJOR LAND USE ASSIGNMENTS
Land use classifications as designated on the Plan are based on a 1980
population of 17, 500 persons; however, in assigning land use acreages,
it was necessary to envision the area as it may be well beyond the
twenty year planning period.
Residential Development
Existing and future housing in the Area can be classed as either high
density (apartments, row housing, group housing, etc.); medium
density (single family detached dwellings and duplexes); or low density
(farms and country estates).
Sites for high density residential development have been suggested on
the Plan generally in the older parts of the community and, for the
16.
most part, in close proximity to the CBD. The natural beauty of
the Area affords many sites where high quality multiple family
structures might be constructed. If properly regulated, their
addition to the community could be a highly valuable asset.
Medium density housing should be located within residential neigh-
borhood units except as discussed later. The ideal neighborhood is
a logical area for living and is large enough to support one elementary
school within a half -mile walking distance of the neighborhoods' resi-
dences. Parks, churches and certain community facilities which
serve the families within the neighborhood should be conveniently
located. Commercial development should be limited to establishments
which serve primarily the population living within the neighborhood.
Where possible, heavy traffic should be channeled around the neigh-
borhood units rather than through them so that internal living is not
disrupted. The purpose of delineating neighborhoods is to provide a
logical framework for planning the long -range development of the
total community.
Generally speaking, upon a cursory analysis of Stillwater's physical
development, the elements of the ideal neighborhood are not situated
so that neighborhood units are apparent. The main reason for this is
that the existing major thoroughfare system does not operate according
to the neighborhood concept of guiding heavy traffic around residential
areas where possible. Fortunately, however, the service areas of
most of the commercial establishments presently existing in resi-
dential areas are local rather than city -wide in scope. Further,
industrial activity, for the most part, does not occur within residential
areas, but instead, has been concentrated in the vicinity of the Central
Business District where nearly all the city -wide and region- serving
commercial establishments in Stillwater are also centered.
With consideration given to the above factors, four residential neighbor-
hoods have been delineated on the Comprehensive Guide Plan. They will
be referred to as the Northeast, Northwest, Southeast and Southwest
neighborhoods. Their boundaries consist of either major thoroughfares
or physical barriers such as bluffs or ravines. Governmental boundaries
were not adhered to in the delineation of the neighborhoods; hence, the
Southeast unit contains parts of the City of Stillwater and the Townships
of Stillwater and Oak Park.
In the Land Demand section of the Basic Planning Studies, it was
determined that 580 acres of land will be needed for residential
development by 1980. The amount of undeveloped land that is suitable
for future urban development in the four neighborhoods (less the land
needed for parks, schools and streets) totals over 900 acres in area.
A breakdown of the undeveloped land in the four neighborhoods is
given below.
17.
TABLE 2
RESIDENTIAL NEIGHBORHOOD ANALYSIS
Undeveloped Land
Neighborhood Total Area Suitable for Urban Use's
Northeast
Southeast
Northwest
Southwest
TOTAL
-600 Acres
800 Acres
850 Acres
800 Acres
3,050 Acres
' *Less land needed for parks, schools, and streets.
60 Acres
130 Acres
350 Acres
400 Acres
940 Acres
It is evident that sufficient space exists in the four neighborhoods to
accommodate all the medium density housing that will be demanded
during the planning period. Ample space for the schools, parks,
churches and other facilities to serve the new families is also
available within the four areas. By adopting this development policy,
necessary municipal services such as fire and police protection,
street maintenance, water supply, sewage disposal, and rubbish
removal may be more efficiently provided. Further, each proposed
development may be realistically evaluated to determine if it har-
monizes well with the over -all development goals of the community
as expressed on the Comprehensive Guide Plan.
Beyond the neighborhood units, medium density housing should be
allowed only along the river bluffs in the northern part of the
Planning Area as indicated on Figure 2. There is a definite demand
in force for lots with river frontage. This seems compatible with the
development objectives of the area although care should be taken to
avoid the complete utilization of the scenic river front by private
interests.
The only other residential development that should be permitted beyond
the neighborhoods is low density housing which would utilize at least
one acre of land. The customary farm operation as well as the ex-
urban country estate is envisioned here. The former will continue
as it is today and the latter will increase in quantity and importance.
Land surrounding Long Lake and Lily Lake and overlooking the river
north of the City will be the prime recipient of estate housing.
It would be beneficial for the Stillwater Area to preserve its historical
heritage exhibited by the many stately residences of an earlier era.
The restoration of these structures should be encouraged. A fine
example of the restoration of an aged structure is the "Victorian"
women's shop.located on Myrtle Street near the Lowell Inn.
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1 9.
Commercial
For discussion purposes commercial land use has been separated into
three categories -- Central Business District (CBD), highway- oriented
service, and neighborhood service. Since the latter category was
adequately discussed earlier in the chapter, only the other two will be
discussed here.
As a general development policy it is recommended that the existing
Central Business District be strengthened and maintained as the
Area's foremost trade center. It was discovered earlier than an
equivalent demand of thirty acres of additional land may be needed by
1980 for expansion of the CBD. This demand may be satisfied by three
means -- lateral expansion which would necessitate removal of other
adjacent land uses since vacant land is almost non - existent; vertical
expansion made necessary by high land costs and the limiting effect of
surrounding bluffs; and replacement of existing establishments in the
CBD that are incompatible with its character. Examples of some in-
compatible uses are warehouses, production plants, and highway -
oriented establishments.
It is recommended that the CBD be allowed to expand horizontally no
further than is indicated on the Plan. Thus, the high bluffs,that surround
the CBD would act as a buffer between the CBD and the residential
neighborhoods on the higher land. It is suggested that a hard core of
retail- office structures be developed within the proposed ring road and
that wholesale- service activity be concentrated on the periphery of the
road. There is need for a comprehensive program of revitalization of
the CBD to achieve a stronger center that will comp'blee successfully
with any future shopping centers that might be developed within its
present trade area. Such a program would demand the active partici-
pation of a unified business community with the backing of Stillwater's
citizenry. This is not meant to indicate that individual "face lifting"
projects should not be undertaken. On the contrary, remodeling should
be encouraged but it would be helpful if the various projects were under-
taken with common objectives in mind. .Recommended objectives are:
unified sign regulations, cooperative off - street parking areas, uniform
remodeling (shy away from bizarre 'aluminum and glass fronts) for
over -all character, and blending of the historical with good contemporary
design.
Suggested sites for development of highway- oriented commercial
establishments have been outlined on the Plan in four locations. Only
the tract at the intersection of Highway 212 and Fourth Street contains
existing development of this nature; the others are presently vacant or
in agricultural use. Since all the tracts are located adjacent to major
thoroughfares, care should be taken to limit the number of access and
egress points so that the movement of through traffic on the main
arteries is not impeded.
20.
The 1980 demand for commercial land outside the CBD is thirty -five
acres. If ten acres of this is needed for new neighborhood service
establishments, the remainder represents highway- oriented develop-
_ ment. This should be protected from encroachment by other land
uses and its physical development should be controlled to assure
proper development.
Industrial Development
During the current planning program various civic and private
organizations have voiced the desire to work towards the attraction
of new industry to the Stillwater Area. To accomplish this objective
three related approaches were deemed necessary. The basic re-
quirement is a good site with adequate transportation facilities and
available utilities. The second factor, which has been neglected in
many communities in the past, is the protection of industrial land
from encroachment by other land uses. The third and possibly the
most important consideration in light of the keen competition for
industrial development among Upper Midwest communities, is the
attractiveness of the entire community from a physical as well as a
social and economic viewpoint.
With the above criteria in mind, it is recommended that two areas,
in addition to the existing industrial land near the CBD, be set aside
for industrial use -- one with rail access, the other with highway
access. Indications are that the availability of rail access would not
be a major requirement of the industries desiring to locate in the Saint
Croix Valley. Thus, the Plan outlines only a twenty acre tract near
the Northern Pacific rail line in the western portion of Stillwater
Township. If this develops beyond present anticipations, additional
surrounding land may be made available at a future date.
The Plan also indicates a sizable tract of land adjacent to Highway
212 for use by industries which ship or receive goods by motor
vehicle. Its area measures over 200 acres and contains three existing
industries, two of which were constructed in recent years. Since the
demand for additional industrial land totals eighty acres, it is evident
that the industrial space needs of the area will be satisfied well past
the planning period.
The large amount of land to be reserved for industrial use will afford
flexibility in the choice of plant location. The recently completed
Highway 212 and 36 expressway provides an excellent link between
the proposed industrial areas and the Twin Cities. In addition, newly
upgraded Highway 95 offers good access to Interstate Freeway 94
which extends from the Twin Cities to Chicago.
It is imperative that the industrial areas be reserved for use wholly
by industrial developments. There are a great many cases in the
21.
Twin Cities' area where well established industries have been en-
gulfed by new residential developments. The inevitable cries from
the new residents concerning the industry's noise, odor, appearance,
etc. , seem unfounded since the industry was there first. If the com-
plaints are not satisfied by some means, the incentive for home-
owners to maintain their properties is not present and the neighborhood
gradually degenerates.
Protection for Stillwater's future industries includes not only guarding
against encroachment from other uses but also means controlling the
type of industrial development within the district. Certain minimum
requirements should be established to assure good development. In-
dustrial concerns are well aware of the advantages of locating in an
area where proper development of surrounding land is assured. A
desirable appearance is especially important in Stillwater where most
of the proposed industrial land is plainly visible from Highway 212.
The third requirement for inducing industry to locate in Stillwater --
an attractive community from a physical, social and economical
viewpoint -- is well on its way toward being accomplished. Stillwater
is widely recognized for the beauty of its natural features -- its many
bodies of water, wooded bluffs and ravines, parks and surrounding
rolling agricultural land. Many items of historic interest are located
in the Area. Most of its residential areas are well kept and the many
stately houses of an earlier period offer an additional attraction. It
is the center for administration of county affairs. Some of its com-
mercial and industrial concerns have far - reaching influence. These
are a few of the attributes that come to mind. Of course, like all
communities, Stillwater has its weaknesses. These were brought out
in the first part of the report. Recommendations for alleviating these
shortcomings are also contained in this report. Thus, it may be
demonstrated that the Stillwater Area is attempting to provide equitably
and adequately for all parts of its urban structure through a detailed
appraisal of its existing make -up and a systematic plan for its future
development.
COMMUNITY FACILITIES
In planning for community facilities, particular attention was given to
the need for and the location of schools, parks and recreation areas,
and municipal administration and service buildings,
Schools
In describing the ideal neighborhood in the preceding section, it was
noted that each neighborhood should contain one elementary school
near its center, thereby providing a reasonable walking distance
between schools and home and a desirable enrollment range.
22.
Unfortunately, only one of the two existing public elementary schools
is located near the center of the neighborhood that contains it as
evidenced on the Plan.
The Washington School has fourteen classrooms and two kindergartens
which accommodate a total enrollment of about 500 students who reside
in an area slightly larger than one square mile. This is a walk -in
school. In contrast, the Oak Park School has twenty classrooms and
two kindergartens which serve a student body of 700 who live in about
a fifty square mile area. This is primarily a bus -in school. The
service area of Washington lies within the Oak Park district. This
situation is due to the large size of School District 834 -- one of the
largest in Minnesota.
Washington School was constructed in 1938 and will serve beyond the
planning period. The Oak Park facility was built in 1954 and should
be adequate until near the turn of the century. Officials of the School
District have no plans for expanding these facilities. They do foresee
the possible need in the area in the near future for additional facilities
equivalent to fourteen elementary classrooms.
The estimated 1980 Planning Area population indicates a possible 5, 200
persons in the school age group as compared with 2, 700 students today.
If this occurs, some 1, 300 additional elementary students may need to
be accommodated in over forty public school classrooms. Thus, at
least two new elementary schools will be needed in the Planning Area
by 1980. Suggested sites for these facilities have been indicated on
the Plan near the center of the Northwest and Southwest neighborhoods.
The site north of McKusick Lake in the Northwest neighborhood contains
deposits of peat. If construction is unfeasible due to the peat, alternate
sites east or west of McKusick Lake should be considered.
The junior high school and senior high school have current enrollments
of 1, 100 and 870 students respectively. These facilities serve the
entire School District. School officials see the need for an additional
junior high school by 196,5. Expansion of the present facility is not
feasible. The new high school presently accommodates slightly more
than two- thirds of its 1, 200 student capacity. When it is filled, the
plant may be expanded to serve an additional 400 students, but no
further expansion at the present site would be undertaken after that
capacity is reached.
The School District contains two parochial schools serving students in
grades one through eight. Both of the facilities are located in the
Southeast neighborhood of Stillwater. Saint Michaels is the larger of
the two and serves nearly 500 students while Saint Marys accommodates
about 150 persons. It is assumed that these facilities will be gradually
expanded as population increases.
23.
Parks - Open Space - Recreation
The natural characteristics of Stillwater's physical setting provide quite
-- a substantial amount of land that is well suited for park or permanent
open space use. As discussed earlier, one of the unfortunate aspects
of the Area's past physical development is that only a relatively small
amount of park land has been provided. As a result, private develop-
ment has utilized most of the scenic areas in the built -up portion of
the Community. To assure that this situation will not prevail in the
future, it is recommended that the large wooded areas, ravines and
portions of the river and lake front areas be reserved for permanent
public use as indicated on the Plan.
There is a need for five levels of developed park land in the Area. These
are regional parks, community parks, neighborhood parks, playgrounds
and playlots. Each of these serves a different function as will be dis-
cussed later.
The estimate of thirty -five acres of land to be developed into parks by
1980 was based on 'only the area requirements of the latter three
facilities that were mentioned above. Their standards of development
are presented below.
Type Quantity Size
Neighborhood Parks
Playgrounds
Playlots
1/ 2, 000 persons 1-1/2 acres
1 /1,000 persons 5 acres
1/ 700 persons 1/2 acres
The ravines, bluffs and attendant wooded land above the "boom" area
should be reserved for use as permanent public open space and for
possible development as a regional park to serve the entire Saint Croix
Valley and beyond. As discussed later in the report, a "sky line"
parkway should be constructed to provide access to the Area. Develop-
ment of the regional park which would include over 200 acres of jand
might be undertaken by a County park agency or some other large scale
authority. .
Stillwater's attractive Lowell Park presently serves as a community
park and should be retained as such. While other areas, such as the
Lily Lake swimming beach, will be utilized by the entire community,
Lowell Park should continue to serve as Stillwater's primary "City
park" during the planning period.
Neighborhood parks should provide leisure time opportunities for all
age groups, but elderly persons and mothers with small children
might use the facilities most. These facilities should be provided as
indicated on the Plan. An attempt has been made to locate them within
neighborhood units so that they will be easily accessible to the bulk of
the neighborhood residents.
24.
Hopefully, the existing and future elementary school play areas will
satisfy the requirements for playground facilities. Where a signifi-
cant residential area is situated more than one -half mile from an
elementary school, an additional playground should be provided for
the five to fifteen year age group.
Playlots for use wholly by the pre - school age group should be dis-
tributed throughout the Community. The Plan does not suggest sites
for these facilities. It is recommended that they be developed in
line with standards set forth above.
Municipal Administration and Service Buildings
The existing municipal building in Stillwater contains the City adminis-
trative and police offices. Adjacent to the building is the fire station.
The location of these buildings within the City seems quite logical but
the physical condition and appearance of these structures leaves
something to be desired due primarily to their age. Sometime within
the planning period these buildings will need to be replaced.
Various alternatives have been considered regarding the location of
a new municipal building. Expansion at the present site seems
feasible only in one direction -- to the east across Third Street. The
idea of a City- County combine has been voiced -- this would neces-
sitate an entirely new site. In any event, it is felt that its location
should be reasonably near the CBD due to its nature.
The existing library and grounds presents a handsome appearance
and should serve well during the duration of the planning period.
Institutional Cluster
Immediately above the bluffs to the south of the CBD there exists a
concentration of institutional activity. It is comprised of Saint
Marys' and Saint Michaels' churches and schools, the junior high school
and the Washington County Court House. The replacement of the latter
facility has been deemed necessary due to its physical condition and
insufficient space. A new structure will require more land than is
currently used, but the decision whether to acquire more land at the
present site or to provide an entirely new location is still under study.
It is felt that the retention and expansion of the existing institutional
cluster would be a desirable asset to the Area. By de- emphasizing
Third Street as shown on the Plan, a common core of institutional
uses free from disruption by heavy traffic will be afforded. It would
provide identity, a campus -like character and an opportunity for
cooperative off - street parking and other facilities. Upon initial
investigation it appears that the area south of the present Court House
would be well suited for construction of a new County facility. Use of
25.
the existing structure as a historical museum has been suggested.
This would fit in well with the institutional cluster concept, The area
would also be a fine site for a municipal building housing adminis-
trative offices. Space for a new fire and police station would then
be available at the present site. Land for the probable expansion of
Saint Michaels' parochial school and ancillary facilities within the
complex would also be available.
MAJOR THOROUGHFARE SYSTEM
The proper planning for facilities for the movement of people and
goods should result in an integrated system which is safe, economical
and efficient. In selecting a major thoroughfare system for the Still-
water Area, particular attention was given to past, present and future
traffic volumes, the function- of each facility and the relation of the
system to the over -all land use pattern.
Before a major street system for Stillwater can be outlined, it is
necessary to have a clear understanding of the functional classification
of the various existing and proposed roadways in the City. An efficient
circulation system provides some streets which give preference to
movement, others to access to adjacent land uses and some to serve
both of these needs. Six classifications of roadways are proposed for
the Stillwater Area. Their functional characteristics are reviewed
below:
Expressway - provides for the movement of large
volumes of traffic at relatively high speeds on relatively
long trips. The expressway is a multi - laned, divided
roadway, providing access connections with selected
public roads only. Grade separations are provided with
intersecting roads which carry large volumes of traffic.
Major Arterial Roadway - provides for those major
movements of traffic within an area not served by
expressways. It provides primarily grade access
connections to intersecting public roads at key points.
Minor Arterial Roadway - provides for through traffic
movement between major arterials and collector streets.
It has a secondary function of serving some of the access
needs of abutting property.
Collector Street - distributes the internal traffic within
an urban area, such as a residential neighborhood or
industrial district, between the minor arterials and
local streets. It provides access to abutting property.
Continuity should be de- emphasized so that through
movement is discouraged.
Local Street - provides for direct access to residential,
commercial, industrial, or other abutting property.
Continuity is not important; all through traffic movement
should be discouraged.
Parkway - connects the various parts of a community
where possible and is used primarily for pleasure
driving. It is a specially landscaped and protected
roadway which serves major parks, lakes and other
scenic and recreational areas. It is not intended to
act as a link in the collector, arterial or expressway
system.
TABLE 3
FUNCTIONAL ROADWAY CLASSIFICATION
Express- Major Minor
Elements way Arterial Arterial Collector Local
Traffic
Movement
Access to
Land
Parking
Trip
Length
Designated
Through
Streets
Primary Primary Primary Same relative im-
portance as access
Tertiary Tertiary Secondary Same relative im-
portance as
movement
None
None
None
Ove r 3
Ove r 3
Over 1
miles
mile s
mile
Always
Always
Always
Tertiary
Under 1 mile
Sometimes
26.
Secondary
Primary
Secondary
Under 1 /2
mile
Never
Width of 150 -300 100 -200 80 -100 80 feet 60 feet
Right -of- feet feet feet
way
Source: Adapted from Twin Cities Metropolitan Planning Commission
publication Local Planning Bulletin No. 3, Street and Highway
Standards, March 1961.
Much of the planning for a major thoroughfare system in the Stillwater
Area has been accomplished as a part of the Interim Guide Plan and
Downtown Circulation Plan that preceded this present report. Only a
Z7.
small number of changes have been undertaken in the system that was
suggested in the earlier reports. The alterations will serve to bring
about a more efficient flow of traffic and an improved relationship
between land use and circulation elements.
It is recommended that, primary traffic arteries in the Stillwater Area
be provided and designated as shown on the Comprehensive Guide Plan
and as discussed below.
Major Arterial Roadways
Provide a new "western bypass" route to serve as the major north -
south artery in the Area. It is envisioned that this facility would
eventually become a new route for Highway 95, from the southern
part of Washington County to a point north of Stillwater where it
would join existing Highway 95. The present roadway through Saint
Croix Beach, Bayport and Stillwater should be retained as an alter-
nate "scenic" route. Provision of the new "western bypass" around
Stillwater would expedite traffic that does not intend to stop in Still-
water. It will also decrease the traffic congestion that presently
exists in the CBD. A furrther function of the roadway is its role as
the western boundary of two future neighborhoods. If a stage develop-
ment is necessary, it i;s recommended that the portion between
Highway 36 and Highway 96 be considered as the first priority.
Extend Highway 95 and 212 as a four lane divided facility from the
south to approximately the intersection of East Pine Street extended.
Provide a new bridge over the Saint Croix River commencing at the
East Pine Street line and joining the existing causeway on the Wisconsin
side of the river. This new facility will further relieve the heavy
traffic congestion now present in the CBD and make possible an
orderly and unrestricted flow of traffic. The existing bridge should
be retained to accommodate traffic to and from the CBD and Wisconsin.
It could also serve as a bicycle and pedestrian connection to Still -
water's park land on the Wisconsin side of the river.
Minor Arterial Roadways
Upgrade Owens and Greeley Streets and alter their alignment to serve
as one facility for accommodating the major internal north -south
traffic in Stillwater. This route would also act as the east -west
division of the four proposed neighborhoods.
Upgrade and extend Myrtle Street westerly to intersect with Willernie
Road (County Road 12) at the western boundary of the Planning Area.
This route would be the major east -west artery between Highway 96
in the north and Highway 212 in the south. It will also form the
north -south boundary of the four neighborhoods. The Washington
County Highway Department has been exploring the possibility of
providing a more direct approach for Willernie Road as it enters
Stillwater City. The above recommendation would benefit both
the County and the Planning Area.
Provide a "ring road" system around the intensely used area of the
CBD. Off - street parking facilities should be provided along this
peripheral route to accommodate shoppers and business people.
The exclusion of vehicular traffic from some streets is suggested
in favor of pedestrian malls. Vehicular circulation within the
primary trade center will then occur in an orderly fashion with due
respect to the pedestrian. The publications Downtown Circulation
Plan and Downtown Parking Study, are commended for a more
detailed CBD analysis and Plan.
Collector Streets
A description of each collector street is not necessary since the
Plan indicates their location quite clearly. Many of the collectors
are already in existence. If necessary, these should be brought up
to adequate design standards. With appropriate signalization local
traffic will be channeled onto the collectors and thence to the minor
and major arterials. Where new or realigned collectors have been
proposed, an attempt has been made to discourage their use as
through traffic arteries, yet provide logical routes for the collection
and distribution of local traffic. Those collectors that require some
explanation are discussed below.
Re -route County Road 5 from the intersection of Highways 36 and
212 onto the new western bypass to where Myrtle Street (County
Road 12) will intersect, thence on Myrtle Street to Owens Street.
The present diagonal route, of County Road 5 should then function as
an internal collector in the Southwest neighborhood.
Extend Orleans Street westerly to intersect with Greeley Street. The
vertical relief southwest of the high school varies about forty feet
but the horizontal distance is great enough to result in a grade of
about five per cent or slightly more. It is suggested that an entrance
to the high school off Orleans Street be considered. Residential
streets would then be relieved of heavy traffic.
Improve and extend Fourth Street northerly to Olive Street as indi-
cated on the Plan. The grade north of the junior high school would
be similar to that of Third Street in the same area. This action
would assure that the institutional cluster on each side of Third
Street would not be disrupted by heavy traffic.
Z9.
Realign Wilkins Street where it intersects Fourth Street to bring about
a smooth flow of traffic.
-- Utilize a portion of existing County Road 12 (Willernie Road) in the
Northwest neighborhood for a collector which would extend northeasterly
as a new road to join County Road 64 north of McKusick Lake.
Extend County Road 11 southerly as a new route through a wooded
ravine to intersect with Highway 96. This would relieve traffic at
the poorly designed junction of County Road 11 and Highway 95.
Parkways
It is felt that a system of specially landscaped parkways which would
connect and provide access to the many scenic areas of the Community
would be highly desirable. A further function of the parkways would
be to act as a link between residential neighborhoods. It is not fea-
sible to provide parkways within existing urban areas; hence, they
have been suggested only where urbanization has not occurred to a
large extent. Generally speaking, these roadways will course around
existing and proposed park land thereby encouraging quality resi-
dential development to occur overlooking the public land. Suggested
locations of the parkways are discussed below.
Provide a four mile long parkway to extend from Lily Lake northerly
around McKusick Lake, along Browns Creek, by the golf course to
intersect Fourth Street in the northeast portion of the City. This
route would utilize existing roads where possible. Provision of this
service route could be accomplished in stages but action should be
taken in the near future to assure acquisition of its right -of -way.
Provide a similar route around the eastern side of Long Lake ex-
tending southerly from proposed County Road 12 (Myrtle Street).
Only estate housing should be allowed in this area during the planning
period.
Provide a "sky line" drive along the river bluffs above the "boom"
area and encompassing Fairy Falls. Here, again only estate housing
should be permitted during the planning period.
31.
VI. PLAN IMPLEMENTATION DEVICES
The goals and recommendations of any comprehensive planning program
do not represent an end in themselves, even when embodied in the form
of a plan for the development of the Community. Such a plan actually
has little value until it is implemented by governmental and citizen
action. Without general public approval and acceptance of suggested
goals and recommendations pertaining to the development of the Still-
water Planning Area, little can be done in guiding its future growth.
The Comprehensive Guide Plan represents the best judgment of the
Planning Commission and its planning consultants on what course of
action to follow in guiding Stillwater's future development. Only when
the Plan, or an element of it, is transformed into officially adopted
policy, can action be taken to carry out its recommendations. Five
means by which policy decisions based on a comprehensive plan are
put into effect are zoning, subdivision control, urban renewal, capital
improvements budgeting and the official map. Most important in terms
of Stillwater's immediate needs are the first two devices. A brief dis-
cussion relating how each of the five plan implementation devices could
be used in Stillwater is offered below. In addition, a suggested zoning
ordinance and a subdivision control ordinance, tailored to the needs of
the Stillwater Area and based on the Comprehensive Guide Plan, are
contained in the Appendix.
The five effectuation devices are, of course, in addition to regular
programs of such other public agencies as the State and County Highway
Departments. With a well conceived Plan enjoying general citizen
acceptance, Stillwater's wants and desires can be graphically presented
to those higher forms of government that do much to form the pattern of
local development in their plans and programs. These plans and pro-
grams can be influenced through the presentation of a plan developed by
a local community.
Zoning
Probably the most important legal device for carrying out the Area's
development objectives is zoning. Its basic purpose is to prevent the
inappropriate development of privately owned land so as to safeguard
the general welfare of the Community. By grouping the most com-
patible uses into districts according to residential, commercial,
industrial, and other uses the entire community will be best served.
Individual land uses also benefit since they are protected from the ill
effects of other incompatible uses.
It should be stressed that zoning and planning are not synonymous.
While zoning may be used independently of planning, it is most
effective when used as an integral part of a Community's comprehensive
32.
plan. In fact, the very legality of zoning which is not a part of a
comprehensive plan is questionable. Moreover, a zoning ordinance
without a plan behind it is usually amended so much to satisfy indi-
vidual property owners that no concentrated plan of development is
evident; hence the general welfare of the community and its citizens
is forsaken.
Zoning is a preventive measure rather than a cure; it cannot correct
existing bad conditions but instead guards against future decay and
blight caused by the inappropriate mixture of land uses.
Although it is concerned primarily with privately owned land, the
zoning ordinance should also deal with sites for public buildings and
facilities. This device is also an effective method of controlling an
area's population density.
While the outstanding feature of zoning control is the division of a
community into separate districts, it also regulates such things
within the districts as:
Minimum yards, lots, and building height.
Minimum off - street parking and loading.
Kind, number and area of signs.
Yard requirements provide clear, open space around buildings.
Accessory buildings, except for garages in the rear yard, will
not be permitted.
Yard requirements should be a function of zoning. The zoning
ordinance should place front, rear and sideyard regulations in one
document, thus simplifying the task of the prospective builder. The
zoning ordinance should tailor the yard requirements to the particular
needs of each district.
Zoning will require off - street parking and loading spaces tailored to
the needs of each district. Minimum design standards for size,
screening, and other treatment of parking and loading facilities are
included.
Outdoor advertising controls should be included in the zoning ordinance,
again tailored to fit the character of each district -- ranging from
highly restrictive for residence zones to a more liberal standard for
manufacturing districts.
Particular attention must be given to protection of the existing and
future park system and rights -of -way of new highways. Sign controls
will afford each establishment protection from misuse of signs and
33.
billboards while assuring every establishment the right to
advertise.
- Every aspect of the zoning ordinance should be set forth in adequate
detail, leaving as little room as possible for guesswork or loose
interpretation which might cause undue controversy or unfairness to
property owners or their neighbors. Modern methods of administra-
tion are specified in the zoning ordinance and the precise duties and
responsibilities of administrative officers are clearly defined.
Where practical difficulties or particular hardships in the way of
carrying out the strict letter of the regulations occur, provision is
made for relief, by providing the parties affected the right to appeal
the provisions of the ordinance, as they may create any undue hard-
ships in relation to the land. Definite standards for variances, as
well as precise kinds of authorized variances should be set forth in
the ordinance.
Subdivision Control
Subdivision control regulations are concerned with the division of one
parcel of land into two or more parcels for the purpose of sale or
development. Subdivision regulations provide for the development of
an appropriate pattern of land use in accord with the over -all compre-
hensive plan and in relation to land uses prescribed in the zoning
ordinance. Like zoning, they are used to prevent blight and deterioration
by prescribing acceptable legal standards of development. Subdivision
regulations also state official public policy in relation to the provision
of municipal services (streets, water, sewer, etc. ).
The major difference between zoning and subdivision regulation is
that whereas the former regulates the type of building and the use of
land, the latter is concerned with the manner in which land is made
ready for building. Standards involving widths of streets, length and
depth of blocks, width and depth of lots, open space, sewer and water
systems, construction of streets, and utility easements are included
in a subdivision ordinance.
While land may be subdivided for any type of urban use, the most
common is the development of land for residential building sites.
The Planning Area has witnessed a significant amount of this activity
in recent years. As the population of the Area increases, the demand
for new housing will be met primarily by subdividing open land for
residential development. Since Stillwater will have to provide a number
of services such as utilities, fire and police protection, and space for
parks, playgrounds, and public buildings, its interests must be
protected. Subdivision controls are very effective in this role.
34.
The primary purpose of subdivision control is to assure that newly
developed land will be a permanent asset to the Community and
will provide sufficient health, comfort, convenience, and beauty.
In turn, it provides adequate protection to the developer and the
future home owner as well. The developer receives equal treatment;
moreover, he is assured that his competitors must comply with
minimum standards. The home owner knows that adequate streets
and other public facilities will be provided and may expect that the
value of his property will not drop, but will remain reasonably stable.
In the review process set up as a requirement of approval, the pro -
posed subdivision can be checked to make certain that it does not
violate any goals and policies established as part of the Comprehensive
Plan. In other words, streets will be provided in relation to the
established long -range street requirements, areas can be reserved
for park land in relation to that need, etc. ,
Urban Renewal
Urban renewal is also a device to achieve plan recommendations that
represents an effort by public and private agencies, usually with
Federal aid, to cure existing blight and decay in urban areas. During
the first part of this century most cities had no plan of development
or land -use controls. As a result, their rapid unplanned growth
caused slum and generally blighted areas.
Fortunately, Stillwater's rate of growth compared to larger urban
areas has been relatively slow so that its size has not yet caused
serious blight. While some sections of the Area are old and require
repair, an over -all urban renewal program is not deemed necessary
at this time. It is possible; however, that certain sections of the
Area might be designated renewal areas for which Federal funds
could be obtained to help finance the project.
Capital Improvements Budgeting
A further plan implementation device which the Planning Commission
should consider is a capital improvement program. Every year the
City and Township of Stillwater find it necessary to expend sub-
stantial sums of money to provide facilities for their protection and
necessary services for their citizens. Regular annual budgets usually
distinguish between funds reserved for salaries, operations, and
debt service and those to be used for physical plant and equipment.
These latter expenditures are usually labeled "capital expenditures. "
The capital expenditures program then is a priority list of projects,
prepared with regard to the Community's financial situation and in
relation to its long -range development objectives. Since Stillwater
would be unable to undertake all desirable public improvement
35.
projects at once, a spending program is of vital importance so that
all projects can be related in an integrated program. Failure to do
this may result in uneconomical spending as well as endangering
-- Stillwater's proper physical development.
Briefly, the most prevalent type of program consists of three parts.
The first year is called the capital budget, the next five years is
the capital program, and then a general list of long -range projects
which can be postponed until sometime after the programmed six
year period. Projects scheduled for the first year are more de-
tailed than later ones. This part becomes a section of the annual
budget when adopted by the City Council and Town Board. Each year
the entire program is reviewed and revised, transferring the first
year of the capital program to the annual budget.
Planning and the capital improvement program go hand in hand.
Without a planning program Stillwater would have no real basis for
deciding which project to undertake first. With a planning program
outlining the needs for such facilities as roads, parking, schools,
parks, etc. , an excellent basis for deciding project priorities is
available.
Official Map
An additional tool by which planning policies are put into effect, and
that is suggested for consideration by the Planning Commission and
the Town Board, is the official map. It is designed to assure that
buildings will not be located in the beds of mapped streets and that
land needed for street widening, street extension, future streets and
other public purposes will be available at bare land prices. To
accomplish this, the Planning Commission and Town Board should
prepare such a map and, when completed, take steps to officially
adopt it so that it will be legally binding. Before approving the map,
however, the Council or Town Board should hold a public hearing.
After approval, the map and the resolution adopting the map should be
published in the official newspaper.
Compliance with the official map can be assured by use of the building
permit device. The building code makes it necessary for a prospective
builder to furnish a building plan showing location of his property with
reference to the nearest existing streets. If buildings are indicated
in the path of a proposed street, no building permit should be issued.
A Board of Appeals should be set up to hear appeal petitions in cases
of building permit denial.
An official map would not give Stillwater the right to acquire reserved
areas without payment or compensation; however, Stillwater would not
need to pay for any structure placed in the path of mapped lands re-
served for public uses without building permit or in violation of the
conditions of a permit.
APPENDIX
37.
I. ZONING AND SUBDIVISION CONTROLS -
INTRODUCTORY REMARKS
To best meet the needs of the Stillwater Planning Area, it was felt that a
fairly detailed presentation of zoning and subdivision controls be included
as part of the comprehensive plan report. They are appended in this
manner to form an integral, yet individual, segment. They are drafted
to reflect the intent of the plan and thus logically form apart of the plan.
They are also policy and legal documents that must be weighed on their
individual merits. It is intended that they be discussed by the official
bodies charged with their administration to assure that the contents are
understood and relate harmoniously to local objectives.
The presentation of these regulations in final ordinance form is the
responsibility of the governing bodies' legal staff. This assures that
the standards and planning considerations are prese'xited in an ordinance
form acceptable to the locality and not in conflict with existing controls,
ordinances, etc. They are, in effect, models to be used by the governing
bodies and their representation in strengthening the area's legal authority
in directing its future growth.
At present, the City of Stillwater has a zoning ordinance in effect but
does not have a separate subdivision controls ordinance. The Township
of Stillwater has an interim zoning ordinance as well as a recently
adopted subdivision controls ordinance. The Township zoning ordinance
was adopted to meet pressing development problems following the com-
pletion of the Interim Development Guide Plan. Since the City zoning
ordinance was drafted prior to the comprehensive planning program now
underway and no subdivision controls are in effect, and since the Town-
ship zoning ordinance and subdivision controls will require alteration
so as to reflect refinements in the Interim Plan, new ordinances for
the entire Planning Area are recommended.
Part of the importance of these ordinances stems from presentation of
common standards for guiding the future development of an area of
two governmental jurisdictions -- closely related in a physical, social
and cultural sense. This tends to create certain administrative pro-
blems that must be solved in the months ahead. Since the City and
Township have cooperated in their planning effort it is felt that this
can be accomplished in the program's continuation.
II. PROPOSED ZONING ORDINANCE
STILLWATER, MINNESOTA
STILLWATER TOWNSHIP, MINNESOTA
ZONING CONTENTS
39.
Page
ZONING USE DISTRICTS, CITY OF STILLWATER (MAP)
Z 3
ZONING USE
DISTRICTS, STILLWATER TOWNSHIP (MAP)
Z 4
Section
I.
GENERAL PROVISIONS
Z 5
A. Title
Z 5
B. Purpose
Z 5
C. Legal Authority
Z 5
II.
DEFINITIONS
Z 5
III.
USE DISTRICTS
Z 9
A. Zoning Use Districts
Z 9
B. General Description
Z 9
C. Compliance
Z10
D. Boundaries
Z10
IV.
DISTRICT REQUIREMENTS
Z11
A. - Agricultural District
Z11
RA - Single Family District
Z13
RB - General Residence
Z15
RC - Multi- Family
Z17
CA - Central Commercial
Z20
CB - Areal Commercial
Z23
IA - Heavy Industrial
Z25
IB - Light Industrial
Z27
V.
GENERAL REQUIREMENTS
Z29
A. Signs
Z29
B. Residential Yard Storage
Z32
C. Refuse
Z32
D. Screening
Z32
E. Landscaping
Z33
F. Parking
Z33
40.
ZONING CONTENTS (continued)
Section
Page
V.
GENERAL REQUIREMENTS (continued)
G. Architectural Requirements
Z34
H. Non- Conforming Building
Z34
I. Non- Conforming Use of Building
Z35
J. Non - Conforming Use of Land
Z35
K. Non - Conforming Uses Created by Rezoning
Z36
L. Institutional Lot Requirements
Z36
VI.
ADMINISTRATION
Z39
A. Appeals
Z39
B. Interpretation
Z39
C. Special Use Permits
Z39
D. Amendments
Z40
E. Change in Zoning Use District Boundaries
Z41
VII.
EFFECT OF INVALIDITY OF ONE SECTION
Z42
VIII.
EFFECTIVE DATE
Z42
ZONING USE DISTRICTS, CITY OF STILLWATER
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I. GENERAL PROVISIONS
A. Title
This Ordinance from the date of its passage shall be entitled:
ZONING ORDINANCE
STILLWATER, MINNESOTA
STILLWATER TOWNSHIP, MINNESOTA
B. Purpose
43.
Z5,
The enactment of this Ordinance into law shall be for the purpose
of promoting the health, safety, morals and general welfare of
the people of the (City or Township) of Stillwater, Minnesota. To
this end, this Ordinance will regulate and restrict the location of
buildings designed for specified uses, the height and bulk of
buildings hereafter erected and regulate and determine the area
of yards and other open spaces.
C. Legal Authority
_ The enactment of this Ordinance is in pursuance of the authority
granted by Chapter (no. ) (year) Session Laws of
Minnesota (G. S. (no. ) ).
II. DEFINITIONS
A. For the purpose of this Ordinance certain terms and words are
herein defined as follows:
1. Arterial Street
A street or highway of considerable continuity designed
primarily as a radial or crosstown traffic server for
intercommunication between various sectors of the area
(such as from within the City to outlying areas).
2. Billboard or Poster Panel
Any sign or advertisement used as an outdoor display by
painting, posting or affixing on any surface, of a picture
emblem, words, figures, numbers, or lettering for the
purpose of making anything known, the matter advertised
or displayed being remote from its origin or point of sale.
44.
Zb.
Ground signs exceeding 100 square feet in area shall
be deemed as Billboards by the terms of this Ordinance.
3. Collector Street
A street designed to serve the internal traffic circulation
of an area (such as a neighborhood) which distributes and
collects traffic from local streets and connects with
Highways and /or Arterial Streets.
4. Lot
A piece, parcel or plot of land intended for building develop-
ment or as a unit for transfer of ownership.
5. Lot Depth
The distance between front and rear lot lines.
6. Lot Width
The distance between straight side lot lines measured at
a point fifty (50) feet back from the front line thereof.
7. Plat
The map, drawing or chart on which the subdivider's
plan of subdivision is presented to the (City or Town)
Clerk for approval.
8. Sign
Any words, lettering, parts of letters, figures, numerals,
phrases, sentences, emblems, devices, designs, trade
names or trade marks by which anything is made known
such as are used to designate an individual, a firm, an
association, a corporation, a profession, a business, or
a commodity or products, which are visible from any
public highway and used to attract attention.
9. Sign, Ground
A sign erected, constructed, or maintained for the purpose
of displaying outdoor advertising by means of posters,
pictures, pictorial or reading matter, when such sign is
supported by upright braces, or posts, placed upon or in
the ground and not attached to any part of the building.
45.
Z7
10. Sign, Marquee
A sign, affixed to any hood or canopy over the entrance
- - to stores, buildings, and places of public assembly,
extending wholly or in part across the sidewalk and
supported from the building.
11. Sign, Pole
Signs constructed of metal, plastic or other approved
material affixed or erected upon a metallic pole or pole
of other material to be approved by the (City or Township)
Building Inspector.
12'. Sign, Projecting
Any letter, word, model, sign, device, or representative
used in the nature of an advertisement or announcement'of
direction extending over the sidewalk or beyond the building
line. Projecting illuminated or non - illuminated signs
shall, for the purpose of this Ordinance, be divided into
two classes; (a) Projecting signs, which are affixed to the
building wall and which extend over the sidewalk; and
_ (b) Flat signs which are attached in a rigid manner and
lying parallel to the building wall and projecting beyond the
building line.
13. Sign, Roof
A sign erected, constructed, or maintained upon the roof
of any building.
14. Sign, Wall
A sign or poster of any surface or plane that may be affixed
to the front, rear or side wall of any building.
15. Street Line
That line representing the extent of the right -of -way of a
public thoroughfare.
16. Yard
An open space on the same lot with a building or group of
buildings, which open space lies between the building or
group of buildings and the nearest lot line and is un-
occupied and unobstructed from the ground upward.
46.
Z8.
It is further intended that words used in the present tense include
the future; words in the singular number include the plural, and
words in the plural number include the singular number; the word
"shall" is mandatory and not directory.
47.
Z91
III. USE DISTRICTS
A. Zoning Use Districts
For the purposes of this C rdinance the (City or Township) of
Stillwater is hereby subject to division into the following Zoning
Use Districts:
A - Agricultural District.
RA - Single Family Residence District.
RB - General Residence District.
RC - Multi- Family Residence District.
CA - Central Commercial District.
CB - Areal Commercial District.
IA - Heavy Industrial District.
IB - Light Industrial District.
B. General Description
A brief general description of the Zoning Use Districts is as
follows:
A - Rural land reserved for agricultural purposes
with the provision of estate type residential
development (minimum of one acre sites)
with further provision for open space and
passive recreation.
RA - Single family residences at a comparatively
low concentration of development together
with such other uses as schools, parks,
churches, and certain public facilities which
serve the families living in the district and
customary home occupations and profes-
sional offices.
RB - Single family residences at a somewhat higher
concentration of development than permitted
in the RA zone and two family residences in
addition to the other uses permitted in the
RA zone.
RC - Uses permitted in the RB Zone with the
inclusion of apartment residences.
48-
Z10_
CA - Central Business District, permitting
offices and a wide range of business and
commercial enterprise.
CB - Highway oriented and local business
service with emphasis on planned shopping
facilities providing off - street parking,
loading and circulation facilities.
IA - All industrial uses, with provision for
review by the Planning Commission to
assure that proposed industries would be
protected from commercial and residential
uses.
IB - Clean and quiet industrial uses with pro-
vision for offices and limited sales and
repair services.
C. Compliance
No building or structure shall be erected or altered which does
not comply with the regulations of this Ordinance for the zoning
use district wherein located, nor shall any building or premises
be used for any purpose other than a use permitted by this
Ordinance in the district wherein located, except as permitted
in Section V. , subsections I. , J. of this Ordinance.
D. Boundaries
The boundaries of the zoning use districts are hereby established
as indicated upon a map entitled "Zoning Use Districts, (City or
Township) of Stillwater, Minnesota" which accompanies and is
made a part of this Ordinance. All notations, dimensions, and
designations shown thereon shall be as much a part of this
Ordinance as if the same were all fully described herein.
47.
Z11l
IV. DISTRICT REQUIREMENTS
The requirements set forth below for each of the use districts defined
as part of this Ordinance in Section III. shall govern the development
within the said districts as outlined on the map entitled "Zoning Use
Districts, (City or Township) of Stillwater, Minnesota. "
A - Agricultural District
A - Uses Permitted
1. All uses commonly classed as agricultural, with no
restrictions as to operation of such vehicles or
machinery as are incident to such uses, provided that
any building, structure or yard for the raising or
housing of livestock or poultry shall be located not less
than one hundred (100) feet from any street or lot line.
Provided further that poultry and livestock shall be
housed in approved enclosures and shall not be allowed
to roam at large.
2. One family dwellings (not to include house trailers)
and their normal accessory buildings.
A - Uses by Special Permit
1. Churches, chapels, temples and synagogues including
Sunday Schools and parish houses meeting the require-
ments of the district, provided they meet the parking
and loading and unloading facilities requirements as
set forth for such uses in Institutional Lot Requirements,
Section V. of this Ordinance.
2. Parks, playgrounds and elementary schools, provided
they meet the parking and loading and unloading facilities
requirements as set forth for such uses in Institutional
Lot Requirements, Section V. of this Ordinance.
3. The offices of members of recognized professions, such
as doctors of medicine, dentistry and chiropractic,
and engineers, lawyers and architects, provided such
professions are carried on in their respective residences.
4. Customary home occupations in the residence, provided
that such occupation shall be carried on in the main
building, and provided further that not more than twenty -
five (25) per cent of the floor space of the residence is
50,
Z12.
used for this purpose, and that only articles made on
the premises shall be sold on the premises, and that no
articles for sale shall be displayed so as to be visible
from the street.
5. Accessory buildings other than private garages,
6. Local neighborhood service commercial, where in the
opinion of the Planning Commission it will not be
obnoxious or detrimental to the district in which
located; and provided that it be located on a collector
street and limited in its service to grocery, dairy
products, light sundries and generally those convenience
items normally found at the "corner store;" no sale of
food for consumption on the premises or preparation
of food for consumption at home with little or no cooking,
is permitted; provision be made for off - street loading
and that the building shall be in appropriate harmony
with the residential character of the area and is land-
scaped in such a way as to be screened from neighboring
residences.
7. Junior and senior high schools, and incidental uses when
situated on the same site or unit of property and provided
that they meet the parking and loading and unloading
facilities requirements as set forth for such uses in
Institutional Lot Requirements, Section V.
8. Cemeteries
A - Building Height Limit
1. No building shall exceed a height of two and one -half
(2 -1/2) stories or thirty -five (35) feet.
A - Lot Requirements
1. No dwelling unit shall be constructed in the district on a
lot of less than one (1) acre in area or on a lot of less
than one hundred fifty (150) feet in width measured as the
mean distance between straight side lot lines at a point
fifty (50) feet back from the front line thereof.
2. Each lot shall have a front yard of not less than thirty
(30) feet.
3. Each lot shall have a rear yard of not less than thirty
(30) feet.
51.
Z13u
4. Each lot shall have a side yard along each side of each
building; the sum of the width of the two side yards shall
not be less than thirty (30) per cent of the width of the
lot divided equally between the two (2) side yards.
RA - Single Family District
RA - Uses Permitted
1. One family dwellings (not to include house trailers) and
their normal accessory buildings.
2. Churches, chapels, temples and synagogues including
Sunday Schools and parish houses meeting the require-
ments of the district, provided they meet the parking
and loading and unloading facilities requirements as
set forth for such uses in Institutional Lot Requirements,
Section V. of this Ordinance.
3. Parks, playgrounds and elementary schools, provided
they meet the parking and loading and unloading facilities
requirements as set forth for such uses in Institutional
Lot Requirements, Section V. of this Ordinance.
4. The offices of members of recognized professions, such
as doctors of medicine, dentistry and chiropractic, and
engineers, lawyers and architects, provided such pro-
fessions are carried on in their respective residences.
5. Customary home occupations in the residence, provided
that such occupation shall be carried on in the main
building, and provided further that not more than twenty-
five (25) per cent of the floor space of the residence is
used for this purpose, and that only articles made on
the premises shall be sold on the premises, and that no
articles for sale shall be displayed so as to be visible
from the street.
RA - Uses by Special Permit
1. Accessory buildings other than private garages.
2. Hospitals or sanatoriums, philathropic, or eleemosynary
institutions except correctional institutions and animal
hospitals. Any building permitted to be used shall be
set back not less than one hundred (100) feet from any
lot or street line and that the appearance of the building
shall be in appropriate harmony with the residential
52.
Z14.
character of the area and provided that they meet the
parking and loading and unloading facilities requirements
as set forth on such uses in Institutional Lot Requirements,
Section V.
3. Local neighborhood service commercial, where in the
opinion of the Planning Commission it will not be
obnoxious or detrimental to the district in which
located; and provided that it be located on a collector
street and limited in its service to grocery, dairy
products, light sundries and generally those convenience
items normally found at the "corner store;" no sale of
food for consumption on the premises or preparation of
food for consumption at home with little or no cooking,
is permitted; provision be made for off - street loading
and that the building shall be in appropriate harmony
with the residential character of the area and is land-
scaped in such a way as to be screened from neighboring
residences.
4. Junior and senior high schools, and incidental uses
when situated on the same site or unit of property and
provided that they meet the parking and loading and
unloading facilities requirements as set forth for such
uses in Institutional Lot Requirements, Section V.
5. Cemeteries
RA - Building Height Limit
1. Same as specified for A zone.
RA - Lot Requirements
1. Each dwelling, together with its accessory buildings
hereafter erected shall be located on a lot having an
area not less than ten thousand (10, 000) square feet
and width of not less than seventy -five (75) feet and
depth of not less than one hundred twenty (120) feet,
except that a dwelling may be erected on a lot having
less than the foregoing minimum area and width pro-
vided it existed under one ownership by virtue of a
recorded plat or deed at the time of the passage of
this Ordinance.
2. All lots shall front on, and have ingress and egress by
means of a public right -of -way.
53.
Z15.
3. All dwellings and accessory buildings on any lot shall
not cover more than thirty (30) per cent of the area of
the lot. Lot coverage shall be computed to include a
minimum of one hundred eighty (180) square feet of
accessory building space, or ground space, specifi-
cally designed for the use of automobile storage.
4. No building shall be erected, reconstructed, altered
or moved nearer to the street line on which it faces
than the average setback observed by the residential
buildings on the same side of the street and fronting
thereon within the same block. Further, no building
shall be closer than thirty (30) feet to the street line
on which it faces.
5. There shall be a side yard along each side of each
building the sum of the width of which shall not be
less than thirty (30) per cent of the width of the lot;
provided, that no side yard shall be less than nine (9)
feet; and provided further that all lots subdivided prior
to the passage of this Ordinance shall have a side yard
of not less than six (6) feet.
6. Each lot shall have a rear yard of not less than twenty-
five (25) feet in depth.
RE - General Residence
RE - Uses Permitted
1. All uses permitted in RA zone.
2. Two family dwellings.
RE - Uses by Special Permit
1. All uses by special permit in RA zone.
RE - Building Height Limit
1. Same as specified for A zone.
RE - Lot Requirements
1. The following minimum lot requirements shall apply
to all single family dwellings in the RE zone:
a. Each dwelling, together with its accessory
buildings, hereafter erected shall be located on
54.
Z16.
a lot having an area not less than seven thousand
five hundred (7,500) square feet and width not
less than fifty (50) feet and depth not less than one
hundred twenty (120) feet, except that a dwelling
may be erected on a lot having less than the fore-
going minimum area and width provided it existed
under one (1) ownership by virtue of a recorded
plat or deed at the time of the passage of this
Ordinance.
b. All lots shall front on, and have ingre s s and egre s s
by means of a public right -of -way.
c. Lot coverage shall be the same as outlined under
RA - Lot Requirements.
d. Setbacks shall be the same as outlined under
RA - Lot Requirements, paragraph 4.
e. There shall be a side yard along each side of
each building the sum of the width of which shall
not be less than thirty (30) per cent of the width
of the lot, provided that no side yard shall be
less than five (5) feet; and provided further that
all lots subdivided prior to the passage of this
Ordinance shall have a side yard of not less than
five (5) feet.
f. Each lot shall have a rear yard of not less than
twenty -five (25) feet.
2. The following minimum lot requirements shall apply to
all two family dwellings in the RB zone:
a. Same as outlined under RB - Lot Requirements,
paragraph 1. , subparagraphs a. , b. , d. , e. , and
f. , except that no provision is made for the use of
lots less than the minimum dimensions.
b. All two family dwellings and accessory buildings on
any lot shall not cover more than forty (40) per
cent of the area of the lot. Lot coverage shall be
computed to include a minimum of three hundred
and sixty (360) square feet of accessory building
space, or ground space, specifically designed
for the use of automobile storage.
55.
Z17.
RC - Multi- Family
RC - Uses Permitted
1.
All uses permitted in the RB zone, except that the following
are permitted only in one and two family dwellings in the
RC zone:
a. The offices of resident members of recognized
professions as set forth in RA - Uses Permitted,
paragraph 4.
b. Customary home occupations as set forth in RA -
Uses Permitted, paragraph 5.
2.
Apartment Houses
3.
Churches, chapels, temples and synagogues including
Sunday Schools and parish houses meeting the require-
ments of the RA zone.
4.
Community Center.
5.
Convent.
6.
Educational institutions, both public and private, and
including pre - schools, elementary and senior high
schools and colleges and universities and incidental
uses when situated on the same site or unit of property.
7.
Exhibition hall.
8.
Fire station.
9.
Hospitals or sanatoriums, philanthropic or eleemosy-
nary institutions except correctional institutions and
animal hospitals.
10.
Institutions for children or the aged.
11.
Parks and playgrounds.
12.
Police station.
130
Pool, swimming.
71.
233.
3. The screening required in this section shall consist of
a solid fence or wall not less than five (5) feet high, but
shall not extend within fifteen (15) feet of any street or
driveway. The screening shall be placed along property
lines or in case of screening along a street, fifteen (15)
feet from the street right -of -way with landscaping between
the screening and the pavement. A louvered fence shall
be considered "solid" if it blocks direct vision.
E. Landscaping
1. In the A, RA, RB, RC, IB and CB zoning use districts,
all developed uses shall provide a landscaped yard along
all streets. This yard shall be kept clear of all structures,
storage, and off - street parking. This yard shall be at
least twenty (20) feet in depth along all streets, measured
from the street right -of -way. Except for driveways, the
yard shall extend along the entire frontage of the lot, and
along both streets in the case of a corner lot.
F. Parking
1. Surfacing and Drainage.
Off- street parking areas shall be improved with a durable
and dustless surface. Such areas shall be so graded and
drained as to dispose of all surface water accumulation
within the area. These requirements shall also apply to
open sales lots for cars, trucks and other equipment.
Parking and driveway areas located within thirty -five (35)
feet of the street pavement shall have curbs.
2. Determination of Areas
A parking space shall be not less than 300 square feet of
standing and maneuvering area. When application of these
regulations results in a requirement of a fractional space,
any f raction up to and including one -half (1 / 2) shall be
disregarded. Fractions over one -half (1/2) shall count as
one (1) additional space.
3. Sale of Parking .Areas
Property that constitutes required off - street parking area
may not be separated, through sale or other means, from
the property containing the principal use for which the
parking area is required.
72.
Z34.
G. Architectural Requirements
1. In all zoning use districts all principal buildings
except one (1) and two (2) family dwellings must be
designed by a registered architect.
H. Non - Conforming Buildings
1. No repairs or alterations may be made to a non - conforming
building or structure except those needed to maintain the
structural soundness of such building or structure and
those which may be permitted by law or ordinance.
2. A non - conforming building shall 'not be added to or en-
larged in any manner unless such additions and
enlargements are made to conform to all the requirements
of the zone in which such building or structure is located,
nor shall it be moved in whole or part to any other location
on the same lot or on any other lot, unless every portion
of such building or structure is made to conform to all
the regulations of the zone in which such building or
structure is situated.
3. A non - conforming building or structure which is damaged
or partially destroyed by fire, flood, wind, explosion, or
other calamity, or Act of God, shall not again be restored
or used for such purposes if the expense of such restoration
exceeds fifty (50) per cent of the replacement cost of the
building or structure at the time such damage occurred.
Any non - conforming building or structure partially de-
stroyed may be restored, provided that restoration is
started within one (1) year of the date of partial destruction
and is deligently prosecuted to completion. Whenever a
non - conforming building or structure is damaged in excess
of its replacement value at that time, the repair or re-
construction of such building or structure shall conform to
all of the regulations of the zone in which it is located, and
it shall be treated as a new building.
4. A non - conforming building or structure or portion thereof
which is, or hereafter becomes vacant, and remains un-
occupied for a continuous period of one (1) year, shall be
deemed an abandonment of such use and shall not there-
after be occupied, except for a use permitted by the
regulations of the zone in which it is situated.
73.
Z35.
I. Non - Conforming Use of Building
1. Except as otherwise provided in this Ordinance, the
non- conforming use of a building or structure lawfully
existing at the time of the effective date of this Ordinance,
may be continued.
2. The use of a non - conforming building or structure may
be changed to a use of the same, or more restricted
classification, but where the use of a non - conforming
building or structure is hereafter changed to a use of a
more restricted classification, said act shall be deemed
an abandonment of the original use, and it shall not
thereafter be changed to a use of a less restricted
classification.
3. The use of a non - conforming building or structure which
becomes vacant after the effective date of this Ordinance,
may be occupied by the use for which the building or
structure was designed or intended, if so occupied within
a period of one (1) year after the building becomes vacant.
4. A non - conforming use of a conforming building or structure
(a commercial use in a dwelling and the like) shall not be
expanded or extended into any other portion of such con-
forming building or structure, nor changed except to a
conforming use. If such non - conforming use or portion
thereof is discontinued or changed to a conforming use,
any future use of such building, structure or portion
thereof shall conform with the regulations of the zone in
which such building or structure is located.
5. All non - conforming uses of conforming buildings or
structures shall be discontinued not later than five (5)
years from the effective date of this Ordinance.
J. Non - Conforming Use of Land
1. The non - conforming use of land (where no main building
or structure is involved), existing at the time of the
effective date of this Ordinance may be continued on the
same basis and in accordance with the foregoing pro-
visions in this section, provided that no such non-
conforming use of land shall in any way be expanded or
extended either on the same or adjoining property and
further provided that if such non - conforming use of land
or any portion thereof is discontinued or changed, any
future use of such land shall be in conformity with the
regulations of the zone in which such use is situated.
74.
Z36.
K. Non - Conforming Uses Created by Rezoning
1. The foregoing provisions of this section shall apply to
buildings, structures, land or uses which may hereafter
become non - conforming by reason of the rezoning of the
area in which the same may be situated.
L. Institutional Lot Requirements
1. None except that no building shall be reconstructed,
altered or moved nearer to any street or property line
than fifty (50) feet, and provided further that each lot
or plat of ground shall provide off - street parking and
loading and unloading facilities according to the following
standards (such standards being applicable to such uses
regardless of which use district they may be located in):
a. Churches, chapels, temples, synogugues and
exhibition halls -- one (1) parking space shall be
provided for each six (6) seats.
b. Community centers -- parking spaces shall be
provided equal in number to thirty (30) per cent
of the capacity of persons.
C. Convents -- parking spaces shall be provided in
adequate number, as determined by the Planning
Commission, to serve persons employed or
residing on the premises, as well as the visiting
public.
d. Educational institutions shall provide parking as
set forth herein as follows:
i. Pre - schools and elementary schools --
one (1) space for each two (2) employees.
ii. Junior and senior high schools -- one (1)
space for each two (2) faculty members
and other full time employees, plus one
(1) space for each seven (7) students, based
on the maximum number of students attending
classes on the premises at any one time
during any twenty -four (24) hour period.
iii. Colleges and universities -- same as for
junior and senior high schools, except that
one (1) space shall be provided for each
five (5) students.
80.
Z42.
VII. EFFECT OF INVALIDITY OF ONE SECTION
If any section, subsection, sentence, clause or phrase of this
Ordinance is for any reason held to be unconstitutional, such
decision shall not affect the validity of the remaining portions
of this Ordinance.
VIII. EFFECTIVE DATE
This Ordinance shall take effect and be in force from and after the
date of its passage and publication.
III. PROPOSED SUBDIVISION CONTROLS ORDINANCE
STILLWATER, MINNESOTA
STILLWATER TOWNSHIP, MINNESOTA
SUBDIVISION CONTROLS CONTENTS
Section
Page
I.
GENERAL PROVISIONS
S 3
A. Title
S 3
B. Purpose
S 3
C, Legal Authority
S 3
II.
DEFINITIONS
S 4
III.
PROCEDURES
S 6
A. Pre - Application Meeting
S 6
B. Preliminary Plat
S 6
C. Final Plat
S 8
IV.
PRESENTATION REQUIREMENTS
S10
A. Preliminary Plat
S10
B. Final Plat
S11
V.
DESIGN STANDARDS
S13
A. Streets and Alleys
S13
B. Easements
S15
C. Blocks
S15
D. Lots
S16
VI.
REQUIRED IMPROVEMENTS
S17
A. Monuments
S17
B. Streets
S17
C. Water Mains
S17
D. Sanitary Sewer
S17
E. Drainage Facilities
S17
F. Street Name Signs
S17
G. Stop Signs
S17
H. Specifications
S18
J. Financing
S18
VII.
PUBLIC LAND DEDICATION
S19
VIII.
MISCELLANEOUS
S19
A. Variances and Exceptions
S19
B. Building Permits
S19
C. Validity
S19
D. Violations
S19
E. Effective Date
S19
83.
S3.
I. GENERAL PROVISIONS
A. Title
This ordinance from the date of its passage shall be entitled:
SUBDIVISION CONTROLS ORDINANCE
STILLWATER, MINNESOTA
STILLWATER TOWNSHIP, MINNESOTA
B. Purpose
The enactment of this Ordinance into law shall be for the
purpose of promoting the health, safety, morals and general
welfare of the people of the (City or Township) of Stillwater,
Minnesota. To this end, this Ordinance will regulate the
subdividing of land within the (City or Township) of Stillwater,
Minnesota so that new subdivisions will be integrated with
the Comprehensive Guide Plan of said (City or Township) and
contribute to an attractive, stable and wholesome community
environment, adequate municipal services and safe streets.
C. Legal Authority
The enactment of this Ordinance is in pursuance of the
authority granted by Chapter (no. ) , (year) Session
Laws of Minnesota (G. S. (no.) ).
87.
S7.
public health and welfare; tax balance of industry,
agriculture and residences; and community planning.
The Commission shall notify the owner or subdivider as
to the time and place of the Planning Commission meeting
at which he will be afforded an opportunity to be heard.
4. If approved, the Planning Commission shall express its
approval or conditional approval and state the conditions
of such approval, if any, or if disapproved shall express
its disapproval and its reasons therefore. Such approval
or disapproval shall be transmitted to the (City Council
or Town Board).
5. After the (City Council or Town Board) receives the
report of the Planning Commission, the (City Council
or Town Board) shall act to approve or disapprove the
plat, and the (City Council or Town Board) may, before
they act upon the Preliminary Plat, submit it to any
employee of the (City or Town) they may designate for
further review and study. If the (Council or Board) shall
disapprove said plat the grounds for any such refusal
shall be set forth in the proceedings of the (Council or
Board) and reported to the person or persons applying
for such approval.
6. Approval shall mean the acceptance of the design as a
basis for preparation of the final plat.
7. At the time of filing the preliminary plat, the owner or
owners of the land covered by such plat shall submit to
the (City or Town) Clerk a petition for rezoning to the
precise proposed future use of said land if the land is
not already so zoned.
8. Subsequent approval will be required by the (City Council
or Town Board) of all engineering proposals presented
in the preliminary plat which pertain to such things as
water supply, sewage disposal, storm drainage, gas
and electric service, road &,adients and widths and the
surfacing of streets priotr to the approval of the final
plat by the (City Council or Town Board). The (City
Council or Town Board) may, after notifying the sub-
divider, employ qualified persons to check and verify
such proposals, such persons shall make full reports of
their findings. The (Council or Board) may require the
subdivider to reimburse the (City or Town) for the cost
of such services; and if such services are rendered by
a salaried employee of the (City or Town) the charge
therefore may be computed on the basis of such
employee's regular hourly, daily, weekly or monthly
wage or salary.
C. Final Plat
1. The owner or subdivider shall file with the (City or
Town) Clerk at least two (2) weeks before the next
regularly scheduled Planning Commission meeting and
within ninety (90) days of the date of the last approval of
the preliminary plat, six (6) copies of the final plat
which shall conform substantially to the preliminary plat
as approved. Final plat approval shall become null and
void on all plats which are not filed within the time herein
specified unless an extension is requested, in writing, to
the (City Council or Town Board) and for the good cause
granted by the (City Council or Town Board).
2. The subdivider may file a final plat limited to such portion
of the preliminary plat which he proposes to record and
develop at one time, provided that such portion must con-
form to all requirements of this Ordinance.
3. The (City or Town) Clerk will refer two (2) copies of the
final plat to the Planning Commission and the (City or
Town) Engineer and the Planning Consultant for their
review and report.
4. The Planning Commission, with the assistance of the
(City or Town) Engineer and the Planning Consultant, shall
check the final plat to see that it is in substantial agreement
with the preliminary plat as approved and that it meets all
ordinances and regulations of the (City or Town). In the
event the plat involves special problems or is in conflict
with the Comprehensive Guide Plan or with the planning
studies being conducted by the Planning Commission, the
Commission shall notify the owner or subdivider as to
the time and place of the Planning Commission meeting at
which he will be afforded an opportunity to be heard.
5. When a final plat meets all the conditions of this Ordinance
the Planning Commission shall recommend approval to the
(Council or Board) and the (Council or Board) shall act
thereon. Following final plat approval or disapproval by
the (City Council or Town Board), the (City or Town) Clerk
shall notify the owner or subdivider of the (Council's or
Board's) action and within thirty (30) days thereafter the
final plat, if approved, shall be filed with the (City or Town)
C1-:ex1c.* Any approval of the final plat, however, by the
(City Council or Town Board) shall be null and void if
the plat is not recorded with the Registrar of Deeds of
Washington County within thirty (30) days after the date
of approval unless application for an extension of time
is made, in writing, during said thirty (30) day period,
to the (City Council or Town Board) and granted by the
(City Council or Town Board). A duplicate and five (5)
paper prints of the final plat after the plat has been
recorded with the R@ gistrar of Deeds of Washington
County shall be filed with the (City or Town) Clerk.
90.
S10.
IV. PRESENTATION REQUIREMENTS
= A. Preliminary Plat
1. Scale:
1 inch equals 100 feet.
2. Identification and Description
a.
Proposed name of subdivision, which name shall
not duplicate or be similar in pronounciation to
the name of any plat theretofore recorded in the
County.
b.
Location by section, town, range or by other legal
description.
C.
Names and addresses of the owner, subdivider,
surveyor and designer of the plan.
d.
Graphic scale.
e.
North - Point.
f.
Date of preparation.
3. Existing conditions in tract and in surrounding area to
a distance
of one hundred (100) feet:
a.
Boundary line of proposed subdivision, clearly
indicated.
b.
Total approximate acreage.
C.
Platted streets, railroad right -of -way and utility
easements.
d.
Boundary lines and ownership of adjoining unsub-
divided land.
e.
Sewers, water mains, culverts or other underground
facilities.
f.
Permanent buildings and structures.
g.
Topography, showing lakes, watercourses, marsh
areas, and contours at vertical intervals of not
more than two feet. All elevation data shall mean
sea level.
91.
511.
h. Other information, such as soil tests, if requested
by the Planning Commission to aid in their review.
4. Subdivision Design Features
a. Layout and width of proposed streets and utility
easements showing street names, lot dimensions,
parks and other public areas. The name of any
street heretofore used in the (City or Town) shall
not be used, unless the proposed street is an ex-
tension of an already named street, in which event
the name shall be used. The street layout shall
include all contiguous land owned or controlled by
the subdivider.
b. Proposed use of all parcels, and if zoning change is
contemplated, proposed rezoning.
C. Preliminary street grades and drainage plan shall
be shown on a copy of the contour map.
B. Final Plat
1. Plans for water supply, sewage disposal, drainage and
flood control.
Z. Soil borings, if required by the Planning Commission.
3. Evidence that ground water control is at least ten (10)
`l feet below the level cif finished grades or plan for solving
1 ground water problem.
4. Data required under regulation by County Surveyor,
i, e. accurate angular and lineal dimensions for all
lines, angles and curvatures used to describe boundaries,
4 streets, easements, areas to be reserved for public use
and other important features.
L 5. An identification system for all lots and blocks.
6. The size (in square feet) and dimensions of all lots.
7. Certification by a registered land surveyor to the effect
that the plat represents a survey made by him and that
monuments and markers shown thereon exist as located
and that all dimensional and geodetic details are correct.
I
93.
S13.
V. DESIGN STANDARDS
Generally, design standards should assure that the layout of the sub-
division harmonize with existing plans affecting the development and
its surroundings and shall be in conformity with the Comprehensive
Guide Plan for the development of the entire area.
A. Streets and Alleys
1. General Street Design
The design of all streets shall be considered in their
relation to existing and planned streets, to reasonable
circulation of traffic, to topographical conditions, to
runoff of storm waters, and to the proposed uses of
the area to be served.
Where new streets extend existing adjoining streets,
their projections shall be at the same or greater width,
but in no case less than the minimum required width.
Where adjoining areas are not subdivided, the arrange-
_ ment of streets in new subdivisions shall make provision
for the proper projection of streets, When a new sub-
division adjoins unsubdivided land susceptible to being
subdivided, then the new streets shall be carried to the
boundaries of such unsubdivided land.
2. Street Width and Grades
The following standards of street design shall be observed
by the subdivider:
Minimum Width
Maximum
Minimum
Streets
(lot line to lot line)
Grade
Grade
Highways and
100 to 300 feet
5%
0.5%
Major and
Minor Arterials
Collector
80 feet
6%
0. 5%
Local
60 feet
8%
0. 510
Cul -de -sac
60 feet
8%
0. 5%
94.
S14.
3. Reverse Curves
Tangents of at least one hundred (100) feet in length shall
be introduced between reverse curves on collector streets
and fifty (50) feet on lesser streets.
4. Local Streets
Local streets shall be so aligned that their use by through
traffic will be discouraged.
5. Street Jogs
Street jogs with center line off -sets of less than one
hundred and twenty -five (125) feet shall be avoided.
6. Street Intersections
Insofar as practical, streets shall intersect at right angles
and no intersection shall be at an angle of less than forty -
five (45) degrees. It must be evidenced that safe and
efficient traffic flow is encouraged.
7. Alleys
Alleys shall not be permitted in residential areas.
8. Cul -de -sacs
Maximum length of permanent cul -de -sac streets shall be
four hundred (400) feet measured along the center line
from the intersection of origin to end of right -of -way.
Each cul -de -sac shall be provided at the closed end with
a turn - around having a minimum outside roadway diameter
of one hundred (100) feet, and a minimum street property
line diameter of one hundred and twenty (120) feet.
9. Half Streets
Half streets shall be prohibited except where the (Council
or Town Board) finds it to be practicable to require the
dedication of the other half when the adjoining property is
subdivided.
10. Street Names
Proposed streets obviously in alignment with existing and
named streets shall bear the names of such existing
streets. In no-case shall the name for the proposed street
duplicate existing street names, including phonetically.
95.
S15.
11. „ Street Surfacing
Street surfacing done by the developer shall be approved
by the (City or Town) Engineer.
12. Private Streets
Private streets shall not be approved nor shall public
improvements be approved for any previously existing
private street.
13. Local Service Drives
Where a proposed plat is adjacent to a major thorough-
fare the (City Council or Town Board) may require the
developer to provide local service drives along the
right -of -way of such facilities or they may require that
lots should back on the thoroughfare, in which case
vehicular and pedestrian access between the lots and
thoroughfare shall be prohibited.
14. Hardship to Owners of Adjoining Property
The street arrangements shall not be such as to cause
hardship to owners of adjoining property in platting
their own land and providing convenient access to it.
15. Corners
Property lines at street intersections shall be rounded
at a radius of not le s s than ten (10) feet and curb line s
on a radius of not less than twenty (20) feet.
B. Easements
Easements of at least ten (10) feet wide centered on rear lot
lines shall be provided for utilities, storm or sanitary sewers
and public service poles where necessary. They shall have
continuity of alignment from block to block, and at deflection
points, easements for pole line anchors shall be provided.
C. Blocks
1. Length
Block lengths shall not exceed 1, 200 feet and, if possible,
shall not be less than four hundred (400) feet.
97.
S17.
VI. REQUIRED IMPROVEMENTS
A. Monuments
Steel monuments shall be placed at all block corners, angle
points, points of curves in streets and at intermediate points,
as shown on the final plat. All U. S. , state, county, or other
official benchmarks, monuments or triangulation stations in
or adjacent to the property shall be preserved in precise
position.
B. Streets
All the streets shall be improved in accordance with the
engineering specifications established by the (City or Town)
Engineer.
C. Water Mains
Where connection with community water systems shall be
required, the public water shall be used.
D. Sanitary Sewer
In all cases where trunk line sanitary sewer facilities are
available, the subdivider shall be required to install sanitary
sewers and connect the same to such trunk line sewers.
E. Drainage Facilities
Such facilities and easements shall be installed as will adequately
provide for the drainage of surface waters.
F. Street Name Signs
These shall be placed at all street intersections within or
abutting the subdivisions and shall conform to the standard of
design accepted for all street name signs by the Planning
Commission.
G. Stop Signs
These shall be placed at all streets intersecting Highways,
Arterial Streets, and Collector Streets, where the intersection
is not of the directional interchange type.
99.
S19.
VII. PUBLIC LAND DEDICATION
Because subdivision activity creates a need for a full range of public
facilities, the (City Council or Town Board) may require the dedi-
cation of a part of the subdivision for public use, provided such land
reserved conforms to the Comprehensive Guide Plan of the (City or
Town) of Stillwater.
VII. MISCELLANEOUS
A. Variances and Exceptions
Where there are practical difficulties or unnecessary hardships
in the way of carrying out the strict letter of the provisions of
this Ordinance, the (City Council or Town Board) shall have the
power to vary the requirements of this Ordinance in harmony
with the general purpose and intent thereof.
B. Building Permits
No building permits shall be issued by any governing official
for the construction of any building, structure or improvement
on any land henceforth subdivided until all requirements of
this Ordinance have been fully complied with.
C. Validity
If any section, subsection, sentence, clause or phrase of this
Ordinance is for any reason held to be invalid, such decision
shall not affect the validity of the remaining portions of this
Ordinance.
D. Violations
Any person violating any provision of this Ordinance shall be
guilty of a misdemeanor, punishable by a fine of not more
than one hundred (100) dollars or by imprisonment not ex-
ceeding ninety (90) days.
E. Effective Date
This Ordinance shall become effective from the date of its
passage.
3 2099 00079 8250
For Reference
Not to be taken from this room
MINNESOTA
COLLECTION
DOWNTOWN CIRCULATION PLAN
STI LLWATER PLANNING AREA
'AnK711.4
Dow
1961
Stillwater Public. Library,
S2
DOWNTOWN CIRCULATION PLAN
STILLWATER PLANNING AREA
1 N
.S.'TILLWATER PUBLIC LIBRARY
22$ NORTH 4TH S'TF
STILLWAT®R, MN 55082
SPONSORS
Planning and Zoning Commission
Robert D. Hagen,
Chairman
C. D. Bourdaghs,
Vice Chairman
I. A. Bergen
Sherman S. Crane
Richard Dewhurst
W. G. Handevidt
Mrs. Roger Hayes
Jack Hooley
Glen Johnston
Myron Melstrom
James Mulvey
Mrs. J. Oriel
Arno Schwantes
Shields Smith
Chester Wilson
Ronald Ehlinger,
City Engineer
C. J. Thompson,
Secretary
Building Inspector
Stillwater Town Board
George L. Rydeen, Chairman
Harry Hooley
Elmer H. Olson
Charles M. Alcorn, Clerk
Percy Slater, Treasurer
PLANNING CONSULTANT
Community Planning &
Design Associates Inc
THE STILLWATER PLANNING AND ZONING COMMISSION
STILLWATER, MINNESOTA
May 26, 1961
City Council
Stillwater, Minnesota
Attn: Mr. Andrew Madsen, Mayor
Gentlemen:
On Thursday, 26 January' 1961, representatives of the City Council
and various civic organizations met with the Planning and Zoning Com-
mission to discuss proposed vehicular circulation plans for the downtown
area. Of primary consideration was the proposal by the State Highway
Department for a one hundred foot highway right -of -way through Stillwater.
The concensus of those present was to oppose the construction of
a major highway through the community and to recommend the encourage-
_ ment of a western by -pass around the city.
A resolution expressing this opinion was passed and a request was
made to the City's planning consultants to prepare a report containing
appropriate illustrations and descriptive material that would reflect the
aspirations of a unified citizenry toward future vehicular circulation. This
present report is the result of that request.
The scope of the report includes the entire Planning Area of Still-
water City and Township. This was necessary since the success of the
downtown circulation plan depends largely upon area wide circulation
considerations, especially the provision of a western by -pass in the
Township.
The framework for the study was provided by the Township and City
Interim Guide Plans. The concept of land use and vehicular and pedestrian
circulation contained within each formed the basis upon which the detailed
downtown plan was formulated.
It is the recommendation of the Planning and Zoning Commission
that the City Council undertake the following action as outlined in the
City Council -2- May 26, 1961
report to assure the realization of the report objectives:
1. Upon adoption of the plan by the various civic groups, the
Council and Planning Commission should present it to the
Minnesota Highway Department as an official stand on behalf
of the community.
2. The railroad companies that are involved should also be
approached to avoid any misunderstanding of the plan.
3. When the plan is completely acceptable to those who have
the best interest of the total community in mind, the Council
should take the necessary steps to effectuate it.
Respectfully submitted,
Robert D. Hagen,
Chairman
RDH: ml
DENNIS GREBNER THOMAS HODNE REYNOLD ROBERTS AIA
COMMUNITY PLANNING & DESIGN ASSOCIATES INC
ARCHITECTS PLANNING CONSULTANTS DESIGNERS
26 May 1961
Planning and Zoning Commission
Stillwater, Minnesota
Attn: Mr. Robert D. Hagen, Chairman
Gentlemen:
We are pleased to- submit the report, Downtown Circulation Plan,
Stillwater Planning Area, in answer to your request. It outlines
in detail the recommendation of the Planning and Zoning Com-
mission and their planning consultants toward future vehicular
circulation in the downtown area.
The report is presented in five brief sections. They are:
I INTRODUCTION
II INTERIM GUIDE PLAN (PHASE ONE) REVIEW
III PROPOSED PLANNING AREA VEHICULAR CIRCULATION
IV PROPOSED DOWNTOWN STILLWATER VEHICULAR CIRCULATION
V PROCEDURE FOR IMPLEMENTATION
The illustrations are:
1. Future Vehicular Circulation Stillwater Planning Area
2. Downtown Stillwater 10 Year Plan
The planning consultants wish to acknowledge the aid and direction given
this study by the special Planning Commission sub - committee com-
posed of C. D. Bourdaghs, Chairman, Jack Hooley and Ronald
Ehlinger. The committee members gave freely of their time during
_the development of the report thus insuring that its contents re-
flected the true objectives of the entire Planning Commission and
other interested civic groups.
ROBERT ISAACSON ASSOC AIP: PRINCIPAL PLANNER
2635 UNIVERSITY AVE ST PAUL 14 MINN MI 5 -8617
Planning and Zoning Commission -2- 26 May 1961
Acknowledgment is also given to Mr. George Stennes who served
as Planning Commission Chairman until his recent resignation.
Due largely to his able leadership in developing a planning program,
the City of Stillwater has been able to systematically and rea-
listically cope with the pressing vehicular circulation situation.
Sincerely,
COMMUNITY PLANNING &
DESIGN ASSOCIATES INC
Thomas H. Hodne
THH:dlf
DOWNTOWN CIRCULATION PLAN
STILLWATER PLANNING AREA
I. INTRODUCTION
The primary purpose of this report is to present a plan setting forth the
desires of Stillwater Planning Area residents toward future downtown
vehicular circulation. The plan and recommendations resulting from it
relate to the proposed area -wide major circulation system. The study
forms an important segment of the Stillwater City and Township Phase
Two planning effort in that it presents to a substantial degree the major
circulation pattern of the area.
Traffic circulation elements have recently been given special consideration
in light of completed and proposed highway construction by the Minnesota
Department of Highways. Briefly, the developments are as follows:
1. Highway 36 east of the Twin Cities to where it ends, and Highway
212 extending from that point to the southeast corner of Stillwater,
has recently been upgraded to a four lane divided facility.
2. Highway 95 from its junction with Highway 12 (proposed Interstate
Highway 94) and the southern limits of Stillwater is presently
undergoing widening and minor realignment.
3. The State has released a preliminary plan for upgrading and
relocating a portion of Highway 95 through the downtown area of
Stillwater. In conjunction with this scheme a new bridge
crossing the St. Croix River and intersecting with proposed
Highway 95 has been designed.
4. The State desires to upgrade a segment of Highway 95 in Still-
water Township north of the City. Investigations have been
made regarding the present route as compared with providing
an entirely new alignment. Legislative action is necessary
before any construction can proceed on the realignment project.
-2-
A series of meetings have been held with the State Highway Department in
regard to the downtown highway route. Although, there has been considerable
progress, policy decisions of the governing bodies of Stillwater City and
Township regarding vehicular circulation are not in complete harmony with
the State Highway Department proposals. The ensuing chapters review the
governing bodieslaccepted planning goals and recommendations, outline their
proposed vehicular circulation scheme which provides the foundation upon
which to make recommendations relative to the Stillwater business district,
and suggest the procedure in which the plan may be implemented.
II INTERIM GUIDE PLAN (PHASE ONE) REVIEW
In the early part of 1960 the City of Stillwater instigated a planning program
to systematically guide the future development of the community. Accomplish-
ment of the program was to be undertaken in two phases. The Interim Guide
Plan (Phase One) was subsequently completed and the goals and recom-
mendations contained therein were adopted as policy by the Planning Com-
mission and City Council. At that time Stillwater Township entered into a
similar planning program. In turn, the Township approved the principles
contained within an Interim Guide Plan tailored to their needs. Currently,
the two governmental units are proceding as one Planning Area toward the
achievement of a Comprehensive Guide Plan. In addition, a special study
entitled, Downtown Parking Study Stillwater, Minnesota, was undertaken in
Fall 1960 to help meet parking problems.
-3-
The present circulation study is based on planning area considerations as
presented in the two interim planning reports and the Downtown Parking
Study. In summary these considerations are:
Area Circulation
1. A north -south route which would utilize an existing township
road, generally between the junction of Highways 36 and 212
in the south and Highway 96 in the center of the Township,
should be provided. This route could also act as a "western
bypass" for travelers from the north or west who do not desire
to stop in Stillwater.
2. The existing missing link in the north -south route which follows
the western boundary of the Township should be constructed so
that one continuous route from Highway 36 northerly to County
Road 5 is available.
3. A more direct route should be provided for County Road 12
(Willernie Road) as it traverses the Township and enters the
City.
4. A southerly extension of County Road 11 into the northern tip
of Stillwater City should be constructed. This would relieve
the functionally undesirable situation which presently exists
at the junction of County Road 11 and State Highway 95.
5. At least one east -west route north of Highway 96 will be re-
quired. Preliminary investigation reveals that by using
existing roadways, two paralleling routes three - fourths of
a mile apart could be provided, thus shaping logical future
neighborhoods as well as providing facilities for the movement
of traffic. In addition, the present east -west facility that
follows the northern boundary of the Township should be ex-
tended easterly to join State Highway 95. These could be
constructed in segments as the demand arises. Construction
and maintenance costs of the northern boundary road might be
shared by May Township.
-4-
6. Provide a "ring road" system around the downtown business
area using existing 2nd Street and a portion of the easterly
part of the railroad right -of -way as the north -south portion,
and Mulberry Street to the north and Nelson Street as the
south connector.
7. The eastern portion of the ring road should be located generally
in the area between the existing west boundary of Lowell Park
and the railroad right -of -way.
8. Extend Highway 212 as a four lane roadway to a point along
Main Street where East Pine extended would intersect. The
remainding roadways should be designed to serve as the south-
east quadrant of the downtown ring road with a new access road
to the existing bridge.
9. Extend the north connection of the new route easterly through
the downtown area with a connection to existing Main Street at
Mulberry Street to serve as the northeast quarter of the ring
road.
10. Provide arterial and collector street systems as proposed in the
Interim Plan.
11. Provide adequate accessibility to downtown by arterial routes
effeciently connecting the ring road with neighborhood units
and major highways.
12. Existing public off - street parking areas should be retained until
replaced with an orderly staged plan.
13. Deepen the channel on the right bank under the existing interstate
bridge thus permitting boats going under the bridge not to disturb
bridge traffic.
14. Provide a new bridge connecting the existing causeway on the
east side of the river with Highway 212 on the Stillwater side of
the river. (Originally, the new bridge was seen to be con-
structed sometime after 1980. It now appears that it may possibly
become a reality by 1970. )
Land Use
1. Retain and enhance landscaping along all natural scenic areas,
(river, ravines, bluffs, lakes and creeks). Control landscaping
standards along proposed new highway routes.
-5-
2. Maintain strict control of land uses along all highway routes,
arterials and their intersections.
3. Develop neighborhood units as schematically presented in the
interim guide plan.
4. Provide adequate off - street parking and accessibility for the
downtown area.
5. Provide for the orderly expansion of the multi - family and
institutional crescent area between 2nd and 4th west and south of
the downtown area. These areas will be defined in further detail
during Phase II.
6. Provide adequate school, park and playground area to serve the
neighborhood units.
7. Provide expanded recreational facilities along the river (public
or private) with joint use of downtown parking facilities.
8. Improve the recreational and boat landing facilities on the east
side of the river and encourage its use with improved roadways.
9. Sufficient land in the eastern portion of the Township should be
reserved for future medium density residential development so
that necessary community services may be provided more
economically. Most of the land in this area is rated poor for
agricultural use but is well suited for medium density residential
development.
10. Prime agricultural land should be reserved for farming wherever
possible; however, allowance should be made for "exurban"
living in outlying portions of the town.
11. A sizable tract of land fronting on new Highway 212 should be
reserved for commercial use. Properly regulated, such an
area can become a definite asset as distinguished from hap-
hazard development which causes friction among incompatible
uses.
12. Two areas should be set aside for industrial use - one with rail
access, the other with highway access. This would provide for
balanced community development. Indications are that the
availability of rail access would not be a major requirement of
industries desiring to locate in the St. Croix Valley. Thus, only
a comparatively small industrial tract near the Northern Pacific
rail line need be provided. If this develops beyond present
anticipations, additional surrounding land could be made
available.
Aside from the changed time schedule to include the new bridge in 5 -10 years,
the recommendations based on established goals remain intact.
III PROPOSED PLANNING AREA VEHICULAR CIRCULATION
Figure 1 reveals the location of proposed roadways and indicates the recom-
mended staging of their construction.
Of first priority, of course, is the proposed layout for Highway 95A through
downtown Stillwater and the western bypass (95) in the Township.
10 Year Plan
The predominant objective of the 10 year plan is to discourage through
traffic from traversing downtown Stillwater. This end will be accomplished
if:
1. A new bridge over the St. Croix is provided to carry the bulk
of the interstate traffic.
2. The present bridge is retained to carry locally oriented automobile
traffic and provide bicycle and pedestrian access to the recreational
area in Wisconsin.
FIGURE 1
Proposed Existing" 10 Year Plan
- - - -- Four Lane Divided Highway -� 20 Year Plan
- - -___
Major Highway 000a000 Alternate 95 Proposal
Arterial Highway "Existing Development
FUTURE VEHICULAR CIRCULATION zaaa ,
STILLWATER PLANNING AREA��'eASrYAE�ES °� 4ME=ora
so
3. The eastern half of the proposed ring road is constructed to
divert Highway 95 traffic to and from the southern St. Croix
Valley around the downtown area. This will also aid internal
traffic movement.
4. The western bypass (Highway 95) is constructed to carry
traffic from the north and west that does not intend to stop
in Stillwater. The bypass will also provide a much needed
north -south route for internal Stillwater Township traffic.
20 Year Plan
The purpose of the 20 year plan is similar to the 10 year plan objective
but is more broad in scope. Projects included in the 10 year plan will
successfully divert through traffic from the downtown area. The goal of
the 20 year plan is to strengthen the 10 year scheme and to generally pro-
vide a more efficient circulation system within the Planning Area. Projects
included in the 20 year plan are:
1. Provide a four mile new alignment of Highway 95 in northern
Stillwater Township to connect with the western bypass. By
relocating Highway 95 on a two and one -half mile section of
present Township Road 82 and improving it to acceptable
standards, only one and one -half miles of entirely new con-
struction would be required. An alternate proposed location
is also shown in Figure 1; however, the route outlined above
appears to be more logical.
2. Relocate Highway 95 lying south of Highway 212 on present
County Road 15 to provide a more efficient and expeditious
route extending from Hastings to the northern part of
Washington County. Existing Highway 95 which winds near
the river should be retained as an alternate "scenic route. "
At present the proposed alignment of Interstate Highway 94 where
it crosses County Road 15 indicates only a grade separation.
Two interchanges are shown where proposed Highway 94 in-
tersects with two minor county routes located on each side of
mom
County Road 15. If Highway 95 were relocated as suggested
above, it is felt that its intersection with proposed Highway 94
should provide full access and egress. This would eliminate
the need for the two interchanges presently proposed by the
State Highway Department.
(Admittedly, the scheme outlined above is beyond the jurisdiction
of the Stillwater Planning Area. But to realistically plan for
major vehicular circulation, governmental boundaries must be
transcended. This situation places emphasis on the need for
county -wide planning.)
3. Complete the western portion of the proposed ring road to aid
in diverting through traffic from the main shopping area and to
decrease internal traffic congestion.
4. Provide a more direct route for County Road 12 (Willernie Road)
as it traverses the Township to enter the City. This road would
act as a collector for the urban development that is expected to
occur in southern Stillwater Township.
5. Extend County Road 11 southerly through an existing ravine to
intersect with Highway 96 in the northern tip of Stillwater. This
will provide improved access to the potential residential neigh-
borhoods north of the City. The existing intersection of County
Road 11 and Highway 95 will not be adequate if significant urban
expansion occurs in the north.
IV PROPOSED DOWNTOWN STILLWATER VEHICULAR CIRCULATION
10 Year Plan
Figure 2 demonstrates a detailed land use and circulation scheme for the
eastern portion of downtown Stillwater. The plan suggests how the pro-
posed State Highway Department layout should be revised to best serve
the Stillwater area now and in the future. The underlying objective is to
SECOND STREET 4 � ��i�l
IEl
J ��
MAIN STREET
N
_.
NI T
PARKING
M
-1-1 -
encourage downtown retail and commercial establishments to exist and
expand within the framework of the downtown core area.
The plan is based on three criteria.
1. Shortage of land for commercial expansion.
Geographical factors limit lateral expansion of the business
district; therefore, the existing land must be used more
efficiently. Land for railroad and major highway use must
be restricted since these uses are incompatible with the
development objectives of the downtown commercial and
waterfront area.
2. Need for visual and functional link between business district
and St. Croix River and Lowell Park
The park area serves as a positive force in attracting shoppers
to the business district. Through proper development of the
waterfront and commercial areas this attraction can be
strengthened to provide an aesthetically pleasing and functionally
operative environment in which to shop, work and spend lei-sure
time. The present State Highway Department proposal defeats
this objective since a four lane divided roadway would both
visually and functionally sever the waterfront from the com-
mercial district.
3. The desire to separate through highway traffic from locally
oriented traffic.
The hazard of traffic congestion in a downtown area is well
known. A smooth and logical flow of traffic within the downtown
area will be a definite asset in attempting to bolster the business
economy. Again, the State plan is incompatible with this ob-
jective.
The following discussion serves to explain in detail the contents of the
Downtown Stillwater Circulation Plan and how it relates to the State High-
way Department plans.
-� -12-
I . Area South of Nelson Street Including Proposed Bridge.
Eliminate the ramp serving traffic from Wisconsin to downtown
Stillwater. The existing bridge should be retained to carry the
local traffic. If this approach is missed it is possible to make
a "U" turn south of the interchange.
Revise connection to Nelson Street to provide for continuous two
way traffic movement on the ring road system.
2. Area from Nelson Street to Mulberry Street
Provide 60 foot right -of -way with 44 foot pavement width for the
ring road and prohibit on- street parking to assure four effective
traffic lanes.
Extend 60 foot right -of -way to the existing western boundary of
the developed park area.
Provide a 10 to 15 foot boulevard to act as a landscape buffer
between rail trackage and the ring road.
Retain the existing single track rail line in its present location
and eliminate or at least limit the spur trackage between Chestnut
and Mulberry.
Provide 45 degree parking facilities for 200 vehicles north of
Chestnut near the existing freight house and storage shed and
tanks. This will replace the 147 spaces now available along the
proposed 95A right -of -way.
Provide 45 degree parking facilities for 180 vehicles south of
Chestnut as a second stage parking effort.
Retain adequate space along Water Street to serve existing
retail and other commercial establishments.
Assure that the Mulberry Street widening from east ring road
to Main Street will align with the future widening of Mulberry
Street west of Main Street. The first stage widening will
eliminate a deteriorated structure.
3. Area North of Mulberry Street
Reserve this tract for long range industrial use and recreational
expansion. This plan eliminates the need to purchase approxin-a tely
6 -1/2 acres of highway right -of -way which would be necessary if
the State plan is followed.
-14-
2. Present the plan as accepted to the Minnesota State Highway
Department as an official stand on behalf of the Planning
Area residents. Suggest a conference with Highway Depart-
ment officials to explain the plan in detail to give them a clear
picture of the community's desires.
3. Submit the plan to the railroad companies involved and again
suggest a meeting to avoid misunderstanding and to receive
their reaction.
4. Proceed to make the plan acceptable to all concerned and take
the necessary action to effectuate it.